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21 in such a way as not to subvert all control over the Indians or to put all arrangements made in pursuance of law and with larger expenditures of money, at the mercy of the caprice of mischievous individuals or bands among the Indian tribes. The task of transforming the nomadic habits of Indians into habits of permanent settlement and steady and self-supporting work, is a very difficult one at best, requiring the introduction and maintenance of certain rules of discipline, which cannot be enforced in every case, without sometimes producing individual hardship, and which cannot be abandoned without detriment to the best interests of the larger majority of our Indian wards." [[margin]] 363 [[/margin]]