[Communicated to the Council Official No.: C. 256. M. 105. 1934.XI. and the Members of the League.] " j-q q i 552(1) ]

Geneva, June 9th, 1934.

LEAGUE OF NATIONS

ADVISORY COMMITTEE ON TRAFFIC IN OPIUM AND OTHER DANGEROUS DRUGS

REPORT TO THE COUNCIL ON THE WORK OF THE EIGHTEENTH SESSION

Held at Geneva from May i8th to June 2nd, 19)4

CONTENTS. P age I. Appointment of Assessors ...... 2 II. Principal Aspects of the Present S itu a tio n ...... 2 III. Ratification of the C on ven tions ...... 3 IV. Examination of Annual Reports ...... 3 (а) Situation as regards Manufactured D r u g s ...... 3 (б) Situation in Particular Co u n tr ie s...... 5 V. New Form of Annual R e p o r t s ...... 7 VI. Raw Opium S itu a tio n ...... 7 VII. Hungarian Method of extracting Morphine from the Dry Poppy Plant . . . 8 VIII. Situation regarding Indian H e m p ...... 8 IX. Illicit T r a f f ic ...... 9 (а) Situation in Bulgaria ...... 9 (б) Situation in C hina...... 9 (c) Report of the Sub-Committee on Seizures ...... 13 X. Draft Convention for the Suppression of Illicit Traffic in Narcotic Drugs . . . 24 XL Recommendation X of the Final Act of the Bangkok Conference regarding Scientific Research of the Opium-smoking P r o b le m ...... 24 XII. Campaign against the Spread of Drug A d d ic tio n ...... 24 XI11. Miscellaneous Questions ...... 25 A n n ex es...... 29

The Advisory Committee has the honour to present to the Council the following report on the work of the eighteenth session, which was held at Geneva from May 18th to June 2nd, 1934. All Governments members of the Committee were represented, with the exception of Germany and Bolivia. The Committee was happy to welcome for the first time the representatives of the four new countries members of the Committee — namely, Colonel Ch. H. L. Sharman, Chief of the Narcotics Division, Department of Pensions and National Hygiene, representative of Canada ; M- Y ram Pilossian, Director-General of the Persian Opium Monopoly, representative of Persia ; Major Hugo von Heidenstam, of the Swedish Royal Corps of Engineers, M.Inst.C.E. former Engineer-in-chief of the Whangpoo Conservancy Board at Shanghai, representative 01 Sweden ; and His Excellency Cemal Hiisnü Bey, Turkish Minister at Berne, representative of Turkey.

Series of League of Nations Publications XI. OPIUM AND OTHER S- d. N. 1.155 (F.) 1.325 (A.) 8/34. Imp. Granchamp. DANGEROUS DRUGS 1934. XI. 1. The Committee, while regretting the departure of M. Barrera-Guerra, representative of Mexico, was happy to welcome his successor, M. Tello, Consul at Geneva. The Minister of Afghanistan in London, His Excellency M. Ali Mohammad, who had asked to take part in the Advisory Committee’s work, was present, at the Committee’s invitation, during the discussion on several items of the agenda which the Committee thought might be of special interest to his country. M. Baranyai, Counsellor of the Hungarian Legation at Geneva, was invited to take part in the Committee’s discussion on the new method of extracting morphine from the straw of the poppy plant. At the request of the Committee, M. Mikoff, Bulgarian Chargé d’Affaires at Berne, was present during the discussion on the situation in Bulgaria.

I. APPOINTMENT OF THE COMMITTEE’S ASSESSORS.

The question of the appointment of the assessors to the Committee has already been considered by the Council at its seventy-ninth session. The Council, on the proposal of the Committee, decided to re-nominate Mr. L. A. Lyall as assessor for a further year and to leave over for the moment the question of the nomination of a successor to M. A. H. Sirks, who, to the regret of the Committee, has resigned. The Committee expressed to him its cordial appreciation of the valuable services he had rendered as assessor and of the competent way in which he had dealt with illicit traffic questions. Before the end of its session, the Committee took up for discussion the question of the appointment of a successor to M. Sirks. The Committee decided that it was not necessary to appoint a person with police experience, as such experience was now well represented upon the Committee in the persons of several of its present members. It was felt that it would be very desirable in the present state of its work to appoint an expert in pharmacology. It was unanimously decided, on the proposal of the representative of Belgium, to suggest to the Council the appointment of M. de Myttenaere, Inspector-General of Pharmacies in Belgium, as assessor to the Committee, in view of his competence in this field and of the valuable contribution which he has already made at previous conferences to the work of the League of Nations in the campaign against narcotic drugs.

II. PRINCIPAL ASPECTS OF THE PRESENT SITUATION.

As the mass of detail with which the Committee has to deal year by year is constantly increasing, it is important that the main lines of the situation should be kept clearly in mind. The chief characteristics of the situation which the Committee has had to examine this year — as last year — may be summed up as follows. On the one hand, the progressive shrinkage in the volume of the legitimate trade in opium, coca leaves and manufactured drugs, as indicated by the statistics of the amounts of these substances reported for the year 1932, still continues. This shrinkage may be due in part to a decline in the licit consumption of some of the substances as well as to a closer adjustment between the amounts legally manufactured and exported and the legitimate requirements of the world. On the other hand, supplies for the illicit traffic are, in the case of manufactured drugs, more and more being drawn from clandestine manufacture, which, on the evidence before the Committee, continues to increase, especially in the countries where raw materials are produced and control is difficult. The Committee is thus pursuing a two-fold objective — on the one hand, confining production and manufacture of the substances to the amounts required for legitimate needs and ensuring, through the strict application of the Conventions, that the amounts so produced and manufactured in the legitimate trade do not escape into the illicit traffic ; 011 the other hand, combating with all the means at its disposal the illicit traffic. As supplies for the illicit traffic are becoming more and more drawn from clandestine sources, the task of the Committee and of the Governments in combating this traffic becomes increasingly difficult. The Committee hopes that further strengthening of the legislative and administrative provisions to deal with the illicit traffic will soon be realised through the adoption of the draft Convention for the Suppression of the Illicit Traffic, which will now be circulated to Governments in a revised form with a view to holding a conference next year. Among the outstanding points which the Committee has had to consider at this session is the emergence of an entirely new raw material for the manufacture of morphine — namely, the straw of the opium poppy, which has hitherto been a mere agricultural waste product, but which, as has now been demonstrated, can be used for the extraction of morphine under conditions which should enable morphine manufactured from this straw to compete on favourable terms with that manufactured from opium. An important point which was of considerable interest to the Committee with regard to the whole problem of clandestine manufacture was the movement of a chemical, acid acetic anhydride, which, according to statements made by the American representative, is in practice almost indispensable for the manufacture of heroin and has only limited use for other industrial purposes. The Committee hopes that the supply by Governments of statistics of the movement of this substance and the uses to which it is put may provide a new clue with regard to the clandestine manufacture of heroin. One aspect of the problem which appears to have increased considerably in im p ortan ce in recent years is the use made of Indian hemp as a drug of addiction, and the C om m ittee therefore gave special attention to this question at its present session. — 3 —

In addition to the aspects of the problem referred to above, the Committee carried out its normal routine work of examining the annual reports and the seizure reports received from Governments. It also dealt with a number of other questions, which are referred to in detail in various sections of the report.

III. RATIFICATION OF THE CONVENTIONS. The Committee noted with satisfaction that the number of States parties to the Convention of 1931 for the limitation of manufacture was now forty-five, not counting Ecuador, which has ratified subject to reservation, and that Estonia and Latvia had pronounced in favour of accession. The Austrian representative expressed the hope that his Government would soon be in a position to ratify the Convention. Australia, China, Colombia, Iraq, Siam and Venezuela have ratified or adhered since the last (seventeenth) session of the Committee. As regards the Bangkok Agreement, the Committee was happy to learn that Portugal had ratified that instrument on January 27th, 1934, and that the Burmese authorities expected to submit a Bill to the Burmese Legislative Council in August 1934. When that Bill has been passed the ratification of the Agreement will, it is hoped, follow immediately. The number of ratifications of the 1925 Geneva Convention still stands at fifty, as at the last session of the Committee.

IV. EXAMINATION OF ANNUAL REPORTS. The Committee devoted several meetings to the examination of the annual reports of Governments, which enabled its members to give further information on the various aspects of the drug situation in their several countries. In general, the Committee re-affirmed the importance that it attaches to the regular forwarding of annual reports as an essential basis for its work, and it accordingly expressed its regret that it had received reports from only five out of twenty States in Central and South America ; it requested the Secretariat to write specially to those countries in Central and South America which had not sent their reports, asking them to be good enough to do so in future. It should be noted that the Committee had before it reports from Cuba, Haiti, Nicaragua, Uruguay and Venezuela. Annual reports were received from forty-seven countries and seventy-seven territories. The Committee was glad to receive for the first time an annual report containing detailed and valuable information from the Union of Soviet Socialist Republics, a country which is of considerable importance in its work. A very complete and interesting report was sent in by Turkey, also a country of special interest to the Committee. A request made by the Committee for annual reports from the various concessions and settlements in China was beginning to bear fruit. Interesting reports were received from the following : the International Settlements of Shanghai and Kulangsu (Amoy), the British Concessions of Shameen (Canton) and Tientsin, the French Concessions of Shanghai, Hankow and Tientsin, and the Italian Concession of Tientsin.

(a) Situation as regards Manufactured Drugs. The Committee briefly surveyed the general situation as regards manufactured drugs. The outstanding points which emerged from the examination of the statistics for the year 1932 when compared with the statistics for the preceding four years were : (1) The general and progressive shrinkage of the total quantities of the drugs manufactured in the legitimate trade, a decrease which is a result of the application of the Geneva Convention of 1925 and which must be attributed to the reductions made in the manufacture of the principal manufacturing and exporting countries. (2) The general and progressive shrinkage in the export trade of each of the principal manufacturing and exporting countries. (3) The development, during the latter years of the period, of the manufacture of each of the principal drugs in new manufacturing countries, as well as the increase of manufacture in countries which before the negotiation of the Limitation Convention in 1931 manufactured small quantities of one or more of the principal drugs, though the total manufactured has been reduced. As regards the progressive decline in the total manufacture of morphine, diacetylmorphine and cocaine, the situation is clearly shown by the following figures :

Table 1. Total reported manufacture of morphine, diacetylmorphine and cocaine in the legitimate trade Year Morphine Diacetylmorphine Cocaine Kg. Kg. Kg. 1928 ...... 46 166 7 810 7 200 1929 ...... 57 792 3 652 6 434 1930 ...... 38 556 4 088 5 838 1931 . 30 457 1 249 4 612 1932 . 25 656 1 315 3 973 — 4 —

The conclusion drawn by the Committee in its report on the work of the sixteenth session, 1933, in regard to the statistics for the year 1931 may also again be drawn in regard to the statistics for 1932 — namely, that the amounts legally manufactured approximated to or even fell below the estimates of the world’s legitimate consumption as indicated in the statement published by the Supervisory Body under Article 5 of the Limitation Convention of 1931.

The amounts reported to the Permanent Central Opium Board as actually consumed in the case of each of the principal drugs was, in fact, not far below the amounts reported as manufactured, although consumption returns have not been received from a number of countries some of which consume appreciable quantities of the drugs.

Further, a comparison of the amounts reported as manufactured with the estimates of total world consumption which have been made by different methods both by the Permanent Central Opium Board and by the Opium Section of the Secretariat shows that the estimated world consumption for the year 1932 was higher in the case of diacetylmorphine and cocaine than the amounts of these drugs reported as manufactured. A similar comparison in the case of morphine is rendered difficult in view of the fact that the consumption figures for two of the chief manufacturing countries for the year 1932 appear to be on a somewhat different basis from those returned for the year 1931.

The progressive shrinkage in the world’s legitimate export trade in the three principal drugs is shown in the following figures, which indicate that, side by side with the very marked decline in the exports for the principal manufacturing and exporting countries, there has been a definite increase, in the case of morphine and cocaine, in the export trade of the minor exporting countries — which include several new manufacturing countries.

Table 2.

(a) Total exports of the principal exporting countries1 (b) Total exports of other exporting countries Year Morphine Diacetylmorphine Cocaine (a) (b) (a) (b) (Cl) (b) K g. K g. Kg- K g. K g. K g. 1928 .... 6 840 132 6 531 58 3 213 17 1929 . . . . 5 902 154 842 9 2 276 5 1930 . . . . 2 567 51 490 3962 1 771 18 1931 .... 1 723 199 326 32 1 415 36 1932 .... 1 516 244 290 21 1 314 102

As regards the question of the extension of manufacture to new manufacturing countries, the attention of the Committee was particularly drawn to this matter by the United Kingdom representative as one of the most striking developments in the drug situation since the Limitation Conference of 1931. A document 3 prepared at his request by the Secretariat showed that, since the decision of the Assembly in September 1929 to hold the Limitation Conference, seventeen factories authorised to manufacture one or other of the principal drugs had been established in ten countries or territories — viz., Belgium (two), Bulgaria (six), Hungary (one), Kwantung Leased Territory (one), Norway (one), Poland (one), Sweden (one), Czechoslovakia (two), Yugoslavia (one), Spain (one).

The establishment of factories in new countries is, of course, perfectly legitimate, and when the production is for home requirements only may have advantages as simplifying the work of international control. But a tendency to manufacture also for export is already observable, and such a development will necessarily make the task of supervision heavier.

The position as regards the manufacture of the three principal drugs, both in the old and in the new manufacturing countries, for the year 1932 is shown in the following table :

1 Germany, United Kingdom, France, Japan, Netherlands and Switzerland. 2 This figure includes 385 kg. seized in Hong-Kong and exported to the United Kingdom for the purpose of being converted into other drugs. 8 Document O.C.1550. 5 —

Table 3.

Total legal manufacture in 1932 Countries Morphine Diacetylmorphine Cocaine Kg. Kg. Kg. G erm a n y ...... 7 421 90 744 United Kingdom ...... 1 292 98 395 France ...... 2 824 97 297 I t a l y ...... 337 21 - Netherlands...... 85 - 194 Sw itzerland...... 1 207 38 243 U.S.S.R...... 3 468 114 269 United States of America . . 6 015 - 788 In d ia ...... 240 - - Japan ...... 1 832 734 931 Chosen ( K o r e a ) ...... 114 116 - New manufacturing countries . 8211 72 1123

T o ta l...... 25 656 1 315 3 973

Percentage of the total manu­ facture of the new manufactur­ ing countries in relation to the % % % reported world manufacture . 3.20 0.53 2.81

(6) Situation in P articular Co u n tr ies. As regards the situation in particular countries the following points of interest may be noted : 1. France. The head of the Bureau français des stupéfiants directed attention to a number of important regulations enacted in France in 1932 both for the home country and for the colonies and possessions. The circular of March 25th, 1932, on labelling is designed to enable the authorities to follow up products from manufacture to distribution ; the circular of December 3rd, 1932, concerning the application of the Decree of March 20th, 1930, relating to licences for the manufacture of and trade in narcotics, provides for supervision over brokers, middlemen, Customs and transit intermediaries, commission agents and manufacturers, druggists and industrial or wholesale pharmaceutical chemists. The Committee was happy to learn also that France has adopted a system which permits of the strict application of the 1931 Convention by restricting manufacture to medical requirements. This system, which provides for monthly returns of the quantities manufactured, of the deliveries effected and of the level of stocks, enables the Bureau français des stupéfiants to ascertain the level of manufacture and to stop manufacture when the quantities authorised for the year have been reached. Factory deliveries — i.e., the quantities released for consumption during the last five months of 1933 — coincided very closely with the estimates which had been made for that period and which had served as a basis in calculating the estimates sent, in August 1933, to the Permanent Central Opium Board. This proves the successful operation of the organisation for supervision.

2. United States of America. With reference to the campaign against addiction, the Committee was gratified to note the statement of the American representative concerning the extension of the measures for the treatment of drug addicts. The construction and equipment of the first establishment for this purpose — the Narcotics Farm of Lexington, Kentucky — will be completed on March 1st, 1935. Addicts will be classified according to type and will be given occupation and amusement. At the same time, special investigations have been carried out among addicts interned in the Federal prisons, who have been segregated in a single institution, where a research centre has been established. Research was being made into habit-forming qualities of codeine, and the results so far obtained appear to indicate that codeine may be habit-forming, though in a much less pronounced degree than morphine.

3. Canada. The considerable use of codeine by addicts to heroin and morphine, who were unable to obtain their drugs of addiction and used codeine as a “ carry over ”, was reported from Canada. This use was found to be prevalent among both Oriental and Occidental addicts, and the o.Q Belgium, 6 kg. ; Bulgaria, 59 kg. ; Hungary, 61 kg. ; Kwantung Leased Territory, 61 kg. ; Norway, 11 kg. ; Poland I" i Sweden> 33 kg. ; Czechoslovakia, 122 kg. ; Yugoslavia, 119 kg. , Sweden, 2 kg. ; Czechoslovakia, 2 kg. ; Yugoslavia, 3 kg. Norway, 1 kg. ; Czechoslovakia, 111 kg. — 6 —

subcutaneous injection resulted, in some instances, in the formation of numerous hard lumps under the skin. The opinion was expressed that codeine was not used as a habit-forming drug, but, as above indicated, as a “ carry over ” in the same manner that cocaine addicts resorted to novocaine during periods of shortage of the actual drugs of addiction.

4. Uruguay.

The Uruguayan representative directed attention to the fact that the directors of hospitals in Uruguay had been instructed to ask doctors to employ dangerous drugs as little as possible, while medical practitioners had been asked to employ less dangerous substances whenever possible instead of prescribing narcotics. They had also been instructed to deliver medical prescriptions in duplicate, one of which is to be kept by the pharmacist filling the prescription and the other is to be sent by him to the Department of Public Health, Bureau for the Control of Narcotic Drugs.

5. Egypt.

The Committee was gratified to note that the position in Egypt had improved, especially during the last five years. In his statement before the Committee, the Egyptian representative furnished the following significant figures : in 1930, the total number of persons accused of infringing the Narcotics Laws was 12 400 ; in 1933, it was 4 300. In 1930, the number convicted by the Egyptian and Consular courts for narcotic offences was 8 000, and, in 1933, 2 800. In 1930, the total weight of the drugs seized was 10 700 kg. ; in 1933, 2 200 kg. The most striking figure is that of the number of addicts imprisoned, which, on October 1st, 1929, amounted to 5 681 and which, by 1933, had fallen to 674, making a decrease of 5007 in four years. The danger which threatened Egypt five years ago thus appears to have been averted for the moment ; but, if the price of drugs fell and the economic situation improved, considerable further efforts would be required on the part of the authorities to prevent a return to the conditions obtaining five years ago. As regards the smuggling of manufactured drugs (morphine, heroin, cocaine), no drugs coming from Western Europe, which in 1929 and 1930 was the smugglers’ main source of supply, were seized last year. The drugs originated in Turkey, Syria, the Far East, and especially in the new factories in Bulgaria, from which heroin smugglers obtain their chief supplies. Hashish was obtained from Syria, whose stocks, according to the Egyptian representative, amount to some 8 or 10 tons and still constitute a menace, as well as from Turkey and Bulgaria, which to-day supply the grades of hashish most sought after. The French representative informed the Committee that a new Ordinance has just been promulgated in Syria, and would come into effect immediately, for the purpose of facilitating the discovery and elimination of existing stocks of hashish, and of hashish cultivation. The Ordinance authorises police search on mere suspicion of possession of hashish. At the same time, all frontier posts have been instructed to intensify their efforts to discover smuggling. The Egyptian representative expressed the hope that the Turkish Government would take the same energetic measures to suppress the smuggling of hashish, and also of the opium which finds its way from Turkey into Egypt, as they have taken to suppress the clandestine manufacture and the smuggling of manufactured drugs. The Committee paid a tribute to the efforts of the Egyptian representative, which have been crowned with success, to improve the situation in his country.

6. Persia.

The Persian representative gave information on the agreement between Persia and the U.S.S.R. for the export of Persian opium in transit through Russia. He stated that, owing to the fact that the U.S.S.R. had adopted the system of import certificates, whereas Persia was not yet a party to the Hague and the 1925 Geneva Conventions, the agreement provided that all Persian opium exported through Russia should be accompanied by import certificates, which are presented to the U.S.S.R. representative at Teheran.

7. Malaya.

The Committee was glad to note the statement of the United Kingdom representative that further steps had been taken in Malaya to improve the system of the registration of smokers and to introduce rationing in accordance with the recommendations of the Bangkok Conference. The new system is working satisfactorily.

8 . Indo-China.

When examining the report on Indo-China, the Committee regretted to note the appreciable increase in illicit imports, notwithstanding the efforts made by the Chinese and French authorities to prevent the smuggling on opium from Yunnan. Interesting information was furnished by the French representative concerning the measures taken in Indo-China, particularly among the younger generation, to educate public opinion as to the dangers of addiction. The hope was expressed that, as a result of this campaign, it would be possible later to introduce the system of registering and rationing smokers advocated by the Bangkok Conference.

9. Kwangchow Wan. As regards Kwangchow Wan, the Committee was glad to find that consumption had diminished. However, attention was drawn to the importance of placing the manufacture and distribution in bulk of prepared opium entirely in the hands of the Government in accordance with the Conventions.

10. Chosen. The Committee noted with great interest the information furnished by the Japanese representative during the discussion of the report on Chosen (Korea) concerning the organisation established in that territory for the treatment of drug addicts and for combating drug addiction. As regards treatment, the Japanese authorities have taken every precaution to prevent relapses and have established a number of convalescent homes where the addicts are taught trades. The authorities have also organised a series of popular lectures, with fdms and exhibitions, since they consider that the best means of combating the evil is to attack it at its root by educating public opinion ; 411,000 yen are being spent annually on this organisation for treatment, but this amount does not include the expenditure for propaganda purposes, which is met from the Public Health Budget.

V. FORM OF ANNUAL REPORTS OF GOVERNMENTS, TO BE DRAWN UP IN ACCORDANCE WITH ARTICLE 21 OF THE LIMITATION CONVENTION OF 1931. The Sub-Committee appointed to examine the draft form of annual reports 1 and the observations forwarded by certain Governments 2 adopted the form (after having introduced various amendments), with the exception of the parts relating to raw opium, the coca leaf and Indian hemp. As regards Part B : Raw Materials ; Point VII, Raw Opium and Coca Leaf, the Sub- Committee, after some discussion, decided that the Secretariat should prepare a new text which would take into account the questionnaires drawn up as preparatory work for the proposed conference to investigate the possibility of limiting and controlling poppy cultivation and the cultivation and harvesting of the coca leaf. Before drawing up this text, the Secretariat wTas asked to get in touch with the representatives of the producing countries. As regards Point VIII of the Form of Annual Reports referring to Indian hemp, the Sub-Committee decided to maintain provisionally the text of the old form approved by the Council on May 14th, 1930. When the Advisory Committee had had an opportunity of examining in detail the question of Indian hemp, this part of the form would be replaced by a new text. In view of the decision of the Sub-Committee that the Secretariat should get in touch with the producing countries before drawing up a very important part of the Form of Annual Reports dealing with raw materials, the Sub-Committee proposes that the final adoption of the draft form should be postponed until the autumn session. The Committee approved this procedure.

VI. RAW OPIUM SITUATION. At the request of the representative of the United Kingdom, a memorandum had been prepared on this question by the Secretariat .3 This memorandum represents the first attempt which it has so far been possible to make to reduce the raw opium statistics of the world to a comparable basis, the basis chosen being opium of about 90° consistence — i.e., with a moisture content of about 10 per cent. The provisional conclusion of the Secretariat is that, on this basis, the licit raw opium production of the world as reported averaged for the five years 1928 to 1932 approximately 1 385 tons per year (or 1775 tons at 70° consistence). Although complete statistics of stocks are not available, the stocks of raw opium accumulated in the various countries which have sent in statistics at the end of 1932 were not less than about 3 000 tons, two-thirds of which were held m the producing countries. The United Kingdom representative drew attention to certain features in the present situation. Owing to the falling-off in demand both from drug manufacturing countries and from the “ Prepared Opium ” Monopolies, considerable stocks had accumulated or were accumulating in the producing countries and also in the Monopoly countries. Persian stocks, for example, amounted to about 7 000 cases (about 500 tons) at the beginning of the present year. There had also been a great fall in the prices of the raw material, and cultivators were not receiving an adequate return for their labour. The producing countries were looking for new markets. Persia, which had hitherto exported mainly to the Far East, was looking

\ Document 0,C.1501(2). ; Document 0.0.1501(3). Document O.C.1554. — 8 — for customers in Europe and America, while Turkey and Yugoslavia, which had been the main sources of supply for the drug-manufacturing countries, appeared to be seeking markets in the Far East. The United Kingdom representative also called attention to the creation in Persia of a company which had the exclusive monopoly of exporting Persian opium. This company, which has a capital of £250 000 is almost entirely a Government enterprise. On the other hand, the discovery of the Hungarian process for extracting morphine from the poppy plant might also profoundly affect the market for raw opium. In the opinion of the United Kingdom representative, this state of affairs was favourable to the conclusion between the producing countries of an agreement for the organisation and restriction of production and of the distribution of their output. The necessity for such an agreement in the interests of the producing countries themselves becomes increasingly evident owing to the pressure of the economic crisis. The representative of India expressed some doubts on general grounds as to the possibility of achieving an agreement of this kind. The economic aspect of the opium problem to-day was also emphasised by the Persian representative, who assured the Committee that his country was making all possible efforts by means of the new export company to find new markets, in regard to which promises had been made to Persia. These new markets would enable Persia to abstain from its exports of opium to China and to place its opium exclusively on the markets which were to be considered as legal from the point of view of the Hague and Geneva (1925) Conventions. Persia would thus ultimately be able to ratify these Conventions. The production of opium in Persia had been reduced from 892 000 kg. in 1931 to 547 000 kg. in 1932 (at 70° consistency), and this decrease had continued in the following years.

VII. HUNGARIAN METHOD OF EXTRACTING MORPHINE FROM THE DRY POPPY PLANT.

The process invented in Hungary and employed by the “ Alkaloïda ” factory at Budszentmihâly, consisting in extracting opium alkaloids direct from the poppy plant (Papaver somniferum) without passing through the intermediate stage of raw opium, has already engaged the Advisory Committee’s attention on several occasions. This question has been dealt with in an important memorandum 1 submitted by the Secretariat as the outcome of the visit paid to Hungary by a member of the Opium Section. The Secretariat’s object in organising this mission was to study on the spot, with the assistance of the Hungarian authorities, the new methods for the extraction of alkaloids from the poppy straw, which is an agricultural waste product, and to ascertain the practical value of this method. In view of the general interest of this important new invention, the effect of which in the future on the manufacture of opium alkaloids and on the production of raw opium may be considerable, the Committee decided that this memorandum should be attached as an annex to the report to the Council. The Committee expressed its sincere thanks to the Hungarian Government, through its representative M. Baranyai, who was invited to be present at the discussion, for the valuable collaboration afforded by the Hungarian authorities. The Committee raised the question of the application to this new raw material, from the legal and practical standpoints, of Articles 16 and 17 of the Limitation Convention, which deals with the supervision of raw materials in the factories. The Committee was of opinion that this question called for further consideration, although most of its members held the view that the authors of the Convention intended it to cover all raw materials in the factories from which narcotics could be extracted. The Committee decided to go more fully into the whole question at the next session, and, in the meantime, to request the Secretariat to investigate the extent of poppy cultivation for industrial purposes other than the production of raw opium [e.g., production of seed for consumption or for manufacture of oil, etc.), so as to ascertain what the actual position is as to area under cultivation, use made of the poppy straw, etc. The Secretariat was also asked to study the legal and practical aspects of the application of existing international Opium Conventions and especially of Articles 16 and 17 of the Limitation Convention of 1931 to the new raw material. The Committee wished to express its appreciation of the results obtained by investigations of this kind carried out on the spot by the Secretariat with the assistance of the national authorities. The Committee is of opinion that the nature of its activities makes it essential that such investigations should be undertaken more freely than in the past.

VIII. SITUATION REGARDING INDIAN HEMP.

During its last few sessions, the Committee had already decided to devote particular attention to this question in view of the increase in addiction to Indian hemp in certain countries and the fear that, as the increasingly strict control of other narcotic drugs renders the acquisition of these products more difficult, addicts were resorting to an increasing extent to Indian hemp in order to gratify their vice ; hence the necessity of keeping the trade in this plant and its products under close supervision.

1 Document O.G.1546 annexed (Annex 3). — 9 —

The Committee took note of a study on the subject prepared by the Secretariat on the basis of the particulars in its possession. The study comprised a general statement on the principal aspects of the question and an annex showing the position of legislation in the majority of countries and their particular situation .1 The Committee decided to consider this document at its next session. The members of the Committee were requested in the meantime to submit such observations on this memorandum and further information as they might think desirable and to send them to the Secretariat by August 1st, 1934, in order that they might be communicated to the other members before the discussion of the question.

IX. ILLICIT TRAFFIC. The Sub-Committee on Seizures met for three days before the opening of the session, and also during the session, to examine the seizure reports and other material relating to the illicit traffic. During nine meetings it reviewed the general course of the illicit traffic during the year 1933 and the first three months of 1934, and submitted to the Advisory Committee a detailed report which was adopted by the Committee and which is found on page 13 of this report.

(a) Situation in B ulgaria. The Advisory Committee was greatly concerned at the information which had come to its knowledge regarding extensive developments in the clandestine manufacture of heroin in Bulgaria. It was unanimously of opinion that the existing situation in Bulgaria must be remedied if the efforts of Governments and of the League of Nations to limit the manufacture of drugs to the legitimate medical and scientific requirements of the world were not to be frustrated. Three essential aspects of the question were emphasised in turn by the representatives of the United States, Canada and Egypt. The American representative drew attention to the increase in the imports into Bulgaria of a substance — acid acetic anhydride —- which can be used for industrial purposes in the manufacture of aspirin, dyestuffs and artificial silk, but which is also in practice almost indispensable for the manufacture of heroin. The imports of this product into Bulgaria, mainly from Germany and France, are reported to have risen from 70 kg. in 1931 to 3 500 kg. in 1932 and 6 000 kg. in 1933. As Bulgaria does not produce aspirin, dyestuffs or artificial silk, there is reason to believe that this product is imported for the manufacture of heroin. The above-mentioned quantities were sufficient to produce, respectively, 35 to 70 kg. of heroin in 1931, 1 750 to 3 500 kg. in 1932, and 3 000 to 6 000 kg. in 1933 — i.e., in the last case, from two to four times the legitimate heroin requirements of the entire world, which are estimated as 1 500 kg. per annum. The Canadian representative referred to the parallel increase of the production of raw opium in Bulgaria, which is reported to have risen from 4 000 kg. in 1932 to 45 000 kg. in 1933 and is estimated at 65 000 kg. in 1934. The Egyptian representative gave the Committee a list of ten factories and laboratories which produce heroin apparently intended for the illicit traffic, the output being estimated at not less than 3 000 kg. in 1934. According to the information which has reached the United Kingdom representative also, there are at least two secret factories at work in Sofia, and drugs are leaving Varna and Burgas for the East, or are passing into Europe across the land frontiers. The Radomir factory is said to have resumed work, and two new factories are believed to have been opened recently. The situation seemed to the Committee to be particularly serious, because there is as yet no effective drug legislation in Bulgaria. M. Mikoff, Bulgarian Chargé d’Affaires, who was present at the discussion, gave the Committee a formal assurance that the Bulgarian Government, which has just undertaken the re-organisation of the Heatlh Service, was determined to carry out strictly its international obligations and to take all suitable measures to remedy the existing evil. He requested the Secretariat to give him a list of the questions put by the Committee for him to submit to his Government. The Committee instructed the Secretariat to draw up such a questionnaire. The Committee also decided to recommend that the Governments concerned should be asked to send regularly statistics of all their exports and imports of acid acetic anhydride showing destination and provenance, and that the Bulgarian Government should also be asked to provide figures showing the production of raw opium in 1931, 1932 and 1933. The Committee unanimously expressed the hope that the Bulgarian Government would do its utmost to help to put an end without delay to a situation which constituted a serious menace to Bulgaria and to the rest of the world.

(b) Situation in China. The Committee discussed at considerable length the general situation in China, both in its plenary sessions and in the Sub-Committee on Seizures (see report on page 22) as well as in the Permanent Sub-Committee for the Application of Chapter IV of the Hague Convention (see resolutions adopted by the latter Sub-Committee below).

1 Document O.C.I542. — 10 —

This situation may be treated from two points of view : clandestine manufacture and illicit import of manufactured drugs and the production, illicit import and use of opium. The Committee was forced to note with regret that the situation from both these points of view had rapidly become worse. The pictures of the situation in China drawn successively by the representatives of the United States of America and China furnished the principal material for these discussions. In view of the importance of the declaration made by the representative of the United States regarding the situation in China, the Committee decided that this speech should be reproduced in full in the Minutes of the Committee. A similar decision was taken with regard to the speech made by the Chinese representative. The clandestine manufacture constitutes an ever-increasing danger for China as well as for the countries into which the Committee has reason to believe these drugs are smuggled. In the report of the Sub-Committee on Seizures is incorporated the information given by the American representative in regard to the centres of clandestine manufacture in China, as well as regarding the imports of acid acetic anhydride into China, which seem to point to an enormous manufacture of heroin. Similarly, the United Kingdom representative stated that, according to reports which had reached him, a considerable traffic in morphine, manufactured in the provinces of the interior, was taking place down the Yangtze to Shanghai. At Shanghai the morphine would, if crude, be refined, and, in part at any rate, converted into heroin. A considerable quantity of crude morphine (“ brown earth ”), coming from Wuchow on the West River, had also been seized at Hong-Kong. The Spanish representative drew the attention of the Committee to the enormous quantities of caffeine — which is one of the principal constituents of heroin pills — imported into China. He stated that, according to the statistical information of the Chinese Maritime Customs, these quantities have increased from 60 kg. to 60 tons annually. If it is not possible to prove that such quantities are utilised for chemical purposes, one must come to the conclusion that they must be used in the manufacture of heroin pills. The Spanish representative thought it would be useful if the Committee could obtain information about the quantities of caffeine actually imported and the uses to which they were put. Mr. Lyall (Assessor) pointed out the responsibility in regard to China on the part of foreign Governments, some of which, in spite of the 1925 Convention, had not been able to prevent the introduction into China of large quantities of drugs and have not subjected the smugglers to sufficiently severe penalties. He recalled the case in which persons guilty of having attempted to introduce into China, in 1928, 1 350 kg. of benzoylmorphine — i.e., a quantity representing 270 million maximum doses, sufficient to destroy one hundred thousand human beings — had been sentenced to penalties of from two to four months’ imprisonment only. He said he was convinced that, under these conditions, if illicit drug factories were supppressed in China, the illicit inflow into the country of narcotic drugs from abroad would begin again on the same vast scale as before. The Japanese representative remarked that the case cited by Mr. Lyall was anterior to the ratification by Japan of the Geneva Convention of 1925. However, Japan had issued regulations controlling this substance and, as the result, the traffickers in Japan had been punished while the manufacturers and exporters in Europe of this substance had been left free. The great majority of the members of the Committee took the view that it was not desirable to make prophecies of the kind contained in the last remark of Mr. Lyall as to the course of events, especially in view of the coming into force and general adoption of the Limitation Convention of 1931. On the other hand, in regard to production of opium, whether in the territories to the north or to the south of the Great Wall, an increase is noticed every year, according to the information given by the representative of the United States. The area of poppy cultivation includes some of the largest provinces — Yunnan, Kweichow, Szechuan, Shensi, Shansi, Kansu and Jehol. Whilst the average annual production of raw opium in the world apart from China is, according to the figures furnished by Governments to the Permanent Central Board, about 1 770 tons, the total production of China was, in 1930, estimated as 12 000 tons by a high official of the Chinese Government, an estimate considered as very moderate by well- informed persons, especially taking into consideration that production has increased consider­ ably during the last few years ; the production of China is thus at least seven times the total production of the rest of the world. It is to be feared that an accumulation in a given country of large quantities of opium or opium derivatives inevitably leads to an increase of drug addiction, not only in the country itself, but in all those countries to which the drugs may be smuggled. Thus, the use of prepared opium is on the increase in the United States, which now receives from China a mixture of Chinese and Persian opium. In the United States, twice as much prepared opium was seized in 1933 as in 1932. The American representative further suggested that the Chinese Government should furnish information in regard to th e establishment of monopolies for purveying opium to addicts in ten provinces — namely : Hupeh, Hunan, Anhwei, Kiangsi, Kiangsu, Chekiang, Fukien, Honan, Shensi and Kansu. He said that, according to the budget of Kwangsi, 25 per cent of the declared revenue of the province was derived from opium, and in Yunnan this proportion reached one-third, and suggested that information should be asked for regarding the revenue obtained from the opium traffic by the provincial governments. The Committee agreed with these suggestions. Important information regarding the opium situation in China was also laid before the Committee by the representative of the United Kingdom, who, in particular, brought to the — 11 attention of the Committee an interesting report made by a Chinese official on conditions in the province of Hupeh, which is one of the provinces under the control of the Central Government. This report was published in the Official Gazette of the Ministry of the Interior, Nanking (Series 6 , No. 52, dated December 29th, 1933).1 The representative of the United Kingdom further drew attention to the enormous quantities of opium which, in addition to manufactured drugs, were coming down the Yangtze in Chinese vessels. The Committee was in general agreement with the desire expressed by the representative of the United States of America that the Chinese Government, in spite of all difficulties which it has to face, should endeavour to enforce the existing laws. It also decided, on the proposal of the United Kingdom representative, to recommend to the Council that the Minutes of the discussion on the situation in the Far East should be sent officially to the Chinese Government and the Governments of the Treaty Powers, with a request for their observations and replies to the enquiries made. It would, in the opinion of the Committee, be very useful if the Chinese Government would furnish more detailed annual reports giving a more complete picture of the situation, together with information in regard to the questions asked by the American representative. In regard to the territories north of the Great Wall, Manchuria and Jehol, the fear expressed at the last session that the introduction of a monopoly system would have undesirable results had proved true. Information furnished to the Committee by the representative of the United States regarding North Manchuria indicates that poppy cultivation has increased to such an extent that it is impossible for the Government to control the sale and use of opium. A considerable number of opium shops and smoking- establishments have been opened. These are frequented by young persons — led to this vice by intense propaganda — who can now satisfy their craving more cheaply, since the legalising of the system has reduced the price of opium. Koreans, as well as Japanese, are becoming addicted to opium. According to the Manchukuo News Service of December 9th, 1933, it is estimated that 30 per cent of the population of Manchuria are addicts. The danger to the health of the population is increased by the fact that the addicts, having begun as opium- smokers, end by being morphine addicts, ruining their lives in the numerous dens where morphine injections can be obtained. Finally, according to information received by the American authorities, the clandestine manufacture in South Manchuria and the smuggling of morphine and heroin from Manchuria to the United States both continue. In addition to the proposals adopted above in regard to the internal situation in China, the Committee agreed to the practical suggestions made by the representative of the United States for the purpose of coping with the situation so far as foreign traffickers are concerned, particularly those in regard to close collaboration between the Chinese authorities and the foreign authorities who have jurisdiction over those foreigners who are to a large extent responsible for the introduction of manufactured drugs into China. The Committee joined with him in requesting the strengthening of the penalties applicable to foreign traffickers, the adoption of the necessary measures to prevent the entry of such traffickers into China and the continuance of vigilant effort in the Concessions in order to prevent these areas from being utilised as shelters by clandestine manufacturers. The representative of the United States emphasised the fact that the present situation is, above all, a police question, and that policing the provinces is essentially the task of the Chinese themselves. He pointed out that the necessary legislation exists and only needs to be applied. These suggestions form part of those included in the resolutions given below and with the adoption of which the discussion was concluded. The representative of China gave a detailed statement of the situation in his country. He was the first to deplore the aggravation of the situation. He recalled that the Chinese Government was faced with greater difficulties than ever before, and that the control of narcotic drugs in China had necessarily become weaker. The opium problem was — even more in China than in other countries — closely connected with the political situation and could not be overcome until the political situation in the Far East is settled. This problem is, however, also connected with that of national reconstruction, and that is why nothing will change the determination of the Government to continue its campaign. The laws are already very strict (maximum penalties amounting to as much as five years’ imprisonment and five thousand dollars fine) ; the Government endeavours to supplement the law by preventive action, encouraging propaganda against the abuse of narcotic drugs. This is one of the purposes of the “ New Life ” movement of the associations for social education, of the movement for rural reconstruction and of the anti-opium associations. In this connection, the representative of China emphasised the rôle played by the Control Yuan, an organ of the National Government instructed to denounce to the Government any abuse discovered in the Administration. He informed the Committee that the Central Government had taken energetic measures to meet the very grave situation in the province of Hupeh revealed by a member of this organ (see above). The Committee was informed that the general enquiry — announced last year to be undertaken by the Chinese Government — into the situation in China concerning opium and narcotic drugs was proceeding through the intermediary of the provincial authorities, which will report to the Central Government, and that the results of this enquiry will be communicated to the Advisory Committee. In regard to prepared opium, the representative of China stated that present conditions dld not justify the adoption of a monopoly system, which did not appear to have given any

1 Document O.C.1541. 1 — 12 — more satisfactory results than prohibition in the countries where it was in force. The existence of the prohibition laws in China was a symbol which tended to keep alive in the minds of the people the principle of total prohibition in the use of opium for non-medical purposes. The Chinese representative emphasised the fact that the opium problem was complicated to an alarming extent by that of manufactured drugs which invaded China from foreign countries, while at the same time the clandestine manufacture was getting a foothold in the country itself. In his opinion, one would not be able to suppress the use of opium without suppressing at the same time the use of manufactured drugs. The seizure reports at the disposal of the Committee pointed to the increase in the illicit imports of narcotic drugs into China, and these drugs were, in a great number of cases, discovered on board ships coming from Dairen (on this point see the report of the Sub-Committee on Seizures, page 22 below). In regard to the measures which should be taken against clandestine factories, the representative of China drew attention to the fact that certain Chinese territories were not under the control of the Chinese authorities, such as Manchuria and Jehol, leased territories and concessions and settlements. Further, the fact that drugs seized in foreign countries sometimes come from China does in no way prove that these drugs had been manufactured on Chinese territory under the control of Chinese authorities. On the other hand, it happens also that these drugs have first been imported illicitly into China and afterwards re-exported. China, who had herself closed several of these factories, hoped to be able to count on the support of the foreign Powers in this matter. The Chinese representative was ready to transmit to his Government any concrete suggestions made for this purpose. Desiring to be constructive, he had proposed the adoption of certain proposals regarding the deportation from China of foreigners implicated in illicit traffic in narcotic drugs in China, the withdrawal of the protection afforded to foreign vessels navigating in Chinese waters and carrying on illicit drug traffic, and the imposition of severe penalties on such ships as well as on foreign ships so engaged arriving from foreign countries. The Committee agreed in part to the suggestions of the Chinese representative. On the proposal of the Spanish representative, it also pronounced itself in favour of addressing a pressing appeal in the form of a resolution to the Chinese Government, asking it to prevent its territory from becoming a source of supply for traffickers in other countries. The Committee agreed with the declaration made by the representative of Spain that any delay in coping with the situation — which could only become worse in view of the fact that reports from various provinces proved that drugs were more and more replacing the opium pipe — might mean that the Chinese Government would find itself in a position of complete helplessness as regards the evil. Moreover, the representative of Belgium proposed that China and the countries which export chemicals to China should consider the possibility of regulating the introduction into China of products which are (apart from opium) directly employed in the manufacture of narcotic drugs. The Committee finally adopted the following two resolutions, which had been proposed by the Permanent Sub-Committee for the Application of Chapter IV of the Hague Convention :

Resolution I. “ The Advisory Committee asks the Council to request Governments having extra­ territorial powers in China to take the following measures without delay, unless they have already been adopted : “ (1) To deport from China all their nationals who have been convicted of taking part in the illicit manufacture of drugs in China or in the illicit traffic in such drugs in China. Once deported, these persons should not be allowed to re-enter China. “ (2) Enactment of legislation which will apply in extra-territorial jurisdiction to impose adequate penalties upon their respective nationals who are in future convicted of illicit trafficking in opium or narcotic drugs in China or of complicity in the illicit manufacture in China of narcotic drugs. “ (3) Withdrawal of the protection accorded to vessels engaged in inland water navigation in China and flying the flags of these countries when those vessels are found to be habitually employed in the illicit traffic in opium and dangerous drugs. ”

Resolution II. “ The Advisory Committee, “ Having examined carefully the information available to it concerning the alarming situation existing in China as regards poppy cultivation and consumption of opium, the illicit traffic in opium and its derivatives, and, above all, as regards the rapid development of clandestine manufacture of morphine and heroin in the Chinese territory : “ Expresses the desire to be informed as soon as possible of the results ofthe en quiry which was announced a year ago by the Chinese Government and which was intended to serve as a basis for the establishment of a comprehensive plan to prevent illicit traffic in opium and its derivatives and to suppress immediately all illicit manufacture of opium derivatives ; “ Expresses the wish that, while awaiting the results of this enquiry, the Chinese Government should take every possible step to combat the illicit traffic in opium and — 13

drugs in China and to prevent its territory from becoming a source of supply for traffickers in other countries ; “ Recommends that the Council should communicate officially to the Chinese Government and the Governments of the Treaty Powers, through the Secretary-General, the Minutes of the Committee’s discussion on the situation in the Far East at its sittings on May 29th and 30th, with a request for the observations of those Governments on the facts disclosed by the discussion and for their replies to the questions put in the course of this discussion.” The Permanent Sub-Committee for the Application of Chapter IV of the Hague Convention, the report of which is attached ,1 as submitted to the Plenary Committee, examined the question of undertaking a special study in regard to the co-operation between China and the foreign authorities in China for the suppression of the illicit traffic in drugs. The passage on this subject in the report to the Council on the work of the seventeenth session was as follows : “ A suggestion was also made in the course of the discussion that a special enquiry should be instituted by one or more persons, specially selected, into the conditions and circumstances in which co-operation between the Chinese authorities and foreign authorities in China at present take place, the difficulties encountered and the steps which are contemplated or might be taken for overcoming them, and, also, into the situation arising out of the clandestine manufacture of drugs.”

The Committee was glad to learn that the Chinese Government accepted in principle the study in question, and the exchange of views on this subject is continuing. The Committee requested the Chinese representative to discuss this question with his Government during his coming visit to China and has invited the other members representing the Treaty Powers also to request the opinion of their Governments on this matter in order to enable the Sub-Committee to examine the question again during the autumn session.

(c) R eport of t h e Su b-Committee on Seizures (F ifth Sessio n ).

1. Introductory.

This report is based on seizures made and reported to the Secretariat during 1933 and the first three months of 1934 in individual seizure reports, on reviews of illicit traffic submitted by Governments and on other information placed confidentially at the disposal of the Sub- Committee. The Advisory Committee at its sixteenth session decided to ask Governments to forward before April 1st each year that part of the annual report relating to the illicit traffic. Such reports from the following Governments were before the Sub-Committee : United Kingdom, Canada, Czechoslovakia, Denmark, Egypt, Estonia, Finland, France, Germany, Irish Free State, Japan, Latvia, Monaco, Netherlands, Roumania, Sweden, Switzerland, United States of America. In addition, the Sub-Committee had before it the annual reports for 1933 of the following countries or territories : Bahamas, Barbados, Basutoland, Bechuanaland, Cyprus, Fiji, Gibraltar, Iceland, Malta, Nyasaland, Sierra Leone, Sudan, Swaziland, the International Settlement of Shanghai, the French Concessions at Shanghai, Hankow and Tientsin and the Italian Concession in Tientsin. The sections in these reports dealing with the illicit traffic in 1933 have been incorporated in separate documents (documents O.C.S.189 and O.C.S.189(a)) which have been circulated to the members of the Committee.

2. Principal Channels of Illicit Traffic. (a) Raw Opium. Seizures of raw opium have been reported from the United Kingdom, Canada, China, Egypt, France, Greece, Hong-Kong, Macao, Netherlands, Netherlands Indies, Poland, Siam, Turkey and the United States of America. The largest quantities seized were in France (3 483 kg.), most of which seemed to be of Turkish origin. The quantities seized in Marseilles indicate that that port continues to be used as a transit base for smuggling this commodity on a large scale. What becomes of the raw opium smuggled through Marseilles has not yet been ascertained. The mark of Theodorides was frequently encountered on raw opium seized at Marseilles. The information available indicates that Turkish raw opium in the illicit traffic passed in transit principally through French (Marseilles) and Italian ports. The following quantities of raw opium were reported seized in France in 1931 to 1933 : Kg. 1931 ...... 1 490 1932 ...... 995 1933 ...... 3 483

1 Document O.C. 1557(1) (Annex 4). — 14

The next largest quantity was seized in Hong-Kong (2 239 kg.). The greater part of this opium was of Chinese origin, but there were also quantities of Persian opium seized. Seizures in China and in the Netherlands Indies were chiefly of Persian opium.

Most territories in the Far East do not report seizures of raw opium except in their annual reports and therefore the information before the Sub-Committee in regard to the situation in the Far East was incomplete.

According to the illicit traffic section of the American annual report for 1933, the heaviest seizures of raw opium in the United States of America were in the Atlantic coast area, although small quantities were seized in the Panama Canal Zone and in the Philippine Islands. Most of the raw opium seized in the Atlantic coast area had come from Italian ports, but was apparently of Turkish origin. A common mark was “ Maison de Commerce — Theodorides

The remark made in the report to the Sub-Committee at its last session — that Turkish opium is exported illicitly exclusively in a westerly direction, whereas the Persian raw opium apparently goes East — seems still to be true. Information before the Sub-Committee indicated no diminution in the illicit introduction into China of raw opium shipped directly from Persia, and the Sub-Committee noted the suspicious circumstances connected with the loading of several ships carrying large quantities of opium from Bushire to the Far East —- notably obliteration of marks of identification from the ships, loading in a surreptitious manner at night and false description of the cargo.

The Persian representative stated that, as his Government has now undertaken to furnish statistics of opium export, exporters in Persia are therefore required to state the real destination of opium exported, instead of declaring any destination as previously, and that exporters are asked to show evidence of the actual destination of the goods.

(b) Prepared Opium.

Seizures of prepared opium were reported chiefly by the United States of America (including the Philippine Islands), Canada, U.S.S.R. and Far Eastern countries. In almost every case, the packings and labels or marks pointed to the origin of the prepared opium seized as being the China coast. There were seizures in Hong-Kong (about 82 kg.) which were reported to have come from Kwangchow Wan or Indo-China. Most of the prepared opium seized bore labels or marks of well-known Chinese brands. The heaviest seizures of prepared opium in the United States were on the Pacific coast, the Hawaiian Islands and the Philippine Islands, and most of the prepared opium came to these areas by ship from the Far East. Small quantities came from Mexico into the south central area of the United States.

The attention of the Sub-Committee was drawn to the statements in the U.S.S.R. annual report that a total of 4 734 kg. of smoking-opium was seized by the Soviet authorities and that 2 322 persons were penalised by the Soviet Government for participation in the illicit traffic in this commodity. The Committee noted with interest and appreciation the laudable activity in combating the illicit traffic evidenced by these seizures and convictions. It is suggested that the Secretariat be asked to enquire from the Soviet Government whether, in the investigation and prosecution of these cases, any information was developed to show the origin of the prepared opium seized or to indicate that any of the persons convicted were engaged in the international traffic, as such heavy seizures of prepared opium point to the existence of illicit traffic on a considerable scale ; a circumstance that sooner or later leads to international movement of the contraband.

(c) Morphine.

There were no important seizures of morphine reported in Europe, but there were isolated cases in Greece, Roumania and Sweden. The Greek case was in connection with clandestine manufacture in' Salonika. The United States of America and the Far East still seem to be the most important illicit markets for morphine.

According to the American annual report for 1933 (illicit traffic section), the heaviest individual seizures in the United States of America were about equally divided between Atlantic and Pacific coast areas. The morphine seized in the Pacific coast area came from Japan and China, whence it was brought directly by ship. The common label in the case of Japanese morphine was “ Japan Pharmaceutical Establishment ”. The morphinef r o m China bore no labels when seized or else false labels which had been printed in the United States, with the exception of a small quantity of morphine which bore Italian labels, and had apparently been legally imported into China, diversion to the illicit traffic having taken place in China. Most of the morphine in the illicit traffic in the Atlantic coast area came to the United States directly from French ports. The morphine seized in the Atlantic coast area bore no labels. In the south central area, Swiss morphine has been seized which came from Honduras. The small quantity seized in the Panama Canal Zone came from Colombia by 15 — aeroplane ; that seized in the Philippines came by ship directly from China, and that seized in the Hawaiian Islands came directly from Japan by ship. From China, thirteen cases were reported, and one from Hong-Kong. Nine cases were in North China ports, and there is reason to believe that, in all these cases, the morphine was found on ships which had come from Dairen. Cases of seizure of morphine were also reported from the Netherlands Indies and Siam.

(d) Heroin.

Seizures of heroin were reported from Canada, China, Egypt, Hong-Kong, Roumania, Turkey and the United States of America. Except in Roumania and Turkey, there were no seizures of heroin reported in Europe. The principal illicit markets for heroin are obviously the United States of America and China. According to the American annual report for 1933 (illicit traffic section), the heaviest arrivals of heroin in the United States of America were, as usual, on the Atlantic coast, and the heaviest seizures were made in that area. There were no seizures of this substance in the Panama Canal Zone, in the Hawaiian Islands or in the Philippines. In most of the cases of seizures, the heroin bore no labels or marks. The largest individual seizure was of heroin seized in the Atlantic coast area. This was labelled “ E. Merck ”, of Darmstadt. In this case, the heroin was shipped directly from France. Unlabelled heroin also came to the Atlantic coast by ship directly from French ports. A small quantity seized in the Pacific coast area had come by ship directly from China. By 1932, heroin had practically supplanted morphine as the drug of addiction in every part of the United States, except on the Pacific coast. In 1933, it began to appear in greater quantities in the Pacific coast area. The quantity of heroin smuggled from Turkey to the United States appears to have been very much less, but large supplies of this drug are apparently still available in Europe for the illicit traffic (see 5(a) below). Aside from other indications of the continued movement of heroin from Western Europe to the United States, it may be pointed out that, in the portions of the country which rely on Western Europe for their illicit supply, prices in the illicit traffic were down from 10 to 35 per cent in 1933 as compared with 1932. Throughout the United States, the heroin seized in the retail illicit traffic continued to show heavy adulteration. This is in marked contrast to that seized in smuggling cases, which was usually practically pure and appeared to have come from well-equipped factories rather than from poorly equipped clandestine plants. Most of the heroin seizures reported from China were in North China ports (three seizures were effected in Shanghai). There were twenty-four seizures in the North China ports. In the majority of these cases, the heroin arrived on vessels coming from Dairen. Large quantities of heroin pills continued to be seized in Hong-Kong, and pills containing heroin and other opium derivatives were seized also in China and the United States of America.

(e) Codeine.

Two cases of codeine seizures were before the Sub-Committee, and the Canadian representative reported that codeine is being increasingly used by morphine and heroin addicts in Canada as a “ carry-over ” when they are unable to secure the morphine or heroin which they prefer. The American representative reported that the authorities in the United States are investigating a method alleged to be successfully employed by illicit traffickers for the conversion of codeine into heroin.

(f) Cocaine.

Cocaine seizures were reported in Belgium, Canada, China, Czechoslovakia, Egypt, France, Germany, Hong-Kong, India, Italy, Netherlands, Poland, Roumania, Straits Settlements and the United States of America. At its last session, the Sub-Committee noted a recrudescence of the illicit traffic in cocaine into India. Since then, not less than eleven seizures of cocaine have been reported in India, five of which were in Calcutta, four in Rangoon and two in Bombay. In four cases, the drugs tore the usual counterfeited Boehringer labels and, in addition, the Fujitsuru label. In one case, there was the Fujitsuru label alone. The two seizures in Bombay bore, in one case, a genuine Boehringer label and in the other the label of Koto Seiyaku Co., Ltd., Tokio. The total quantity seized in these eleven cases amounted to 27 kg. — i.e., more than one-fourth of the total reported seized in all countries. There were four cases reported in the Straits Settlements and one in Hong-Kong. In one case in Singapore and in the Hong-Kong case, the Fujitsuru and false Boehringer labels were found on the drugs. — 17 —

The problem of hashish is made more difficult in view of the fact that the hemp plant grows wild in many countries and is easily cultivated in extensive areas. For instance, large smuggling is carried on in locally-produced hashish in many parts of the African continent. It is of interest in this connection to note that hashish coming from Africa has, in two cases, been seized in Canada.

3. Clandestine Manufacture.

The Sub-Committee views with alarm the evidence before it of world conditions in respect of clandestine manufacture. The principal centres appear to be Bulgaria and the Far East. Reference is made to the details of clandestine manufacture contained in the sections dealing with the situation in Turkey and China. As regards Bulgaria, this point will presumably be discussed in the report of the Committee to the Council of the League.

4. Acid Acetic Anhydride.

The Sub-Committee, noting the possibility of gauging the volume of clandestine manufacture of heroin by the import of acid acetic anhydride into countries where it is apparently used for no other purpose, recommends that the Secretariat be asked to enquire of all Governments whether they can supply statistics for 1931, 1932 and 1933 of the movement of acid acetic anhydride — chemical formula CO ^^ — into and out of their territories, particularly to countries where there is reason to suspect that this chemical may be used for illicit manufacture of heroin. The Sub-Committee also recommends that Governments be asked to publish and to send to the Secretariat in future statistics of their exports of this commodity, showing the destination thereof by countries, and statistics of their imports, showing provenance. This substance should not be confused with acetic acid, glacial acetic acid or anhydrous acetic acid. The Sub-Committee is impelled to these recommendations by the combination of circumstances which has been brought to the attention of the plenary Committee in connection with the illicit manufacture of heroin in Bulgaria, in China and in the Kwantung Leased Territory. In these areas, it appears that there is little or no possibility of using acid acetic anhydride for any purpose other than the manufacture of heroin. The figures placed before the plenary Committee indicate that, in 1932, fifty times as much acid acetic anhydride was exported to Bulgaria as in 1931, and, in 1933, eighty-five times as much as in 1931. As this increase coincides with the reported increase in illicit manufacture in Bulgaria, the circumstance is highly suspicious, particularly as the practical yield of heroin from the quantities of this commodity thus exported to Bulgaria coincides so closely with the estimated total output of all of the illicit factories independently reported to the Committee as being in operation in that country. Indications point to an annual illicit production in Bulgaria at the present time of from twice to four times the total legitimate annual needs of the world for heroin. The plenary Committee was also informed that, for some two years or more past, large and frequent importations of acid acetic anhydride have been effected at Shanghai ; so great, that indications point to the manufacture each month, in places in China supplied with acid acetic anhydride imported through Shanghai alone, of an amount of heroin at least equal to the total medical needs of the world for an entire year. This remarkable increase in the import into Shanghai coincides with the reported rise of clandestine manufacture in China. The Sub-Committee had no information before it in regard to imports at Dairen, but the representative of Japan stated that he would make enquiries in regard thereto. It is felt that this barometer of the illicit manufacture of heroin in countries which produce neither aspirin nor rayon in appreciable quantities should be closely watched, and the Sub-Committee expresses the hope that Governments will co-operate to make this form of surveillance possible.

5. Survey of the Illicit Traffic in Various Countries.

(a) Illicit Traffic in the United States of America. As more seizures have been reported from the United States of America than from any other single country, an analysis of the illicit traffic in that country, which was presented to the Sub-Committee by the American representative, is given below : Regional Trends of the Illicit Traffic in the United States in 1933 and the First Three Months of 1934. — The illicit traffic in the United States displays markedly different characteristics in different portions of the country. For this reason, in considering the subject, it has been found convenient to examine the situation separately in respect of each drug as regards each of the following areas : ( 1 ) The Atlantic coast ; (2) The Pacific coast ; (3) The north central area ; (4) The south central area ; — 18 —

(5) The Hawaiian Islands ; (6 ) The Panama Canal Zone ; (7) The Philippine Islands.

A survey based on reports of eighty outstanding seizures effected in territory under American jurisdiction between January 1st, 1933, and March 31st, 1934, inclusive, indicates no marked change in the trend of the illicit traffic in respect of sources of supply and routes followed in 1933, as compared with the year 1932, except for the practical disappearance of heroin and morphine definitely traceable to Turkish factories.

Raw Opium. — ■ The heaviest arrivals of raw opium were in the Atlantic coast area, although small quantities were seized in the Panama Canal Zone and in the Philippine Islands. Most of the raw opium seized in the Atlantic coast area had come from Italian ports, but was apparently of Turkish origin. The common mark was “ Maison de Commerce — Theodorides That seized in the Panama Canal Zone came from Spain, while that seized in the Philippine Islands came from China or Hong-Kong. There were no seizures of raw opium on the Pacific coast or in the Hawaiian Islands. The price in the illicit traffic remained about the same as in 1932, indicating that supplies continued to be successfully smuggled into the country.

Prepared Opium. — The heaviest seizures of prepared opium were on the Pacific coast, the Hawaiian Islands and the Philippine Islands. Most of the prepared opium came to these areas by ship from the Far East. The most common marks were “ Cheong ” and “ Yick Kee ” in the Pacific coast area ; “ Lam Kee ” and “ Lo Fook Kee ” in the Hawaiian Islands, and “ Lion ”, “ Dragon ” and “ Tonggee ” in the Philippine Islands. Certain quantities came from Mexico into the south central area. Small quantities seized in the Atlantic coast area were marked “ Lam Kee ” and “ Red Lion The price in the illicit traffic remained generally about the same as in 1932, indicating that supplies continue to be smuggled in. Practically all of the prepared opium seized came from China and appeared to be mostly a blend of Chinese and Persian opium. It is becoming more and more evident that, with the quantities of opium available, both Chinese and Persian, constantly increasing in China south and north of the Great Wall, the traffic from China to the United States in opium prepared by blending these two varieties is materially increasing and it is feared that the opium-smoking vice, hitherto on the decline in the United States, has undergone a marked recrudescence. Over twice as much smoking-opium was seized in the United States in 1933 as in 1932, and in the first three months of 1934 seizures of this article were becoming still more frequent, while quantities seized showed atendency to increase. The figures are as follows :

1932 ...... 326 lb. (148 kg.) 1933 ...... 735 lb. (333 kg.) 1934 (first quarter reported to d a t e ) ...... 180 lb. (82 kg.)

The price in the illicit traffic has remained about the same, but information at hand indicates that this may be due to increased demand taking up the additional supply believed to be available. The American narcotics administration views this development with alarm.

Morphine. — Morphine was seized in every one of the areas under consideration. The heaviest individual seizures were about equally divided between the Atlantic and Pacific coast areas. The morphine seized in the Pacific coast area came from Japan and China, whence it was brought directly by ship. The common label was “ Japan Pharmaceutical Establishment ” in the case of Japanese morphine. The morphine from China bore no labels when seized or else false labels which had been printed in the United States, with the exception of a small quantity of morphine which bore Italian labels when it was seized. As in the case of heroin, there is reason to believe that morphine manufactured clandestinely in China and in Dairen is now being smuggled into the United States in considerable quantities. A seizure of Chinese pills, containing morphine, was effected in the Pacific coast area, coming from Hong-Kong and marked “ Chih K’O Tan Most of the morphine in the illicit traffic in the Atlantic coast area came to the United States directly from French ports. The morphine seized in the Atlantic coast area bore no labels. In the south central area, Swiss morphine has been seized which came from Honduras, into which country it had been imported under regular import authorisation. The small quantity seized in the Panama Canal Zone came from Colombia by aeroplane ; that seized in the Philippine Islands came by ship directly from China, and that seized in the Hawaiian Islands came from Japan directly by ship. Prices in the illicit traffic remained about the same as in 1932, except in the Pacific coast area, where they had dropped 45 per cent by June, but, by December, showed an in cre ase of about 30 per cent, and in Chicago, where they dropped 25 per cent by June, but, by December, showed a slight increase. All the circumstances point to a continuance of illicit traffic in morphine from Western Europe to the United States on much the same scale as for some time past, with a development of new methods of concealment and transportation. It is too early to say positively how much effect the improved co-operation received from the — 19

Japanese authorities is having on the illicit traffic from Japan to the Pacific coast area. Smuggling from China is feared to be increasing.

Heroin. — The heaviest arrivals of heroin were, as usual, on the Atlantic coast, and the heaviest seizures were made in that area. There were no seizures of this substance in the Panama Canal Zone, in the Hawaiian Islands or in the Philippine Islands. In most of the cases of seizures, the heroin bore no marks or labels, but the largest individual seizure was of heroin to the Atlantic coast area and was labelled “ E. Merck ”, of Darmstadt. This came by ship directly from France. Unlabelled heroin also came to the Atlantic coast area by ship directly from French ports. A small quantity seized in the Pacific coast area had come by ship directly from China. By 1932, heroin had practically supplanted morphine as the drug of addiction in every part of the United States, except on the Pacific coast. In 1933, it began to appear in greater quantities in the Pacific coast area. The quantity of heroin smuggled from Turkey to the United States appears to have been very much less, but large supplies of this drug are apparently still available in Western Europe for the illicit traffic. The circumstances in connection with the heroin seized point to Europe as the place of its manufacture, with the probability that part of it may have been originally obtained on forged or fraudulent import certificates under which it was shipped to countries on the American continent and thence smuggled into the United States. There is reason to believe that heroin manufactured clandestinely in China and in Dairen is also entering the United States in considerable quantities, but no seizures have yet been effected of heroin which could be positively identified as having been manufactured in China or in Dairen.

Cocaine. — The illicit traffic in cocaine is believed to be still decreasing. No large seizures were effected. The heaviest seizures of cocaine were made in the south central area. There were no seizures in the Hawaiian Islands or the north central area. Most of the cocaine seized in the south central area was Swiss cocaine which had entered the illicit traffic in Honduras, but small quantities of French cocaine, labelled “ Ferdinand Roques ”, came from Mexico. Cocaine seized on the Atlantic coast apparently came from France. The cocaine seized in the Panama Canal Zone came by aeroplane and ship from Colombia, while that seized in the Philippine Islands came by ship directly from China. Some French and some British cocaine was seized, in the Pacific coast area, which had come to the United States from China, where it had been diverted to the illicit traffic. The price of cocaine in the illicit traffic in 1933 was generally the same or slightly lower than in 1932, but the price of cocaine on the Pacific coast has recently dropped from $95 or $90 per ounce to $70 per ounce.

Packing Methods. — The most interesting development in regard to packing methods in the period under discussion was probably the increasing use of baled rags as places of concealment for smuggling. Attention may also be called to the specially constructed oil drums used by the Ezra brothers. As consignments during the year appear to have been made generally in small lots, there are good reasons to believe that, on both the Atlantic and Pacific coasts, increased use was made of members of the crews of ships arriving from Japan, China and Western Europe.

International Co-operation. — It is a pleasure to express appreciation of the continued co-operation received from the enforcement officers of the United Kingdom, Egypt, Canada, France, Germany and the Netherlands during the period under review. The Committee will also be glad to hear that the improved arrangements for direct exchange of information between the American and Japanese authorities are beginning to have a salutary effect. It is a pleasure to acknowledge with appreciation the co-operation received from the Japanese authorities since these arrangements were placed on a more practical working basis. An outstanding example of international co-operation is found in the case of the Ezra brothers, for effective aid in which the American Government is indebted to the Chinese courts, the Chinese Maritime Customs and the French authorities in China. The authorities of the French Concession and the Chinese District Court, which functions in that Concession, were especially helpful. In that case, help was also afforded by the British authorities in the United Kingdom and the French authorities in France in tracing labels.

(b) Illicit Traffic in Canada.

As Canada is another important market in the illicit traffic, there is given below an abstract °f the analysis of illicit traffic in that area in 1933 presented by the Canadian Government :

General. As from January 1st, 1933, opium poppy heads were brought under control. It was jound that large quantities were being sold over the counter by retail druggists to orientals in British Columbia. It was also found that orientals in that province were growing poppies and — 2 0

harvesting the poppy heads. It was found that these poppy heads, whether purchased from retail drug stores or grown locally, had a morphine content of 0.25 per cent, so that one hundred pounds of poppy heads contained an equivalent of four ounces of morphine, the practice being to infuse the poppy heads and drain the resulting liquid. As a result of the administrative action taken, poppy heads could only be imported by licensed narcotic wholesalers and sold by retail druggists on a physician’s prescription. This reduced sales to practically zero. During the latter part of 1932, close attention was paid to what was believed to be the anti-social use of tincture camphor compound (paregoric), which is an exempt preparation under the Narcotics Act. In addition to containing one-fifth of a grain of morphine to the fluid ounce, the alcoholic content of paregoric is greater than that of Scotch whisky as retailed in this country. It became known that many people were using large quantities of this preparation, some as high as twenty ounces daily. By co-operation with the Excise Department, the control of paregoric was established from the standpoint of the alcoholic content, and the Excise Department instructed that no retail druggist, except under exceptional circumstances, which would be investigated before authority for an increased amount would be authorised, should receive more than eighty ounces of paregoric monthly, as from March 1st, 1933. The effect was immediate, and whereas paregoric sales by wholesalers to retail druggists in 1932 totalled 8 727 gallons, by the end of 1933 the figure for that year had decreased to 5 044 gallons, although the restriction had only been in effect for ten months. Similarly, the amounts sold by wholesalers in Canada decreased from 838 gallons in January 1933 to 318 gallons in December of that year. The following figures are also illuminating in relation to the decrease in sales to retail druggists in various Canadian cities : 1933 January December Gallons M o n tr e a l...... 311 125 T oronto ...... 244 60 W in n ip eg ...... 26 7 V a n c o u v e r ...... 49 20

Not a single complaint has been received as to there being any shortage of paregoric for legitimate use in any part of Canada, and it is safe to assume that the difference between the two totals represents paregoric which was being sold for other purposes.

Prevalence of the Drug Habit.

As mentioned in previous reports, the number of drug addicts in Canada is estimated at 8 000, the majority of whom are criminal addicts. This may be looked upon as a maximum, and there is every reason to believe that, during the latter part of 1933, the number was materially reduced. From all parts of Canada, there is indisputable evidence that addicts are experiencing considerable difficulty in obtaining their drug of addiction, and many are known to be “ carrying on ” with codeine and, in some instances, with paregoric.

Difficulties in the Enforcement of Laws: Particulars available of the Illicit Traffic carried on, and Ihe Channels by which and the Sources from which this Traffic is fed. By far the most important case handled in Canada during 1933 was that of Harry Davis, of Montreal, who, in association with Pincus Brecher, of New York, and Jacob Polakiewitz, of Paris, imported a tremendous quantity of narcotics into this country in 1930. The full circumstances have already been reported to the League, but the evidence disclosed many of the collateral illegal activities which are associated with an international conspiracy of this nature, such as fraudulently obtained passports, bribery of Customs officers, etc. Davis was sentenced to fourteen years’ imprisonment, a fine of S3 000 and ten lashes. Polakiewitz is now serving a penitentiary term in the United States, while, in the early part of 1934, Brecher was arrested in the United States and is now being held for extradition to Canada. The arrest of Davis in April 1933, followed by his conviction in October of that year, had an immediate repercussion in Montreal, and there has since been an almost complete cessation of narcotic trafficking in that city. Many of the previously known pedlars, as well as addicts, whose activities have been closely watched, are definitely known to be “ carrying on ” with codeine. Seizures of opium and morphine continue to be made upon the Pacific coast, the belief existing that these drugs reach Canada from the Orient.

Indian Hemp. Prior to 1932, there was no evidence of smuggling of indian hemp into Canada, but, during that year, five convictions were obtained on charges of possession of indian hemp and indian hemp (Marihuanna) cigarettes, sentences being imposed as outlined in our report for 1932. — 21 —

During 1933, further convictions were obtained for possession and importing indian hemp and indian hemp (Marihuanna) cigarettes. The sentences imposed were as follows : 4 cases of possession — 6 months’ imprisonment and a fine of $200 each ; 3 cases of importing and possession -— 6 months’ imprisonment and a fine of $200 each ; 1 case of importing and possession — 2 years’ imprisonment and a fine of $500; 1 case of importing and possession — 3 years’ imprisonment and a fine of $500. A detailed report in connection with these cases was forwarded to the League of Nations during 1933. It is of interest to note that the seizures made in connection with the cases reported for 1932 originated in the United States of America and the convictions were all obtained in the Province of Ontario, whereas, in 1933, it was definitely established that, in addition to the United States of America, other sources of seizures were Jamaica, the British West Indies and Africa, and all the convictions were confined to the Province of Quebec.

Illicit Traffic. The penalties imposed in narcotics cases in 1933 ranged from a fine of $15 for obtaining drugs from more than one physician to four years’ imprisonment and a fine of $500, or a further six months’ imprisonment in default of payment of same, on a charge of possession of drugs. Under the Canadian Narcotics Act, aliens convicted of narcotic offences are automatically deported upon completion of sentence. Ninety-one were so deported during 1933.

Other Drugs. We have constantly encountered, in the course of narcotic investigations, the fact that many people, previously addicted to morphine orjheroin, are now using codeine, but the opinion is unanimously expressed that addicts look upon codeine purely as a “ carry over ”, in the same way as a cocaine addict employs novocaine during periods of shortage, and that they would, and will, immediately return to their former drug of addiction as soon as illicit supplies become available and their finances permit them to purchase at the high prices charged therefor. In some cases encountered, it has been found that the injection of codeine hypodermically has resulted in the formation under the skin of small marble-like lumps which remain, if not permanently, for a considerable time. This condition is referred to in the underworld as “ cement arm

(c) Illicit Traffic in Central America. The Sub-Committee was informed that certain Central American countries were used to an increased extent in 1933 and the early months of 1934 as bases for the illicit traffic to the United States of America. This subject will be referred to again under the chapter on “ misuse and forgery of import and export certificates

(d) Reports from Uruguay. The representative of Uruguay had put at the disposal of the Committee reports which had appeared in local newspapers on cases of illicit traffic in Uruguay. He informed the Committee that the central organisation created in his country for the purpose of co­ ordinating the efforts of combating drug addiction and the illicit traffic had received instructions from the Government, in accordance with Article 23 of the 1931 Convention, to forward to the League of Nations in future reports on illicit traffic cases discovered in Uruguay.

(e) Illicit Traffic in France. M. Mondanel, Controller-general of the French Sûreté nationale, presented to the Sub- Committee a statement in regard to the illicit traffic in narcotic drugs in France, which was confidentially circulated. This report stated that raw opium smuggled into France is usually landed at the port of Marseilles and that seizures had been effected at that port on board steamers and also in the city and in its outskirts. It mentioned seizures of narcotics in France during the period from October 1933 to May 1934, as showing that the illicit traffic within the country is inconsiderable. The report further stated that Marseilles appears to be the centre in France for illicit traffic in hashish.

(f) The Situation in Bulgaria. As the situation in Bulgaria was discussed in the plenary Committee, the Sub-Committee did not take the matter up, except to note that Roumania appears to be now used as a transit base for smuggling out the products of clandestine factories in Bulgaria. In this connection, attention is directed to Chapter 4 of the present report.

(s) The Situation in Turkey. The Sub-Committee noted the following important facts as regards the situation in — 2 2

No seizures of manufactured drugs of proved Turkish origin were before the Committee. On the other hand, clandestine manufacture is apparently continuing in small factories or laboratories. Such factories or laboratories were discovered as follows : one in April, one in June, one in July, one in October 1933 and one in April 1934. Turkish raw opium is still being seized chiefly at Marseilles and in the United States of America. Much of the opium bore the well-known labels of the firm of Theodorides, of Istanbul. The Turkish Government reported that this trafficker was under arrest accused of drug traffic, but the Sub-Committee had no information on the final outcome of the proceedings instituted against him. The Sub-Committee wishes to express its appreciation of the continued efforts made by the Turkish Government to cope with the illicit drug traffic and also of the frequent reports submitted by the Turkish Government.

(h) Illicit Traffic in Egypt. The Sub-Committee noted, from the Egyptian annual report for 1933, that morphine- atropine solutions put up in ampoules have been found in use for the satisfaction of drug addiction in Egypt. The Sub-Committee suggests that the Health Committee be urged to reconsider the action which that Committee took in 1930, to exempt from the application of the Geneva Convention of 1925 certain sterilised solutions of morphine or eucodal and atropine on condition that they were delivered in ampoules of 1.1 c.c., and to take the necessary action, if possible, to bring these substances once more within the scope of that Convention.

(i) Illicit Traffic in Indo-China. In regard to the case of the Hinode Maru, which was referred to in the Sub-Committee’s report for the seventeenth session, the representative of France stated that this motor-junk was stopped by a patrol vessel of the Indo-China Customs Service on August 24th, 1933, in the territorial waters of Indo-China off the coast of the Province of Phu-Yen in Annam, near Cape Varella. The master was unable to produce a crew list and the Japanese captain and crew of seven Japanese sailors were unable to produce papers of identity. A search of the vessel uncovered some 500 kg. of opium. On December 22nd, 1933, the master of the junk was arraigned in court and was sentenced to confiscation of the junk and its cargo, a fine of 85 847.62 Indo-Chinese piastres, being the value of the merchandise seized, to a further penalty in the same sum, and to pay the costs subject to imprisonment for debt for the minimum period prescribed for such imprisonment. The crew were deported to Keelung in Formosa (Taiwan) on December 11th, 1933. The French representative stated that the officers of Indo-Chinese Customs who had been convicted of complicity in the illicit traffic on the Yunnan frontier had appealed and that the Indo-Chinese authorities would give further information after this appeal is decided.

(j) Illicit Traffic in China. The Chinese Maritime Customs have reported frequent seizures in China ports of morphine, heroin and cocaine. In 1933, the number of seizures and the quantities involved were the following : Number of seizures Quantity Kg. grs. M orp h in e ...... 17 24 105 H e r o in ...... 32 78 902 C ocaine...... 10 36 970

These seizures point to continuance of the illicit importation of drugs into China. Attention is drawn to the fact that, in a great many cases, it has been established that the drugs arrived on ships which had come from Dairen. As regards clandestine manufacture in China, only one seizure case has been reported to the Secretariat by the Chinese Government. This factory hardly seemed to have begun operations when it was discovered and closed. The continued existence of clandestine manufacturing in China seems to be indicated, however, by seizures made in China itself and in Hong-Kong. The information placed before the Sub-Committee indicated that the principal centres of illicit manufacture of morphine and heroin in China are in Szechuan, in Shanghai and in Peiping, with secondary centres in Mukden and in Harbin. Information placed before the Sub-Committee also indicated that manufacture of crude morphine or a sort of black base is taking place in Yunnan, or in some place in South China. Seizures of morphine and heroin which were stated to be of Chinese manufacture appear to have been effected at various places in China and a seizure of crude morphine resembling black base was made at Hong-Kong from persons who had brought the substance from Wuchow, in the West River district. All of the information presented to the Sub-Committee points to a rapid increase in illicit manufacture in China. In this connection, attention is called to Chapter 4 of the present report, which deals with acid acetic anhydride as a measure of the manufacture of heroin. A desire was expressed that the Secretariat should be furnished with reports in cases of seizures effected and raids made on clandestine factories by Chinese authorities other than the Customs, and the Chinese representative agreed to bring this request to the attention of — 23 — his Government. He also agreed to ask for information in regard to a number of specific cases involving both seizures and clandestine factories which had been brought to the attention of the Sub-Committee. These reports of extensive clandestine manufacture spread over many of the provinces were viewed with great anxiety by the Sub-Committee as constituting a serious menace, not only to China itself, but also to the rest of the world. At a time when the authorities concerned have been able to drive out drug manufacturing for illicit markets from most European countries, except Bulgaria, it is the more disquieting to find clandestine manufacture taking hold in China. It asks the Advisory Committee to appeal to the Chinese Government to give full reports on the situation in this respect. Attention was called to the paucity of detail in many reports from the Chinese Maritime Customs, but it was noted that there has recently been some improvement in this respect. The Chinese representative undertook to call to the attention of his Government the importance of giving at the time full details as to the places on board where the contraband is found, when seizures are effected on shipboard.

6 . Forgery and Misuse of Import Certificates.

The Sub-Committee had before it document O.C.S.188 in regard to a number of consignments of narcotic drugs exported to Honduras from France, Germany and Switzerland against import certificates from Honduras. The movement to Honduras of what appear to be excessive quantities of drugs, under import certificates, was discussed in the plenary Committee when the misuse and abuse of import certificates was discussed.

7. Penalties for Drug Trafficking.

As in previous years, the Sub-Committee had before it cases which arose in some European and some Far Eastern countries of sentences for drug trafficking which are considered entirely inadequate as deterrents to smuggling. Although the proposed Convention for the Suppression of Illicit Traffic contains provisions designed to cover this point, the Sub- Committee nevertheless desires to emphasise the urgent need for measures to provide sufficiently severe penalties in all countries.

8 . Disappearance of Drugs in Transit. The Sub-Committee considered cases in which drugs have disappeared in transit. Light has been thrown on these thefts as far as shipments from Germany to South America are concerned as a result of information obtained through a seizure of cocaine made at Rotterdam in September 1933. The cocaine was part of a consignment sent from the Merck firm in Darmstadt to their agent in Buenos Aires. The cocaine had been stolen by the master of a Rhine barge while in transit from Mayence to Rotterdam. There is reason to believe that these thefts have been frequent and the Merck firm themselves reported several cases where drugs have been despatched by Rhine barges and parts of the drugs stolen while in transit. The Sub-Committee noted that, of these thefts, the ones which occurred in 1929 and 1930 were not promptly reported by the parties directly concerned. It is felt that such thefts should be reported promptly, in future, to ensure speedy investigation. Another case noted was that of a shipment of raw opium from Yugoslavia to the United States of America, about fifty pounds having disappeared, for which stone had been substituted.

9. Passports of Traffickers.

The Sub-Committee is astonished at the case with which notorious traffickers obtain passports and visas and travel across frontiers without being hampered. This state of affairs is of the greatest assistance to traffickers. They frequently obtain passports under assumed names from countries of which they are not citizens. The Sub-Committee does not undertake to suggest a remedy, as it is felt that this matter should be given further and more thorough consideration before a recommendation can be made. It is suggested that this item be placed on the agenda for discussion at the next session of the Committee.

10. Transmission of Samples of Seized Drugs. The Sub-Committee considered the views of the Austrian Government, as set forth in the Secretary’s progress report (document O.C.1537), in regard to the transmission of samples of seized drugs. As the object of this transmission is to facilitate police investigation into the origin of the drugs in question, as the quantities so to be transmitted are usually small, and as the samples are transmitted by one Government to another and can be sent through diplomatic channels, the Sub-Committee agrees that the desirability and method of such transmission should be decided on its merits in each individual case. 11. Index of the Summaries of Seizures. The Sub-Committee had before it document O.C.S. (Confidential) 14, a list of names of persons referred to in the quarterly summaries of seizures. This document was stated to contain the names of the more important individuals and firms referred to in all issues of the O.C.294 series. The Sub-Committee recommends that the title of this document be made to read “ Index of Names of the More Important Individuals and Firms referred to in the Quarterly Summaries of Seizures and Illicit Traffic (O.C.294 series) The Sub-Committee also recommends that all names which do not appear in the printed summaries of the O.C.294 series be omitted from this document. The Sub-Committee further recommends that the distribution of this index be limited to the authorities which receive the O.C.294 series and be made only through the appropriate Government department in each case.

X. DRAFT CONVENTION FOR THE SUPPRESSION OF ILLICIT TRAFFIC IN NARCOTIC DRUGS. On May 14th, 1934, the Council invited the Advisory Committee to examine the observations of Governments on the preliminary international draft Convention for the Suppression of the Illicit Traffic in Narcotic Drugs and to prepare, on the basis of these observations, an annotated draft Convention. The Council, at the same time, requested the Secretary-General to transmit to Governments, for the second consultation and without further reference to the Council, the annotated draft Convention to be prepared by the Advisory Committee. The Committee referred this question to the Sub-Committee which had previously dealt with the matter. A report was received from the Sub-Committee containing a revised draft Convention which was approved by the Committee .1 The Committee decided that this revised draft Convention should be forwarded to Governments in accordance with the Council’s decision, together with the observations on the preliminary draft Convention received from various Governments.

XI. RECOMMENDATION X OF THE FINAL ACT OF THE BANGKOK CONFERENCE REGARDING SCIENTIFIC RESEARCH : REPORT OF THE MIXED SUB-COMMITTEE OF THE ADVISORY COMMITTEE AND OF THE HEALTH COMMITTEE. The Advisory Committee adopted the report which was submitted to it by the joint Sub- Committee on this question ,2 and which contained the following conclusions : “ Our conclusion is that the various questions raised by the Bangkok Conference’s recommendation must be examined locally by agreement among the various countries they concern, and that the investigations must be centralised as much as possible. We therefore feel that it would be advantageous for those countries to decide to summon to any place in the Far East (a place as central as possible) some specially qualified experts, selected locally, to examine the problem as a whole and draw up a programme of investigations and scientific researches which could be carried out in the various countries on lines as uniform as possible. The execution of the programme when established should be put in hand with the least possible delay. The Advisory Committee and the Health Committee of the League should be informed of the nature of the programme and of the arrangements made for carrying it out. “ If, therefore, our report is accepted by the Advisory Committee and the Health Committee, and approved by the Council, the first thing to be done will be to send it, together with all the material so far collected, to the Governments concerned, asking them to take the matter in hand.”

XII. CAMPAIGN AGAINST THE SPREAD OF DRUG ADDICTION. Two documents on this subject have been submitted to the Committee : One is a letter from the representative of Uruguay 3 proposing, amongst other things, to ask the Governments what steps they have taken to give effect to Article 15 (c) of the Limitation Convention, which reads as follows : “ The High Contracting Parties shall, if they have not already done so, create a special administration for the purpose of . . . (c) organising the campaign against drug addiction, by taking all useful steps to prevent its development ...” The other document 4 is a letter from the representative of Poland drawing attention to certain undesirable consequences of wireless propaganda regarding drug addiction, in connection with the broadcasting in Poland of a lecture extolling a book on hashish smuggling. The Polish delegate has also drawn attention to certain gramophone records which reproduce songs extolling the virtues of dangerous drugs. In the opinion of the Polish representative, propaganda against drug addiction, if it is not to be dangerous, should only be carried on in circles already informed on the question, and especially in medical circles and among members of the teaching profession. The Committee discussed at length the proposal of the Uruguayan representative. Several members, including, in particular, the representative of Italy, pointed out the need

1 Document O.C.1558(l) annexed (Annex 5). 8 Document O.C.1553(l) (C.H.1151(1)) annexed (Annex 6). 3 Document O.C.1539. 4 Document O.G.1549. — 25 of enlightening public opinion — without, however, losing sight of the diversity of conditions in different countries — of supporting the efforts of the national and international associations and the religious associations and missions specially interested in the question of drug addiction, and of getting into touch with medical and university circles with a view to propaganda. The representative of the United Kingdom, with the support of the representative of India and the Netherlands, expressed the opinion that the points mentioned in the Uruguayan representative’s proposal were already to be found in the form of annual reports, which asked Governments for information on the existence of drug addiction and on the special measures taken to combat it. In his opinion, the best means of propaganda were the reports of the Committee, and the most efficient means of preventing the spread of drug addiction was the strict enforcement of the Conventions. The representatives of Uruguay and Italy finally proposed the following resolution : “ (a) To ask Governments parties to the 1931 Convention for any information regarding the measures taken or contemplated for the purpose of establishing the special administration mentioned in Article 15 of the Convention, and regarding all other measures which they have taken or intend to take for the purpose of organising the campaign against drug addiction, and suppressing the illicit traffic in accordance with Article 15 (c). “ (b) To obtain information regarding the action taken and the methods adopted in the campaign against narcotic drugs by the national and international associations devoting themselves to this campaign and also regarding the work undertaken in this field by missionary organisations, especially in the Far East.” The representative of the United Kingdom proposed to omit the latter half of point (a), after the word “ Convention The Committee rejected this amendment by nine votes to seven, the representatives of Austria, Canada, the United Kingdom, Sweden, India, Portugal and the Netherlands having voted for it. The whole proposal was then adopted by thirteen votes to three, the last words “ especially in the Far East ” being omitted. The representatives of the United Kingdom, India and the Netherlands voted against the resolution. It was decided that the Secretariat should approach the national associations through the Governments, and the big international associations direct. The Committee also decided to transmit to the Governments the letter from the Polish representative concerning the dangers of propaganda by wireless, by unqualified persons who do not possess adequate information on questions of drug addiction, asking them to forward any observations on the subject which they might think fit to submit.

XIII. MISCELLANEOUS QUESTIONS.

(a) E n q u ir y into t h e Im port Cer tific a te and E x po r t A uthorisation Sy stem . The members of the Committee were requested to obtain the observations of their Governments on a preliminary memorandum prepared by the Secretariat on the subject .1 These observations should reach the Secretariat before August 1st, 1934, so that the question may be studied at the autumn session. With regard to the misuse and abuse of import certificates, the attention of the Committee was called to the movement from Western Europe to Honduras, under import certificates, of excessive quantities of manufactured drugs in 1932, 1933 and 1934. Information was presented to the Committee which indicates that part, if not all, of the import certificates in question were forged. Nevertheless, the Committee noted with regret that, during the two last quarters of 1932 and the four quarters of 1933, enough morphine was shipped to Honduras to supply the medical and scientific needs of that country for nearly one hundred years, not to mention heroin and cocaine ; while, in 1934, an additional lot was exported from Western Europe to Honduras which represents a further thirty-two years’ supply.

[b) T h e E x te n sio n of th e System of S eria l N um bers to P ackages of D rugs d espa tch ed b y W h o lesa ler s. The Advisory Committee had already, at its fifteenth session, accepted in principle this procedure, and instructed a Sub-Committee, consisting of the representatives of the United Kingdom, France, Germany, Japan, Netherlands, Switzerland and the United States of America, to draw up a draft resolution recommending the extension of the system of serial numbering to packages despatched by wholesalers and to attach suggestions regarding its practical application. The Sub-Committee received from the head of the French Bureau des Stupéfiants a memorandum on the application of this system in France .2 This sub-committee, under the chairmanship of the Spanish representative, submitted the following draft resolution, which was adopted by the Committee : “ As the adoption by manufacturers of dangerous drugs of the system of affixing a separate serial number to each bottle, flask or other container in which the drugs are sold

* Document O.C.1535. Document O.C.1547 (sec Annex 7). — 26

has been found of value in facilitating enquiries with regard to the points at which drugs have been diverted into the illicit traffic and the persons responsible ; “ And as the drugs when sold to manufacturing chemists or other wholesale dealers in the drugs are frequently repacked ; “ The Committee renews its recommendation that all firms manufacturing any dangerous drug should be required by law or regulation or by a condition in their licences to affix a serial number to each bottle, flask or other container in which the drug is sold ; and when any sale of the drug is made, to enter in the register of sales against the record of the sale the serial number affixed to the bottle, flask or other container in which the drug is sold. “ Where drugs are sold in ampoules or similar containers, which cannot conveniently be marked with a serial number, the number may be affixed to the carton, or package, in which the ampoules or other containers are packed. “ The Committee further recommends that, when the drugs are sold to wholesale dealers, the wholesale dealers shall be required : “ (1) If the drugs are sold by them without any alteration of the containers in which they are received from the manufacturers, to enter in the register of sales against the record of the sale the serial number affixed to the bottle, flask or other container in which the drugs are sold ; “ (2) If the drugs are repacked in any way by the wholesale dealer before sale, to affix a serial number to each bottle, flask or other container and to enter the number in his register of sale in the same way as is required of the manufacturer. If the drugs are resold to another wholesaler, the same requirements shall apply to that wholesaler. “ The foregoing recommendations apply only to the drugs and salts of the drugs, and not to preparations containing them.” The representatives of Canada and the United States of America stated that, in their opinion, these recommendations should, as far as wholesalers were concerned, apply only to packages of a minimum capacity of 1 oz., and that they agreed to the resolution subject to this reservation.

(c) Standardisation of Methods of A scertaining th e Mo r ph in e Con ten t of Raw O piu m .

Dr. Carrière, representing the Health Committee, explained to the Advisory Committee that the Committee of Experts, under the chairmanship of Professor van Itallie, which had been requested by the Health Committee to examine this question, had endeavoured to devise, with a view to its recommendation, a method of analysing the morphine content of opium which would facilitate the effective application by Governments of the provisions of Article 17 of the Limitation Convention. As certain members of the Committee, and, in particular, the American representative, pointed out that it was somewhat premature at the present stage to ask Governments to express any opinion upon the standardised method at present proposed by the Committee of Experts, the Advisory Committee decided to transmit to the Health Committee the observations made by the American representative, together with the complete text of the Minutes of the discussion, and to follow the further development of this question.

(d) T h e L ist of S ubstances and P reparations covered b y th e Opium Co n v en tio n s of T h e H ag u e (1912) and Ge n ev a (1925), and th e Gen ev a L imitation Co n v en tio n (1931).

The Committee noted the report on this subject and the list drawn up by the Sub- Committee of Experts presided over by Dr. Carrière .1 This report draws the attention of the Governments to the necessity of assisting the Sub-Committee in its task by furnishing it with information enabling it to carry out an annual revision of the list, in order to make it complete and render it as useful as possible to the Governments and, in particular, to the Customs authorities. In accordance with established procedure, the Committee instructed the Secretariat to transmit the amended report and the list to the Governments, requesting them to communicate all particulars rectifying or completing the list with a view to bringing it periodically u p to date. The Committee’s attention was drawn to the opinion expressed by the Sub-Committee that the Health Committee should be asked to consider the question of submitting to the provisions of Article 10 of the Geneva Convention of 1925 a derivative of codeine which is being sold under the name of “ Paracodeine ” (paracodin bitartaricum and paracodin hydro- chloricum) and a new drug, “ Perparine ”, regarding which substances the Hungarian Government had raised the question whether they should be added to the list of substances and preparations covered by the above-mentioned Convention. The Advisory Committee approved this procedure.

1 Document 0.0.1458(1). — 27 —

In the course of the discussion on this subject, the United Kingdom representative raised the question whether Article 10 of the Geneva Convention of 1925 gave power to apply the Convention to drugs which were not themselves habit-forming, but were only capable of being converted into habit-forming drugs. It was pointed out on the other hand that, in accordance with the resolution contained in the Final Act of the Limitation Conference of 1931, the Health Committee had already, in December 1931, made a recommendation under Article 10 of the Geneva Convention of 1925 that the drugs covered by group I of Article 1 of the Limitation Convention should be subjected to the provisions of the Geneva Convention. Amongst the drugs in group I were a number of drugs which, whilst not themselves habit-forming, were capable of being converted into habit-forming drugs. The American representative drew the Committee’s attention to the discovery by an American expert, Dr. Small, of a new drug, dihydrodesoxymorphine - D, which was said to be much more powerful than morphine.

(e) Interpretation of the Definition “ Compounds which are adapted to a Normal Therapeutic Use ” given in A rticle 13, P a r a g r a p h 2 ( 6), of the Limitation Convention o f 1931.

The Secretariat having asked the opinion of the Health Section as to the significance of this phrase from a medical point of view, the Health Section submitted the question to the Health Committee, which considered it at its twentieth session (October 1933). In the resolution it adopted on the question, the Health Committee : “ Considers that, in the case of dry preparations (pills, tablets, etc.) containing codeine and dionine, those which contain not more than 0.1 gramme of either substance (this being the highest of the maximum doses prescribed in the majority of pharmacopoeias) might be regarded as ‘ suitable for normal therapeutic use while, in the case of solutions, the definition is applicable to those in which the proportion included does not exceed 10 per cent ; “ Decides to communicate its views on the question to the Advisory Committee on Traffic in Opium, with the reservation that, not being competent to interpret the text of the Convention, it can offer these only by way of suggestion.” The United Kingdom representative called attention to certain difficulties attending the adoption of this opinion, and the Advisory Committee decided to transmit the Health Committee’s opinion to the Governments for information.

(/) D istribution o f D o c u m e n t s . The Committee was anxious to ensure a more effective and more complete distribution of its documents. In view of the increasing number of administrative services and institutions interested in its work, it decided to request the Secretariat to approach each Government and to ask it whether the documents should be sent to one or several authorities and in how many copies, and also if there are any institutions to which the documents could be sent direct by the Secretariat.

(Signed) Dr. S c h u l t z , (Signed) Dr. Ca r r i è r e , Chairman. Vice-Chairman.

(Signed) W . G. v a n W e t t u m , (Signed) Eric Einar E k s t r a n d , Rapporteur. Director of the Opium Traffic and Social Questions Sections, Secretary of the Advisory Committee. — 29 —

LIST OF ANNEXES.

Page 1. List of Ratifications and Accessions to the Opium Conventions and Agreements 30

2. Shipments of Persian Opium known to have been shipped from the Port of Bushire during the Period January 1st to December 31st, 1933 (document O.C.417(r)) 32

3. Process employed by the “ Alkaloïda ” Co., Ltd., Factory at Budszentmihâly (Hungary) to extract Morphine and Other Opium Alkaloids direct from the Dry Poppy Plant (Poppy Straw) (document O.C.1546(1)) ...... 32

4. Report of the Permanent Sub-Committee on the Application of Chapter IV of the Hague Convention (document O.C.1557(1)) 37

5. Report of the Sub-Committee appointed to consider the Draft International Convention for the Suppression of Illicit Traffic in Dangerous Drugs (document O.C.1558(1)) 38

6. Report by the Joint Sub-Committee of the Advisory Committee and the Health Committee appointed to examine Recommendation X of the Bangkok Conference (document O.C.1553(1), C.H.1 1 5 1 (1 ))...... 42

7. Note by the Head of the French Bureau des Stupéfiants regarding the Operation in France of the System of Serial Numbering to Packages despatched by Wholesalers (document O.C.1 5 4 7 ) ...... 45 — 30 —

ANNEX 1.

Geneva, April 21st, 1934.

TABLE INDICATING THE DATES OF RATIFICATION OR ADHESION TO THE FOLLOWING INTERNATIONAL CONVENTIONS ON OPIUM AND OTHER DANGEROUS DRUGS.

Convention International International for limiting Opium Opium the Manufacture Convention, Convention, and regulating Pays The Hague, Geneva, the Distribution Country January February of Narcotic 23rd, 1912 19th, 1925 Drugs, July 13th, 1931

E u r o p e . E u r o p e . A lb an ie...... 3.11.25 Albania. A lle m a g n e ...... 10.1.20 15.VIII.29 10.IV.33 Germany. A u tr ic h e ...... 16.VII.20 25.XI.27 — Austria. B e lg iq u e ...... 16.VI.14 24.VIII.27 10.IV.33 Belgium. Royaume-Uni de Grande- United Kingdom of Great Bretagne et d’Irlande du Britain and Northern N o r d ...... 15.VII.14 17.11.26 I.IV.33 Ireland. B u lg a r i e ...... 9.VIII.20 9.III.27 20.111.33 Bulgaria. D a n e m a r k ...... 10.VII.13 23.IV.30 — Denmark. Dantzig (Ville libre de). 18.IV.22 16.VI.27 18.IV.33 Danzig (Free City of). Espagne ...... 25.1.19 22.VI.28 7.IV.33 Spain. E sto n ie ...... 20.IV.23 30.VIII.30 — Estonia. Finlande...... 16.V.22 5.XII.27 — Finland. F r a n c e ...... 10.1.20 2.VII.27 10.IV.33 France. Grèce ...... 30.111.20 10.XII.29 — Greece. H ongrie...... 26.VII.21 27.VIII.30 10.IV.33 Hungary. Irlande (Etat libre d’) . . 15.VII.14 1.IX.31 11.IV.33 Irish Free State. Isla n d e ...... 10.VII.13 ---- — Iceland. I ta lie ...... 28.VI.14 11.XII.29 21.IH.33 Italy. Lettonie ...... 25.111.24 31.X .28 ■—- Latvia. Liechtenstein...... ------—. Liechtenstein. L ith u a n ie...... ---- 13.11.31 10.IV.33 Lithuania. Luxem bourg ...... 21.VIII.22 27.111.28 — Luxemburg. M onaco ...... 20.11.25 9.11.27 16.11.33 Monaco. Norvège...... 12.XI.14 16.111.31 — Norway. P a y s -B a s ...... 28.VII.14 4. VI.28 22.V.33 Netherlands. P ologn e...... 10.1.20 16.VI.27 11.IV.33 Poland. Portugal...... 15.XII.13 13.IX.26 17.VI.32 Portugal. R oum anie ...... 14.IX.20 18.V.28 11.IV.33 Roumania. Saint-M arin...... ---- 21.IV.26 12.VI.33 San Marino. Suède ...... 17.IV.14 6.XII.30 12.VIII.32 Sweden. Suisse...... 15.1.25 3.IV.29 10.IV.33 Switzerland. Tchécoslovaquie .... 10.1.20 11.IV.27 12.IV.33 Czechoslovakia. T urquie...... 15.IX.33 3.IV.33 3.IV.33 Turkey. U.R.S.S...... ------— U.S.S.R. Yougoslavie ...... 10.11.20 4.IX.29 —- Yugoslavia.

A m é r i q u e . A m e r i c a . Amérique du Nord : North America : Canada...... 15.VII.14 27.VI.28 17.X.32 Canada. Etats-Unis d’Amérique . 15.XII.13 — 28.IV.32 United States of America. Amérique centrale : Central America : C osta-R ica...... 1.VIII.24 5.IV.33 Costa Rica. Cuba...... 8.III.20 6.VII.31 4.IV.33 Cuba. République Dominicaine 7.VI.23 19.VII.28 8.IV.33 Dominican Republic. G uatém ala...... 27.VIII.13 — 1.V.33 Guatemala. H aïti...... 30.VI.20 — 4.V.33 Haiti. Honduras...... 29.VIII.13 —— Honduras. M ex iq u e ...... 2.IV.25 — 13.111.33 Mexico. Nicaragua...... 10.XI.14 — 16.111.32 Nicaragua. P a n a m a ...... 25.XI.20 —— Panama. Salvador ...... 19.IX.22 2.XII.26 7.IV.33 Salvador. — 31 —

Convention International International for limiting Opium Opium the Manufacture Convention, Convention, and regulating Pays The Hague, Geneva the Distribution Country January February of Narcotic 23rd, 1912 19th, 1925 Drugs, July 13th, 1931

Amérique du Sud : South America : Argentine...... Argentine. Bolivie...... 10.1.20 15.IV.32 - Bolivia. B r é s il...... 23.XII.14 10.VI.32 5.IV.33 Brazil. Chili...... 16.1.23 11.IV.33 31.111.33 Chile. Colombie ...... 26.VI.24 3.X II.30 29.1.34 Colombia. Equateur...... 25.11.15 —— Ecuador. Paraguay...... —— — Paraguay. P ér o u ...... 10.1.20 — 20.V.32 Peru. Uruguay ...... 3.IV.16 11.IX.30 7.IV.33 Uruguay. Venezuela...... 28.X .13 19.VI.29 15.XI.33 Venezuela.

A s i e . A s i a . Afghanistan...... Afghanistan. Arabie Saoudienne . . . ——— Sa’udi Arabia. Chine...... 9.II.14 — 10.1.34 China. I n d e ...... 15.VII.14 17.11.26 14.XI.32 India. I r a k ...... — 8.VIII.31 — Iraq. Japon...... 10.1.20 10.X.28 — Japan. Perse...... —.— 28. IX .32 Persia. Siam ...... 10.VII.13 11.X.29 22.11.34 Siam.

A f r i q u e . A f r i c a . Egypte ...... 16.III.26 10.IV.33 Egypt. Ethiopie...... — —— Abyssinia. Libéria...... 30.VI.20 —— Liberia. Soudan ...... — 20. VI.26 25. VI11.32 Sudan. Union de l’Afrique du Sud 11.III.14 17.11.26 •— Union of South Africa.

O c é a n i e . O c e a n i a . A ustralie...... 15.VII.14 17.11.26 24.1.34 Australia. Nouvelle-Zélande .... 15.VII.14 17.11.26 New Zealand.

P a r t ie s to t h e A g r e e m e n t c o n c e r n i n g t h e S u p p r e s s i o n o f t h e M a n u f a c t u r e o f , I n t e r n a l T r a d e i n , a n d U s e o f P r e p a r e d O p i u m .

(Signed at Geneva, February 11th, 1925.)

Date of ratification British E m p ir e ...... 17.11.26 India...... 17.11.26 F ran ce...... 29.IV.26 Japan...... 10.X.28 Netherlands...... 1. Ill .27 P o r tu g a l...... 13.IX.26 S ia m ...... 6.V.27

P a r t i e s t o t h e A g r e e m e n t f o r t h e S u p p r e s s i o n o f O p i u m -S m o k i n g . (Bangkok, November 27th, 1931.) (Not yet in force.)

Date of ratification United Kingdom of Great Britain and Northern Ireland. . 3.IV.33 F ran ce...... 10.V.33 N e th e r la n d s ...... 22.V.33 P o r tu g a l...... 27.1.34 — 32 —

ANNEX 2. O.C.417(r).

Geneva, May 9th, 1934. SHIPMENTS OF PERSIAN OPIUM KNOWN TO HAVE BEEN SHIPPED FROM THE PORT OF BUSHIRE DURING THE PERIOD JANUARY 1st TO DECEMBER 31 st, 1933. (Memorandum by the British representative in continuation of the previous memorandum (document O.C.417(q)) appearing as Annex 2 to the report to the Council of the work of the sixteenth session of the Opium Advisory Committee (document C.385.M. 193.1933.XI).)

Vessel Date Number of chests Destination Flag (160 lb.)

Sorglee...... March 17th 1000 (a) Far East Reported Japanese B arp ela...... May 1st 99 Macao British Vasna ...... May 7th 50 Keelung British Vasna ...... May 7th 150 Dairen British Varela ...... May 21st 80 Keelung British Tokkong ...... May 23rd 2187 ( 6) Far East Reported Japanese Ellora...... August 13th 200 Macao British Vooyang...... October 4th 1918 Far East Chinese Varsova...... October 22nd 200 Macao British

Notes : (a) This is the consignment referred to in the footnote (page 30) to last year’s memorandum. (b) Total weight about 270 000 lb.

The total amount of opium mentioned in the above report is about 734 640 lb. or 328 tons, the distribution by destinations being as follows : Lb. To M acao...... 79 840 To K ee lu n g ...... 20 800 To D airen...... 24 000 To the Far East (estimated)...... 610 000 The opium carried on British vessels was covered by import certificates issued by the Government of the country to which the opium was consigned.

ANNEX 3. O.C. 1546(1).

MEMORANDUM CONCERNING THE PROCESS EMPLOYED BY THE “ALKALOÏDA” CO., LTD., FACTORY AT BUDSZENTMIHÂLY (HUNGARY) TO EXTRACT MORPHINE AND OTHER OPIUM ALKALOIDS DIRECT FROM THE DRY POPPY PLANT (POPPY STRAW).

1. N ature of t h e Co n cern . The Alkaloïda Co., Ltd., which was founded in 1927 for the industrial exploitation of the inventions of the pharmaceutical chemist, M. Jânos de Kabay, in connection with the production of alkaloids of opium from poppies, is a concern in which the Hungarian State participates. The principal shareholders are the Royal Hungarian Ministry of Agriculture and the de Kabay family. There are althogether 3 946 shares of 100 pengô each, of which 3 200 shares are syndicated .1 The total paid-up capital amounts thus to 394 600 pengô, a part of which has been provided by the Hungarian State. The Ministry of Agriculture is represented on the management and on the board of control of the concern. The facto ry is subject to Government control under current legisla- tion, like a n y other concern of this kind. General supervision is exercised by the Ministry of the Interior, and technical supervision by a Government expert attached to the Ministry of Agriculture, Professor Adalbert Augusztin, head of the R oyal Hungarian Drug Experimental Institution.

1 No member of the syndicate may sell his shares without the consent of the other members. 33 —

The State’s share in the net profits of the concern is earmarked for the benefit of Hungarian agriculture, unless required for the extension of the concern or the improvement of its technical equipment.

2. T h e P r o c e s s u s e d b y t h e C o n c e r n f o r t h e P r o d u c t i o n o f A l k a l o i d s o f O p i u m f r o m t h e P o p p y .

The concern has patented two processes : A. The so-called “ green process ” ; B. The so-called “ dry process

A. The “ Green Process

The raw material in this process is the green poppy-plant. It is cut shortly after flowering and at once pressed. Morphine and other opium alkaloids are produced from the sap of the poppy plant .1 With this process, the poppy cannot be used for other purposes —- e.g., the production of poppy seed. The price of the raw material — i.e., the green poppy-plant — is correspondingly high. The transformation of the green plant is confined to avery short period (two to three weeks) while the plant is still fresh. (Poppies do not remain green or retain their sap for long after flowering.) It is impossible to accumulate stocks of the green plant, or to obtain sufficient sap from it in the short space of about three weeks to enable production to be continued throughout the year on a scale of any economic importance. The transport of the green plant is, in practice, impossible, as the plant has to be pressed immediately after it is cut. The “ green process ” was definitely abandoned by the concern at the end of 1932, its place being taken by the “ dry process

B. The “ Dry Process

The raw material in this case consists of the dry parts of the plant (poppy straw and poppy chaff) remaining after the ripe poppies have been thrashed to extract the seeds. These parts of the plant have hitherto been treated as useless refuse and destroyed, or occasionally used as manure (poor quality) after lying in stock for several years. The “ dry process ” is explained in the patent description appended to this memorandum. The advantages of this process as compared with the “ green process ” may be summarised as follows :

(1) It offers a new source of income for agriculture. The raw material of the process is a refuse product hitherto regarded as valueless or almost valueless.

(2) The economic exploitation is complete. The poppy is exploited to the full for other purposes (production of poppy seeds for consumption as such, for manufacture of poppy oil, etc.) before its straw is used for the production of opium alkaloids. It may be pointed out, in this connection, that poppy seeds are amongst the dearer forms of seeds and subject to considerable price fluctuations. In the last two years, the price has varied between 67 and 120 pengô per 100 kg.

(3) The process ensures regular uninterrupted manufacture owing to the possibility of accumulating stocks. The transformation of the poppy straw is practicable throughout the year, as the raw material can be readily stored and transported from the furthest corners of the country. The method of storage is the same with poppy straw as with ordinary straw. The transport for 300 km. of a wagon-load of 10 000 kg. of poppy straw costs some 100 pengô. The work involved in the transport of the poppy straw need not cause any interruption to urgent agricultural work, or work which has to be done at particular seasons of the year, since the transport can be left until all the agricultural work is finished.

(4) The process of working up the raw material is shortened, simplified and cheapened by the elimination of expensive machinery. The machines required to press the sap out of the green plants (tractors, pressing and lixiviating machines) are rendered superfluous.

3. C e n t r e s o f P r o d u c t i o n o f t h e R a w M a t e r i a l i n H u n g a r y .

The poppy straw used for the manufacture of opium alkaloids comes from the opium poPPy (Papaver somniferum), which is cultivated in almost every part of Hungary. The cultivation of special varieties of the opium poppy to obtain the straw required for the manufacture of the alkaloids is thus unnecessary.

For description of the patent, see League of Nations document O.C.885. — 34 —

There are, at present, some 8 000 hectares of land (approximately 14 000 cadastral “ yokes ”) under poppy cultivation in Hungary.1 On one hectare, some 8 to 10 tons of green poppy-plants can be produced, and these yield 1 y 2 to 2 tons of poppy straw as waste product. The average annual production of poppy straw from a single year’s harvest can therefore be put, on a conservative estimate, at about 13 000 tons.

4. T h e O piu m A lk a lo id Co n t e n t of t h e R a w Ma t e r ia l . On an average 0.8 °/00 of morphine base and 0.08 °/00 of codeine base can be obtained from a unit of weight of poppy straw — i.e., one ton of poppy straw gives 800 grammes of morphine base and 80 grammes of codeine base. The percentage yield of other alkaloids is being investigated. Thus, the available supply of poppy straw in Hungary, if fully utilised, would yield an annual quantity of about 10 000 kg. of morphine and 1 000 kg. of codeine. The discoverer of the “dry process ”, M. de Kabay, is at present endeavouring to discover an analytical chemical method permitting the alkaloid content of poppy straw to be determined in a chemical laboratory with small quantities. At present, the alkaloid content of poppy straw is determined, on the basis of past experience, during the actual process of manufacture — i.e ., with large quantities of raw material. The figures of each stage of treatment in the factory, from the moment when the raw material enters the process of manufacture until the moment when the extracted morphine is cut into squares and packed, are accurately entered in the special tables available for the purpose in the factory premises ; these entries are then taken to the central office of the factory, where they are examined and compared, and where the quantity of morphine produced during the day is ascertained and compared with the quantities delivered by the workers engaged on the final process of manufacture.

5. Q u a l it y of t h e Opiu m A lk a lo id s pr o d u c e d by t h e “ D ry P rocess ”. This quality, according to the evidence of experts — (1) Professor Schulek and (2) Professor Dr. Augusztin, appointed by the Hungarian Ministry of Agriculture to test the quality of alkaloids — is the same as that of the alkaloids obtained from raw opium and corresponds to the requirements of the pharmacopoeias.

6. In d u s t r ia l Ch a r a c t e r of Ma n u f a c t u r e . Opium alkaloids can only be said to have been manufactured in the industrial sense of the word by the Alkaloïda Co., Ltd., since the introduction of the “ dry process ”. Previously, at the time of the employment of the “ green process ” described above, the production of morphine from green poppy-plants never exceeded the proportions of an experiment, and the factory was, in fact, only an experimental factory. This also explains the small quantities of morphine produced by the factory up to 1933 (in 1931, 12 kg. of morphine base ; in 1932, about 50 kg. of morphine base = 61 kg. 520 grs. of morphine hydrochloride). To-day, the experimental stage may be said to have been passed. Since the discovery of the “ dry process ”, the factory has produced morphine and codeine on an industrial scale. In 1933, 225 kg. 785 grs. of morphine hydrochloride, 7 kg. 35 grs. of morphine base and 31 kg. 40 grs. of codeine base were produced. In the first three months of 1934, the factory produced a monthly average of 41 kg. of morphine (January, 46 kg. 8 grs., February 37 kg. 150 grs., March, 41 kg.). On the basis of this capacity, the factory will be able to produce about 480 kg. of morphine in 1934. It is proposed, however, to extend the technical equipment of the factory and considerably increase the output capacity. The management of the factor)' is engaged in securing adequate supplies of raw material and the first contract for the delivery of 200 tons of poppy straw (= 160 kg. of morphine base) has already been concluded.

7. Cost P r ic e of t h e A lk a lo id p r o d u c e d .

The cost price of 1 kg. of morphine (excluding the remuneration of the technical manager, M. de Kabay, and of the commercial management) is, according to the management, lower than the price of the raw opium needed in other countries for the production of 1 kg. of morphine, reckoning 1 kg. of raw opium, with a morphine content of 10 per cent, at 18 to 20 Swiss francs.

8. D ispo sa l of t h e A lk a lo id s p r o d u c e d b y t h e A lk a lo ïd a Co., L t d .

(a) Manufacture for the Home Market. The products of the Alkaloïda Co., Ltd., are used to meet the medical and scientific requirements of Hungary in morphine and codeine. In 1933, 115 kg. 920 grs., of morphine and 52 kg. 435 grs. of codeine2 were sold to Hungarian wholesalers.

1 The poppy is cultivated in Hungary for the production of poppy seed and poppy oil. Poppy seed is used for food ; poppy oil is also used for food as well as for industrial purposes. Four thousand tons on an average of poppy see are produced annually. a This quantity of codeine was obtained as follows : Kg. grs. From the transformation of morphine produced by the fa c to r y ...... 22 910 Of natural codeine obtained from the raw m a t e r ia l...... 8 130 Imported from abroad in exchange for morphine produced by the factory...... 21 39a Total ... 52 435 — 35 —

In accordance with Decree No. 2620/1933, dated April 1st, 1933, the import to Hungary of morphine, morphine salts and morphine derivatives is prohibited.

(b) Manufacture for Export. The factory exported 76 kg. 400 grs. of morphine in 1933 and 40 kg. of morphine in the first three months of 1934. Further orders from abroad for 1934 at present amount to 560 kg. of morphine. The management hopes to be able to dispose of considerably larger quantities of morphine abroad when the extensions to the factory have been carried out. Negotiations are in progress to this end.

9. N egotiations for th e Sale of the P aten t to F oreign P ro d u cers.

The Hungarian Government and the inventor of the process are not, in principle, opposed to selling the secret of the process to foreign producers under certain conditions. Negotiations in this connection are in progress with private undertakings and also with Governments.

10. P rotection of th e P rocess by M eans of P a ten ts.

Patents have already been taken out for the “ dry process ” in Hungary, Bulgaria, Yugoslavia, France, Belgium, the United Kingdom, Poland and Roumania. Further patents have been applied for in all poppy-growing countries.

11. S u per v isio n of th e R aw Material and of Ma nufacture sim p l if ie d .

As large quantities of poppy straw are required for manufacture (as mentioned above, 1 000 kg. of poppy straw are needed for 800 grs. of morphine), it is impossible, in practice, to conceal the raw material. As, moreover, manufacture cannot take place in small laboratories, but only in large factory premises, secret manufacture is practically impossible. Moreover, for the present, the process employed at Budszentmihâly, unlike that for the obtaining of morphine from raw opium, is not generally known.

12. Co nclusions.

1. The industrial exploitation by the Alkaloïda Co., Ltd., factory at Budszentmihâly of the process consisting in the extraction of opium alkaloids direct from the dry poppy- plant (Papaver somniferum), without passing through the stage of raw opium, reveals the fact that the opium alkaloid industry now possesses two raw materials : raw opium and poppy straw. 2. Theoretically the new raw material (poppy straw) can be utilised for the manufacture of opium alkaloids wherever the opium poppy (Papaver somniferum) is, or can be, cultivated. In practice, the industrial utilisation of this raw material for the manufacture of opium alkaloids will depend chiefly on its price as compared with that of raw opium, expressed per unit of morphine .1 For the new raw material to offer an economic advantage, the poppy would have to be cultivated in the countries concerned as an industrial plant (with a view to the extraction of seeds for consumption, for the manufacture of oil, etc .)2 independently of the employment of its waste (poppy straw) for the manufacture of opium alkaloids. As regards the possibilities of exporting poppy straw, it must be remembered that large quantities of this raw material are necessary for the manufacture of opium alkaloids (1 ton of straw gives only 800 grs. of morphine and 80 grs. of codeine) and that the cost of transport —especially by land—over long distances might constitute an important factor. 3. The extension of the cultivation of the poppy for use as a raw material for the new process will remain subject to the fulfilment of the conditions mentioned in 2 . 4. As regards the development of the manufacture of opium alkaloids according to the new process at present employed in Hungary, otherwise than by the purchase of the patent for this process, it must be remembered that the importation of morphine is subject to Govern­ ment control and that the principal manufacturing countries whose morphine requirements account for over two-thirds of world requirements, do not, in reality, import any morphine.

F°r the manufacture of I kg. of morphine, 1 250 kg. of poppy straw, with a morphine content of 0.8 °/oo are quired, or 10 kg. of raw opium with a morphine content of 10 per cent. Th n Hungary, 1 250 kg. of poppy straw at present cost about 31 pengô or 20.35 Swiss francs at the place of production. Decemt)1"3*’6 montllly price of 10 kg. of raw Turkish opium containing 10 per cent of morphine was 150 Swiss francs in whi One hectare produces 8 to 10 tons of green poppy, which gives as waste matter 1% to 2 tons of poppy straw, from n • kg- of morphine can be extracted. (in , nn-u™8 the period 1924-25 — 1929-30, the yield in raw opium per hectare varied in Turkey between 12 kg. VU 1927-28) and 5 kg. (in 1928-29). mnrni,' uming tflat the morphine content of this opium was 10 per cent, the yield per hectare expressed in terms o / wpmne would vary between 1.2 kg. (1927-28) and 0.5 kg. (1928-29) „ The Secretariat has no information as to poppy-growing for the extraction of seed (quantities produced and prices) n the various countries. — 36 —

5. From the administrative point of view, the control of poppy straw as such must be regarded as superfluous ; it is not dangerous in itself and is unlikely to pass into the illicit traffic. Moreover, its control as raw material actually utilised for manufacture is greatly facilitated for the reasons mentioned above — namely, the impossibility of concealing the raw material or of clandestine manufacture (see paragraph 11). 6. The consequences of the discovery of a process permitting the utilisation, for the manufacture of opium alkaloids, of the new raw material at present exploited for industrial purposes, calls for study in the light of the existing international opium Conventions and also in the course of the preparatory work with a view to the conclusion of a convention for the limitation of the production of raw materials.

Appendix.

P a t e n t S pecification . 406107.

Application Date : November 29th, 1932. No. 33,825/32. Complete Accepted : February 22nd, 1934.

Co m plete Specification .

Improved Process for obtaining Opium Alkaloids, more particularly from Poppy Plants.

I, J â nos K a b a y , of Budszentimihâly, Hungary, of Hungarian nationality, do hereby declare the nature of this invention and in what manner the same is to be performed, to be particularly described and ascertained in and by the following statement : This invention relates to a process for obtaining opium alkaloids from plants, more particularly from poppy plants. Processes are already known, in which the opium alkaloids are produced from the aqueous solution of the dried vegetable milk obtained from poppy plants. The production of this vegetable milk is dependent upon quite definite climatic conditions and upon exceedingly cheap but skilled labour. It has also been proposed to obtain the alkaloids from plants by decomposing, by means of ferments or oxidising agents, the juice pressed from green plants, or by leaving the juice to ferment naturally and separating the alkaloids from the fermented crude juice by the usual methods. A process is also known according to which the poppy plants are cut after blooming, but before maturity, mechanically broken up, and extractively treated with a sulphite salt solution containing free sulphurous acid. The opium alkaloids are obtained from the extract. Although the yield with this process is high and the opium alkaloids obtained are pure, the process has the disadvantage that it can be employed only at that season when the poppy plant is between the stages of blooming and maturity. This period is very short, so that it is difficult to manufacture with profit. Moreover, the cost of transporting the green plants, owing to the space required and to their weight, is high, and the seed-product is lost. The invention depends upon the surprising discovery that the opium alkaloids can be obtained from the poppy plant even when the plant is already ripe and dry. According to the invention, the ripe and dried plant-portions are, for this purpose, suitably cut up, then treated with an extracting fluid, and the extract obtained by means of the extracting fluid is treated for opium alkaloids. The process is advantageously carried out by treating the dry portions of plant in several containers at the same time, whereby the extracting liquid is conducted through the containers in turn, according to the eddy principle, until the concentration of the opium alkaloids in the extracting liquid is approximately equal to the opium concentration of the plants on which extraction is being practised. As extracting liquid, aqueous solutions of media, which form with the opium alkaloids combinations soluble in water, are employed. Such are, for example, aqueous solutions of mineral acids, such as hydrochloric acid, sulphuric acid and sulphurous acid, or salts — e.g., sodium bisulphite. The concentration of this extracting liquid is advantageously 1.5 to 2 per cent. The chopped poppy is treated with this extracting liquid in eddies till the concentration of opium alkaloids in the liquid approaches the concentration of opium alkaloids of the portions of plant. In the following, it is assumed that the apparatus consists of eight containers, each container holding 1 000 litres of ripe, dry, chopped poppy straw. For the extracting liquid, 1.5 to 2 per cent aqueous solution of sulphurous acid is employed, 1 000 litres of this being passed through the successive eight containers holding the chopped plants. The extraction is carried out on the counter-current principle — i.e., so that, as the extracting liquor becomes richer and richer in alkaloid, it meets plants which are also richer and richer in alkaloid, the fresh liquor treating p lan ts from which the bulk of the alkaloid has already been extracted. The concentrated liquid, amounting to about 1 000 litres, let out of the last container is advantageously evaporated down in a vacuum to about one-fifth — i.e., 200 litres — volume. The degree of acidity of this liquid is lessened by the addition of lye to about 0.1 to 0.2 per — 37 — cent. For this purpose, lyes are advantageously used the salts of which, formed with sulphurous acid, are difficult to dissolve. As such, for instance, hydroxide of calcium has proved to be satisfactory. In addition, a like volume — i.e., 200 litres — of ethyl alcohol is added to the extract. The ethyl alcohol precipitates the impurities — e.g., albumen substances, gummy substances and saccharates. This precipitate, together with the calcium precipitate, is removed from the solution — e.g., by filtering or by centrifugal force. The filtrate is then concentrated, likewise in a vacuum, to one-fifth — i.e., 40 litres — volume, and the like volume — i.e., 40 litres —- of ethyl alcohol is then added to the solution and so much sodium lye as is required to dissolve the entire content of morphine. For this purpose, 0.5% of lye surplus will generally suffice. The greater part of the by-alkaloids — e.g., narcotine, codeine and narceine — precipitate out, together with the impurities still present in the solution. The latter are separated from the solution by filtration. Then the filtrate is weakly acidified by means of hydrochloric acid, in order to render a further concentration possible. Thereupon the filtrate is evaporated down in a vacuum to about one-third of its volume — i.e., 15 litres. If this solution is then made weakly ammoniacal, the crude morphine will separate out. It is purified in any well-known manner — e.g., by crystallising from water. By means of the process described, 700 to 800 grs. of pure morphine have been obtained from 1 000 kg. of ripe, dry, chopped poppy straw. From the precipitate obtained and removed after the addition of sodium lye, the by­ alkaloids can be dissolved out by means of organic dissolving agents — e.g., benzol — and then further treated in any well-known manner. A substantial advantage of the process described is that the seed-product of the poppy plant can be utilised and that a raw material which was hitherto regarded as entirely worthless is employed. It is already known to extract high molecular organic substances, such as alkaloids, from dry plant-portions containing the same by means of anhydrous ammonia or salt solutions and to recover said substances from the resulting extracts. In contradistinction thereto, this invention is limited to the extraction of opium alkaloids by known methods from ripe, dry portions of poppy plants. Having now particularly described and ascertained the nature of my said invention, and in what manner the same is to be performed, I declare that what I claim is : 1. A process for obtaining opium alkaloids from plants which contain such, more particularly from poppy plants, characterised by the feature that the ripe, dry plant-portions are extractively treated with agents which dissolve alkaloids, and the dissolved alkaloids separated from the extract. 2. A process as claimed in claim 1, characterised by the feature that the ripe, dry plant- portions are extractively treated with an aqueous solution of compounds which form, with opium alkaloids, compounds soluble in water. 3. A process as claimed in claim 1 or 2, characterised by the feature that the ripe, dry plant-portions are extractively treated with an aqueous solution of mineral acids. 4. A process as claimed in claim 1, 2 or 3, characterised by the feature that the ripe, dry plant-portions are extractively treated with an aqueous solution of sulphurous acid. 5. A process as claimed in claim 1, 2, 3 or 4, characterised by the feature that the extract is evaporated, the degree of acidity is reduced by adding lye, th e impurities are precipitated by means of ethyl alcohol, the precipitate is separated from the solution, this operation being repeated if necessary, and then, by adding alkali lye, the morphine is kept in solution and the by-alkaloids are precipitated, after which the precipitate is separated from the solution and the solution is treated for morphine. 6. A process as claimed in claim 5, characterised by the feature that the by-alkaloids are separated from the precipitate by means of organic solvents and the solution is treated for the by-alkaloids. 7. The improved process for obtaining opium alkaloids from plants, more particularly poppy plants, substantially as hereinbefore described. 8 . Opium alkaloids when extracted from plants, more particularly poppy plants, by the process hereinbefore described and claimed.

Dated this 29th day of November, 1932.

M a r k s & C l e r k .

ANNEX 4. O.C.1557(1).

REPORT o f THE PERMANENT SUB-COMMITTEE ON THE APPLICATION OF CHAPTER IV OF THE HAGUE CONVENTION.

The Sub-Committee met on Saturday, May 26th, 1934, and considered the suggestion made at the last session of the Advisory Committee that a special enquiry should be undertaken 38 — in regard to collaboration between the Chinese and foreign authorities in China for the suppression of illicit traffic in narcotic drugs. Members of the Committee representing countries who are in treaty relations with China had been asked to obtain their Governments’ views on the question of this enquiry. The replies received are incorporated in document O.C.1510(a) (O.C./S.C.Ghina.8). In this connection, the Sub-Committee desires to refer to the following passage in the report to the Council on the work of the seventeenth session : “ A suggestion was also made in the course of the discussions that a special enquiry should be instituted by one or more persons specially selected into the conditions and circumstances in which co-operation between the Chinese authorities and foreign authorities in China at present take place, the difficulties encountered and the steps which are contemplated or might be taken for overcoming them ; and also into the situation arising out of the clandestine manufacture of drugs.”

The representative of China informed the Sub-Committee that his Government agreed in principle to the study as originally proposed by M. Casares last year — i.e., that it should be limited to the concessions, settlements and leased territories in China. The Chinese Government’s reply would be forwarded in writing to the Secretariat and circulated to the Advisory Committee. The United Kingdom representative reminded the Sub-Committee of the fact that the study referred to in the Advisory Committee’s report of its seventeenth session was to cover also the question of clandestine manufacture of narcotic drugs, and further stated that results would not be obtained if the enquiry was strictly limited to the concessions, foreign settlements and leased territories in China. The representative of the Netherlands agreed with the opinion of the United Kingdom representative. The representative of Spain informed the Sub-Committee that his Government agreed to the proposal referred to in the Advisory Committee’s report adopted at its seventeenth session. The representative of Japan confirmed the statement already communicated in writing that his Government was not in agreement with the suggestion, unless the study were extended to cover the whole of China. The Chinese representative made a proposal of a personal character that the suggested enquiry should be in the nature of a study on the spot of the conditions and circumstances of collaboration in regard to the application of Chapter IV of the Hague Convention between the Chinese authorities and the authorities in China of countries referred to in Chapter IV. He was not prepared to say whether his Government would be willing to agree to an enquiry of this nature, but he would do his best and take the matter up with his Government during his visit to China this summer. Several members of the Sub-Committee expressed their approval of the proposal of the representative of China, and the hope was expressed that the Chinese representative would consult his Government as to whether the study could, in addition to matters covered by Chapter IV of the Hague Convention, include clandestine manufacture in China. The Sub-Committee asked the Chinese representative to discuss this matter with his Government and requested the other members representing the Treaty Powers to obtain the views of their Governments. The Sub-Committee hopes to be able to consider this matter again during the autumn session of the Advisory Committee. On May 30th, 1934, the Sub-Committee also discussed proposals in regard to the situation in China submitted to the Advisory Committee by the Chinese, Spanish and United Kingdom representatives. It adopted, and decided to submit to the Advisory Committee, amended texts of these resolutions, the texts of which as adopted are found on page 12 above.

ANNEX 5. O.C.1558(1).

Geneva, May 30th, 1934.

DRAFT INTERNATIONAL CONVENTION FOR THE SUPPRESSION OF ILLICIT TRAFFIC IN DANGEROUS DRUGS.

R e p o r t o f t h e S u b -C o m m i t t e e .

In accordance with the reference from the Council ,1 the Opium Advisory Committee has examined the observations made by various Governments on the draft of articles suitable to be included in an international convention for the suppression of the illicit traffic in dangerous drugs prepared by the Committee at its sixteenth session in May 1933.2

1 Seventy-ninth session of the Council, Minutes of the meeting of May 14th, 1934 (document C./79th Session/ P.V.(I)), page 6, No. 3408. 2 Document C.335.1933.XI (O.C.1369(c)(I)). Annex to the Circular Letter No. 159.1933.XI. — 39 —

The Committee has noted with satisfaction that the majority of Governments have given their approval to the objects of the Convention and that the observations submitted by them have reference to matters of detail. The Committee has prepared the annexed text, in the light of observations. The most important amendments which it has introduced relate to Article 1. The Committee had before it certain proposals for the amendment of this article with a view to more effectively carrying out one of the main objects indicated in the report of May 24th, 19332 — viz., to require States to take more effective measures against the trafficker who, whole residing or carrying on business in one country and taking no direct part himself in handling and transporting the contraband goods, directs the traffic in other countries — and various amendments, the effect of which is explained below, have accordingly been introduced into Article 1. The text adopted provides clearly that any act covered by the Convention, including attempts and preparatory acts, shall, even when the illicit traffic of which the act is a constituent element extends to several countries, be deemed to be a separate offence in the country in which it has been committed and shall be punishable as such. These ideas were already included in the first and second paragraphs of Article 1 of the original draft ; the new text expresses them specifically. Lastly, the new text makes it clear that the attempt and the preparatory act are punishable offences only if they have reached the stage of a commencement of execution. A suggestion was made that the Convention might advantageously be extended so as to include conspiracy to commit any of the acts falling within the scope of the first paragraph of the article. In treating each of the acts enumerated in the article as constituting a separate offence, the Convention provides, in as general and practical a way as possible, for dealing with cases of conspiracy to commit the offences. Moreover, each State which undertakes to punish the acts covered by the Convention will do so within the scope of its own criminal law, and, in virtue of that law, the conspirator can be punished according to circumstances. The modifications introduced in the other articles of the draft Convention are mainly of a drafting nature and are explained in the comments appended to the articles.

R e v i s e d D r a f t C o n v e n t i o n .

Article 1. Each of the High Contracting Parties agrees to make legislative provision for severely punishing, and, in particular, punishing by imprisonment, the illicit manufacture, conversion, extraction, preparation, possession, offering for sale, distribution, purchase, sale, brokering, despatch, transport, importation and exportation of the drugs and substances covered by the Hague Convention of January 23rd, 1912, and the Geneva Conventions of February 19th, 1925, and July 13th, 1931, provided the offence is wilfully committed. Each of the above offences shall, if they are committed in different countries, be considered as a distinct offence ; and, likewise, any preparatory act shall be regarded as a distinct offence if it was preparatory to the commission in another country of one of the above offences and has reached the stage of a commencement of execution. The above-mentioned legislative provisions shall make punishable each of the above offences and also shall make punishable attempts and preparatory acts if, in either case, they have reached the stage of a commencement of execution.

Comment. The first paragraph of the article enumerates the acts that are to be punished, and “ despatch ” and “ transport ” have been included. The second paragraph provides that each of those acts, if committed in different countries, is to be regarded as a separate offence, and that preparatory acts shall also be regarded as distinct offences if they have reached the stage of a commencement of execution. The third paragraph provides (as in the original text) that such preparatory acts shall be punishable, and also that attempts shall similarly be punishable. Certain members attach great importance to the phrase : If it . . . has reached the stage of a commencement of execution of that act It seemed to them impossible that a person should be prosecuted and punished for the mere intention of committing an offence when such intention has not been translated into action.

Article 2 (unchanged). In countries where the principle of the international recognition of previous convictions is recognised, foreign convictions for the offences referred to in Article 1 shall, subject to the conditions prescribed by domestic law, be recognised for the purpose of establishing habitual criminality. Comment. This article, which reproduces without alteration a provision which appeared in the Convention concerning counterfeiting currency, appears to be satisfactory as it stands. A State which recognises the principle of the international recognition of previous convictions will necessarily take into account any repetition of an offence, irrespective of the country in which it has occurred. Article 3. In countries where the principle of extradition of nationals is not recognised, nationals who have returned to the territory of their own country, after the commission abroad of an offence referred to in Article 1, shall be prosecuted and punished in the same manner as if the offence had been committed in their own territory, even in a case where the offender has acquired his nationality after the commission of the offence. This provision is not binding if, in a similar case, the extradition of a foreigner cannot be granted. Comment. The two words underlined have been added.

Article 4 (unchanged). Foreigners who have committed abroad any offence referred to in Article 1 and who are in the territory of a country whose internal legislation recognises as a general rule the principle of the presecution of offences committed abroad shall be prosecuted and punished in the same way as if the offence had been committed in the territory of that country. The obligation to take proceedings is subject to the condition that extradition has been requested and that the country to which application is made cannot hand over the person accused for some reason which has no connection with the offence.

Article 5. Subject to the provisions of the last paragraph of this article, the offences referred to in Article 1 shall be deemed to be included as extradition crimes in any extradition treaty which has been or may hereafter be concluded between any of the High Contracting Parties. The High Contracting Parties who do not make extradition conditional on the existence of a treaty or reciprocity henceforward recognise the above-mentioned offences as cases of extradition as between themselves. Extradition shall be granted in conformity with the law of the High Contracting Party to whom application is made, and the treaties in force between the country asking for extradition and the country to whom the request is made. The High Contracting Party to whom application for extradition is made shall, in all cases, have the right to refuse to effect the arrest or to grant the extradition of a fugitive offender if the High Contracting Party or his proper tribunal considers that the offence of which the fugitive offender is accused or convicted is not sufficiently serious. Comment. The alterations are mainly of a drafting character. A reference to extradition treaties has been added at the end of the first sentence of the third paragraph of the original text, and the second sentence of that paragraph, which gives the discretion to refuse extradition if the offence is not thought to be sufficiently serious, has been redrafted. In the original text, the words “ offences adduced ” appeared to contemplate that, in the case of a convicted offender, as well as the case of an accused person, the evidence should be submitted. The new text makes it clear that, in the case of the former, the question of extradition can, in accordance with the more usual practice, be dealt with on submission of a certificate of conviction wi thout the evidence on which the conviction was obtained.

Article 6. Drugs, substances and articles employed in illicit traffic shall be seized and confiscated. Comment. The words “ and articles ” employed in illicit traffic have been added to the original text in order to make it clear that any article in which the drugs have been concealed shall be equally liable to seizure and confiscation.

Article 7.

Each of the High Contracting Parties shall, if it has not already done so, set up a central office responsible for carrying out all operations necessary to prevent the illicit acts referred to in Article 1 and to ensure that steps are taken to prosecute persons guilty of such acts. This central office shall be in close contact : (а) With other official institutions dealing with the drugs and substances referred to in Article 1 ; (б ) With the police authorities within the country ; (c) With the central offices of other countries. This office shall centralise all information of a nature to facilitate the investigation, prevention and punishment of illicit traffic. The central offices of the different countries may correspond with each other direct. Comment. The words underlined are merely drafting alterations. — 41 —

Article S.

Each central office shall co-operate with the central offices of foreign countries to the greatest extent possible in order to facilitate the prevention and punishment of the illicit traffic in the drugs and substances referred to in Article 1. In urgent cases, the office shall, so far as it thinks expedient, communicate to the central office of any other country which may be concerned : (a) Particulars which would make it possible to carry out any necessary investigations or operations in respect of illicit transactions in progress or proposed ; (b) The exact details which the office has been able to secure regarding the identity and the description of traffickers with a view to supervising their movements ; (c) Discoveries of secret drug factories. Comment. The words underlined are merely drafting alterations.

Article 9 (unchanged).

In order to ensure, improve and develop direct international co-operation in the preven­ tion and punishment of illicit traffic in the drugs and substances referred to in Article 1, the representatives of the central offices of the High Contracting Parties shall, from time to time, hold conferences. Article 10.

The transmission of letters of request relating to the offences referred to in Article 1 shall be effected : (а) By direct communication between the competent authorities or through the central offices ; (б ) By direct correspondence between the Ministers of Justice of the two countries or by direct communication from the authority of the country making the request to the Minister of Justice of the country to which the request is made ; (c) Through the diplomatic or consular representative of the country making the request in the country to which the request is made. This representative shall send the letters of request direct to the competent judicial authority or to the authority appointed by the Government of the country to which the request is made and shall receive direct from such authority the papers showing the execution of the letters of request. In cases (a) and (c), a copy of the letters of request shall always be sent simultaneously by the diplomatic representative of the country making the request to the Minister for Foreign Affairs of the country to which application is made or to such other authority as may be indicated by him. Unless otherwise agreed, the letters of request shall be drawn up in the language of the authority making the request, provided always that the country to which the request is made may require a translation in its own language, certified correct by the authority making the request. Each High Contracting Party shall notify to each of the High Contracting Parties the method, or methods, of transmission mentioned above which it will recognise for the letters of request of the latter High Contracting Party. Until such notification is made by a High Contracting Party, its existing procedure in regard to letters of request shall remain in force. The execution of letters of request shall not be subject to payment of taxes or expenses other than the expenses of experts. Nothing in the present article shall be construed as an undertaking on the part of the High Contracting Parties to adopt in criminal matters any form or methods of proof contrary to their laws or to execute letters of request otherwise than within the limits of their laws. Comment. 1. The word “ preferably ”, by which the sub-paragraph (a) began, has been deleted. 2. In the same sub-paragraph (a), to cover administrative as well as judicial authorities, the words “ competent authorities ” replace the words “ judicial authorities 3. In the second paragraph, for clearness, the words “ to the higher authority indicated by the letter ” have been replaced by the words “ to such other authority as may be indicated by him 4. The words underlined have been added.

Article 11 (unchanged).

The participation of a High Contracting Party in the present Convention shall not be mterpreted as affecting that Party’s attitude on the general question of criminal jurisdiction 8t> a question of international law. Article 12 (unchanged). The present Convention does not affect the principle that the offences referred to in Article 1 shall, in each country, without ever being allowed impunity, be defined, prosecuted and punished in conformity with the general rules of its domestic law.

Article 13 (unchanged). The High Contracting Parties shall communicate to one another, through the Secretary- General of the League of Nations, the laws and regulations promulgated in order to give effect to the present Convention, and shall forward to the Secretary-General an annual report on the working of the Convention in their territories. The High Contracting Parties who are parties to the Convention for limiting the Manufacture and regulating the Distribution of Narcotic Drugs, signed at Geneva on July 13th, 1931, may include the information concerning the working of the present Convention in the annual report, provided for under Article 21 of the Convention for limiting the Manufacture and regulating the Distribution of Narcotic Drugs.

Articles 14 et seq. (The usual formal clauses.)

O.C.1553(l). ANNEX 6. C.H.1151(1).

Geneva, May 30th, 1934.

RECOMMENDATION X OF THE BANGKOK CONFERENCE.

R e p o r t o f t h e J o i n t S u b -C o m m i t t e e o f t h e A d v i s o r y C o m m i t t e e a n d t h e H e a l t h C o m m i t t e e a d o p t e d b y t h e S u b -C o m m i t t e e o n P r e p a r e d O p i u m .

Recommendation X adopted by the Bangkok Conference reads as follows : “ The Conference, “ Considering that the work of the Governments in dealing with the practice of opium-smoking would be facilitated if more complete and authoritative information were available on certain questions — namely : “ (1) The effects, physiological and psychological, on the individual of the practice (a) of smoking opium, (b) of smoking opium dross ; “ (2) What are the constituents of opium which produce those effects, and whether and how it is possible to eliminate, replace by some harmless substance, or otherwise render harmless such constituents ; “ (3) Methods of cure of addiction to opium-smoking ; “ (4) Provision of a test which can be readily applied for determining the character of dross brought in — e.g., whether it has already been resmoked, or is adulterated, or is the product of other than Government opium ;

“ Recommends that arrangements should be made for research into these questions on a plan to be agreed between the Governments concerned, and that the assistance of the Advisory Committee and of the Health Committee of the League sh o u ld be obtained in preparing a programme for such research and supervising its e x ec u tio n . After consulting the League’s Health Committee, the Advisory Committee decided that the preliminary study of these various questions should be entrusted to a Joint C om m ittee consisting of representatives of the Health Committee and of the Advisory Committee. This Committee was composed as follows :

Health Committee : M. C a r r i è r e , M. C h o d z k o and M. T s u r u m i ; Advisory Committee : M. v a n W e t t u m , Sir Malcolm D e l e v i g n e and Dr. Hoo Chi-tsai.

This Committee requested M. Carrière and M. van Wettum to undertake a preliminary examination of the various problems raised by the recommendation of the Bangkok Conference that investigations should be made with a view to discovering the best method of carrying out the researches which the study of these problems would involve. After hearing discussing the statement drawn up by M. Carrière and M. van W ettum, the Opium Sub­ committee prepared the following report, in which the four points contained in tne recommendation of the Bangkok Conference are examined one by one. It has the honour to submit the report to the Advisory Committee.

1. The effects, physiological and psychological, of the practice (a) of smoking opium, (b) of smoking opium dross. Generally speaking, these effects have been known for a long time past. The practice of opium-smoking tends to addiction which in turn depends both on physical factors — bodily condition of the smoker — and on psychological and moral factors. The problem is thus a very complex one and differs according to the race, mentality and habits of the individual — in particular, the method of smoking and even the construction of the pipe are of special importance — and, lastly, and above all, according to his financial circumstances. The problem does not present itself in the same light in Europe, where it is mainly of an exceptional and sporadic nature, as in the Far East, where the habit is very widespread. It is a well-known fact that the effects of the habit of opium-smoking are less pronounced among individuals of the well-to-do classes, who, apart from their habit of opium-smoking, may lead a normal existence from the point of view of diet, for instance, than among the poorer classes, who, spending most of or all the money they have on satisfying their vice, are badly nourished and whose resistance to the poison is thus lowered. While, therefore, the problem of addiction to manufactured drugs may be regarded from a general standpoint as one with which we are familiar, the problem of the opium-smoking addict still raises a whole series of questions which it appears to be necessary to study in order to place the campaign against the scourge on a sound and rational basis. These questions, however, should be investigated on the spot by persons possessing a thorough knowledge of the environment, mentality, habits, health, economic and social conditions of the population. It does not therefore appear possible to entrust these investigations to persons in Europe. The investigators should be obtained on the spot and it will first of all be necessary to ascertain : (1) Whether it is possible to find properly qualified investigators ; (2) Who will defray the cost of the investigations.

It should also be pointed out that investigations of this kind have already been made, the results being set forth in the documents submitted to the Committee. We would mention, in particular, the enquiry carried out in British India and the resultant plan of research .1 These enquiries should therefore be supplemented in accordance with a definite plan, which should be drawn up by agreement between the delegates of the various States in which they are to be carried out.

2. What are the constituents of opium which produce those (physiological and psychological) effects, and whether and how is it possible to eliminate, replace by some harmless substance, or otherwise render harmless such constituents ? While we already know something about this matter, it is obv ous that there are still a large number of obstacles to be overcome. The main point which needs to be finally settled is what constituents of opium, in addition to morphine, pass into the smoke and may help to produce addiction. The results of certain investigations carried out on this matter 2 have shown that the quantity of morphine which passes into the smoke is very small. These results should be checked by further research, and, in addition, it must be ascertained whether, among the other constituents of opium, and more especially among the numerous alkaloids it contains in addition to morphine, there are any which pass into the smoke and help to produce addiction. The temperature at which the opium -—• and the dross — are smoked is of considerable importance in connection with these enquiries, since the volatilisation and the passage of the various constituents of the opium into the smoke depend on this temperature. Experiments could be made on animals ; but, as is well known, animals often react very differently from human beings, and consequently this method of experiment is very unreliable. Experiments should therefore be made on human beings, and the question arises whether this >s possible. In any case, it does not seem feasible to carry out chemical and physiological researches elsewhere than in the Far East. Experiments must be made in a place where opium-smoking is a common habit and, according to the information furnished to the Committee, there are, in Far-Eastern countries, a large number of laboratories (at Batavia, Calcutta, Hong-Kong, Peiping, Taihoku, etc.) which might perhaps undertake these researches. In our opinion, therefore, a preliminary Conference of persons competent to carry out these investigations in the Far East should be convened and should be requested to draw up a general programme of work specifying the questions to be examined and the means available for studying them. As regards the possibility of replacing the harmful constituents of opium by harmless substitutes, this appears at first sight a very difficult problem, and, even if some solution can be found, it is doubtful whether it would be of any use and whether rectified opium would nave any attraction for the smoker. That is a point, however, which might be included in general programme of research to which we have just referred.

I | ee docum ent O.C.1496. ee> *n particular, document O.G.1496 (a). 3. Methods of treating drug-addidion. On this question, a considerable amount of material has been collected in Europe by the Health Committee. It appears from this material, which consists of reports from highly qualified experts, that there is only one way to treat drug-addiction, and that is to withdraw supplies, either suddenly or gradually. The different special methods advocated by certain writers — auto-serotherapy, administration of certain remedial mixtures, etc. — are not, in the strict sense of the term, methods of treatment, specific methods. They are auxiliary methods, and their chief effect is to mitigate the phenomena — sometimes very serious — produced in the patients by the withdrawal of supplies. The disappearance of those pheno- ! mena, however, does not in the least mean that the patient is cured ; it is a well-known fact that, in almost all cases, it takes a very long time to cure a drug-addict completely. The methods just referred to are therefore auxiliary to the cure by withdrawal of supplies, but cannot take its place. Hence, there is only one method of treatment — namely, the withdrawal of supplies ; and, if that method is to be really effective, it is a matter of experience that it must be applied in hospital. It has been found that what might be called out-patient methods (consultations, dispensaries, etc.) do not entirely meet the case, because the patient has to be kept under constant supervision and strict discipline. With regard to this question of treatment, the Committee’s attention has been specially called to certain institutions, whose object is what may be described as the moral re-education of the patient after he leaves hospital and before he returns to his place in society. The value of these institutions is beyond question, and the Committee feels bound to emphasise the services that they can render. The information hitherto available suggests that arrangements for “ after care ” are essential. A person leaving a sanatorium for the treatment of drug- addicts is in a very peculiar psychological condition, in which an immediate return to normal life may easily lead to a relapse. It is this transition from the hospital regime to normal life that these “ post-sanatorial ” treatments are intended to assist, and it seems needless to lay any further stress on their value — indeed, their necessity. In the present state of affairs, the withdrawal of supplies and hospital treatment seem to be the solution of the problem. The question that arises is whether this method, with its various auxiliaries and complements, can be followed in Far-Eastern countries — in other words, whether those countries possess the necessary institutions. This question, again, can be answered only by local investigations. Plainly, however, if such investigations showed that the method was not applicable in certain countries or certain areas, we should have to consider, at all events, the use as widely as possible of what we have called the out-patient method by means of consultations and dispensaries.

4. Attempt to discover a process that will reveal the nature of dross and show whether it has been smoked over again, or adulterated , or produced from other than Government opium. The question here is to prevent fraud in regard to the dross which the smoker delivers to the prepared-opium shops, and which is then handed over to the State administration. The question raised by the Bankgok Conference’s recommendation is a very delicate one, because it involves two incompatible factors. On the one hand, a method has to be found which would be applied by those responsible for the sale of opium (who are not chemists) to satisfy themselves that the dross is of good quality and has not been adulterated ; while, on the other hand, some adulterations are of such a nature that they can be revealed only by somewhat complicated methods. What is more, certain Governments are already introduc­ ing into their prepared opium a revealing agent, an indicator, the nature of which must necessarily be kept secret, so that its presence can be demonstrated only in the Govern­ ment laboratory. The problem is not a simple one and may already at the outset be considered as insoluble. Any investigation to be made will have to be made locally in the Far East by laboratories possessing the necessary equipment and material. Our conclusion is that the various questions raised by the Bangkok Conference's recommendation must be examined locally by agreement among the various countries they concern, and that the investigations must be centralised as much as possible. We therefore feel that it would be advantageous for those countries to decide to summon to any place in the Far East (a place as central as possible) some specially qualified expert selected locally, to examine the problem as a whole and draw up a programme of investigations and scientific researches which could be carried out in the various countries on lines as uniform as possible. The execution of the programme when established should be put in hand with the least possible delay. The Advisory Committee and the Health Committee of the League should be informed of the nature of the programme and of the arrangements made for carrying it out. If, therefore, our report is accepted by the Advisory Committee and the Health Committee, and approved by the Council, the first thing to be done will be to send it, together with all the material so far collected, to the Governments concerned, asking them to take the matter in hand. — 45 —

ANNEX 7. O.C.1547. Geneva, May 23rd, 1934.

NOTE SUBMITTED ON MAY 23r d , 1934, by M. RAZET, HEAD OF THE FRENCH BUREAU DES STUPÉFIANTS, ON THE OPERATION OF THE SYSTEM OF NUMBERING RECEPTACLES IN FRANCE.

The numbering of receptacles containing narcotics has proved of the utmost service in the search for leakages into the illicit traffic, and the culprits responsible for such leakages. But the system has been enabled to render these services only because the numbers on the receptacles are registered in books known as “ poison registers ”, with which are kept (as with ordinary account-books) vouchers in the shape of letters or slips containing orders and receipts for the goods received with the date and signature of the purchaser. The French regulations accordingly require a number on each envelope or receptacle ; and, to prevent any question as to what is meant by receptacle, a circular dated March 25th, 1932, defines the expression as follows : “ By receptacle or envelope is to be understood the conditioning which constitutes the unit sold, phial, vase, pot, etc., . . . in direct contact with the product or case containing packets or ampoules.” The circular adds that the receptacles and any outside envelopes, not being transparent, must carry the regulation labels, so that the number has also to appear on the conditioning. Accordingly, each phial, vase, pot or case has to have its own number, which constitutes thenceforward the identification mark of the receptacle. The origin is shown by the mark of the factory which has to appear on the label. Whenever a receptacle changes ownership, its number is carefully noted in the registers, by the vendor on its leaving his hands and by the purchaser on acquiring possession of it. In the course of these changes in ownership, three contingencies may arise : First case : The receptacle remains intact, and is resold under its mark of origin ; Second case : The receptacle remains intact, but the mark of origin is changed and replaced by the purchaser’s mark ; Third case : The receptacle is opened ; its contents are divided and subsequently placed in new receptacles of smaller content. In the first case, the identification number remains the same, and each successive owner merely notes in his register that the receptacle (for example, No. 3212) containing so many grammes of such and such a narcotic, came into his possession on such and such a date from M. Z., resident at such and such an address. When he sells the phial, he will note in the register on its leaving his hands that receptacle No. 3212, containing so many grammes, was delivered on such and such a date to M. X, at such and such an address. In the second case, the owner, having replaced the mark of origin by his own mark, has to give a new identification number to the receptacle. He must, at the same time, be careful to note in his book, when the receptacle comes into his hands, the identification number which it bears on delivery to him (together with the other requisite particulars) and, on the opposite page, the new number which he gives to it. When he sells the product, he will merely note the new identification number on the receptacle leaving his hands, together, of course, with the name and address of the purchaser. It has not been thought necessary to require the reproduction on the new label of the original identification number, for the reason that the addition of the latter might lead to cross purposes in future dealings under the new number and give rise to confusion. The number, in short, is only of real use when the name and address of the firm giving it are to be found by its side. The insertion of the former number might lead to mistakes where a number of re-sales lake place, and hamper enquiry where such has to be made. The only place where the old number can be found is in the register, where it is accompanied by the name of the trader who gave it ; and it is from the registers that it is possible to trace it back, if required, to the manufacturer. The manufacturer, indeed, cannot be made responsible if, after a number of re-sales of a regular character, the phial disappears into the illicit traffic. The only person to be prosecuted in such case is the trader who is unable to prove that he enquired as to the authorisation of his purchaser, or has not complied with the regular formalities in respect of order slips, receipts for the goods and the keeping of the poison registers. It is essential for purposes of enquiry to have clear and simple indications on the labels — name and address of the trader, name of product, quantity and identification number given by the trader whose name appears on the label. In the third case, where there is a division of the contents of the receptacle and repacking m receptacles of smaller content, the mark of origin disappears and with it the original identification number. The original identification number is noted, as in the second case, m Mie register on acquisition of the drug, together with the name and address of the party supplying the same. After such repacking, the place of the original unit is taken by the new units, so that they require new identification marks — namely, separate numbers of their own in each case. The three contingencies referred to may then arise in the case of each separate unit. The application of the system of numbering to preparations has not led to any difficulty. — 46 —

But a distinction should be made in this connection between dispensed or prescribed drugs and drugs prepared and sold in separate packets in advance. Dispensed and prescribed drugs prepared in the dispensary of the pharmacist on medical prescriptions are subject to special regulations. The pharmacist who makes up a prescription has to enter it in a special register and give it a serial number. It is this serial number in the register of prescriptions which is shown on the label and constitutes the identification number of the receptacle. Drugs prepared and sold in separate packets in advance (the so-called “ special preparations ”) are numbered on each receptacle under the same conditions as the natural products. The same rules with regard to accounting are applicable. As special preparations are numerous, and addicts sometimes have recourse to them for the indulgence of their vices (ampoules, eye-washes and various other solutions), great difficulty has been found in making a selection between those preparations to which they most frequently have recourse and those to which they have not yet directed their attention. The selection is especially difficult in the case of new preparations. Accordingly, all preparations without exception have to be numbered. The numbering facilitates the tracing of responsibilities in cases of enquiry — for example, where it is desired to ascertain whether the pharmacist had authority in the shape of a prescription to deliver a particular preparation, or whether the prescriptions issued to a particular person are not of excessive frequency. The identification number in such cases makes it possible to follow the sales from the factory, the name of the pharmacist who sold the drug being at once traceable, so that he can be questioned without delay. It is also found that those who prepare these special preparations have been quick to appreciate that the numbering of the receptacles, taken in conjunction with the strict record kept of purchases and sales, constitutes a safeguard for themselves and relieves them of responsibility.