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Incidentally the Governments concerned, while disclaiming knowledge of or responsibility for the farmer's methods, would profit directly by the greater rent which the farmer was prepared to pay owing to the facilities for illegal traffic which the system afforded.
The morality of Governments, if not reaching the standards attained by individuals, is at any rate higher in most cases than that of opium farmers; while Government actions and methods are more widely known and open to criticism than those of private traders. Hence the system of direct Govern- ment control of import, manufacture, and retail now generally in force has, proved much less open to abuse than the farming systems which it has re- placed. By enabling Government officials and others not financially interested in the trathe to obtain a closer knowledge of the subject the system also lends itself to the gradual introduction of reforms. For its proper working it requires a reasonably efficient administration with officials not open to corrup
tion.
INTERNATIONAL CO-OPERATION.
In view of the widespread growth of the poppy and prevalence of the opium habit and the great difficulties in the way of preventing the drug fron being conveyed from one country to another it is evident that international co-operation is essential if any progress is to be made. In this respect the International Opium Convention of 1912 marked a new phase in the war against the abuse of opium.
Under this convention the contracting powers agreed, among other things, to enact effective laws or regulations for the control of the pro- duction and distribution of raw opium" and "to take measures for the gradual and effective suppression of the manufacture of, internal trade in and use of prepared opium with due regard to the varying circumstances of each country concerned."
The intervention of the European War prevented much progress being made towards the realisation of the objects of the Convention. At the conclusion of the War, however, the Convention was embodied in the Treaties of Peace so that all the signatories to the Treaties of Peace have thereby become parties to the Convention, and its scope has thus been considerably enlarged.
When the Convention first came into force the Netherlands Government undertook the task of supervising its operation, but after the establish- ment of the League of Nations under the Peace Treaties the League took over these duties so far as its members were concerned. One of the first actions of the League was to appoint a permanent Advisory Committee on matters relating to the Convention. This Committee is at present composed of representatives of the British Empire, China, France, Germany, India, Japan, the Netherlands, Portugal and Siam, together with three assessors one of whom is Sir JOHN JORDAN, who while British Minister at l'eking was probably responsible more than any other single individual for the opium reforms in China between the years 1907 and 1917.
Through the work of the League considerable progress is now being made in the direction of giving practical effect to the objects of the Conven tion, more particularly with regard to the traffic in morphia, cocaine and other similar drugs.
CARRYING OUT OF OBLIGATIONS INCURRED UNDER OPIUM CONVENTION.
The question naturally arises as to how far the parties to the Convention are carrying out the policy to which they have committed themselves. As regards those British Colonies where the opium habit is prevalent the Govern- ments have generally speaking, it is claimed, gone as far in the repression of opium smoking as they can safely do under existing conditions. Before further repressive measures can be undertaken it must be reasonably certain
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that the practice of smoking under Government supervision and severe restraint will not be replaced by the smoking of smuggled opium, clandestinely and not under the control of Government; and, secondly, that the use of opium will not be replaced by injections of morphia or other drugs, practices much more injurious than opium smoking which in the past have been es- pecially rife in Malaya and have given immense trouble in repression. The danger of alcohol replacing opium also affords cause for anxiety.
It must also be borne in mind that the industries of Malaya and British North Borneo depend to a large extent on the supply of Chinese immi- grants, and that total repression of opium smoking in the British dependencies while the consumption of opium is allowed in the neighbouring territories, might lead to a very serious diversion of labour away from British territories thereby crippling industries without any corresponding diminution in the consumption of opium; so that further progress would appear to depend largely on concerted action between the various countries similarly situated with regard to labour supply.
This is a matter in which the activities of the League of Nations, in collecting and co-ordinating information and giving publicity to the ascer- tained facts may be of much assistance in effecting a general and uniform improvement.
The policy of the British Colonial Office in pursuance of the obligations incurred under the Convention is broadly that, subject to the foregoing considerations, financial loss, however paralysing, will not in itself be allowed to interfere with further restriction and ultimate suppression of smoking.
STRONG PUBLIC OPINION ESSENTIAL TO PROGRESS.
It will be seen that the difficulties in the way of establishing satisfactory systems for controlling production and distribution of opium are numerous and formidable; and it can scarcely be hoped that Government efforts towards the suppression of opium smoking will achieve more than a partial success so long as there is a demand for opium from any considerable section of the community. The real solution of the problem rests with the communities where opium is consumed and the best hope of genuine reform lies in the building up of a strong public opinion condemning its use.
In the report of the Royal Commission which in 1908 investigated the question of opium consumption in Malaya this truth is repeatedly emphasised. The report states, for example, "that the absolute elimination of the use of opium is an object to be attained really and solely as a result of the education of the masses by the classes is a conclusion that has been found to be the only solution of such problems in other countries, and is in our opinion applicable to local circumstances;" and again, "As the result of our enquiry we desire to record our opinion..... ..that elimination of the opium habit is a matter not so much for legislation as for education by the Chinese themselves. to the state of eradicating the desire for opium and this education, we believe, the Chinese generally are capable of undertaking, and in many cases are willing to undertake".
The tremendous progress made in China between the years 1907 when the campaign against opium began, and 1917 when the growth of the poppy and the use of opium were practically suppressed, is a striking example of the progress made when public opinion in a community supports the policy of its Government. It is true that since 1917 there has been a serious set-back in the position in China, but this may be but temporary and is easily accounted for by the disordered state of the country under which corrupt military and civil officials, practically free from control by any central authority, have encouraged the growth of the poppy to fill their own pockets and to pay their private bands of retainers.
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