PURCHASE OF SUPPLIES.

As required by law, we have been present at the opening of bids and the awarding of contracts for Indian supplies, in consultation with the Commissioner of Indian Affairs, and we can testify that fairness and strict impartiality have been the rule in this important business. The number of proposals received and publicly read was much larger than in any previous year, amounting to 600, and the prices ruled surprisingly low. The vast amount of samples filling the warehouses seemed at first sight appalling, but with the help of competent experts all were carefully examined, and such selections were made as seemed best for the service. From the inspection which we have been able to make, we believe that the goods delivered have been fully up to the sample, and we hear very few complaints from the agencies and schools as to the quality of the supplies received. The sweeping charges of fraud in the Indian service which are sometimes published are founded upon traditions that have come down from former times.

Last spring the contract business was divided between Chicago and New York. We can not see that anything was gained by this arrangement. It is true that some large classes of supplies are purchased at the West, such as bacon, beef, flour, corn, and agricultural implements, and the theory is that Chicago is nearer the source of supply. But many contractors and their agents assured us that it was quite as convenient to send their bids to New York, and it is evident that the division of the work involves a considerable increase of expense. But after the experiment of the last year the Secretary and the Commissioner will be able to judge wisely as to the future.

FIELDWORK.

During the year we have visited and inspected Indian agencies and schools in North Carolina, Indian Territory, Oklahoma, New Mexico, California, and the schools at Carlisle and Hampton. Reports of these tours of inspection will be found in the appendix. We invite special attention to the report of Commissioner James in respect to the condition and needs of the Navajo Indians of New Mexico, and to that of Commissioner Painter relating to the sale and lease of lands by the Absentee Shawnees of Oklahoma and the sad condition of the Kickapoos.

CONFERENCES.

As in former years, we have held public conferences with the secre taries of religious societies conducting Indian missions and schools, and other friends of Indians, at Mohonk Lake and in this city. The large attendance at those meetings and the earnest discussion of all phases of the Indian problem evince an unabated interest in the work of educating and civilizing the Indians. Full reports of the proceedings of those conferences are forwarded herewith, and we need only to invite attention to some salient points-the condition of the Indian Territory; the working of the severalty law; the leasing and selling of allotted lands, and the school question.

INDIAN TERRITORY.

The graphic picture drawn by Senator Dawes of the sad state of affairs in this Territory, occupied and owned by the Five Civilized Tribes, was to many a new revelation. Those Indians have so often

been held up as models of civilization, conducting a wise self-government, supporting their own schools and courts of justice, and enjoying all the comforts of home life, that it was surprising to hear that the courts and legislative bodies are utterly corrupt; that the public school system is primitive and inefficient; that the lands belonging to the whole people by treaty rights are, to a large extent, absorbed by a few enterprising half-breeds, who have gained complete control, and pay no attention to the welfare of the great majority of the people; that crime goes unpunished, and that the white people who have settled in the Territory have no protection. But all this has long been a familiar story to us. We have repeatedly called attention to the deplorable facts. Twenty years ago, in our report for 1874, we said:

The experiment of independent local governments on the part of those Indians has been tried for a sufficient length of time to test its practicability, and has not proved satisfactory in its results.

A delegation of this board visited the Territory in December, 1874, and consulted with the leading men of the several tribes, but after a full and friendly discussion the Indians declined to take the initiative or participate in any movement leading to a change in their national condition or relations with the United States. The commissioners, however, after a full consideration of the subject, recommended that a Territorial government be established by the United States, the governor to be appointed by the President, and the legislative body to be elected by the people of the Territory.

Again, in the autumn of 1882, our secretary visited the Indian Territory, and "the conclusions reached by him after several weeks of observation and extensive traveling in that country confirm the views presented in our report for 1874. The reasons which then existed for legislation by Congress for the better protection of the rights of person and property within the Territory still exist, and time has added to their force." In subsequent reports for 1884, 1886, and 1889, we repeated our earnest conviction that a better government than now exists is needed-a government including the whole Territory, and preparatory to its organization as a State and its admission into the Union. From time to time relief measures have been proposed and considered in Congress, but no legislation resulted. Now, however, an earnest effort has been begun to settle the important and vexing problem.

A commission, authorized by the act of March 3, 1893, has been appointed by the President, and has been some months in the field endeavoring to persuade the people themselves to take the initiative, and consent to an equal allotment of their lands, and to the establishment of a Territorial government with a view to the ultimate creation of a State of the Union. This commission has failed, as their published report shows, on account of the selfish interests of a few leading men. It may, therefore, become necessary for Congress to exercise its sovereign power, abrogate existing treaties, and adopt such measures as equity and justice may require to secure the protection and welfare of all the people residing in the Territory, rigidly guarding all vested rights of property. That large tract of valuable land can not always remain in seclusion, and present conditions can not much longer be endured. The number of United States citizens residing, rightfully or wrongfully, in the Territory, is very large-some say 300,000-and is increasing at a rapid rate. A vast amount of property has accumulated in their hands. Many are employed upon the railroads and in mining; others are trading or raising stock, or cultivating farms. There are also teachers, ministers, and physicians, with their families.

For all these there is no adequate protection of property or life, and no provision for the education of their children. Nor are the Indian citizens in much better plight. With several distinct local governments, each claiming national prerogatives, it is easy for criminals to escape from one "nation" to another, and so avoid punishment. No one of these sovereignties claiming independence is strong enough to protect itself. When unlawful intruders encroach upon its borders, or intestine disturbances arise, as a few years ago among the Creeks, and of late among the Chickasaws and Choctaws, an appeal is at once made for United States troops to keep the peace and give protection. An end must be put to such an anomaly. A government should be devised which will give to all the people, without distinction of race, the equal protection of law, and make all citizens of the United States. Under wise legislation the Indian Territory may soon become prosperous, and be admitted, a strong and wealthy State, into the American Union.

LANDS IN SEVERALTY.

The work of allotting and patenting lands to individual Indians under the act of 1887 has been continued during the year, and is progressing as fast as means and wise prudence will permit. Four thousand and forty-two patents have been delivered, 2,001 allotments have been approved in the General Land Office, and 3,792 allotments have been completed and await final action. The work is going on upon twelve reservations, as well as among nonreservation Indians scattered about in several Northwestern States. These last have come to see that public lands are being taken up rapidly by whites, and that they must soon secure homes and adopt the ways of civilization. Eight hundred and four patents have been issued to such nonreservation Indians.

We see no reason for fear or doubt as to the wisdom of the allotment policy. It may have been pushed too rapidly. We think it has been in some instances, for example, among the Cheyennes and Arapahoes of Oklahoma. But this hurried action was required by the terms of special agreements which gave insufficient time for wise precautions. On the whole, so far as our observation extends, the policy is working well. Under it individual Indians are slowly learning lessons of independence and self-reliance. Many are acquiring habits of industry, and are advancing each year toward civilization and entire self-support. The picture, however, is not all bright. There are evils incident to the allotment policy to correct which further legislation will be necessary. One evil, and we earnestly called attention to it immediately after the enactment of the general allotment law in 1887, is that allotted lands being exempt from taxation an unjust burden is thrown upon white residents in the near vicinity of such lands.

The Indian enjoys the privileges of citizenship, but is exempt from its duties. The country where he lives is organized into counties and towns. Courts, public buildings, schools, roads, and bridges must be maintained. It can hardly be expected that the white citizens will pay willingly all those expenses, nor is it just to require it. Provision should be made for reimbursing to the States the amount which they lose by the exemption of Indian lands from taxation. To secure this result an act passed the Senate February 6, 1893, but it failed to pass the House. A similar act was introduced at the first session of the present Congress, but has not yet become a law. We hope the subject may receive early attention. Another embarrassing evil incident to

the allotment policy is the unrestrained sale of intoxicating liquor to Indians who have received allotments. It is claimed, and in some cases the courts have decided, that such Indians are citizens of the United States and subject to the laws of the States in which they reside, and that the laws of the United States prohibiting the sale of liquor to Indians do not apply to them.

The soundness of these decisions is questioned by the Commissioner of Indian Affairs, as it was by his predecessor, but how to deal with the matter and protect the Indians from the dangers to which they are exposed, is a difficult problem. That the danger is real and serious is proved by reports from the Omaha, Shoshone, Grande Ronde, and other agencies where Indians are making disastrous use of their liberty, and are going rapidly to ruin. The sad facts furnish a strong appeal to all missionaries and teachers, agents and inspectors, to exert all their influence to restrain the Indians from evil habits and to train them to a life of sobriety. The chief hope lies in the schools, where the character of the next generation will soon be determined.

LEASE AND SALE OF ALLOTTED LANDS.

In the Indian appropriation act approved August 15, 1894, it is— Provided, That whenever it shall be made to appear to the Secretary of the Interior that by reason of age, disability, or inability any allottee of Indian lands under this or former acts of Congress can not personally and with benefit to himself occupy or improve his allotment, or any part thereof, the same may be leased upon such terms, regulations, and conditions as shall be prescribed by the Secretary for a term not exceeding five years for farming or grazing purposes, or ten years for mining or business purposes: Provided further, That the surplus lands of any tribe may be leased for farming purposes by the council of such tribe under the same rules and regulations, and for the same term of years as is now allowed in the case of leases for grazing purposes.

With reference to this provision we are glad to find in the late report of Commissioner Browning the following:

It has been repeatedly stated that it was not the intent of the law nor the policy of the office to allow indiscriminate leasing of allotted lands, which would defeat the very purpose of allotments, but to permit such leasing only when the allottee "by reason of age or other disability" is unable to occupy his land. If an allottee has physical or mental ability to cultivate an allotment by personal labor or by hired help, the leasing of such allotment should not be permitted.

Yet in spite of the rules and regulations and precautions of the Department many leases have been executed. We find reported 223 farming and grazing leases of allotted lands on the Omaha and Winnebago reservations approved during the last year, and 72 on other reservations. It is easy for an interested person, who covets the use of an Indian's farm, to make it appear that the allottee can not profitably occupy and improve his allotment, and under the plea of disability or inability almost any Indian may ask the privilege of leasing, for the word inability may be made to cover anything down to simple laziness. The sad effects of the law are already apparent among the Omahas, many of whom, living upon the proceeds of leases, have fallen into habits of idleness and intemperance. We think that more rigid restrictions should be adopted, and that leases should be approved only in rarely exceptional cases. We are inclined to favor the plan proposed by Mr. Austin Abbott at the Mohonk conference, to relegate the business to the courts, whose decisions shall determine what leases are necessary and what disposition shall be made of the proceeds for the benefit of allottees.

Another danger threatens the allotment policy-that the provision

making allotted lands inalienable for a period of twenty-five years and longer, in the discretion of the President, may be annulled by special legislation. We find a beginning of such legislation in the act approved August 15, 1894, which provides

That any member of the Citizen band of the Pottawatomie Indians, and of the Absentee Shawnee Indians of Oklahoma, to whom a trust patent has been issued under the provisions of the act approved February 8, 1887, and being over twentyone years of age, may sell and convey any portion of the land covered by such patent in excess of eighty acres, the deed of conveyance to be subject to the approval of the Secretary of the Interior, under such rules and regulations as he may prescribe, and that any Citizen Pottawatomie not residing upon his allotment, but being a legal resident of another State or Territory, may in like manner sell and convey all the land covered by such patent, and that upon the approval of such deed by the Secretary of the Interior the title to the land thereby conveyed shall vest in the grantee therein named.

We fear that this measure may foreshadow great peril to one of the most important and beneficent intentions of the general allotment bill. The temptation to gain ready money by the sale of their lands will be very great to the shiftless and idle, and the result will be a large class of Indians without homes and means of support. We are getting possession of Indian lauds quite fast enough by the purchase of large unallotted tracts, and we can surely leave the allotted lands to their owners until a generation shall be educated to appreciate their value, and use them for their own and their children's benefit.

EDUCATION.

We were apprehensive that the reduction of appropriations for Indian schools would compel some curtailment of the work, but we are glad to find that such has not been the result. On the contrary, there has been some advance both in enrollment and in average attendance, as shown by the following table:

Enrollment and average attendance at Indian schools, 1893 and 1894.

It will be seen that in all the schools there has been a gain of 334 in enrollment, and of 793 in the average attendance. The largest gain is found in the Government boarding schools, while in contract schools there has been a slight falling off in enrollment though a gain in average attendance. The drift of public sentiment seems to tend toward a