Another supremely important measure which was adopted during the closing weeks of General Brooke's administration, though its complete working out was reserved for his successor, was suggested by some of the census figures which we have just quoted. It was realized that the need of education was of all Cuban popular needs the most urgent. Accordingly on November 2, 1899, General Brooke ordered the organization of a new bureau in the Department of Justice and Public Instruction, at the head of which should be a Superintendent of Schools. The first incumbent of that office was Alexis E. Frye, who drafted another order, promulgated by General Brooke on December 6 and practically constituting a new school law for Cuba. It provided for the formation of Boards of Education and the opening of primary and grammar schools in all communities by December 11, 1899, or as soon thereafter as possible. That was the beginning of the popular education of the Cuban people. After these things, General Brooke was on December 20 relieved of his command in Cuba. He issued a brief farewell proclamation to the people, calling attention to the progress which had been made in good government, and toward complete self-government and independence; every word of which was amply justified by facts. He was a soldier rather than an administrator, and he was nearing the age of retirement from active service. His administration had been beset with difficulties; it had made some mistakes, and it had done much good work. He was charged by some with having entrusted the powers of government too largely to his Cuban Secretaries; while others commended him for that very circumstance. His inclination was toward a bureaucracy, but it was a Cuban and not an alien bureaucracy. It cannot be denied that he laid much of the foundation of subsequent achievements and of successful Cuban government. It was under his governorship that General Ludlow cleansed the city of Havana, that the Customs service and the treasury were reorganized, and that provision was made for a comprehensive system of public schools. CHAPTER X