The Commissioners recommended that the Indians should be colonized on two reserves, north and south of the railway lines respectively. The southern reserve was to be the old territory of the civilized tribes, known as Indian Territory, where the Commissioners thought a total of 86,000 could be settled within a few years. A northern district might be located north of Nebraska, within the area which they later allotted to the Sioux; 54,000 could be colonized here. Individual savages might be allowed to own land and be incorporated among the citizens of the Western states, but most of the tribes ought to be settled in the two Indian territories, while this removal policy should be the last. Upon the vexed question of civilian or military control the Commissioners were divided. They believed that both War and Interior departments were too busy to give proper attention to the wards, and recommended an independent department for the Indians. In October, 1868, they reversed this report and, under military influence, spoke strongly for the incorporation of the Indian Office in the War Department. "We have now selected and provided reservations for all, off the great roads," wrote General Sherman to his brother in September, 1868. "All who cling to their old hunting-grounds are hostile and will remain so till killed off. We will have a sort of predatory war for years, every now and then be shocked by the indiscriminate murder of travellers and settlers, but the country is so large, and the advantage of the Indians so great, that we cannot make a single war and end it. From the nature of things we must take chances and clean out Indians as we encounter them." Although it was the tendency of military control to provoke Indian wars, the army was near the truth in its notion that Indians and whites could not live together. The way across the continent was opened by these treaties of 1867 and 1868, and the Union Pacific hurried to take advantage of it. The other Pacific railways, Northern Pacific and Atlantic and Pacific, were so slow in using their charters that hope in their construction was nearly abandoned, but the chief enterprise neared completion before the inauguration of President Grant. The new territory of Wyoming, rather than the statue of Columbus which Benton had foreseen, was perched upon the summit of the Rockies as its monument.