"The need for special care in the management of Indian Affairs lies in
the fact that in theory of law the Indian has not the rights of a
citizen. He has not even the rights of a foreign resident. The Indian
individually does not have access to the courts; he can not individually
appeal to the administrative and judicial branches of the public service
for the enforcement of his rights. He himself is considered as a ward of
the United States. His property and funds are held in trust. * * * The
Indian Office is the agency of the government for administering both the
guardianship of the Indian and the trusteeship of his properties."


CONDITIONS ADVERSE TO GOOD ADMINISTRATION.

"The legal status of the Indian and his property is the condition which
makes it incumbent on the government to assume the obligation of
protector. What is of special interest in this inquiry is to note the
conditions under which the Indian Office has been required to conduct
its business. In no other relation are the agents of the government
under conditions more adverse to efficient administration. The
influence which make for the infidelity to trusteeship, for subversion
of properties and funds, for the violation of physical and moral welfare
have been powerful. The opportunities and inducements are much greater
than those which have operated with ruinous effect on other branches of
public service and on the trustees and officers of our great private
corporations. In many instances, the integrity of these have been broken
down."


GOVERNMENT MACHINERY INADEQUATE.