11 



in large quantities for distribution among the rice growers of 

 the Islands. 



Examples might be multiplied indefinitely of the improve- 

 ments that are within the reach of the average farmer. All 

 efforts at improvement must begin where the Filipino farmer 

 now is, and must offer reforms that are within his reach. 



AN UNINTERRl'PTED PROGRAM 



The development program must go forward without inter- 

 ruption. Changes in the directorship and in other positions 

 in the Bureau of Agriculture have occurred with great fre- 

 quency. With each change in the administration of the Bureau 

 has naturally come a change in policies. The Bureau has been 

 so overloaded with police duties that it has had little time and 

 money left for large constructive work. There has also been 

 a tendency on the part of the Bureau in the past to extend its 

 field of work rather more rapidly than the available funds would 

 justify. The present policy of the board, fortunately, is to con- 

 centrate upon a limited number of lines and to emphasize the 

 basic industries of the Islands. 



With the larger plans of the Bureau must come a greater 

 stability in the tenure of office of the men who are to do the 

 work. This is impossible so long as the scale of salaries is fixed 

 by the Legislature. Indeed, the elementary weakness in the 

 administration of the Bureaus it was my duty to study, lies 

 in the fact that the Legislature fixes the salary that is attached 

 to each position in the service. When a man develops beyond 

 the salary fixed for the position he holds, or is offered a better 

 salary elsewhere, either he must be advanced in rank and re- 

 sponsibility, as well as in salary, or his services are lost to the 

 Government. Obviously, it is not practicable to promote a 

 man in rank every time that it is deemed wise to increase his 

 pay ever so slightly. As a result, as soon as a man has gained 

 sufficient knowledge of local conditions and of the needs of the 

 people of the Islands to begin to be really useful, his connection 

 with the service is too frequently severed and a new man, inex- 

 perienced in the Philippines and unacquainted with the local 

 conditions, is put into his place. On the other hand, if a reason- 

 able proportion of the strong men are held in the service through 

 promotion in rank and in salary, the organization of the Bureau 

 soon becomes top-heavy because too many men occupy admin- 

 istrative and supervisory positions, and too few good men are 

 kept at work in the field of their specialties. 



