a systematic policy in the years of Monroe and Adams and Jackson, but never attained form and shape until the ideal which it represented had been outlawed by the march of civilization into the West. The conflict between the Indian tribes and the whites could not have ended in any other way than that which has come to pass. A handful of savages, knowing little of agriculture or manufacture or trade among themselves, having no conception of private ownership of land, possessing social ideals and standards of life based upon the chase, could not and should not have remained unaltered at the expense of a higher form of life. The farmer must always have right of way against the hunter, and the trader against the pilferer, and law against self-help and private war. In the end, by whatever route, the Indian must have given up his hunting grounds and contented himself with progress into civilized life. The route was not one which he could ever have determined for himself. The stronger race had to determine it for him. Under ideal conditions it might have been determined without loss of life and health, without promoting a bitter race hostility that invited extinction for the inferior race, without prostituting national honor or corrupting individual moral standards. The Indians needed maintenance, education, discipline, and guardianship until the older ones should have died and the younger accepted the new order, and all these might conceivably have been provided. But democratic government has never developed a powerful and centralized authority competent to administer a task such as this, with its incidents of checking trade, punishing citizens, and maintaining rigorously a standard of conduct not acceptable to those upon whom it is to be enforced. The acts by which the United States formulated and carried out its responsibilities towards the Indian tribes were far from the ideal. In theory the disposition of the government was generally benevolent, but the scheme was badly conceived, while human frailty among officers of the law and citizens as well rendered execution short of such ideal as there was. For thirty years the government under the Constitution had no Indian policy. In these years it acquired the habit of dealing with the tribes as independent--"domestic dependent nations," Justice Marshall later called them--by means of formal treaties. Europe thought of chiefs as kings and tribes as nations. The practice of making treaties was based on this delusion. After a century of practice it was finally learned that nomadic savages have no idea of sovereign government or legal obligation, and that the assumption of the existence of such knowledge can lead only to misconception and disappointment.