when an Indian outside of a reservation shall commit an offense he should be made subject to the police and criminal laws of the State in which such offense is committed. Some form of territorial policy should be established for their government when the number and compactness of their population would render such an organization proper. The individuality of the Indian as a member of the community should be recognized, and the absurd fiction of tribal sovereignty in which that individuality is now merged, should be abolished. Courts should be organized for the administration of justice over such territory. The individual ownership of property should be encouraged under temporary restrictions on alienation, and the privileges of citizenship made accessible upon such terms as good policy may prescribe. The evils that result from the absence of provisions like this are apparent. Community of property is fatal to industry, enterprise, and civilization, and exemption from legal responsibility for crime has stimulated depredations, robbery, murders, and assassination.
In regard to the inspection and delivery of supplies, they remark:
We have already recommended that officers be detailed for the inspection of beef and beef-cattle at the Indian agencies; and, for reasons similar to those already mentioned in that connection, we recommend that all inspections of Indian goods (except annuity-goods, the inspection of which is provided for by treaty) and supplies at the points of purchase and shipment, at terminal points of railroad transportation, and at the agencies, before the articles pass into the possession of the agents, be under the exclusive charge of the Commissary-General of the Army. We believe that such a system would not merely serve as a salutary check on contractors, freighters, and agents, but would be of great use in satisfying the public mind that the service was fully and faithfully performed. It would seem desirable that.a copy of the reports of all such inspections should be transmitted, through the proper channels, to the Indian Office.
They also recommend—
That in accordance with the provisions of the treaty of 1808, Army officers be detailed to inspect all issues of annuity goods, and that all inspections of Indian supplies and beef be made under the direction of the Commissary-General of the Army.
That a carefully-devised system of accounts, uniform for all agencies, be established, with the mode of issuing and accounting for all articles definitely prescribed.
That the agencies, differing greatly as they do in the amount of intelligence and capacity required to conduct them, be so graded as to establish for the most important ones salaries sufficient to secure the services of thoroughly-trained and competent men.
That all future legislation for the Indians, and all dealings with them, be based upon the policy of bringing them as rapidly as possible under the same law which governs all other inhabitants of the United States.
The minor recommendations of the commission, such as require no legislation, and need only departmental action, will be carried into execution as rapidly as possible, so far as they meet my approval.
PENSIONS.
The annual report of the Commissioner of Pensions shows that the number of pensioners on the roll continues to decrease, as was anticipated in the last annual report of this Department. The greatest number was reached during the year ending June 30,1873, since which time the roll has undergone a steady decrease. There has not, however, been a corresponding reduction in the annual "charge to the Government on this account, for, while the roll has decreased 1,420 in number during the last fiscal year, the total annual rate is $44,733.13 in excess of that of the preceding year. This result is owing, principally, to the
