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Indians are of many different tribes, of many linguistic stocks, and of many different native cultures. Some are predominantly full-bloods, some predominantly mixed-bloods. From the standpoint of practical administration affecting social and economic conditions the term “Indian” seems to be of importance chiefly from the standpoint of law.

The Need for Decentralization. Because of this diversity, it seems imperative to recommend that a distinctive program and policy be adopted for each jurisdiction, especially fitted to its needs. Certain broad principles and policies will be common to many if not all, yet their application in individual cases may differ materially. To make such a general procedure effective local superintendents must be left with wide authority within the scope of the approved program as they cannot well be controlled by minute uniform rules and regulations applicable to the entire Service.

A step apparently in the direction of decentralization has recently been taken in the division of the Indian country into nine districts, each in the charge of a district superintendent.^[1] Several of these district superintendents are also superintendents of particular reservations or agencies. With respect to their broad districts, their duties are primarily inspectional and advisory, not administrative. They are not in the direct line between the reservation or school superintendent and the Washington office. They do not pass on all transactions between the superintendents and the office. The organization thus remains highly centralized.

The difficulties resulting from high centralization have been touched upon at different points in the present chapter, but a brief summary of them here may be helpful. The Indians are widely scattered, in isolated sections, many of them at a great distance from Washington. Because of the distances and the isolation, delays in securing administrative action in a highly centralized system are inevitable even if prompt action can be taken by the central office. The diversity of the conditions on the different reservations makes it extremely difficult, if not impossible, for the personnel in Washington, especially the subordinate personnel, to have an intimate detailed knowledge of local conditions. A tendency toward uniformity of treatment almost inevitably results.