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296 and in the administrative efficiency they could command. But the status fixed by such constitutional restrictions is, nevertheless, primitive and hidebound. The natural effect of the retention of the letter of a constitution which changing conditions was rendering archaic was bad. It forestalled an open rational policy of public improvement. It did not bring into play the test of public utility upon schemes to get money from the state treasury, but, on the contrary, gave advantage to the methods of the log-roller. Surreption has won all too frequently. This has meant spasmodic policies which are wasteful to the last degree. For instance, four state normal schools were brought into existence, not in the development of a consciously espoused and avowed state policy, but because one locality after another was able through its delegation at the legislature, using approved methods of combination in securing votes, to> get recognition and then an appropriation for a local institution for a series of years, support not only for maintenance but also for buildings. But when the temper of the legislature changed there was trouble, with the upshot that all were left without support and closed. Similar policies have been pursued with roads and canals, fraught with waste and injustice.

The constitution, however rigidly restrictive, would admit of some expansion of state activities, and the evolving social conditions and special resources to be developed would determine the duties that a progressive state must assume. The aid of higher education was imposed upon the state, as it were, through national grants of land to aid in the establishment of a state university and an agricultural college. The prevailing sentiment with regard to the support of a state university from the proceeds of taxation is indicated in the suggestion in the constitution of a desire to have the university land funds diverted to aid of the common schools. A more positive provision to this effect would have been inserted had there been any hope that Congress would accede to such a step. The location of the institution, instead of being determined by any clear and definite purposes affecting the interests of the state