As an organized territory, and later in the early days of statehood, education was funded by the sales of federally controlled public lands. This system was inadequate and prone to local graft. In an 1854 message to the legislature, Governor Elias N. Conway said, "We have a common-school law intended as a system to establish common schools in all part of the state; but for the want of adequate means there are very few in operation under this law." At the time, only about a quarter of children were enrolled in school.