Sebree later remarked of his predecessor that he had "great ability, kindness, tact and sound common sense". Unlike Sebree, who was concerned that he did not have a legal mandate to govern, Tilley was not shy about enacting legislation and being the "de facto" leader of the territory. Although the deed of cession recognized his authority and gave him the title of Acting Governor, as far as the United States government was concerned, he was officially responsible only for the naval station. As the first naval governor, Tilley laid the groundwork for much of the future governance of the territory, which did not yet even have a formal name. The American Samoa government includes Tilley and the other pre-1905 station commandants in its list of territorial governors.