"The need for special care in the management of Indian Affairs lies in
the fact that in theory of law the Indian has not the rights of a
citizen. He has not even the rights of a foreign resident. The Indian
individually does not have access to the courts; he can not individually
appeal to the administrative and judicial branches of the public service
for the enforcement of his rights. He himself is considered as a ward of
the United States. His property and funds are held in trust. * * * The
Indian Office is the agency of the government for administering both the
guardianship of the Indian and the trusteeship of his properties."