Drug Abuse

CHAPTER XVII. SYSTEMS OF NATIVE STATES.

696. The foregoing chapter contains the views of the Commission on the introduction throughout British India of a system of excise in regard to hemp drugs which will be ultimately uniform. But this uniformity of system must necessarily fail of its purpose unless the co-operation of the Native States which are interlaced with British territory is at the same time secured. A brief review of the systems at present in force in Native States is therefore necessary, together with some remarks as to the desirability of securing the adoption of a similar system in those States. The material at the disposal of the Commission in regard to the States is somewhat incomplete and fragmentary, but a good deal of information of a general character has been obtained which will enable the Commission to come to some decision on the subject.

697. The conditions under which the wild hemp is found have been detailed in Chapter III. Generally it may be said that the wild growth only thrives in the Himalayan tract. The Native States falling within this tract are Kashmir, some of the Punjab Hill States, Garhwal Tehri and Rampur in the North-Western Provinces, Nepal, Kuch Behar, and the Assam Hill States. In all these States bhang is produced ; but as the control of bhang in similarly situated tracts in British territory has been pronounced impracticable, this fact need not interfere with British excise arrangements. Kashmir apparently produces no charas properly so called, and all the charas which comes to the Punjab through Kashmir is accounted for under the Punjab system of registration. A little charas comes from Garhwal and from Nepal, but the amount is not sufficient to disturb British arrangements. The cultivation of ganja is prohibited in Kuch Behar, which receives its supplies from Rajshahi, the duty being credited to the State. Ganja to a very small extent is said to be imported from Nepal, and there is considerable smuggling of inferior ganja from the Assam Hill States which has been noticed in Chapter XV. With this last exception, it may be stated generally that the system or want of system in regard to hemp drugs in all these States is a factor which need not be taken into account in the excise system of British India. And as regards the Assam Hill States, it is probable that no further preventive measures can be taken at present than those already adopted, viz., prevention through the Assam Excise establishment when the drug is brought into British territory for sale. There is no system in force in the Hill States, and for some time to come it is not likely that any can be expected.

698. The extent to which the hemp drugs are produced in the Native States in other parts of India, and exported from them to the various British provinces, has been detailed in Chapters IV and VII of this Report, so far as can be gathered from the information received. It is mainly in respect of the production of ganja that the arrangements in these States have any perceptible effect on the British excise system. The conditions of the principal States or groups of States in this respect will be briefly noticed in the following paragraphs as well as the systems in force.

699. The cultivation of hemp for ganja in Hyderabad is said to amount to 300 or 400 acres. Bhang is the refuse of the ganja so produced. There is no restriction of cultivation, but the right of selling the drugs is auctioned, and the cultivators are bound to dispose of their produce to the licensee. There are 27o Shops for the sale of ganja and bhang and 5o for majum. In small districts the contract of sale is given with that of certain poisons (arsenic, strychnia, and aconite) and opium. For foreign import or export of ganja a duty of Rs. to per maund is levied, and of bhang Rs. 3-5 per maund. The imports of ganja as given in the State memorandum average for five years 79 maunds, and the exports 9 maunds only. But there are no reliable statistics. The Director of Agriculture puts the outturn at 5 to 6 maunds per acre, which would give a result of from 1,5oo to 2,400 maunds per annum. Of this, only an average of 300 maunds is traceable as having been transmitted by railway. There is no record of the ganja transmitted by other means.

The Hyderabad State marches with the Madras and Bombay Presidencies, Berar, and the Central Provinces, but only for a short distance with the last named. There are no complaints of smuggling from Hyderabad into the Central Provinces, though smuggling from Berar is mentioned. If ganja is systematically treated in Madras, Bombay, and Berar, the arrangements will be incomplete unless a similar change is made in the Hyderabad State ; and as the regular cultivation in the latter appears to be confined to certain definite areas, control will probably be quite feasible should the Darbar agree to exercise it. For the present, however, the existing arrangements under which the produce must all be made over to the licensed vendors and a tax levied on all imports and exports will, if they are observed, be sufficient to check the export of ganja to British provinces. When by reason of the perfecting of the system in British territory the inducements to smuggle cheap ganja from Hyderabad are increased, it will then be advisable to suggest to the State the desirability of exercising more complete control over the cultivation of the plant and its produce.

700. The administration of excise in Mysore in respect of hemp drugs is based upon Act XXII of 1881, which is in force in the State, and is in advance of that of both the presidencies which adjoin it. Cultivation is forbidden except under license, and the produce of all licensed cultivation must be sold to the licensed contractor or exported under a pass. But licensed cultivation has been practically abandoned ; and though it is stated in the memorandum that illicit cultivation and smuggling are not carried on to any appreciable extent, there seems some doubt whether this view is correct. Mr. McDonnell, the Special Assistant Excise Commissioner, states that, " owing to the heavy dues imposed by the State (Rs. 24 per Indian maund) and the abnormally low price of ganja across the frontier, there are strong inducements to commit a fraud on the Mysore revenue." Thus, although the climate and soil of the State are well adapted for the produc tion of the ganja plant, the regulations introduced by the State authorities for controlling its production have had the effect of stopping it altogether owing to the want of system in British territory and the facility with which it is procurable thence at a much lower rate ; and a large amount of the ganja imported pays no duty. In regard to this, Mr. McDonnell says : " Mysore is heavily handicapped by the extensive smuggling of ganja from Her Majesty's territory." The system of licensing sale and levying fees therefor in Mysore may be thus briefly described. A contract is given to a single person on condition that—

(1) he pays duty on wholesale vend to the Darbar at the rate of 6 annas per ser for ganja and 2 annas for majum, etc. ;

(2) he sells at fixed rates to retail vendors, viz., ganja Ito annas per ser, and majum, etc., 4 annas per ser ;

(3) he sells to retail vendors in quantities not less than to sers of ganja and 5 sers of majum in Bangalore and Mysore, and 5 sers of ganja and 2 sers of majum elsewhere ;

(4) the drugs shall be of good quality, and that registers are kept, etc. ;

(5) he guarantees a fixed sum to the Darbar.

The ser in Mysore consists of 24 tolas. The amount guaranteed appears to be fixed by tender. There are 57 wholesale shops licensed free, and log retail shops which are not ordinarily sold by auction, but licensed free, except in Mysore and Bangalore, where Rs. 3 per mensem•is paid for each license. Retail vendors have to sell to the public at the rate of 13 annas per ser for ganja and 6 annas per ser for bhang, and may not sell more than 4 tolas to any person on the same day. Charas is unknown, and bhang is the refuse of ganja.

Thus there is a very complete system at work in this State, though some of its details may be open to criticism, and the principal difficulties attending its administration arise from the want of system in British territory. Ganja is freely imported into the State from Madras, and it has been shown (Chapter VII) that it is also probably imported from the Dharwar district in Bombay. This appears to the Commission to afford a cogent argument for the introduction of control in the Madras and Bombay Presidencies,

701. The Commission have little information regarding Kalat and Las Beyla. But there is no export of the drugs from these States to British India, so the matter is of no importance.

702. Prior to 1892 there was no restriction on the preparation or sale of the hemp drugs in Baroda. A State monopoly of sale was then introduced, Cultivation of the plant is not prohibited, but it is reported to exist only in one village, and to a very limited extent. No exports to British territory are reported, and there is evidence to the effect that since the introduction of the license system smuggling from the State into British territory has almost entirely ceased. A large amount of the drugs is said to be imported from other provinces or States. A customs duty is levied on the imports, but the amount is not stated. There are lot shops for sale of ganja, etc., and as many as 157 more have beet) sanctioned, but not opened. Charas is not used. In this State the arrangements are, therefore, fairly complete. If owing to the introduction of a more systematic treatment the price of ganja in the Bombay Presidency were to rise considerably, cultivation in the Baroda State would very probably revive ; and as there is now practically no cultivation, the present time would be opportune for moving the State to introduce a thorough system of control in this respect also.

703. The information regarding the excise administration of the Native States in Central India in respect of hemp drugs is very incomplete. From Gwalior, where there is a considerable amount of ganja produced, no information has been received except that which has been furnished through the North-Western Provinces. Through the courtesy of the Agent to the Governor-General, a useful memorandum has been recorded by Mr. R. H. Gunion, of Indore, which puts in a compendious form all the information obtained from the other States in the Agency. The Minister to His Highness the Maharaja of Holkar has alSo given a full account of the administration of that State.

There is cultivation of the hemp plant for the production of ganja in Indore, Baghelkhand, Dewas, Bhopawar, and Gwalior, and possibly also in Bhopal and Western Malwa. There appears to be no restriction of cultivation in the Central India Agency, and Mr. Gunion thinks that there is no system of licensing sale of the drugs except in Indore and Rewa, though the Commission have ascertained from other sources that sale is licensed in Gwalior and Bhopal. Mr. Gunion's opinion that there are no restrictions on manufacture or on import and export of the drug, but that duties are levied on it as on other merchandise, appears to be correct.

704. In Indore the average cultivation, which is said to be on the decrease, is reported by the State officials above mentioned to be about 181 bighas or 113 acres, and the average imports and exports of ganja 153 maunds and 377 maunds respectively ; but in 1892-93 the imports amounted to 84 maunds and the exports to 1,318 maunds. It is therefore clear that the exports exceed the imports. Mr. Stoker says that a little ganja is imported into the. North-Western Provinces from Indore. Mr. Drake-Brockman says that ganja is largely grown in the Sanawad pargana of Indore, which separates the Kanapur Beria tract from the rest of the Nimar district in the Central Provinces, and there is thus a considerable area into which the introduction of Indore ganja is practically inevitable. Accordingly in 1879 a suggestion was made to the Agent to the Governor-General that exports from Indore territory should be taxed and only permitted under formal pass, and a duty of R s. 7 per maund was fixed by the Darbar. This seems to have checked smuggling, for the evidence from the Central Provinces is against its prevalence, though some still exists. Mr. Gunion's estimate of the amount of ganja and bhang annually produced is goo maunds. The right to sell by retail is auctioned. There were 45 licenses in 1892-93. The income from this source appears to be on the increase, and this is the case also as regards the fixed duties since 1886-87. In the latter year they amounted to Rs. 461. In 1892-93 they were Rs. 3,111.

It is evident that the Indore State possesses considerable facilities for the production of ganja and for its distribution in British territory, and in the interests of the system of administration proposed for British provinces it is extremely desirable that the production of the drug in this State should be brought -under control.

705. All that is known about the administration of the hemp drugs in Gwalior is that the cultivation is reported to be about 400 acres ; that a duty of Rs. 5 per maund is levied on all ganja exported to British provinces, and Rs. 2-8-0 per maund on ganja transported from one place to another in the State ; and that the cultivator may only sell to a licensed vendor. The Commission also have information that the cultivator pays Rs. 12 per acre over and above his fixed rent ; but whether this payment is made to the State is not clear. There is a fixed rate for retail sale, 4 annas per ser. Mr. Stoker is of opinion that the Gwalior,ganja is gaining ground in the North-Western Provinces, and is being substituted for the Khandwa ganja, while both together are ousting the supply of Bengal ganja. The cultivation is said to be confined to three tahsils of the State—Antri, Sipri, and Kalaras ; so the control of cultivation would probably be a simple matter ; and if such control can be brought about, it would greatly facilitate the North-Western Provinces administration. Some charas is produced, but apparently in very small quantities ; bhang of a superior quality is produced at Ujjain and Sipri. The State is bound by special arrangement to prevent export into British territory. (Gwalior Salt Agreement, Aitchison, No. XXI, Article 6.)

706. All that has been ascertained in regard to Bhopal is that there is a licensed contractor for each pargana who sells by retail in his own shop, and authorises others to do so as his agents. Mr. Drake-Brockman says that local transit dues are levied, but they are not sufficiently high to check transport into the neighbouring districts of the Central Provinces. Mr. Gunion says that about Ioo,coo persons are said to use one or other of the hemp drugs. The Commission have no information regarding cultivation in this State. It adjoins the Central Provinces, and control of the hemp drugs is very desirable from this point of view.

707. The principal State in the Baghelkhand Agency is Rewa. There is some cultivation for ganja, but no particulars have been ascertained. There are contractors for sale of the drugs who are said to pay a fixed duty and license fees to the State. The greater part of the population are Vaishnavas, and the population in general are said to be opposed to the use of the drug. A little charas is said to be imported from Patna. The Agency lies between the North-Western Provinces, the Central Provinces, and Chota Nagpur, and any want of control in the matter of hemp drugs would probably have a serious effect on the excise administration of those provinces.

708. There is no information in the memorandum regarding the administra- tion of the States of the Bundelkhand Agency. But Mr. Stoker mentions the Agency as one of the main sources for supply of ganja to the North-Western Provinces. In all the States, he adds, there is some duty on export, but it is variable and unequal. In one place it is 2 annas per rupee of the price, which would be about Re. t to Rs. 2 per maund. In another it is said to be Rs. 1-9-0 on each purchase irrespective of quality. But these rates require confirmation. Mr. Stoker is not sure that all the ganja which comes from these States is of local growth, and he suspects some of it comes froM Gwalior or Khandwa originally. The plant is, however, said to be cultivated to some extent, and the produce not to be distinguishable from Gwalior ganja. Mr. Stoker notes that this source of supply is capable of extension. The capital and a great part of the Chirkari State is situated in the middle of the Hamirpur district in the North-Western Provinces. The country is wild and mountainous, and prevention of smuggling is impossible. From the Panna State there is considerable smuggling into the Dambh. district of the Central Provinces. It is very desirable in the interests of the excise administration of the North-Western Provinces that the cultivation and production of the drug should be controlled in this Agency.

709. Mr. Gunion says that all over the Bhopawar Agency the hemp plant is cultivated for ganja and bhang, rarely for charas.The production is limited, and, except in the parts adjoining British Nimar, only for the personal use of the cultivators. No other information has been obtained. Mr. Robertson, Deputy Commissioner of Nimar, says that ganja smuggling from the Native States which border on Nimar, though it no doubt exists, has never been a prominent matter in Nimar. It is the general opinion, however, that a good deal of petty smuggling exists.

710. Mr. Gunion mentions a kind of ganja called gorakhi,' which is said to be made from the wild plant in the Jaora State of the Western Malwa Agency. The Commission are in possession of a statement made by Surgeon Lieutenant-Colonel Caldecott, Agency Surgeon, that there is cultivation for the production of charas, bhang, and ganja all over Malwa, but he is unable to say to what extent. The States of this Agency (Jaora and Rutlam) do not adjoin British territory.

711. In the Jeypore State there is practically no system of administration of the hemp drugs. Customs duty is levied on import and export at the rate of Rs. 4 per maund for ganja, Rs. 20 per maund for charas, and Re. 1 per maund for bhang. There is also an inland customs duty of 4 annas per maund on bhang. There is no restriction in regard to cultivation, manufacture, sale, or possession of the drugs. As noticed in the chapter on cultivation, it is stated in the memorandum that 10,000 maunds of bhang are produced, indicating a large rural consumption if the figure is correct ; for only 27 maunds are said to be exported. Ganja and charas are imported, not produced in the State. Jeypore does not adjoin British territory, and further control is not at present essential to the success of a system of administration in the British provinces.

712. Duties are levied in the Jodhpur State as follows :—

 

	Import duty per maund	Export duty per maund	Transit duty per maund
	Rs. A. P.	Rs. A. P.	Rs. A. P.
Ganja and Charas	480	480	300
Bhang	020	020	020

 

It is said that a Government duty of Rs. 2 per maund is charged on the import of ganja ; but this is not further explained. There is no restriction on the cultivation of hemp, which is not systematically grown, but in a few villages seeds are sown round the fields where crops are raised. The import of ganja and charas under parwana from the Residency amounted to 1,735 maunds during the ten years 1883-84 to 1892-93. The imported ganja mostly comes from Indore. The ganja produced from the sporadic growth of the plant is called ' makuria,' and being of very inferior quality is said not to be offered for sale. A contract for sale of the drugs has been given since 188o - in the towns of Jodhpur and Pali, which is auctioned to the highest bidder. There are 14 retail vendors in Jodhpur, all of whom are under the control of the contractor, who himself has two shops in the town. The retail vendors are ordinary shopkeepers, who sell the drugs along with other articles. There are no retail vendors in Pali. Elsewhere there is no restriction on the sale of the drugs. Jodhpur does not adjoin British territory.

713. No memorandum has been furnished from Udaipur. The State does not adjoin British territory. There seems to be a certain amount of production of ganja and bhang, but the use of ganja and charas seems to be very limited.

714. The excise of the drugs was introduced in 1893. There is no restriction on cultivation, but the cultivators may only sell their produce to the State contractors. Contracts for wholesale vend are sold by auction at the tahsils, and the contractors obtain licenses for their retail vendors, and are permitted to sell by retail. themselves. The shops for retail vend are not auctioned. The contractor fixes the prices for retail sale, subject to a minimum fixed by the State officials. A customs duty on imports is levied at the rate of Rs. 20 per maund for ganja and charas and Rs. 5 per maund for bhang. Under an agreement with the British Government, the export of intoxicating drugs from the State into British territory is prohibited. (Bikanir Salt Agreement, Aitchison, No. CXXVI II, Article 5). The observance of this provision will render any further action in regard to this State in the interests of the British excise administration unnecessary at present.

715. There is no restriction on cultivation, but bhang only is produced on well lands and on the borders of fields. Ganja is unknown ; a little charas and bhang is imported. The monopoly of the import and sale of the drugs is granted to a contractor, together with that of poppy and opium, for a fixed sum. There is no duty on import, but an octroi duty of 10 annas per maund is levied on bhang. The contractor is at liberty to make his own arrangements regarding sale of the drugs. The number of retail shops in 1893 was 44. No limit has been fixed for retail sale or possession. Alwar adjoins the Delhi Division of the Punjab.

716. The hemp drugs are said not to be produced in Bhartpur. A customs duty on imports is levied at the rate of Rs. 10 per maund on charas and Rs. 5 per maund on bhang. There is no further restriction apparently. The drugs are imported. There is apparently no cultivation now, though some formerly existed. Bhartpur adjoins the North-Western Provinces. The conditions existing in this State are not likely to affect British excise administration.

717. The monopoly of vend in the Kotah State is auctioned to contractors.
Besides the revenue thus realised, a duty of Re. I per maund is levied on ganja imported into the State, and the same on bhang brought into the town of Kotah. A transit duty of 8 annas per maund is also charged on ganja and bhang. Charas is not imported. There is a small local production of ganja and bhang, but no regular cultivation. It is stated that there is a " ruling " of i881 about buying, selling, and possessing intoxicating drugs, but it is not enforced. This State does not adjoin British territory.

718. Beyond the levy of a customs duty at the rate of Rs. 20 per cent. of value on ail hemp drugs in Tonk and Aligarh, Rs. 6 per maund in Chabra, and Rs. 8 per maund in Sironj, there is no excise administration in respect of the drugs in the Tonk State. A proposal to draw up a set of rules is under consideration. Ganja and charas are imported, not produced. Bhang is produced in the State and imported from Jeypore. The State does not adjoin British territory.

719. An import duty of 8 annas per maund of 35 sers on ganja and bhang Jh    and of one anna per maund on charas is levied in the jhallawar State, and it is said that there are local dues of 2 annas per maund on ganja and bhang, while one per cent. is levied on all sales of either drug, weighment dues being also levied when they are sold by weight. There is a licensed farmer of the drugs in the cantonment. Beyond this, there is no excise system in respect of hemp drugs. The extent.of cultivation is about 30 acres, producing about 155 maunds of ganja and 30 of bhang. The trade returns do not distinguish between ganja and bhang : the average import of both drugs is said to be 105 maunds, and the export 120 maunds. Charas is not used. The State does not adjoin British territory.

720. Import and transit duties are levied in the Bundi State at the rate of 8 annas per maund on all hemp drugs imported into or passing through the State territory. Beyond this there is no system of administration in respect of hemp drugs. It is stated that the drugs are not manufactured in the State, but that cultivators grow hemp on land irrigated by wells as other crops. The drugs are imported from other States. The import of bhang is large, averaging 9,385 maunds ; that of ganja and charas is small, amounting to ioo and 25 maunds respectively. The total import duties amount to Rs. 4,440 and transit duties to Rs. 61o. The State does not adjoin British territory.

721. In Dholpur import duties are levied on ganja and bhang at Rs. 4-4-0 per maund and on charas at Rs. i-j-o per ser. In the Sri Mathra Estate the duties are—ganja Rs. charas Rs. 6, and bhang 6 annas per maund. Export duty is also levied— ganja 9 annas per maund, charas Rs. 3 per maund, and bhang 3 annas per maund. There is one contractor for the whole State, who appoints his own sub-contractors in the parganas. Apparently the whole trade, both wholesale and retail, is in the hands of this contractor. The cultivation of intoxicating drugs is prohibited without permission of the Darbar, and there is no manufacture of the drugs in the State. The imports are by rail and road from British districts, Gwalior and Patiala, under passes granted by the Collectors or Political Agents  concerned. The traffic is not large. Dholpur adjoins the North-Western Provinces.

722. In Banswara no memorandum has been furnished, but the Commission have information from the officials that ganja and bhang are produced. The State adjoins the Bombay Presidency. Nothing is known of the system of excise administration.

723. A statement has been furnished for Serohi which shows that licenses to sell ganja are given for seven places in the State, and a revenue averaging Rs. 386 per annum realised for license fees (Rs. 863 for 1892-93) and Rs. 145 for fixed duty. There are license holders, but they keep no record. Only ganja is imported, the average being 32 maunds per annum. Cultivation is unrestricted and not recorded. The Kotwal of Serohi estimates the outturn of ganja produced in the State at 8 maunds, and bhang at 300 maunds. No exports are shown. It is stated that the whole of the ganja and bhang produced in the country, averaging one maund of the former and 40 maunds of the latter, is recovered from the cultivators and given in charity and sent to the temples of Mahadeo, and some is used in liquor. The State does not adjoin British territory.

724. Customs duties are levied in the Kerowli State on imports at the rate of Rs. 2-8-o per maund on ganja, Rs. to on charas, and Re. I on bhang. During the Shivratri fair in February the duties are suspended. The right of retail vend at three towns is sold by auction, and there are 8 licenses for retail vend. No further control is exercised. The plant is cultivated for bhang, and ganja is imported. The transactions shown are very small, but the license fee averages Rs. 1,157 per annum. The State does not adjoin British territory.

725. The only system of control in force in the Kishengarh State consists in the levy of duties (apparently import duties) at the rate of Re. 1-8-o per maund on ganja and charas and 4 annas on bhang. The farming system used to prevail, but has been abandoned. It is now proposed to increase the duties and to license vendors. The transactions are small. Kishengarh adjoins Ajmere.

726. In Jaisalmir there is provision for levying customs duties, but it is stated that there has been no import or export of hemp drugs for the last ten years, and that the drugs are not sold in the State. There is, however, a little cultivation for ganja and bhang, which is purchased by the consumers from the cultivators. Jaisalmir adjoins Sind, and a small amount of ganja and charas is said to be smuggled into Sind through this State.

727, In this small State import and export duties are charged at rates not mentioned. Transit duty at 3 pies per ser is also
levied on bhang exported to foreign States in addition to the export duty. There is no further control of any kind. In future it is proposed to issue licenses to a limited number of persons at a few selected. -places.

728. No information has been received regarding these small States.

729. It will be convenient next to notice together that tract which lies enclosed between Bengal, the Central Provinces, and Madras, comprising the Tributary States of the two first and the Agency tracts of the last named province. In this manner only is it possible to consider systematically and thoroughly the question of bringing the excise arrangements in respect of hemp drugs which prevail in this tract into some conformity with the general principles recommended by the Commission. This tract may be divided into four parts, viz., the Chota Nagpur Tributary Mahals and the Orissa Tributary Mahals, both under the Bengal Government ; the Chhattisgarh Tributary States, under the Central Provinces ; and the Agency Tracts, under the Madras Government. The following table shows the area, population, and revenue of each of these groups :—

730. In the Tributary States under the Central Provinces the cultivation of ganja has been stopped at the instance of the Local 'Administration, and a supply of ganja is now furnish- ed to these States from the Government storehouse at Khandwa. The system is that the drugs are supplied to the chiefs at cost price (the cost going to the wholesale vendor, and the Government realizing nothing), and that the chiefs must adhere to the provincial price of Rs. 3 per ser in their sales to the retail vendors. The only exception is in the case of the three Western States of the Raipur district, in which under special arrangement half the duty goes to Government. Elsewhere the whole of the duty is realized by the chiefs. The present state of affairs is thus described by the Political Agent, Chhattisgarh, It should be explained that his report refers to all the Chhattisgarh States, including the four Western States which are detached from those on the Bengal or Madras border: "The only States in which the hemp plant has never been cultivated for the production of drugs are those of Kawardha and Kalahandi. In the other twelve 'such cultivation was at one time fully indulged in, but in all it has now been completely suppressed. The system in force may be summed up in a word as being identical, so far as the local circumstances permit, with that which prevails throughout the Central Provinces. The principles observed are practically, though not in all cases formally, based on the provisions of Act XXII of 1881 and of the Central Provinces Excise Manual. Bhang and charas are unknown in the Feudatory States, except in Nandgaon, where a little bhang is consumed." This complete arrangement suffers, however, from the smuggling of ganja into some of the Feudatory States from the States or Agencies in Bengal and Madras. The Political Agent says : " The States of Raigarh, Raira Khol, and Sonpur all complain bitterly of the smuggling into their territories of ganja from the adjoining Bengal States. The reports from the Patna State have been somewhat conflicting. There seems no doubt that there has been in former years considerable ground for a similar complaint here ; but it seems that the evil has of late been considerably reduced by improved police arrangements. Both Kalahandi and Bastar complain of smuggling from the Jeypore State in Madras."

731. In the Chota Nagpur Tributary States, Seraikela and Kharsawan, the cultivation of ganja is prohibited. Ganja is imported from Bengal. There is a contractor in Kharsawan who holds at the same time the monopoly of sale of opium. There are four shops in Seraikela the licenses for which are sometimes sold by auction, and sometimes granted at fixed rates. In the other States there is no very definite system of excise administration in respect of hemp drugs. There are no shops for the sale of the drugs, though one formerly existed in Gangpur and Jashpur, which derived their supplies from the Government gola at Ranchi ; and Mr. Grimley, Commissioner of Chota Nagpur, says that he gave a license some months ago to a vendor in the Gangpur State to import ganja, though he cannot definitely say that the shop has been opened yet. Duty on the cultivation of ganja grown by the people for their domestic use is levied in Udaipur, Gangpur, and Bonai. In Gangpur it is 4 annas per plant, and in Bonai 1 anna 6 pies per plant. The amount of the Udaipur duty is not mentioned. In 1883 the Commissioner of Excise, Central Provinces, complained that untaxed ganja from Sirguja, Gangpur, and Udaipur was imported into Sambalpur and Bilaspur ; and the Commissioner, Mr. Hewitt, ordered the chiefs not to allow ganja to be grown by any one without their permission, and to keep lists of those who grew ganja and see that they did not grow more than they wanted for their own use, and that no one was allowed to sell ganja. In regard to this order, Mr. Grimley, Commissioner of Chota Nagpur, says : " I am not pi.epared to say that the Rajas keep the lists prescribed ; but I think the spirit of the order is carried out. I think the chiefs are very loyal and willing to do what they are told in regard to such matters. "

732. The Tributary States of Orissa have for many years constituted the principal difficulty of the Bengal Government in regard to its excise administration of the hemp drugs. It was first in 1878 that the attention of Government was seriously directed to the illicit trade from the Tributary States, and apprehensions for the safety of the excise revenue in Orissa were entertained. At this time the existing rules permitted the import into Orissa of Garhjat ganja and bhang under a system of passes and at a fixed duty of one rupee a ser. Four proposals were laid before Government—(1) to entirely prohibit the cultivation of the hemp plant in the Tributary States, or (2) to prohibit the cultivation within three miles of British territory ; (3) to prohibit the importation of the drug into British territory, or (4) to raise the duty on imported Garhjat ganja to Rs. 4 a ser, thus equalizing it with the duty on Rajshahi ganja. The second and fourth proposals were adopted : cultivation within three miles of the boundary was prohibited, and the duty on imported ganja was raised to Rs. 4 a ser.

These measures proved ineffectual ; and, although the consumption of Rajshahi ganja may have increased somewhat in all three districts of Orissa, it was believed that smuggling still continued to a considerable extent. The policy of total prohibition of cultivation naturally suggested itself again, and in 1884 was carried out in Mohurbhanj, which happened to be under the direct control of the Bengal Government. Rs. 300 a year was given to Mohurbhanj as compensation, and Rajshahi ganja was imported into the State under the ordinary Excise rules.

In June 1882 the importation of Garhjat ganja and bhang into British territory was entirely prohibited, but it was not till 1884 that the prohibition was actually enforced. Fur' .ier, from the same year (1882) the policy was adopted of levying duty in Orissa on Rajshahi ganja at rates lower than elsewhere in the province. Attempts were also made to entirely suppress cultivation in several of the States with the co-operation of the chiefs, and in 1889 the Superintendent of the Tributary Mahals reported that prohibition had been enforced in eleven of the States, but that the chiefs of four other States objected to the measure.

In 1889 the Bengal Government finally concluded that the experiment of entirely prohibiting cultivation must be abandoned as useless and inefficacious, and that the only way to prevent smuggling was to legalise importation under suitable regulations. Doubts were also entertained as to the real nature of Garhjat ganja. It was suggested that Garhjat ganja in a particular form was looked upon as an absolute necessary of life with certain influential classes in Puri, and that injury might be done by encouraging the use of the strong Rajshahi drug in place of the milder local article. The Government after some hesitation arrived at the distinct conclusion that Garhjat ganja was taken as a drink and not smoked, and that it was " on a different footing altogether from the well known deleterious drug imported from Rajshahi." It was accordingly proposed to legalise the importation of Garhjat ganja at a duty of eight annas a ser (the rate prevailing in Bengal for bhang), and at the.same time the orders prohibiting cultivation, whether within the three miles limit or not, were withdrawn.

In 1890, after further consideration and with fuller information on the subject, the Bengal Government altered the opinion they had formed that Garhjat ganja was merely a form of bhang, and arrived at the contrary conclusion, viz., that Garhjat ganja is a true ganja like the Rajshahi article, but inferior, and that it is used for smoking exactly as that drug is. The Government of India were accordingly requested to sanction a duty of Rs. 2-8-o a ser on Garhjat ganja, which was done.

In December 1890 the orders prohibiting the possession of Garhjat ganja in Orissa were rescinded, and in March 1892 orders regulating its import were issued.

From 1st April 1893 the duty on Garhjat ganja was raised to Rs. 3-8 a ser to assimilate it with a rise in the duty on Rajshahi ganja.

Under existing rules, any licensed wholesale or retail vendor may import Garhjat ganja under a pasi from the Collector, for which a fee of Rs. 2 is charged.

The minimum amount which may be imported is one maund at a time. With a view to the prevention of smuggling, the maximum of possession of Garhjat ganja has been reduced from 20 tolas to 5 tolas since May 1892.

Thus the following systems have been in force :—

(1) Prior to 1878 unrestricted cultivation in the Tributary States and legal import into British territory at a duty of one rupee per ser, which was considerably below the duty on Rajshahi ganja.

(2) From 1878 to 1882 suppression of cultivation within a three-mile limit and legal importation at Rs. 4 a ser, i.e., at 8 annas higher than the duty on Rajshahi flat ganja.

(3) From 1882 to 1884 absolute prohibition of importation of Garhjat ganja, with duty rates on Rajshahi ganja in Orissa lower than those prevailing in the rest of Bengal. The three-mile limit of cultivation was maintained.

(4) From 1884 to 1889 absolute prohibition of importation of Garhjat ganja, with duty rates on Rajshahi ganja in Orissa lower than those prevailing in the rest of Bengal. Continuance of the three-mile limit of cultivation and attempted total prohibition of cultivation in the Tributary States.

(5) From 1889 to 1890 absolute prohibition of importation of Garhjat ganja, with duty rates on Rajshahi ganja in Orissa lower than those prevailing in the rest of Bengal. Unrestricted cultivation in the Tributary States whether within or beyond the three-mile limit.

(6) From 1890 to 1892 legal importation of Garhjat ganja in quantities not less than 8 maunds at a time, at a duty of Rs. 2-8-o per ser, which is considerably lower than the duty on Rajshahi ganja. Duty rates on Rajshahi ganja in Orissa lower than those prevailing in the rest of Bengal, and unrestricted cultivation .in the Tributary States.
(7) The existing system is the same as (6), except that there has been a rise of duty and a reduction of the minimum of possession of Garhjat ganja with a view to preventing extensive smuggling. The minimum amount of Garhjat ganja which may now be imported at one time is one maund instead of eight maunds. The rates of duty in Orissa from 1st January 1894 are--
Rajshahi ganja-                             Rs.    A. P.    
Chur                   •••    •••    •••    •••    7    8    0

Round                •••    •••    •••    .••    6    4    0

Flat                      •••    •••    •••    •••    4    8    0

Garhjat ganja    •••    •••    •••    •••    3    8    0

Meanwhile the smuggling of Garhjat ganja and bhang continues unabated. This fact is abundantly proved by the evidence.

733. There are two points specially noticeable in this summary of the proceedings of the Bengal Government in regard to the hemp drugs of the Tributary States : first, that the policy has undergone several changes ; and, secondly, that it has been framed solely with reference to the Orissa Division. In regard to the first of these, the Commission draw attention to the remarks made by Mr. H. G. Cooke, Commissioner of Cuttack, who says : " I believe a persistent policy would soon effect all that is desired. I believe it would be much better to have a persistent policy than a policy of vacillation as in the past, which is perhaps inseparable from a struggle against smuggling." The Commission further think that the matter requires to be approached with more consistent regard to the circumstances and requirements of the States themselves, and the representations of the Central Provinces Administration. And what appears to them to be required is that after full consideration of these conditions, as well as the excise administration of the Orissa Division, the Bengal Government should induce the chiefs of the Tributary States to introduce into their territories such a system of control as will restrict the production of the drug and remove the complaint of smuggling, whether into Orissa or the Central Provinces. That this is not an impossible task may be gathered from the past history of results achieved by the Superintendents of the Tributary Mahals and from the evidence of Messrs. Toynbee, Cooke, and Stevenson. The Commission do not feel called upon to say what the system should be. If prohibition of cultivation be thought the best course, the Tributary States of the Central Provinces furnish an instance of its feasibility. If it is thought best that the States should not be deprived of the local supply, the system generally recommended by the Commission for British provinces would probably be applicable. But it is important that the matter should at length be fully and finally dealt with.

734. The Agency Tracts of Madras are British territory. That there is a certain amount of smuggling from these tracts into Orissa and the Bastar and Kalahandi States of the Central Provinces admits of no doubt. Whether this ganja is raised in the Agency Tracts or in the plains portion of the Ganjam, Vizagapatam, Godavari, and Kistna districts is perhaps doubtful. There is a considerable production of ganja in all these districts, and there is no evidence before the Commission that the production in the Agency Tracts themselves is large. But the Commission hope that, if control is introduced in the Madras Presidency generally, it will be possible to extend such control to the Agency Tracts. It is true that Mr. Willock, Collector of Vizagapatam, says : " Any interference in the Agency might be productive of political danger" ; but he adds : " I am not sure that the extent to which the cultivation is carried on there is such as to render any serious discontent likely." And Mr. Taylor, for 4 years Manager of the Jeypore Estate, says : " There is no need for restriction. But neither, so far as I know, would any privation be caused if restriction were necessary in the interests of other provinces. There would certainly be no privation involved in the prohibition of export. And, so far as I know, there would be no privation of a general character involved in the prohibition of the use of the drugs in Jeypore Estate above the ghats which is in my charge. I think that the introduction of the Government system of licensing sale would meet with no opposition from the people in the estate generally. I would recommend the Government system being introduced experimentally by opening a shop in Jeypore. I think there would be a great difficulty in interfering with the present growth of hemp. It would require an expensive preventive agency." This witness believes that the use of the drug in Jeypore is very limited.

The Commission find it difficult to believe that there will be greater difficulty in dealing with the control of hemp drugs in the Madras Agency Tracts, which are British territory, than in the Tributary States of the Central Provinces, where complete control has been secured, or in those of Bengal, where various measures have from time to time been introduced, though not with complete success. And in all these cases they regard control of cultivation as the object to be aimed at, inasmuch as it is the only satisfactory method of controlling the production and distribution of the drug.

735. As ganja is not produced or used in the Punjab, and charas is an imported article, which will be dealt with before it reaches any of the Natives States of that province, the control of bhang is the only question for consideration in connection with the latter ; and this is not a difficult one. • For bhang is only cultivated in Bahawalpur, and its sale is controlled. In any further arrangements made in the Punjab for the control of the hemp drugs, the co-operation of the various States may be desirable, but at present there is no need to offer any suggestions. The sale of the drugs is conducted under licenses granted by the States. In the Nabha State it is said that ganja and charas are prohibited.

736. In the Natives States under the Madras Government the system is much the same as in the Presidency itself. The introduction of control into the latter will render similar control in the former desirable.

737. The principles of administration in many of the Native States under the Bombay Government are similar to those in British territory ; and the conditions as regards growth of the hemp plant and its cultivation are also similar. Sale of the drugs appears to be invariably controlled. Here also any advance in the administration of the hemp drugs in British territory must be accompanied by the co-operation of the States. The mode in which this can be done need not be detailed. It is understood that the Bombay Excise Act has been adopted by many of the States, and it is probable that there will be no difficulty in securing a further development of their system if this is undertaken in British territory.

738. The remarks made in paragraph 735 regarding the Punjab States equally apply to the Khairpur State in Sind, where also bhang is grown.

739. In the foregoing remarks on the excise administration in respect of hemp drugs which exists in the Native States, the Commission have endeavoured to indicate where further control is desirable in the interests of the British administration. They are not in a position to estimate in each case the requirements of the States themselves, or the difficulties which may exist in the way of introducing a more effective system of control. But they have no reason to think that the system which they have recommended for British provinces is not generally applicable to these States, and they would suggest for consideration whether, subject to any special exceptions for which good reason may be alleged, they should not be invited to cooperate with the British Government in adopting that system. It is probable that in these States, as in most of the British provinces, the subject has not received the attention which it deserves, and that they will have no objection to uniting with the British Government in an effort to introduce effective control into this branch of their administration.