CO885-11 — Page 650

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644

PUBLIC RECORD OFFICE

Reference :-

C.O.882/11

PUBLIC RECORD OFFICE, LONDON

ALLY WITHOUT PERMISSION OF THE BE REPRODUCED PHOTOGRAPHIC- COPYRIGHT PHOTOGRAPH—NOT TO

It is safe to assume that the amounts seized represent only a small proportion of the illicit supplies actually smuggled into these ports, in addition to such quantities as may be landed by fast launches at unguarded places on the east coast of Malaya.

16. It is noteworthy that the really serious increase in the smuggling of Chinese opium into Malaya began to occur in 1923, the year in which, with returning pros- In other words the perity, the sales of Government chandu began to increase. increased demands for chandu have been met partly by increased sales of Governnient chandu, and partly by a great increase in the amount smuggled into Malaya from China.

I am aware that active steps were taken by the Straits Settlements Government (by the purchase of additional fast launches, the engagement of additional European Supervisors, and the doubling of the number of native Revenue Officers employed in the Singapore Harbour division of the preventive staff) to deal with the smuggling situation which increased in intensity to such a marked extent in 1925. The fall in the amount of opium seized in 1926 would appear to indicate that these measures achieved a considerable degree of success, though the possibility must not be over- looked that intensive activity on the part of the preventive authorities at Singapore may merely drive a great part of the traffic to the innumerable quiet landing places, impossible to guard effectively, on the sparsely inhabited shores and rivers of the east coast. It is also possible that there may be some connexion between the large reduction in the quantity of illicit opium seized and the great increase in the amount of Government chandu consumed in 1926.

17. However this may be, the smuggling of Chinese opium clearly remains a dominant factor in the situation, as it was at the time of the Geneva Conferences. In other words there appears very little prospect of the early realization of the circumstances which were recognized to be a necessary prerequisite to the commence- ment of the period of 15 years within which, in accordance with the Protocol to the Geneva Agreement, the complete suppression of opium smoking is to be effected.

The situation therefore can be briefly summed up as follows:--

(a) The demand for opium continues unabated;

(b) circumstances, outside the control of the Malayan Governments, which have heen recognized by His Majesty's Government to constitute a serious if not insurmount- able obstacle to the introduction of effective measures of repression, continue to persist.

18. To revert to the recommendations of the Malayan Opium Committee, 1924. Although as indicated in paragraph 3 above the Committee were impressed by the necessity of proceeding with caution in introducing the measures recommended by them, nevertheless they expressed the hope that not only Government management of system would be universally in force in British retail sales but also the "Observer

Malaya by the middle of the year 1926. They were also hopeful that a year of this system in full and universal working order. (that is, by about the middle of 1927) should give reliable data and such experience as would justify the Malayan Govern- ments embarking on a measure of compulsory simple registration of smokers.

19. As recorded in paragraph 5 above His Majesty's Government feel great satisfaction at the fact that the elimination of the private establishments was com- plete in the Federated Malay States by the end of 1925 and in the Straits Settlements by September, 1926. On the other hand they cannot regard it as other than a matter for regret that, while a modification of the "Observer" system was introduced in the Federated Malay States in 1924, it was not found possible in the Straits Settle- ments to give effect to the Committee's recommendation that the introduction of this system should proceed concurrently with the elimination of the private shops.

20. From the preceding review it will be seen that His Majesty's Government fully appreciate the very great difficulties which continue to be encountered by the Malayan Governments in their efforts to give effect to Article 6 of The Hague Convention. Nevertheless, His Majesty's Government have every confidence that the Far Eastern Colonial and Protectorate Governments will not be deterred by these difficulties from continuing to introduce such measures of control as may be practic- able, with a view to effective action being taken as soon as circumstances permit, loyally supporting His Majesty's Government in their determination (which they take this opportunity to reaffirm) to carry out to the fullest practicable extent, the solemn international obligations into which they have entered in Article 6 of The Hague Opium Convention, 1912, and in the Protocol to the Geneva Opium Agreement, 1925.

I have, &c.

(for the Secretary of State),

W. ORMSBY GORE.

C. 30843/27 [No. 26].

SIR,

No. 87.

STRAITS SETTLEMENTS

FEDERATED MALAY STATES.

UNFEDERATED MALAY STATES.

THE SECRETARY OF STATE to THE GOVERNOR.

(Confidential.)

2.

Downing Street, 16th September, 1927. WITH reference to my despatch No. 440 of to-day's date,* I have the honour to address you further in regard to the control of the consumption of opium in Malaya. You will have learnt from documents which have already been communicated to you that it is anticipated that, when the Report of the League of Nations Com- mission of Inquiry into the production of opium in Persia comes before the next Assembly of the League, the British Representatives may have to meet criticisms in respect of the large purchases of Persian opium which were made last year by the Straits Settlements Government. The fact that these purchases have largely con- tributed to a boom in Persian opium may well give rise to unfavourable comment; and it is felt that it is most unfortunate that action on the part of a British Colonial Government should have contributed to this result at the very time when the League Commission was conducting its inquiries. In particular, the employment of a member of a family well known to be implicated in the illicit traffic in opium, was most injudicious.

3. It is also now a matter of common knowledge that the consumption of opium in Malaya has largely increased during the last two years, and it is not unlikely that, if the subject of opium smoking in Malaya should be raised at the Assembly in connexion with the Commission's Report, the British Representatives may be called upon to defend the recent increases in consumption.

4. Even if the matter is not raised in the League Assembly, it may well be the case that notice will be taken of the increased consumption in Malaya when the Annual Reports for 1926 come before the Opium Advisory Committee of the League. 5. It is felt that the task of the British Representatives in replying to any such criticisms will be rendered more difficult by the failure of the Straits Settlements Government to implement the recommendations of the Malayan Opium Committee, 1924. The Straits Settlements Government is in fact open to the charge that, by

Observer " failing to put into operation the

system (or some modification of this system such as has been adopted in the Federated Malay States) it has indefinitely postponed the time when it will be possible to proceed with the next stage of the approved programme, namely, the introduction of a measure of simple registration of smokers. The Straits Settlements Government may in fact be accused of system with the object deliberately refraining from introducing the "* Observer"

of retarding the progress of the approved programme. I am, of course, aware that such charges are without foundation; but it must not be overlooked that, in connexion with the subject of opium, in respect of which there is much ill-informed prejudice, the difficulties of satisfactorily meeting charges of bad faith are very considerable, as was clearly demonstrated at the time of the Geneva Conferences.

6. I have accordingly to impress upon you the necessity of keeping in mind at all times the political aspects of the opium question, and I have to request that these aspects may be brought to the notice of all officers charged with the administra- tion of the opium monopolies in Malaya.

7. It is proposed, should the necessity arise, to communicate to the League of Nations a copy of my despatch No. 440 of to-day's date, as evidence of the present attitude of His Majesty's Government in connexion with their international obligations under The Hague Opium Convention, 1912, and the Genevȧ Opium Agreement, 1925,

I have, &c.

* No. 86.

(for the Secretary of State),

W. ORMSBY GORE.