Don Pedro' Antonio Salazar, when he reported in detail, in letters of last December,
all that he had done in the treaty of friendship and commerce entered into
with the Sultan of Sulu, of the mercantile relations which it behooves
us to maintain with the Mohammedan possessions to the south of the
Philippines, of the opinion which he had formed concerning the war of
enslavement, and other matters upon which your Excellency will receive
due instructions under Eoyal order of this date, forwarded separately
and privately, in a veiy secret manner, a communication dated the 17th
of the same month, in which he set forth the policy, which, according
to his belief, should be adopted toward the said Kingdom of Sulu in
consequence of the said treaty. Her Majesty the Queen Regent, having
been informed of all this, and having in mind the remark made in the
said communication, that the Spanish possessions in the southern region
are frequently oppressed by the alcaldes, on account of the present
defective system of administration, has decided to direct your Excellency
to suppress, with strong hand, these excesses of the alcaldes, that they
may not disturb the peace happily established with Sulu; exhorting
them to moderation and peaceableness, in order that the odium which
the Moro race feels toward us may vanish. Noting also among his
remarks, his conclusion that while the war of enslavement is undoubtedly
an evil, it produces nevertheless the advantage that those provinces are
united more closely to the Government because of their greater need of
the same against their enemies; and that by becoming used to a life of
freedom and license, those people become also inured to captivity, from
which they could sometimes escape but do not, many preferring to* turn to piracy. Her Majesty holds these views erroneous and harmful, since
no just and paternal government should promote misfortunes among its
subjects in order to make itself more necessary, and thus keep them
dependent ; and because, though there may be some who are content with
slavery in Sulu because it affords them a life of unrestraint, it can not be
ignored that their families and the Government suffer a great injury
from their situation, nor that morality would be greatly outraged, if,
for these reasons, countenance wer.e given to slavery, which should be
attacked and exterminated at all costs. The idea is advanced in the
same communication, that in the countries of the southern part of the
Philippines, the system of protection, carried to the point of establishing
trading houses, will be almost equivalent to possession and control, when
once commercial interests are held to be the chief interests, and there
is set forth a plan to diminish or even cut off the trade ^ with Mindanao,
in order to confine the commerce to our channels. Her Majesty, on
being informed of this policy of a protectorate, approves of the same,
but desires that it be carried out frankly and faithfully with the Sultan
of Sulu, in order that he be convinced, through experience, that the
Spaniards are his loyal friends, our authorities keeping it in mind that
the conquest of those countries is not to the interest of the nation, but
rather the acquisition of isolated military and mercantile stations, which
may control indirectly without the disadvantages of great expense and
of arousing the hatred of the natives. This alliance or friendship with
the Sultan should be such, that in whatever war he may be engaged
with his rebellious subjects, he shall be aided in good faith, unless his
adversary should be of such strength as to insure his triumph, for then
the useless defense of the vanquished would subject us to the contempt
of the conqueror and we should lose the benefits already acquired. In
such cases we should remain neutral, under some plausible pretext of
impracticableness or other honorable reason. In other wars, waged by
the Sultan with other princes, we should attempt to mediate, with the
purpose that, by settling new discords, we may obtain advantages from
the two or more belligerents, as rewards for the services rendered them;
but in the event of having to oppose some one of them, it should be
that one who offers us the least advantages, and has the best chances of
triumph, because with our ally victorious, the latter may in the treaty
of peace execute articles favorable to our conmierce, — trying always,
above all things, so to act that the victor shall not become too strong
nor the vanquished brought too low. With regard to the policy which
it is best to adopt as a general rule in regard to commerce, your p]xcellency
sliould remember that the best system consists in the greatest possible
liberty for our merchandise, and in securing, directly or indirectly, for
our own merchandise, or foreign goods carried by the national vessels,
the enjoyment of greater privileges than those of any other country, in
order that they may be preferred and produce greater profits on the
markets.
In the same letter he submits the opinion that the lack of communica-
tion of the coimtries to the south with the Philippines, is a most
favorable political measure for Spanish commerce, and recommends
that our relations with the Government of Sulu should be strengthened
in order to include the same under our dependence at some future time,
it being necessary to act with cunning in order to separate it completely
from the piratical warfare. Her Majesty commands me to state to you
concerning these matters, that the communication of Sulu with the
Philippines being purely commercial, should not be restricted, but on
the contrary, should be increased in every way possible, encouragement
should be given to the establishment of traders and Spanish trading
houses in Sulu, where our good conduct and benevolence toward the
natives may bring us profit. But it is always to be borne in mind that
the Government of Her Majesty does not desire the subjection of other
states to itself, but a sincere friendship and a close and useful alliance,
and that a just and discreet policy, not crafty nor artful, will accomplish
most in withdrawing the Sultan from the interests of the leaders of the
pirates.
Your Excellency will note in the draft of the communicatioi^ from
your predecessor, to which I make answer, the proposal of various
schemes for establishing ourselves securely in Sulu. Such would be the
establishment of a trading house there, already agreed upon in the treaty,
and posting there a garrison, under the pretext that it is for the safety
and greater state of the person of the Sultan. Her Majesty deems
indispensable the establishment of the trading house, but it should be
done in such a manner as not to cause distrust, and fortified and pro-
tected from any sudden attack, using in this the greatest prudence, and
remembering that a ganison there, though it might be acceptable to
the Sultan, might wound the self-love of the people of the country, and
so render odious both the Sultan and his protectors. The most essential
thing for the Spaniards, in order to become firmly established, is to make
themselves popular, to respect the customs of the people, even vnth
veneration, not offending any one for any reason, treating all with
courtesy and decorum ; not showing themselves domineering nor covetous,
not insulting any one, but being very respectful to women, the old and
children, not scoffing at anything in their public amusements, nor
religious affairs, nor in their meetings. It seems to her Majesty that
through these means would be secured a consistent friendship between
both countries, and that the most adequate plan for the support and
defense of the trading house would be to maintain in tlie safest harbor
a permanent maritime force, in which should be stored all arms and
munitions, and sufficient soldiers, in case it should be necessary to defend
the building, without arousing the suspicions that would be caused by
placing these preparations, concealed or openly, in the house itself; and
since for this purpose, for the defense of the country against the pirates,
and for maintaining the respect of the people and Government of the
protectorate, it is indispensable to keep a well organized sea force, her
Majesty had determined that you decide the manner of organizing this
maritime force, without losing sight of the great economy which it is
necessary to observe on account of the embarrased condition of the Pe-
ninsula, which needs now more than ever before the assistance of her
colonial provinces.
Finally, the predecessor of your Excellency further stated that he
was attempting to extend his efforts to the establishing of the protectorate
over the countries subject to the Sultan of Mindanao: her Majesty
approves this policy on condition that in its execution the purposes and
measures, which are mentioned above for Sulu, be adopted.
, convinced
of the important advantages to be derived by the Philippines, in making
more intimate and more secure our few and doubtful relations with the
island of Sulu, determined immediately upon assuming command, to
negotiate with the Sultan of the said place, a treaty of peace and com-
merce which he considered, in every respect, not only useful but indis-
pensable to the prosperity of the country. After having announced this
project in various of his communications, he reported in December of
last year, having accomplished the same, and furnished in several com-
munications, an exact and detailed account of the history of his labors in
tlie affair, the reasons which he had for undertaking the same, the
benefits which he expects as results, and the measures whose adoption he
deems necessary in order that these results may be more cei*tain, and at
the same time profitable. Tliere were received from him seven letters,
all marked with the letter "A/' numbered from 14 to 23, and dated from
the 15th to the 29th of the said month; with so many points of analogy
and similarity between them, that they should be considered as one only.
The first, number 14, is intended to furnish information and data
relative to Sulu, and the other Mohammedan islands of the south (with-
out which it would be impossible to know their importance) and to
detail the relations which we should have with them, considering them
both in relation to commerce and with respect to the war of enslavement.
In the second, of a confidential nature, he outlines the policy, which, in
his opinion, should be adopted in order to obtain all the advantages which
our position affords. In the third, number 16, he states the measures
which should be adopted for the benefit of the national commerce in those
countries. In the fourth, number 20, he transmits a copy of the treaty
of peace, protection and commerce concluded with the Sultan of Sulu,
and of the stipulations made for the determination of the duties which
our vessels should pay in Sulu, and the Sulus in Manila and Zamboanga.
In the fifth, number 21, he relates the motives which have led him to
direct tliese matters as he has done, transmitting to her Majesty all the
plans referring to it, through this Ministry only. In the sixth, number
22, he gives account of some of the advantages which have been derived
from our expedition to Sulu, and amongst others, a treaty of peace
concluded between the pueblo of Malusu and the Governor of Zamboanga.
And finally, in the seventh, number 23, he sets forth the necessity of
retaining at that station, the frigate-captain, Don Jose Maria Halcon,
who performed the duty of commissioner for the negotiation of the
treaty.
I have informed her Majesty, the Queen Regent, of the contents of all
these communications, and in this knowledge she has seen fit to ap-
prove, in a general manner, all the measures adopted by the aforemen-
tioned predecessor of your Excellency, giving suitable orders, that the
proper Ministry provide the special approval which some of them deserve,
on account of their weight and importance, concerning which your Ex-
cellency will soon be informed, and deigning to command me to submit
in a separate and particular communication the following advice on the
special subject of the letters referred to above.
Her Majesty, feeling assured that conquests in themselves, and later
their maintenance, absorb the profits which accrue from the countries
already acquired, prefere to any conquest advantageous trade and com-
merce. Convinced, therefore, that the most profitable and lucrative
policy is to conquer or secure such places as on account of their fortunate
location may prove to be at the same time strong military and mercantile
posts and so both promote and protect commerce, she cannot but approve
the ideas your Excellency's predecessor expresses in his communication
numbered 14, and desires, that upon adopting the system in accordance
with those ideas, you confine yourself solely, in all enterprises of conquest,
to occupation of territory either abandoned or uninhabited, or to that
which, notwithstanding its being settled, would cost little and would not
give occasion for a costly war. In order to increase our commercial
advantages in Sulu, and to raise up rivals to the Portuguese, it would
be well to grant protection and reduction in duties to the Chinese junks *
under the specific condition that they do not sail under the flag of any
other nation (without mentioning the Portuguese by name in order not
to occasion the resentment of this power) and to secure in Sulu for
those who adopt the Spanish flag, a reduction of duties although not as
much as that which should be granted to Spanish vessels. Thus it is
the will of her Majesty that you be directed, commanding, with the same
purpose in view, that your predecessor state to you explicitly, which are
the measures that he would have adopted, had he been authorized to do
so, in order to avoid the blow to our commerce threatened by the
Portuguese, depriving us with the double expedition from Macao and
Singapore to Sulu, of the advantage over all other nations which still
remained to us in this traffic; and that your Excellency obstruct, by all
the means in your power, the association of interests between the com-
mercial houses of Manila with those of Macao and Singapore, if the
same were intended to secure special privileges in the island of Sulu to
the products of the Philippines to the injury of the national commerce.
With respect to the matter of the war against piracy, referred to also
in letter number 14, her Majesty approves all the purposes expressed
therein by the predecessor of your Excellency, and commands me to
direct your Excellency that, without ever recurring to war or the inter-
ruption of traffic with Sulu as means of destroying or diminishing piracy
and traffic in slaves, you exert yourself to suppress the same and remedy
the evil which it inflicts on the Philippines, by the various means at
hand, to-wit ; 1st, through negotiations with the Sultan of Sulu ; in which
measures suitable for the accomplishment of the purpose may be con-
certed; 2d, securing the increase, by the Sultan, of import duties on
slaves who are Spanish subjects, and the lowering of duties on slaves of
other countries; 3d, requesting of him assistance in driving out the
pirates from their haunts of Balangingi and other places ; 4th, watching
the rendezvous of these pirates in the Bisayas also, in order to destroy
them. In this manner and with hard lessons, with the energetic and
continuous warfare spoken of by the predecessor of your Excellency, the
extermination of piracy will be accomplished without the evils which
would follow upon an unwise and useless war against Sulu, and without
the more serious result to which the same would expose us, and which
her Majesty desires your Excellency to avoid at any cost, the result
referred to being the removal of the Sultan to some other point, which
removal England and Holland might turn to great advantage against
our trade.
As to the measures proposed in letter number 16, for the benefit of
the national commerce, her Majesty will determine which is fit, notifying
your Excellency in due season. Meanwhile you should keep in mind,
that as long as the Sulus man their ships with slaves, your Excellency
should prohibit them from trading in Zamboanga and all other places
within the dominions of her Majesty, whenever the ships which they use
shall be manned in whole or in part with slaves who are subjects of Spain.
Concerning the treaty of peace, protection and commerce, a copy of
which is 'inclosed in letter number 20, her Majesty has been pleased to
resolve, after careful examination, that it be forwarded with favorable
comment to the Ministry of State for the approval of the Cortes and
the ratification of her Majesty, all of which will be communicated to
your Excellency in due time, its policy being carried out and its intent
carefully observed in the meanwhile, for the purpose of determining
whether there is anything to amend or correct by means of further
negotiation, which would be considered as an appendix to the treaty. In
view of the explanations concerning the first article of the aforementioned
treaty furnished by the commissioner of the negotiation, her Majesty
commands me to repeat to your Excellency the necessity for carrying
out the policy which is prescribed to your Excellency with regard to
acquisition and conquest ; in order to claim those lands referred to in the
explanations, if perchance such claim should be advisable for the purpose
of acquiring some point of military or mercantile value: or in order
to set up the claim of the Kingdom of Spain to those countries, in order
that by giving it up, we may secure other things which may be of real
importance to us, such as reduction in duties, some exclusive privilege,
or the possession of some isolated point of great importance.
The predecessor of your Excellency by addressing to this Ministry
all communications bearing on this matter, has merited the approbation of
her Majesty, because he has avoided many unnecessary stepa and useless
delay, and thus your Excellency will continue to do, in the manner herein
indicated.
And finally, her Majesty having noted with satisfaction the favorable
results produced already by the expedition to Sulu, and approving the
idea of not using the fifteen hundred dollars sent by the Bishop of Nueva
Segovia for the redemption of slaves, she commands me to direct your
Excellency to cultivate the friendship of all the chiefs who, like the
Orankaya of Malusu, abandon the pursuit of piracy, and that suitable
orders be issued by the Division of the Marine of this Ministry, not
only that the captain of frigate, Don Jose Maria Halcon, who has so
well discharged the duty of negotiating the treaty, be assigned to that
station, but that he also be duly rewarded for his services as such com-
missioner; lier Majesty not failing to express the gratitude with which
she declares her appreciation to the predecessor of your Excellency, the
aforementioned Don Pedro Antonio Salazar. All of which is com-
municated to your Excellency, by Royal order, for your due information
and guidance, instructing you with regard to the confidential letter, that
you carry out the directions forwarded you separately under this date.
