sults in the irrigation of additional areas, the cost of such enlargement comes as an added burden to those areas previously served, as all expenditures of this kind are assessed on a per acre basis against the land benefited.

The Uintah Basin, Utah, is in an exceedingly isolated locality, being some 90 miles from the nearest railroad, with an intervening mountain range some 11,000 feet high. Hauling supplies into the valley and shipping products therefrom is expensive, and the lack of transportation facilities seriously handicaps development of this valley. Last year the drought in the Western States affected this reservation also, but in the face of these handicaps something over $2,000,000 worth of crops were grown on the irrigation projects at Uintah, the area under cultivation being over 50,000 acres. Instead of having one or more comprehensive irrigation systems at this point we have some 22 separate projects, each with an independent heading in the various streams; the largest of these systems supplying 11,000 acres and the smallest but two Indian allotments aggregating 160 acres. The geology of the country is such that these systems can not be combined into one, as they frequently draw water from entirely independent streams; but some of the systems are so located that consolidation can be effected to considerable advantage. Storage would be of great benefit if it could be had for reasonable expenditure, but desirable reservoir sites are lacking, and, unless further surveys disclose suitable sites, the irrigable areas in this valley must depend entirely on the available flow in the streams. When the rainfall is deficient, naturally crops suffer.

An agreement having been reached with white landowners in the Florence-Casa Grande Valley as to a division of the available water for irrigation purposes from the Gila River, the work of signing up white landowners desiring to come into this project was completed. Thereafter the work of selecting the 27,000 acres of land in white. ownership to come into the project was taken up. The area seeking inclusion was so large and the claims made in behalf of various tracts so strong that the question of designating the specific 27,000 acres having the first and best right to come into the project proved to be a somewhat delicate one. Certain fundamental guides, such as a decree of the local court, and areas known to have been previously irrigated, enable the ready selection of some 13,000 acres. Other areas which, under the contract with the white landowners, were to be designated by specific parties, aggregated an additional 5,500 acres. This left over 9,000 acres still to be selected, which was done from the best information available, and the project was finally declared feasible in May of the fiscal year. The actual construction of the project is now under consideration, bids having previously been issued looking to the building of the diversion dam across the river.

Congress has recently enacted legislation which comes as an interesting experiment in Indian irrigation work. Originally, appropriations for this work were purely gratuitous, no reimbursement being required. Later, Congress directed reimbursement out of tribal funds or out of proceeds derived from the sale of surplus land. Experience demonstrated that this was not entirely equitable, as frequently individual allottees living outside of the irrigable areas of various reservations did not desire and did not receive an allotment of irrigable land. Their prospective shares in the tribal funds, however, were being depleted on account of construction of irrigation projects within their reservation. In 1914 Congress directed that expenditures for Indian irrigation projects, reimbursable out of tribal funds, should be assessed against the individual Indians benefited. This, of course, means an assessment on a per acre basis against the lands irrigated and places the burden where it properly belongs, i. e., on those directly benefited. An item in the Indian appropriation act for the fiscal year 1921 directs a partial repayment of the construction charge on Indian irrigation projects, where reimbursement is required by law, and the regulations issued pursuant to such legislation require payment of 5 per cent of the total construction charge as of the end of each fiscal year. Just what results will flow from this remains to be seen. Heretofore the Indians have not been required to repay directly from their own personal funds for any of the facilities provided for their benefit. It may be difficult to convince them that the time for accounting has now arrived.

STOCK RAISING.

In my report last year reference was made to the drought conditions prevailing in the Northwest, which were so threatening as to call for a considerable reduction in the size of the herds kept on the various Indian reservations. The necessity for doing this became more apparent as the season progressed, and consequently many of the herds were much smaller in the fall than would be carried through the winter under normal conditions.

The period of drought was unfortunately followed by what was probably the longest and severest winter ever experienced in that section. This naturally resulted in serious losses of stock to both the Indians and the whites, although reports indicate that the percentage of loss was much smaller to the Indians than to their white neighbors, which was largely due to the provision made for their winter care and feeding.

In this connection is submitted an article published in a recent issue of The Producer, which I prepared at the request of the editor.

treating the subject of stock raising somewhat more comprehensively:

THE INDIANS AS PRODUCERS OF LIVE STOCK.

By CATO SELLS, Commissioner of Indian Affairs.

The American Indian is not the same problem he was a generation ago. Of this there can be no doubt, in view of existing conditions on the reservations where stand the gravestones of Custer and his band, or among the tribes that joined in the atrocities of Geronimo. Children of chieftains who once trained for war are now occupied with vocations of peace. Indian welfare has become largely a social and economic question. The Indian's progress in self-support justifies the broader policy of making him a producer beyond his needs and an important contributor to the world's supplies. He is, in fact, fulfilling this expectation in many ways, but perhaps in nothing more encouragingly than by his activities in stock raising.

An interesting chapter could be written on the Indian as a crop grower, with his tillage of nearly a million acres and his general use of modern farm implements and methods; but his larger opportunities are in live stock, to which the greater part of most of the reservations is better adapted than to farming. In assuming the administration of Indian affairs, more than seven years ago, I was much impressed with the possibilities for greater production of beef, wool, and mutton. The world-wide demand for these staples of civilized life was increasing, only to become clamorous in the later emergency that required adequate food and clothing for vast armies of nonproducers, and fully justified our special efforts to enlarge this industry. It was found, however, that the live stock situation among the Indians needed careful study, and this was undertaken with special reference to cattle and sheep.

A systematic survey of the reservation ranges was made by experienced Indian Service stockmen, which disclosed conditions requiring constructive action, such as the correction of overstocked ranges, the maintenance of grazing areas at normal carrying capacity, water development to increase capacity, winter feeding and protection, the selection of suitable breeds, and the revision of lease contracts accordingly. Following these readjustments of the manner and terms of leasing to white men, a better relation has obtained between the Indian and the lessee. The objects in view have been practically attained. The ranges are now supporting the largest number of stock consistent with the proper conservation of grass, and, while the Indians are steadily increasing their cattle and sheep, the lessee's stock has not been reduced in number. Altogether the most important future problem is a greatly enlarged water supply. Millions of acres of practically unused reservation land could, and should, be utilized for grazing with proper water conservation and development. Much has recently been accomplished, but very much more should be done. Liberal appropriations are required, and should be made by Congress. Neglect in these respects would be inexcusable and indefensible.

By far the largest part of Indian-owned stock is the property of individuals, which is promoted as rapidly as the Indian learns how to manage for himself. Indians, as a rule, have had very little to start with, except their allotments of land, and great assistance has been given them in long-time loans from both tribal moneys and appropriations made by Congress for that purpose, termed reimbursable funds." Under this repayment plan, which is a development of the last decade, very successful results have followed from

selling breeding stock to the Indians, allowing them a few years' time for payment, but requiring them to give evidence of their interest in the undertaking, such as providing a sufficient winter's supply of hay, before delivery. As a practical instance, there has been expended on the Crow Reservation in Montana about $82,000 in reimbursable funds for individual Indians, of which approximately 95 per cent has been repaid. The Indians of the Standing Rock Reservation have been operating under this plan for several years with remarkable enterprise and success, and it has become the yearly practice for the superintendent to negotiate regular steer purchases for the Indians as individuals. Nearly 50,000 Indians are now engaged in stock raising, and their live stock increased in value from less than $23,000,000 in 1912 to approximately $40,000,000 in 1919.

The character of the Indian's lands and his native instincts point to his successful future as a stock grower; but, while he loves animal life and is the natural friend of the herd and flock, he has needed sympathetic instruction and protection. He has not understood the comparative values of quality and quantity, but has placed too much merit in numbers alone. It has been profitable to exercise the tact and patience necessary to teach him that a few good draft horses are worth more than a hundred ponies, that scrub stock consumes practically as much feed as well-bred animals and is much less marketable, and that financial returns depend largely on correct views as to the breeding, care, and sale of his live stock.

On the Fort Apache Reservation in Arizona marked improvement is now under way from conditions in which the Indian-owned cattle were allowed to run wild, degenerate in breed, and in many instances die of old age on the range. Wallace Altaha (R. 14)-a leader of prominence among the Apaches, and one of the principal stock owners, who had long been indifferent to the upbreeding of his herds-was induced to dispose of several hundred steers, bulls, and cows, some of them 12 to 15 years old, and to introduce new blood by the purchase of an adequate number of pure-bred bulls and grades of good quality. The results in quality and market value have since become so apparent that the tribal council recently took action looking to the general improvement of their stock. Careful supervision and encouragement by field men of our Service have done much to give the Indians intelligent and progressive views on the essentials of stock management, and it is not now infrequent that their live stock shipped has topped the market. A suggestive sign of the Indian's growing interest in stock raising is in the number of families using milch cows, which has increased from about 2,000 in 1912 to nearly 7,000 in 1919, and means much for health betterment in the family unit, with resulting greater efficiency.

The sheep interests of the Indians, under helpful stimulus, are expanding into what promises to become one of the most important industrial factors of the United States. The Navajo Indians are the greatest pastoral people of the aboriginal Americans. Their interest in sheep and goats dates back to the early Spanish settlement in the Southwest. Their women and children are faithful shepherds. For many generations the Navajos grew their own wool— carded, spun, dyed, and wove it all by hand; producing, among other fabrics, the famous blankets and rugs of unequaled effects. On one of the most arid and barren sections of the continent they supported themselves for centuries, but their flocks had so deteriorated by inbreeding as to be of little value for either wool or mutton. At that time the average Navajo sheep clip was probably about 2 pounds. The possibilities for great advancement depended chiefly upon improved breeds and more stock water. Earnest efforts were begun along The naturally self-reliant Navajos were approached with tactful

these lines.

sympathy, and careful supervision has prevailed upon them to cross breed their stock with superior animals, with the result that breeding stock distributed among these Indians has all been paid for by them, and their herds now show distinct gain in the size of the sheep and the weight of the fleece. The sinking of deep wells for stock water has been in progress for several years, as rapidly as funds would permit, and the consequent extension of range capacity has given further impetus to their industry.

From a state of indifference to the essentials of good stock breeding, they are becoming alert and progressive. Steps have been taken to improve their methods of handling and grading their wool, and to assist them in marketing it, and they are investing the better prices received in rams of higher grade. It will not be long until the Navajo's sheep will shear from 6 to 8 pounds, and his lambs enter the 75-pound class.

Not far from the Navajo are the Jicarilla Indians of New Mexico. They have a reservation well adapted to sheep raising, affording in the north an ideal summer range high in the mountains and amply watered, and in the southern part an equally good winter range. But the Indians had no sheep worth mentioning. They had no capital, but they had bodies of fine timber worth a million dollars or more. The obvious business opportunity here was to convert some of this timber into sheep. It was decided to do this, and the sale of several units was negotiated; but in that country, where sawmills, transportation facilities, and various construction projects were necessary before standing trees could reach the lumber markets, the reasonable value of the timber could be best realized on deferred payments. Meanwhile we made a practical and educational beginning in 1914 by investing reimbursable funds from the general appropriation in a tribal herd. We expended $23,000 in this way for 3,800 ewes and 200 rams-all good stock. That enterprise was very successful from the start, and by the end of 1919 the band had increased to 6,000 head, and had netted an average yearly profit of more than 100 per cent. For some years past proceeds from timber sales have been placed to the individual credit of these Indians, and, when found sufficiently competent, they are permitted to use the same to purchase stock from the tribal herd. These Indians, though formerly greatly depressed through physical affliction, are now wonderfully interested in their industrial outlook. They are awake to their opportunities. They have a new purpose, and life is taking on a different meaning to them.

In connection with the foregoing, it may be said that the Jicarilla tribal herd is furnishing well-bred, acclimated animals for sale to other Indians. The financial profits are, of course, important, but the practical education to the members of the tribe in stock management is even greater. There is no purpose to perpetuate communal ownership of property. The tribal herd is conducted with a view to its earliest practicable distribution, and is in furtherance of the general policy of individualizing Indian interests as rapidly as they demonstrate themselves capable of self-support.

We have tribal herds of cattle on some 16 reservations in the States of Arizona, Idaho, Montana, Nevada, New Mexico, Oregon, South Dakota, Washington, and Wyoming, ranging in size from a few hundred to several thousand head. Comparatively few tribal bands of sheep are maintained, and these are chiefly in the Southwest. The present value of tribal stock on all reservations is approximately $3,000,000.

The largest of the tribal herds of cattle is on the Crow Reservation in Montana, which in many respects is typical of those conducted on a smaller scale. This herd was established in the spring of 1914 at an expense of about $415,000 for 7,000 heifers, 2,000 steers, and 250 bulls. On December 31, 1919, the herd