Cannabis Usage in 19th Century India: Regulation, Taxation and Revenue Systems in India.

Opening Quotes.

"Hemp drugs, of which ganja is the principal, constitute one of the chief sources of excise revenue in Bengal.

The importance of hemp-drugs in these provinces will be apparent from the fact that out of a total excise revenue of 115 lakhs in 1892-93, ganja and its congeners contributed 24 1/4 lakhs, or about 21 per cent., and occupy the second place, being next only to country spirits.

It is satisfactory to note that though the consumption of ganja has been reduced in 20 years by nearly one-third, the total revenue has during the same period been more than doubled."

- Bengal Memorandum, Report of the Indian Hemp Drugs Commission 1895


"For many years, Herr Minister, your eyes and ears have been attuned to theoretical aims rather than reality; they have long been accustomed - necessarily so! - to close themselves to much of what constitutes reality, to disregard it, to deny its existence. Do you know what I mean? Yes, you know. But perhaps the voice of a great poet, the voice of the Bible, the eternal voice of humanity that speaks clearly to us from art, would give you the power of true sight and hearing. What things you would see and hear! Nothing more about labour shortage and the price of coal, nothing more about tonnages and alliances, loans, troop levies, and all the rest of what you have hitherto regarded as the sole reality. Instead, you would see the earth, our patient old earth, so littered with the dead and dying, so ravaged and shattered, so charred and desecrated...You would hear the voices of the wounded, the screams of the mad, the accusing pliants of mothers and fathers, sweethearts and sisters, the people's cry of hunger."

 - To A Cabinet Minister, August 1917, If The War Goes On, Herman Hesse


"Rich people, hear those pockets jingle
Spare change, hear the down-and-outers cry
Money talks, they'll tip-toe up behind you
They'll steal what they can, off the cuff or on the sly"

 - Money Talks, JJ Cale

Questions on the subject by the Indian Hemp Drugs Commission 1895.

58. If you are acquainted with the present system of Excise Administration in your province in respect of hemp drugs, do you consider it to be working well, or do you consider it to be capable of improvement?

59. If capable of improvement, indicate in what direction or directions, giving reasons for your answer.

60. If ganja is produced in your province, do you think that the cultivation of the ganja-bearing plant and the process of its preparation are sufficiently controlled, or that the system requires modification in any respect? If so, in what respects and why?

61. If charas is produced in your province, do you think the cultivation of the hemp plant for its production and the process of preparation are sufficiently controlled, or that the system requires modification in any respect. If so, in what respects and why?

62. Do you think that the cultivation of the hemp plant for the production of bhang should be in any way controlled? Would this be feasible? If so, indicate the method by which such control could be exercised.

63. Have you any objection to the present system of a wholesale/retail vend of 1 ganja/2 charas/3 bhang or preparations of them? If you have any objections, state them at length, and indicate the improvements you suggest.

64. Have you any objections to the existing regulations governing the export and import of these drugs or of their preparations from and into your province, or their transport within the province? Give reasons for your answer.

65. In your opinion is the taxation of 1 ganja/2 charas/3 bhang reasonable with reference (a) to each other, (b) to alcoholic or other intoxicants? Give reasons for any alterations in the amount of taxation of any of these articles which you may suggest.

66. In your opinion is it necessary that there should be different rates of taxation for different kinds of ganja (such as the "flat," "round," and "broken" ganja produced in Bengal), or for ganja grown in different localities? If so, on what principle?

67. Having regard to the ultimate incidence of the tax on the consumer, have you any objections to the present method of taxing 1 ganja

68. Are there in your province houses or shops licensed for the sale of these drugs or their preparations where they may be consumed on the premises? What is your view in respect to such houses or shops?

69. Are the wishes of the people consulted or considered in any way before a shop is opened in any locality? What measures are taken for this purpose? Ought local public opinion to be thus considered?

70. Are there any facts regarding the importation or smuggling of hemp drugs from Native States into your province to which you wish to draw attention? Is duty really paid in respect to the ganja and other hemp drugs used? Or is there any general use of untaxed drugs, and by whom?  

My thoughts on the subject.

About 28 million years ago, god or nature, both one and the same, created a herb that benefits humans and other animals vastly. The herb is medicine against a vast array of illnesses, it relieves pain and fatigue, it is the safest and best  intoxicant created by nature, with small quantities providing immediate intoxication and pleasure, and it helps humans to meditate on the divine within themselves and around them. For millions of years this herb grew freely in nature, and was consumed by all who had the good fortune of access to it and who knew its nature. In India, the land that can truly be called the home of ganja, the herb was used widely by both humans and animals. It was the refuge of the hard working people, especially the poorest persons in the land, as well as the ill, and the millions of spiritual mendicants who used the herb to unite with the divine. It was deeply rooted in India's culture and used across the length and breadth of the country. Gradually the advent of new cultures from central Asia pushed large numbers of the native Indian population to the south and east of the country. These new cultures, with their own gods, kings, priests and businessmen, were averse to the usage of the herb and sought to imprint their own ways of life on the native Indians. These new cultures gradually assumed the roles of rulers and upper classes, pushing the ganja smoking populations to the lower castes and classes, and making them subservient to the newer cultures. This happened over a period of the last 3000 years or so, but even then the ganja culture was so embedded within Indian ways of life that these new rulers, businessmen and upper classes could not dislodge it, despite their clear dislike for it. Ganja was cultivated freely by large numbers of Indian farmers who sold their crop directly to their customers or through retailers and wholesalers, following the same model of distribution, regulation, taxation and sale as any other crop in India. Individuals, who so wished to, grew their own plants in their backyards. Most of these individual growers were the poorest people of the country, including its spiritual mendicants, who could not afford even the relatively cheap price at which the crop was sold at the time.

Even though the proponents of the Vedic religions, the Vaishnavas and the Islamic invaders were generally opposed to the ganja culture, they did not make serious attempts to suppress it, mostly focusing on expressing their displeasure and spreading propaganda quietly that ganja was bad and its users were low caste, low class, undesirable sections of society. Things changed for the worse in the last 400 years or so, with the advent of the British, who also sought to establish themselves as the ruling and upper classes, and to convert the Indian population to their own ways of life. They found allies in the existing Indian ruling and upper classes, and shared with them a common dislike for the ganja culture, which was as alien to them as it had been to the earlier migrants from central Asia. The British, who favored alcohol and opium, and increasingly tobacco, were successful in establishing total prohibition in Burma by 1850. This was relatively easy, as by this time the Burmese were already more aligned to opium, which flowed freely between China and Britain, and was the preferred drug of these two nations. Once total prohibition of ganja was established in Burma (now Myanmar), the British sought to then replicate the crime in India. But this was a completely different proposition. Given the pervasiveness of ganja in India, and the lack of complete control over the land, unlike in Burma, it was decided to gradually stifle the use of ganja through regulation and taxation, thus also earning revenue for the British empire. For the first time in India's history money became linked to the herb, signalling the start of the gradual strangulation of India's ganja culture.

British strategy to curb and end the ganja culture was first implemented in the British controlled provinces of Bengal, Northwestern Province, Assam, Central Provinces, Punjab, Madras and Bombay. The strategy was fine tuned in Bengal, with its proximity to Burma and an already significant opium and alcohol consuming population, and then gradually replicated to the other British controlled provinces. Between 1850 and 1894, successive laws were brought in through Excise Acts in the British controlled provinces. These included the Bengal Excise Act, VII of 1878 which was in effect in Bengal and Assam, the Excise Act XXII of 1881 which was in effect in the North Western and Central Provinces, as well as the Punjab, the Madras Abkari Act (1 of 1886) and the Bombay Excise Act V of 1878. All these Acts were governed by one goal, that of maximum revenue and minimum consumption. Even as the years from 1850 saw various changes to the Excise Acts to increase State revenue, they also saw the increasingly oppressive measures to stifle ganja cultivation, sale and consumption. In all the British provinces, the areas under cultivation were drastically reduced, specifically with the aim of aiding the administration in closely monitoring and supervising the ganja crop. Cultivators were required to procure licenses from the District Collectors and their crop was routinely monitored by government supervisors. They were required to intimate the administration in advance of harvesting their crops. The ganja crop could only be sold to licensed wholesale vendors. The license for wholesale vend in a particular area was often held by one or two wholesalers, most likely those favored by the administration, creating a system of monopoly and middlemen who vastly dictated prices and cornered profits. Retail sale was permitted only on the basis of retail licenses that were auctioned. All this had to flow through the Collectors and proceed only on their approval. Duty was imposed at both the wholesale and retail level. The number of retail outlets in a region were controlled and kept at the minimum possible to ensure the State's goal of maximum revenue with minimum consumption. Severe punishments were imposed for unauthorised cultivation, including individual home growing, as well as for unauthorised sale, movement and consumption of the herb. Limits were imposed on individual possession to prevent unauthorised movement and sale. The limits on possession were 5 tolas for ganja and charas and 1/4 ser for bhang in many places, and there was a desire to uniformly impose these limits across the country. The Indian Hemp Drugs Commission states that - "But upon the whole the Commission think that the two products, ganja and bhang, are sufficiently distinct, and that no great objection exists to allowing a higher maximum. They would therefore recommend that 5 tolas for ganja or charas and 20 tolas or 1/4 sér for bhang be regarded as the proper maxima for all provinces, and that as opportunity offers all Native States be advised to accept these limits."

Possibly the single most important factor in the elimination of the ganja culture was the curbs on ganja cultivation by the farmers. It is bizarre that the government chose to follow the model of opium regulation with regard to ganja. Opium is a foreign crop, originating from Greece. Opium culture in India was a very recent phenomenon in the 19th century, mainly introduced by the British, Mughals and Chinese. Its cultivation was limited. But that was not the case with ganja, which was one of India's most important agricultural crops, widely cultivated across the country by large numbers of farmers. The desire to reduce consumption of ganja, with the unstated desire to increase consumption of opium and alcohol, both of which brought much higher revenue margins for the State, drove the State to aggressively cut down on areas of ganja cultivation in the country. The system of procuring permission from the Collector to cultivate ganja, the constant supervision over the crop and its harvest, and the restrictions on sale and storage, and the continuous harassment by officials and the preventive establishment, drove numerous farmers away from ganja cultivation, thus helping the government achieve its objectives of reducing consumption. From a State perspective, large areas of cultivation meant that the State had to employ a much larger workforce to supervise and monitor the ganja cultivation and distribution. It was easier to cut down the area of cultivation instead. The Bengal Memorandum gives an example of this drastic reduction in the area of ganja cultivation as a result of State oppression when it states that - "During the first half of the present century the district of Jessore was celebrated for its ganja, and large quantities of the drug were prepared there for the market. The cultivation in Jessore was entirely suppressed in 1875. Ganja is now cultivated in a compact tract of country with a radius of about 16 miles lying in three districts, viz., Dinajpur, Rajshahi, and Bogra." The role that the repression of the ganja culture played in the Great Famine of Bengal is something worth pondering over.

Access to the herb was systematically curbed with tight control on retail outlets, with the Collector determining the number of retail licenses and retail outlets that a particular area must have. In conjunction with the crackdown on home growing, this tight control of the number of outlets also played a key part in reducing consumption. The report states that "The number of the population per retail license in the different provinces in 1892-93 was as follows:— Souls. Bengal 23,560 Assam 19,975 North-Western Provinces 12,012 Punjab 12,869 Central Provinces 9,109 Madras 144,781 Bombay 43,528 Sind 4,478 Berar 6,061 Ajmere 30,130 Coorg 28,842". Quite often the wholesaler also owned the retail license, thus establishing a complete monopoly on the market.

All these moves by the State over a period of 45 years, from 1850, eventually led to the following results: ganja cultivation areas were vastly reduced; cultivators found it increasingly difficult to work with the oppressive policies and many stopped cultivation of the ganja crop; a monopoly on wholesale vend was created and controlled by a few powerful individuals; retail outlets were vastly reduced; individual consumption dropped drastically alongside an increase in the consumption of opium and alcohol; smuggling increased significantly; the cost of ganja increased with increased taxes; the supply of ganja reduced with increased regulation and taxation.

The imposition of regulation and taxation of ganja in the British controlled territories presented the British with a new problem, a problem which now affects the whole world and requires vast amounts of resources to tackle, namely that of smuggling and the black market. It was found that while the excise system in the British controlled provinces worked well for the government and brought it revenue beyond its wildest dreams, ganja continued to flow into these provinces from the Native states that were outside British control since these Native states did not have the extent of regulation that the British provinces had, and ganja was much more abundant and cheaper in the Native states. To curb this, the British sought to get a buy in from the Native states to implement similar regulatory measures. Already many Native states, seeing the inflow of ganja revenue to the State in British controlled provinces, were implementing their own measures. The rulers of these Native states, who were driven by the same greed for money and power as the British, and the same lack of concern for the vast majority of their own working classes and poor, quickly emulated the British to bring about increasing regulation and taxation. Nearly all states, British or Native, imposed import and export duties on the movement of ganja and charas.

The revenues that the State procured from ganja regulation was by no means insignificant. In fact, ganja revenue was said to be only second to the revenue from country liquor in most places by 1892. It was in the range of about 20% or more of the total State revenue. This is despite the fact that the cost of intoxication from ganja was about 4 times cheaper than intoxication from an equivalent amount of opium, and about 12 times cheaper than intoxication from an equivalent amount of country liquor. But the margins for revenue were much greater for opium and alcohol than it was for ganja. Despite this wide disparity in revenue, the Hemp Commission states that in 1892-93, the revenues from ganja for the British controlled provinces, for which figure were available, were as follows:

• Bengal: "1892-93 1,510 maunds were exported to other provinces and 5,451 maunds paid duty, amounting to Rs. 12,80,631. The license fees for retail sale of ganja amounted to Rs. 11,05,435 in addition. The total revenue from charas, of which only 11 maunds 26 sérs paid duty, was Rs. 9,097, and from bhang, of which 1,033 maunds paid duty, Rs. 53,558."
• Assam: "The amount of ganja which paid duty in 1892-93 was 620 maunds, representing duty to the sum of Rs. 1,39,545. License fees amounted to Rs. 1,64,088."
• North Western Provinces: "The license fees realized from the auction of the monopoly of vend amounted to Rs. 7,04,788, and this represents the whole of the taxation levied in the province."
• Central Provinces: "The revenue derived from this source has been Rs. 2,18,000, of which Rs. 1,36,500 has been from license fees, and the rest from fixed duty. There is no revenue from charas, and from bhang only about Rs. 1,000."
• Madras: "In 1892-93 retail licenses was Rs. 47,292."
• Punjab: "The only taxation now levied is in the form of fees for the monopoly of vend. The excise income from intoxicating drugs in the Punjab is derived from the farm of the monopoly of sale within tahsils or other subdivisions of districts (Rule 1). The total amount of this income is between 1 and 1/2 and 1 and 3/4 lakhs per annum." 
• Bombay: Rs. 1,22,987

Revenue from the Hill States lying between Bengal, Central Provinces, and Madras were:

• Chota Nagpur Tributary Mahals: Rs. 1,86,327
• Orissa Tributary Mahals: Rs. 11,54,975
• Chhattisgarh States: Rs. 7,88,591

That totals up to Rs. 61,50,314 for the year 1892-93, which I can say with certainty is under-reported.
 The figures from Indian Native states were, of course, not available with the British administration at that time.

Despite these vast sums of money flowing in for the State, and the immense oppression that this brought upon the people of the country, especially the poorest and working classes who formed the majority, the administration was not satisfied. It wanted to tax the people more and more with the objective of achieving parity with opium and alcohol, and eventually dissuading the Indian population from consuming ganja. Mr. Monteath, Collector, said: "I think the present system of excise administration in respect of hemp drugs has worked fairly well, but that the time has come for putting these drugs on the same footing as alcoholic stimulants and opium." Mr. Ebden, Collector, said: "The hemp drugs are very much cheaper than liquor now. For a pice a man can get enough ganja to last him for a week if he is a moderate consumer. There is, therefore, considerable margin for heavier taxation of the drug without driving the people to liquor or other intoxicants. I consider there is a considerable margin for taxation, though the drug is consumed by the very poor. I have no sympathy with the excessive consumer, and the moderate consumer would not feel a moderate increase." Mr. Sinclair, Collector, said: "I consider there is a margin for increasing taxation, having regard to the price of other intoxicants, the fact that the drugs are mainly used by the poor, and the danger of smuggling." Mr. Almon, Assistant Collector, Bombay, said: "My impression is that the tax on the drugs is too low. I think that the ordinary liquor consumer pays twice as much for what he wants as the ordinary ganja consumer would, or three times as much as the ordinary bhang drinker. I think the rates should be equalized."

Why did such a thing as the suppression of India's long tradition of ganja usage happen without even a token resistance? The reasons are many. Some are as follows: The class of people who worked actively to bring about the strangulation of ganja consisted of British officials, Indian high castes, zamindars, magistrates, collectors, and religious heads of religions opposed to ganja, such as many Vaishnava and Muslim orthodoxy, who all sang the same tune as the British that ganja was a dangerous drug, much more dangerous than opium and alcohol; the British and Indian elites feared that the ganja communities were most likely to oppose them, especially after the mutinies around 1850; the British surreptitiously created the myth that ganja caused insanity and crime; the myth was created that all ganja consumers were excessive users; the myth was created that ganja was much more harmful than bhang even though both are parts of the same plant and bhang is consumed in quantities that ensure the same amount of intoxication as much smaller quantities of ganja or charas; the majority of the ganja consumers were from the working and labouring classes, as well as the poorest people, without voice, and it was easy to bring to bear the might of State oppression on these people through the system of law enforcement and judiciary; for the Indian ruling and upper classes, it represented an opportunity to put an end to the much reviled ganja culture, with its own traditions and gods predating those of the elites, and to punish and oppress the original inhabitants of India further; the increased access provided to alcohol and opium, and tobacco and increased State and upper class support for these harmful drugs. The persons in the ruling and upper classes who had something against ganja and its users many.

The ganja culture in India was more or less stamped out by the end of the 19th century, despite the various findings that came out as a result of the Indian Hemp Drugs Commission's work in 1895 regarding the absurdity of such a move. The findings of the Commission included: ganja as a cause of insanity, the strongest argument on which ganja prohibition was introduced in Burma and then subsequently extended to not just India but world wide, was false; most consumers of ganja were moderate consumers, with only a very small percentage being excessive consumers; ganja was one of the most important medicines of India; ganja was a very significant part of India's spiritual tradition, especially among the Shaivaites, indigenous tribes and communities, Sufis and animistic worshipers; ganja was one of the most important agricultural crops of India; ganja's association with crime was a myth; ganja was the succor of India's majority - its working classes, and especially the poorest people of the country; the immediate effects of ganja were pleasant and long term effects were not harmful; an overwhelming majority of people in India, including those among the ruling elites, opposed complete prohibition of ganja; the warnings by various experts that prohibition of ganja would lead to the use of more harmful drugs, such as alcohol and opium.

The result of this gradual strangulation of ganja culture in India was the replacement of ganja with alcohol, opium, and tobacco, all of which were much more expensive, much more harmful and much less accessible to the Indian population. When we consider that easily about 40% of the Indian adult population in the 19th century were moderate consumers of ganja, we can gauge the extent of the oppression. We must remember that before the advent of tobacco, which arrived with the Europeans in around the 18th century, Indians smoked bhang leaves or ganja. It was a replacement of India's entire smoking culture that happened through ganja prohibition and regulation. The drugs that replaced ganja - alcohol, opium, and tobacco - were cited as far less harmful than ganja. Today we see the millions of annual deaths to alcohol, opioids, and tobacco as a testimony to this grossly misplaced public opinion. Not only these dangerous drugs, with the total prohibition of ganja in India today, we see the waves of much deadlier newer synthetic drugs - heroin, methamphetamine, cocaine, novel psychotropic drugs, synthetic pharmaceutical drugs - sweeping across the country and wrecking havoc with public health and society. The State has systematically destroyed public health in the name of ganja prohibition and increasing revenue, all at the cost of the majority of the country's people, even its animals and the environment.

In the US, 20 States have legalized adult recreational cannabis as of 2022. The cannabis activism group NORML reports that - 'Legal cannabis markets generated an estimated $2.8 billion in excise taxes in fiscal year 2022 (July 2021 to June 2022), according to an analysis provided by The Urban-Brookings Tax Policy Center. Regulators in California collected the  largest amount of excise tax revenue ($774 million) while regulators in Alaska collected the least ($30 million). In the two states with the most mature adult-use cannabis markets – Colorado and Washington – cannabis excise tax revenues outpaced those collected on the sale of alcohol and tobacco.' - https://norml.org/news/2022/10/13/analysis-marijuana-excise-taxes-yield-nearly-3-billion-in-revenue-in-fiscal-year-2022. With another 30 States eventually moving to legalization, these numbers are only set to increase. 

Wholesalers and retailers reaped exorbitant profits in the 19th century and got away with it without paying any tax on profits. The figures for 1892 do not even take into account additional factors that would be relevant today such as: sales tax; income tax for wholesalers, retailers and farmers; import and export duties. 

One witness, MR. A. H. PLUNKETT, City Magistrate, Poona states that - "In the course of enquiries made by me regarding matters connected with the sale of the hemp plant drugs, it has struck me that the profits which the farmers of the right of vending the drugs make are very large. I shall endeavour briefly to state the accounts of the ganja farmer, so that his profits may be readily ascertained. In writing up the accounts [shown in figure above] I have closely followed the figures available for the Poona district."

According to NORML, in the United States -  "Cannabis cultivated in 2021 for the state-legal adult-use market possessed a wholesale harvest cash value of more than $5 billion, making it the nation’s sixth most valuable cash crop, according to an analysis provided today by Leafly.com and Whitney Economics. Only corn, soybeans, hay, wheat, and cotton bring in more money on a wholesale basis. In three states – Alaska, Massachusetts, and New Jersey – cannabis grown for the legal  marketplace is the 'single most valuable crop.'" - https://norml.org/blog/2022/11/01/report-legal-cannabis-once-again-ranks-among-nations-most-valuable-crops/

 The Indian Hemp Drugs Commission estimates an average annual revenue in  Bengal of Rs 3,326 per acre of ganja cultivated, which to me appears to be an exorbitant amount even today.

As medicine, ganja offsets hundreds of harmful synthetic pharmaceutical drugs that cause more harm than good, drugs that are so expensive that only the well-to-do in India can afford them. As an intoxicant, ganja is the best and safest intoxicant in nature, with much smaller quantities required to reach the level of intoxication of opioids, synthetic drugs or alcohol. Ganja, as an inherently Indian commodity, with varieties that are indigenous to the country, can form one of the key export commodities of the country, like black pepper, sugar or coffee. Today, ganja is smuggled in from legal US states into India, that is the state that the land of ganja has reached. In terms of job creation, in recent times, the cannabis industry has been one of the highest job creators in the US economy. Thousands of crores are spent on a preventive establishment- excise, law enforcement, drug enforcement, judiciary, prisons -  that tries to prevent the black market for ganja, an establishment that fails miserably as ganja thrives with its consumption moving underground. In India, many states have alcohol, opioids, and tobacco as primary sources of revenue, despite the damage that these drugs wrecks on public health.

If we look at the revenue for the state of Bengal for the fiscal year 2021-2022, we find that it is around Rs. 75,000 crores. Considering that in 1892, ganja contributed around 20% of the state revenue in Bengal, that would amount to approximately Rs. 15,000 crores of additional state revenue for Bengal today. This is just revenue from licensing for wholesalers and retailers and duty on ganja for these vendors. If all factors were considered, I would place the total revenue possible for Bengal from ganja today at at least Rs. 30,000 crores. Looking at India as a whole, the total tax collection for 2022-2023 is estimated at Rs 30 lakh crores. If 20% of revenue was to be got from ganja, that would mean an additional Rs 6 lakh crores revenue that the State is missing out on due to ganja prohibition, revenue that flows into the black market.  The above estimates of revenue fall in line with my estimated Rs 12 lakh crores, i.e. $ 150 billion, or more, that would be available for the Indian economy as documented in my Draft Cannabis Policy for India 2019, which also includes many other factors, such as savings on health care, etc. Today, no Indian government seems even slightly interested in looking to bring back India's herb into the mainstream, despite its benefits for people, government and environment. The State, instead, invents more and more painful methods of oppressing the people such as fake pandemics and communal division.

Ganja is not, and never was, a money spinning tool for governments. It is, first and foremost, a gift of nature to all nature's creation, not just humans. Even though the Indian State may be tempted to copy the US, or its own past history, in terms of methods of regulation and taxation, we must not forget that the health and well being of the people and the environment overrides all desire to make money for the State. In the US, in places where it is legalized, ganja is priced so high that it is only the upper classes who can afford to buy ganja at the retail rates at present, the same upper classes who were instrumental in ganja prohibition in the US, and subsequently world wide. In India, the rich upper classes, the same upper classes who were instrumental in ganja prohibition in India, pay exorbitant sums of money to procure their ganja, money which flows into the hands of the corrupt law enforcement and drug enforcement agencies, criminals and corrupt politicians. The poorest and the middle class in India have no access to it, cannot afford it, and are sent to prison for their efforts to access the herb. Ganja, we must not forget, is the herb of the poorest, most vulnerable sections of society. It is to these sections of society, from which it has been unjustly taken away, that it must be handed back.

The current pricing, of about Rs. 80,000 or more for a kilogram in the market, might be a good price in the US, but for a country like India, where a majority of the people live below the poverty line, this is too expensive for most of us. I would think that a retail pricing that is reasonably affordable to all - in the range of Rs 1000 or less for a kilogram of ganja for the consumer – shound be the goal to aim for, so that ganja is available to all. That would mean that even the poorest person in India would only need to pay Rs 10 for 10 grams of ganja daily, the amount of ganja that a moderate consumer is estimated to have consumed in the 19th century. In that sense, ganja must be viewed as a commodity, similar to tea or coffee. For the rich, who would like to pay the price that reflects their egos for everything, there can always be high end craft ganja at high prices sold in high end retail outlets, similar to civet coffee. A price of Rs. 1000 per kg for the consumer is not too low. Consider this. With a population of 1.4 billion, India has an adult population (above 18 years) of about 950 million. If 30% of this population, i.e. 285 million, consumed, on an average, 4 kgs of ganja year, that would come up to approximately 1.14 billion kgs of ganja, or Rs 1,140 billion per year at Rs 1000/kg i.e. about $ 14.25 billion. With taxation in all forms, i.e. licensing for wholesale and retail, sales tax, income tax, etc., I see the State itself making $ 15 billion from just ganja sales. The positive impact that complete legalization will have on agriculture, business, industry, economy, health, environment, legal reforms, export, and cutting down of hefty import bills, such as that for active pharmaceutical ingredients and chemical fertilizers could easily be in the range of $500 billion or so. The US, with partial legalization in 23 out of 50 states, as of May 2023, has a projected cannabis market value of $100 billion for 2024. For India, with a population nearly four times that of the US, a $500 billion cannabis market is not at all an exaggeration.

To recover from where we are now, the State must introduce aggressive policies, in the form of subsidies if required for the cultivation of ganja, so that its availability reaches the levels that were there before the 19th century. There should be no restrictions or regulation of the ganja farmer, no limits on how much ganja can be cultivated, neither licenses nor permits. The farmer should be as free to cultivate ganja as any other crop. To enable the poorest sections of society to have access to the herb, there should be no restrictions or curbs on home growing of ganja, neither in terms of number of plants grown, nor in terms of quantity possessed. The home growing of ganja must be brought on par with that of all other natural plants, which have no regulations on their home growing.The State must reverse its anti-ganja propaganda and speak the truth regarding the herb to change public opinion. The efforts of the US states that have legalized ganja, and that of Canada and Uruguay, can provide direction in this regard. At least a decade of dedicated focus by all concerned is required to bring ganja back into the mainstream. The revenues will come in, beyond the wildest dreams of any government or businessman. But more importantly, the country will achieve public health and environmental sustainability at levels that will far out measure the gains in terms of revenue into State coffers. To restate the much stated obvious, what applies to India, applies to every single nation of the world...

Summary findings of the Commission.

Following are the summary findings of the Indian Hemp Drugs Commission of 1895 with regard to the above questions on regulation, taxation and revenue systems for ganja, charas and bhang across India.

EXISTING SYSTEMS DESCRIBED.

Systems of excise in the various provinces.

591. The various systems of excise administration obtaining in the different provinces have been described in the memoranda which are published in Vol. III Appendices. A brief notice of these systems will be reproduced here, and the question how far they fulfil the conditions of the policy above noted will then be discussed.

BENGAL. 

Law in force.
592. The law in force in Bengal is contained chiefly in the Bengal Excise Act, VII of 1878, and rules passed thereunder. The principal provisions are as follows:— Without a license from the Collector, the manufacture of ganja, charas, and bhang, and every preparation and admixture of the same, and the cultivation of plants from which they are produced, are prohibited (section 5). No person is allowed to sell any of the above drugs or preparations or admixtures of them without a license from the Collector (section 11). Fees for licenses for retail sale of the above drugs may be fixed by the Board of Revenue, and will be payable accordingly (section 13). No license fees are leviable for the privilege of wholesale vend. The limit for retail sale is as follows: Ganja or bhang, or any preparation or admixture of the same, one quarter of a sér; charas, or any preparation or admixture of the same, 5 tolas weight. No licensed wholesale vendor is allowed to sell by retail and no licensed retail vendor is allowed to sell by wholesale, but the same person may hold a license for wholesale and retail vend. The Board may fix a larger quantity as the limit for retail sale (sections 15 and 60). No cultivator of the plants producing ganja or bhang may sell such plants, or any ganja or bhang produced therefrom, to any one other than a person duly authorized to purchase the same by pass or license from the Collector (section 16). No person, not being a licensed manufacturer or vendor or a person duly authorized to supply licensed vendors, may have in his possession a greater quantity of ganja, charas, and bhang, or any preparation or admixture of the same, than that specified above as the limit for retail sale (section 17).

The penalty attached to the breach of this provision does not apply to authorized cultivators (section 62). The Board may, with the sanction of the Local Government, declare that the possession of any foreign ganja, charas, or bhang, or any preparation or admixture of the same, is absolutely prohibited in any specified tract, or that such possession shall be limited to specified quantities, unless a license has been granted for the possession of a larger quantity of such article. The Board may fix the fee or duty payable for such license (section 17-A). Under this section the limit of legal possession of Garhjat ganja has been fixed at 5 tolas.

The Board, with the sanction of the Local Government, may frame rules for prescribing the conditions under which ganja, charas, or bhang, or any preparation or admixture of the same, manufactured in any part of British India beyond the territory to which the Act extends may be imported, and, where no duty has previously been paid on such articles, the conditions under which they may be imported and bonded within such limits (section 19-A).

The Collector may, with the sanction of the Board, let in farm the duties leviable on the abovementioned drugs, or any of them, in any district or division of a district (section 20).

The Board may prescribe rules for the invitation and acceptance of tenders for such farms, for the requisition of security for the due fulfilment of the engagements entered into by the farmers, and as to the form and conditions of the lease. The Board may regulate the form and conditions of all licenses granted under the Act (section 28).

The Board may frame rules for the grant of licenses or passes to persons purchasing, transporting, or storing ganja, charas, or bhang for the supply of the licensed vendors of those drugs, and may place the cultivation, preparation, and store of such drugs under such supervision as may be deemed necessary to secure the duty leviable thereon (section 35).

Manufacture not defined.
593. With reference to the above provisions, the Commission observe that there is no definition in the Act of "manufacture," and that, apart from the provision relating to possession, the collection of bhang from the hemp plant, which hardly comes under the designation of "manufacture," does not appear to be prohibited or controlled.

The system in Bengal: Rajshahi ganja.
594. The system which has been elaborated under these provisions of the law will now be briefly described. Though the hemp plant grows spontaneously in many districts of Bengal, this fact does not seem to affect the ganja administration to any great extent, as ganja, except of a very inferior sort, cannot be manufactured from the wild plants. Cultivation of the hemp plant for the production of ganja is only allowed in an area of about 64 square miles in the Rajshahi Division. Every cultivator has to take out a license for which no fee is charged. Within the area above mentioned, which, for the purposes of ganja administration, is placed under the jurisdiction of the Collector of Rajshahi, though it lies in the three districts of Rajshahi, Dinajpur, and Bogra, applications for licenses are granted, unless there be any valid objection, and remain in force for one working year. The average area of ganja cultivation is 2,220 bighas, equal to 740 acres. What follows is in the words of the Hon'ble D. R. Lyall, C.S.I., Member, Board of Revenue: "The cultivation is inspected by supervisors throughout the period of growth, the areas cultivated being compared with the licenses. The cultivator cuts his crop not necessarily under the supervisor's eye, nor does he require to get permission, but he gives 3 days' notice of his intention to cut. The manufacture is done by the raiyat at his own option as to time and place. The supervisors move about and supervise the manufacture as far as they can. Practically the bulk of the manufacture is not completed under the supervisor's eye. When the manufacture is complete, the raiyat carries his produce to his own store under the latter part of rule 11 of section xx of the Excise Manual, page 155, there being no public godown large enough to receive the whole crop. A license is given to the raiyat describing the quantity and kind of ganja he is allowed to store, and authorizing him to keep it until he disposes of it to a licensed purchaser. The amount is arrived at by the supervisors by inspection of the crop after manufacture and the number of bundles into which it is manufactured. The crop is made up by the raiyat into 2-sér bundles, and by long practice the measurement is wonderfully exact, though it is done by guess. The raiyats' store is generally situated close to his manufacturing ground. The wholesale dealer comes to the mahal armed with a license from the Collector of his own district giving the amount he is authorized to export. He makes his own arrangements with the raiyats, visiting any store he likes, and, as far as I know, unaccompanied by a supervisor or any excise officer. Having made his bargain, the dealer brings the ganja to the Government gola, where it is weighed, and the sale recorded on the back of the raiyat's license as well as in the Government books. No pass is required for the removal of the ganja from the raiyats' store to the Government gola. The dealer's consignment is sealed at the Government gola, and then carried by the wholesale dealer under pass to his gola at the head-quarters or sub-division of the place of import. There it is placed under double lock, one being in the possession of the dealer, and the other in the possession of the Excise Deputy Collector. The wholesale dealer sells to the retail vendor at his own price, and the retail vendor sells to the public at his own price, except in one district, where a maximum limit is imposed under the terms of the arrangement with the monopolist. This district is Cuttack. The right of retail vend is sold by auction."

Where the existing practice differs from the rules.
595. The above procedure differs in one important respect from that prescribed in the rules issued by the Board, inasmuch as these rules contemplate the storing of the ganja in a public gola, and there is an exceptional provision permitting storage in a private gola, when a cultivator can satisfy the supervisor that he has a secure private place of his own. He is then allowed to store his ganja there subject to periodical inspection by the supervisor or his assistants. There is no public gola for the storage of the crop, hence the exception has become the rule.
 
Garhjat ganja and illicit practices.
596. Ganja is not ordinarily imported from any other British province into Bengal, but ganja grown in the Orissa Tributary Mahals (Garhjat) is imported under passes in small quantities into the districts of the Orissa Division. The rules as to storage and levy of duty on Rajshahi ganja apply mutatis mutandis to Garhjat ganja. Any vendor licensed to retail Rajshahi ganja may sell Garhjat ganja under the same license. The Excise Commissioner states that Garhjat ganja is largely smuggled into Orissa. This subject will be again mentioned further on. With this exception, the growth and trade in ganja in Bengal is fairly under control. The cases of illicit cultivation are few. They are all of a petty description, such as the growing of a few plants (very often only a single plant) in the courtyards of houses more for the purpose of using the leaves as bhang than for manufacturing ganja. Cases of unlicensed sale of ganja, though comparatively numerous, generally represent sales of the excised drug by petty dealers who have obtained their supplies from licensed vendors, and often occur from the licensed shops being too few to supply the local demand. The system in force in the Ganja Mahal in the Rajshahi Division gives some opportunity for illicit disposal of the ganja, partly owing to the inadequacy of the supervising staff, and partly to the storage arrangements above mentioned; but the principal authorities are of opinion that very little smuggling actually occurs. Mr. Lyall, while admitting that the facility afforded for smuggling constitutes the weak part of the Bengal system, gives the following reasons for his belief that it does not exist to any extent: "One at least is that I have never come across a case of smuggled ganja, though cases of opium smuggling are not uncommon. The safeguards against illicit practices are the concentration of the area of growth and the crop estimate made by the supervisors when the crop is on the ground. The bulkiness of ganja is an additional safeguard as compared with opium. We have never within my knowledge discovered a cultivator disposing of his crop illegally. Of course, if there were collusion between the protective establishment and the cultivators, this safeguard would be of little use; but, as a fact, I believe the establishment is trustworthy."

Charas.
597. Charas is not made in Bengal. A very small amount is imported from Upper India under passes, and after paying duty is sold by licensed vendors.

Bhang.
598. There is no licensed cultivation of the hemp plant for production of bhang in Bengal. Bhang is either imported from the North-Western Provinces or collected for the market from the spontaneous growth which abounds in Bhagalpur and in districts north of the Ganges, especially Monghyr and Purnea. It has been observed above that this collection of the leaves hardly comes within the term "manufacture," and no license is, therefore, legally necessary for the process. But legal possession of bhang, except by licensed persons, is limited to 1/4 sér, hence all transactions of any importance require a license. On the other hand, there is no restriction on the use of the hemp plant in its green state. It is only when prepared to be used, stored, or sold as a narcotic or stimulant that it comes under Excise rules. Passes are required for the purchase or obtaining of bhang for export to another district, or for sale, which must be accompanied by a license from the Collector of the district into which the bhang is to be conveyed, or in which it is to be stored. The rules for storage are similar to those for ganja, and a small duty is levied when the bhang is removed from the warehouse to be taken to the shop for retail sale. The extensive growth of the plant in the districts above mentioned renders control of transactions in bhang very difficult, and it is certain that the amount brought to record and dealt with under Excise rules does not by any means represent all the bhang consumed in Bengal. "The use of untaxed bhang," says the Excise Commissioner, "is general." In January 1893 orders were issued by the Excise Commissioner with the object of extirpating the spontaneous growth of the plant, and thus bringing bhang under more efficient excise control; but the orders were cancelled by the Bengal Government in the following June on the ground that the attempt was impracticable, and likely to have no result except petty oppression. There is therefore practically little control over the production and use of bhang in Bengal; and although the revenue from excise bhang has increased considerably, this is mainly owing to the fact that the duty is very low and not worth evading on the part of the licensed vendors.

Wholesale vend.
599. The Act is almost silent on the subject of wholesale vendors. The agency by which the retail vendors are supplied has grown up from the exigencies of the case. Every wholesale vendor must rent one of the warehouses provided by Government for storing ganja, or must provide one to the satisfaction of the Collector who grants the license. Where warehouses are provided by Government, the Commissioner determines the number of private warehouses, if any, to be licensed. The number of wholesale dealers in any place must not exceed the number of Government and licensed warehouses. Where the number of applicants exceeds the number of Government warehouses, the leases of the latter are put up to auction. These middlemen reap large profits, and to a large extent control the market. They very often combine the functions of retail vendor with those of wholesale vendor. Mr. Price, Collector of Rajshahi, says of them that they superintend the manufacture of the ganja to suit their own tastes, and practically become the owners of the ganja without assuming the responsibilities that devolve on them. He says that their absence from the ganja tract would itself cause the decline of the cultivation. Out of this state of things another class has arisen in the ganja brokers. These men negotiate for the sale of the standing or manufactured crop to wholesale vendors. Forms of licenses to ganja brokers and wholesale vendors have been issued by the Board.

Retail vend.
600. For the retail vend of ganja, charas, and bhang separate licenses are issued. There is no restriction as to the price at which the drugs are to be sold to the public. The number of shops is fixed by the Collector according to the demand for the drug. The licenses are sold by public auction for one year. Notwithstanding occasional fluctuations, the number of ganja shops has been reduced in the last 20 years from 4,398 to 2,672. The number of charas shops decreased largely down to 1889-90, since when there has been an increase, but not nearly to the former figure. The number of bhang shops has been more stationary. Consumption on the premises is not prohibited. There is no restriction as to the persons to whom the drugs may be sold. Local opinion is not ordinarily consulted regarding the establishment of shops, but attention is paid to any reasonable objection raised against any particular site.

Taxation.
601. The revenue from hemp drugs in Bengal is realized in the form of direct duty and license fees for the right of retail vend at a fixed shop only. The duties per sér levied on the drugs warehoused are as follows:—
For the province generally. Ganja: Rs. A. P. Chur 9 0 0 Round 7 8 0 Flat, small twigs 7 4 0 "large" 6 0 0 Charas 8 0 0 Bhang 0 8 0
For the Orissa Division. Ganja: Rs. A. P. Chur 7 8 0 Round 6 4 0 Flat, small twigs 4 8 0 "large" 6 0 0 Charas 8 0 0 Bhang 0 8 0

The duty is levied before the drugs are removed from the wholesale dealer's warehouse. The duty is calculated on the actual weight of the drug issued, except in the case of charas, half the duty on which is levied at the time of taking out the pass for the importation of the drug.

The importance of the ganja traffic in Bengal may be gathered from the fact that in the year 1892-93 1,510 maunds were exported to other provinces and 5,451 maunds paid duty, amounting to Rs. 12,80,631. The license fees for retail sale of ganja amounted to Rs. 11,05,435 in addition. The total revenue from charas, of which only 11 maunds 26 sérs paid duty, was Rs. 9,097, and from bhang, of which 1,033 maunds paid duty, Rs. 53,558.

ASSAM. 

Law in force.
602. The law in force in Assam is the same as in Bengal, and the Bengal Excise Manual is followed.

Supply of the drugs.
603. There is no licensed cultivation of hemp for the production of the drugs. Excise ganja is supplied from Bengal under pass, and pays duty in the province. The vend of charas and bhang is practically forbidden, as no licenses for their sale have been taken out. Wild hemp grows spontaneously in many parts of the province, and especially in the hill tracts. The officiating Excise Commissioner says: "There is nothing to show that the trade in the wild plant is sufficiently large to compete seriously with excise ganja, unless possibly in the Khasi Hills, where the continuous decrease in the consumption of the Rajshahi drug can, I think, only be attributed to the cheapness of wild hemp and the great facilities for its use. The excise administration of the district is attended by abnormal difficulties owing to the fact that the Khasi Hills are parcelled out into the territories of many semi-independent chiefs. The wild plant is used by habitual consumers only as a pis aller, and when their supply of the excise ganja runs short." This view is not shared by the Excise Commissioner, Mr. Driberg, who says: "I think this so-called wild hemp affects our revenue very considerably. It is used by certain consumers, and is also mixed by vendors with excise ganja and sold." Mr. Driberg states that he does not think there is any such thing as wild ganja. As a rule the plant is found in lands occupied by the owner's homestead. From this he infers that the growth is very ordinarily surreptitious. He thinks that the practice of Deputy Commissioners in treating this growth as unlicensed cultivation differs considerably. A circular issued by the Chief Commissioner in October 1882 contains a ruling which appears to be the cause of this diversity of practice. The concluding portion runs as follows: "You will observe that in rule 2, section 17, of Chapter XV, of the Board's Rules it is said that 'no restriction is imposed on the use of the hemp plant in its green state for medical or other purposes, or on its manipulation for the manufacture of fibre. But any preparation of the plant to be used, stored, and sold as a narcotic or stimulant is prohibited except under the rules framed by the administration.' This rule mentions the medicinal use of the plant only 'in its green state;' but if, as appears to be the case, the wild hemp is also used for medicine for cattle when dried, the Chief Commissioner desires that the rule may be liberally interpreted, and no penalty imposed when it is probable that the cultivation or the drying and storing of it was only for this purpose. Whether this is so or not is a question of fact." Mr. Driberg, whose experience of Assam is unique, does not believe that the plant is used to any extent for cattle. He thinks that it is a mere excuse made by those who really want to use it. He thinks the circular was unnecessary, and issued on insufficient information. The subject is discussed in Chapter X.

System of vend and taxation.
604. The system of vend is the same as in Bengal. The amount of ganja which paid duty in 1892-93 was 620 maunds, representing duty to the sum of Rs. 1,39,545. License fees amounted to Rs. 1,64,088.

NORTH-WESTERN PROVINCES. 

Law in force.
605. The excise on hemp drugs in the North-Western Provinces is administered under Act XXII of 1881 and rules thereunder. The principal provisions of the law are as follows:—
The chief revenue authority may from time to time make such rules to restrict and regulate the cultivation of hemp and the preparation of intoxicating drugs therefrom as it may deem necessary to secure the duty leviable in respect of those drugs (section 11). No intoxicating drug may be sold except under and in accordance with the terms of a license granted under the provisions of the Act. But any cultivator of the hemp plant may sell any intoxicating drug prepared from his plant to any person licensed under the Act to sell the same, or to any person authorized to purchase the same, by the Collector's order in writing (section 12). Subject to the rules made by the chief revenue authority under the power conferred by the Act, the Collector may grant licenses for the retail sale of intoxicating drugs within his district, or any part thereof, or at any place therein. Licenses for the sale of intoxicating drugs wholesale may be granted only by such officer as the Local Government from time to time appoints (section 13). The Collector may, with the sanction of the chief revenue authority, let in farm the fees leviable in any district or part of a district on licenses for the retail sale of intoxicating drugs (section 16). No person may have in his possession any larger quantity of the drugs than that specified as the limit of retail sale unless he is permitted to manufacture or sell the same. This amount is— Ganja or charas, or any preparation or admixture thereof, 5 tolas. Bhang, or any preparation or admixture thereof, one quarter of a sér (section 22). The chief controlling revenue authority may from time to time make rules consistent with the Act as to the fee payable for each license or farm and as to the form of any license or farming lease (section 55). The Act contains no provision relating to manufacture, import, export, or transport.

Supply of the drugs;
606. Under the rules now in force the cultivation of the hemp plant is free to all parties. There is no check therefore on the production of hemp drugs, and the possession of the drug without limit of amount is permitted to all cultivators, to owners of land in which the plant grows spontaneously, to licensed vendors, or to persons duly authorized to supply licensed vendors. This permission is also considered to apply to the sale of their bhang by owners of spontaneous produce. Restriction, therefore, only operates when the cultivator sells his produce, and there is practically little, if any, check on the supply of the drugs produced in the province. The Excise Commissioner states that ganja of fair or good quality can be made, and is made locally. Charas is produced to some extent in Kumaon; and as the hemp plant grows abundantly in all the montane and submontane districts, bhang can be produced to any extent.

Imports of the drugs.
607. The ganja consumed in the province is mainly derived from Bengal, the Central Provinces, Gwalior, Bundelkhand, and, in small quantities, from Nepal and Indore, possibly also from Rewah. Where the production of this ganja is under excise management, these imports are of course subject to such management. The importers of ganja and bhang are said to be all contractors holding licenses for the sale of the drugs. Charas is brought by Punjabi traders, who sell to the contractors. These traders take out no licenses, and the Excise Commissioner states that the legality of the arrangement is questionable. Some of these traders themselves hold district contracts. Nearly the whole of the bhang consumed is grown in the province. A certain amount is imported from the Punjab, and goes chiefly to the western districts. Notwithstanding the silence of the Act regarding import of the drugs, a rule has been passed that no ganja, charas, or bhang shall be imported into the province except under a pass. No import duty is levied. Transport and export are also made subject to a free pass.

Smuggling.
608. The Excise Commissioner is of opinion that the amount of smuggling from outside the province is quite inconsiderable, and this is confirmed by the Hon'ble A. Cadell, the Member of the Board in charge of Excise, and there is no very definite evidence to the contrary.

Defect in the North-Western Provinces system of supply.
609. The weak point in the North-Western Provinces system of supply is that the ganja which comes from the different provinces and States abovementioned is taxed before it reaches the frontier at widely different rates, and there is no equalization of this taxation after it has reached the province. Bengal ganja pays from Rs. 6 to Rs. 9 per sér, the Khandwa ganja pays no duty but small fees which may amount to Rs. 2 per maund, Gwalior ganja less than Rs. 5 per maund, and Bundelkhand ganja possibly as much as Rs. 2 per maund. And these different kinds of ganja are freely available under existing regulations to the licensed vendor, who has it in his power to play them off on the consumer in such a way as will best repay him without damaging his credit. In addition to this, the cultivation and manufacture of ganja locally is under no legal control. It is unnecessary to say more on this subject, as the Excise authorities have recorded their opinion that the present system needs reform, and proposals have been made which will be considered further on.

System of vend.
610. The right of selling the drugs is farmed to contractors, who are at liberty to procure the drugs wherever they like, and sell them at any price they choose. No distinction is drawn between the different kinds of drugs all are included in the same license, and are stored by the farmer on his own premises. The contracts are usually for an entire district; in some cases for tahsils or parganas. There is nothing to prevent a contractor having separate contracts for several districts. The ordinary period is for one year, but contracts are now often given for two or three years, and the longer periods always fetch proportionally higher sums. The number and locality of the retail shops is fixed by the Collector subject to the orders of the Board, and is revised from time to time. The contractor either sub-lets the shops or works them through his servants. As a rule he holds the best shops in the large towns in direct management and sub-lets the rest. The contracts are sold by auction. The number of capitalists engaged in the trade is not very large, and nothing is commoner among them than combinations to keep down the price. The above account is taken from the Excise Commissioner's memorandum, who adds: "It is a defect in the system that it leaves the whole of the revenue collected here to be determined by the competition of the auctions. The advantages of the system are that a large revenue is very easily and cheaply collected, and that smuggling and other evasive illegal acts are minimized, The contractor has no reason to commit them himself, and it is his interest to detect any one attempting them. This is no small advantage from an administrative point of view. Retail prices are under the existing system kept at the highest possible point."

Consumption of drugs on the premises is not prohibited in the shop licenses, nor is there any restriction as to the persons to whom the drugs may be sold. Local opinion is not ordinarily consulted. Mr. Cadell says: "Hitherto the objection to shops has always come from above, viz., from the Board, the Commissioner, or the Collector."

Statistics.
611. The statistics of import and export are very defective. The Excise Commissioner estimates the average imports of ganja and charas as follows:— Ganja 4,000 to 4,500 maunds. Charas 1,100 to 1,200 " The license fees realized from the auction of the monopoly of vend amounted to Rs. 7,04,788, and this represents the whole of the taxation levied in the province.

PUNJAB. 

Law in force. Supply of the drugs.
612. The excise administration is based upon Act XXII of 1881 (see North-Western Provinces) and rules thereunder. Ganja is practically unknown in the Punjab. Charas is imported from Yarkand viâ Kashmir and Ladak and from Bokhara, and perhaps other Central Asian countries viâ Afghanistan. No charas is produced in the province except to a trifling extent in the hills for private consumption. Bhang is collected from the wild plant which grows plentifully in the SubHimalayan districts. It is also cultivated to a small extent in Multan and in the Derajat Division, but the total area of cultivation is probably less than 100 acres. Cultivation is not controlled, and a cultivator cannot be prosecuted for the possession of bhang, though he is only allowed to sell his produce to a licensed vendor.

Import and transport.
613. The traders who bring charas from Yarkand are not licensed, but they have to obtain a pass from the Joint Commissioner at Leh or from the Deputy Commissioner of the district where they enter the Punjab, and take it for countersignature to the Deputy Commissioner or Collector of every district in the Punjab or the North-Western Provinces which they may enter with the charas. The consignment may be opened at any head-quarters station or tahsil while on its way to its destination, and a portion of its contents may be sold to the farmer of excise for drugs, the fact being recorded on the pass and the package resealed. When a consignment is conveyed by rail, the provision requiring it to be taken to the Deputy Commissioner or Collector of every district through which it passes is dispensed with. The transport of bhang from the districts of growth to those of consumption is regulated by passes, no duty or fee of any sort being charged.

Excise system.
614. Hitherto the excise income from intoxicating drugs in the Punjab has been derived solely from the monopoly of sale within tahsils or other sub-divisions of districts. In some districts the monopoly of opium and other drugs prepared from the poppy is farmed separately from that of the hemp drugs, while in others the same farm includes both. Ordinarily the farm or license is held for the year, the fee payable being determined by auction. The present rules make no provision for the issue of wholesale licenses, but the new rules are to provide for such licenses. As a matter of account the fees paid in each district in respect of the combined opium and hemp drug licenses, where these are held together, are distributed between the two heads of receipt in a proportion which is supposed to represent the actual value of each set of licenses. This proportion varies from district to district. As a result of the practice described above, the number and locality of the shops are fixed beforehand from year to year, and as a matter of fact they are seldom altered. The Punjab system of excise administration in regard to hemp drugs was described by the Excise Commissioner in his report for 1892 as "going very near to reversing the principle of a maximum of revenue with a minimum of consumption." In the report for 1893 the Excise Commissioner says: "Taking Rs. 1,70,854 to be approximately the real value of the licenses for the sale of hemp drugs, it represents the total taxation now levied on a consumption of upwards of 1,000 maunds of charas and of nearly 4,000 maunds of bhang." This is "the weakest part of our excise system in the Punjab. It is hoped that we are now within measurable distance of arrangements which will give us complete control over the import trade in charas, and enable us to impose a duty which can be gradually raised. Owing to the fact that the plant grows wild in so many districts, and is to be had for the gathering, while charas comes in by a few well recognised routes and can scarcely escape us, it is much more difficult to deal with the trade in bhang efficiently. But I am in hopes that the Government will agree before very long to the introduction of some measures for the direct taxation of bhang too." In the form of license for retail vend of the drugs, there is no provision against consumption on the premises. There is a provision prohibiting the supply of the drugs to any insane person or to children. It may be noted, though the matter is of no practical moment in the Punjab, that the limit of retail sale for ganja is fixed in this form at 1/4 of a sér as for bhang, whereas under the Act it must not exceed 5 tolas. It seems to be the practice to consult the wishes of the people before new shops are opened.

Proposal to tax charas and bhang.
615. The question of imposing a duty on charas and bhang, to which reference is made above, has been very fully discussed, and an Act (X of 1893) has been passed in which power has been taken to impose on any intoxicating drug brought by land from beyond the limits of India into any territory to which Act XXII of 1881 extends, or into any specified part thereof, such duty as the Governor-General in Council thinks fit. In pursuance of the provisions of this enactment, it has been proposed to establish golas to which all charas should be taken on entering the province, and which it should be allowed to leave only under a license or pass, for which a fee should be levied at the rate of 8 annas a sér. The revision of the Excise rules so as to give effect to this proposal is under consideration. The taxation of bhang is a more difficult matter owing to the prevalence of the growth of the plant, and the consideration of proposals relating thereto made by the Excise Commissioner has been postponed until the tax on charas has been introduced. The opinion of the Punjab Government on this question is that "in regard to matters of this sort, which involve an interference with ancient and firmly rooted habits of large masses of the people, it is desirable to proceed cautiously, doing one thing at a time."

CENTRAL PROVINCES. 

Law in force.
616. In the Central Provinces Act XXII of 1881 is in force (see North-Western Provinces).

Supply of the drugs.
617. In this province, however, advantage has been taken of the provisions of the law to prohibit the cultivation of the hemp plant except under license, and licenses are now only given in the Khandwa tahsil of the Nimar district. The plant does not grow wild, and illicit cultivation has for the most part been suppressed. Charas is hardly known. If imported, it pays a duty of Rs. 10 per maund. No bhang properly speaking is produced, but the refuse ganja is used as bhang.
The supply of ganja is amply sufficient for the provincial consumption. Import of ganja from other provinces or Native States is not permitted. There is a certain amount of illicit import from Hyderabad, Berar, Indore, the Bombay Presidency, Gwalior, and the Tributary States of Orissa, and this constitutes the principal difficulty of the ganja administration in this province. A little bhang is imported from the North-Western Provinces under passes.

Khandwa ganja.
618. The harvesting of the crop in the Khandwa tahsil is supervised by a special establishment, and the cultivators are bound to bring the whole of their produce to a Government storehouse at Khandwa. The drug is purchased at the storehouse by the wholesale vendors of the province, the terms of the purchase being arranged between the cultivators and the wholesale vendors without interference on the part of Government. Wholesale vendors of other parts of British India and foreign dealers are also freely permitted to buy. No direct tax is imposed on cultivation, but the following fees are payable at the storehouse:— (1) A storage fee of 6 pies per maund per mensem payable by cultivators or purchasers of ganja kept in the storehouse. Cultivators and wholesale vendors of ganja in the Central Provinces are exempted from payment of this fee for 30 days. (2) Permit fees at Re. 1 per maund payable by all purchasers of ganja, other than Government licensed vendors, on account of all ganja for which permission to purchase is granted. (3) Registration fees at Re. 1 per maund payable by all purchasers of ganja, other than Central Provinces licensed vendors, on account of all ganja of which the transfer by sale is registered.

Wholesale vend.
619. The sole monopoly of wholesale vend in the province is granted by licenses to wholesale vendors approved by the Excise Commissioner. The licenses are given either for a district or for each tahsil. Tenders are invited annually for the licenses for wholesale vend, and the tenders must state what fee per sér, in addition to a direct duty of Rs. 2 per sér (except in Sambalpur and the south-east part of the Raipur district, where it is Re. 1 per sér), the applicants are prepared to pay for the privilege. The wholesale vendor is required to supply the retail vendors with ganja at Rs. 3 per sér (Rs. 2 in Sambalpur and the south-east part of the Raipur district). The ganja purchased by the wholesale vendor is conveyed under a transport pass or import license to a storehouse belonging to the licensee at the district or tahsil head-quarters, one key of which is kept by the Tahsildar, by whom it is issued according to the requirements of the wholesale vendor. Duty is only charged on cleaned ganja, the refuse being destroyed both at the Government storehouse at Khandwa and at the district or tahsil storehouse.

Retail vend.
620. The monopoly of retail vend is usually auctioned separately for each shop, except in large towns, where the shops are generally sold to one person. The localities of all shops are fixed by the Deputy Commissioner subject to the control of the Excise Commissioner. All retail vendors are entitled to be supplied with ganja by the wholesale vendor at Rs. 3 per sér, and may charge their own retail price to consumers. The number of shops is regulated by the demand for the drug. In those districts which are specially exposed to smuggling from foreign States, shops are licensed more freely.
Every wholesale vendor of ganja is given a license for the retail vend of bhang free of charge. Licenses for retail vend of bhang are not granted to other persons, and no wholesale vendor may import without a written permit from the Deputy Commissioner. A duty of Rs. 2 per sér is levied on all foreign bhang sold, and the rate of sale to the public must not exceed Rs. 3 per sér. Stocks of bhang are kept under control in the same way as ganja.
Consumption on the premises is prohibited by a clause in the retail licenses. There is no restriction as to the persons to whom ganja or bhang may be sold. Local opinion as to the opening of shops is not ordinarily taken, but objections, if raised, are considered.

Statistics.
621. The average area of ganja cultivation at Khandwa during the past five years has been 785 acres; the average outturn about 8,000 maunds, of which about 5,000 have been exported and 1,000 consumed in the province, the remainder having been destroyed as unfit for sale. The revenue derived from this source has been Rs. 2,18,000, of which Rs. 1,36,500 has been from license fees, and the rest from fixed duty. There is no revenue from charas, and from bhang only about Rs. 1,000.

MADRAS.

Law in force.
622. The Madras Abkari Act (1 of 1886) contains extensive provisions for the control of the cultivation of hemp, and the manufacture, sale, and possession of hemp drugs. But as it has only been brought into force in the Presidency in so far as it relates to the sale of intoxicating drugs, there is no need in describing the system at present in force to refer to any of the other provisions.
The principal provisions in force are as follows:—
No intoxicating drug may be sold without a license from the Collector, provided that a cultivator or owner of any plant from which an intoxicating drug is produced may sell without a license those portions of the plant from which the intoxicating drug is manufactured or produced to any person licensed under the Act to sell, manufacture, or export intoxicating drugs (section 15).
The Governor in Council may grant to any person or persons on such conditions and for such period as may seem fit the exclusive or other privilege—
(1) of manufacturing by wholesale, or (2) of selling by retail, or (3) of manufacturing or supplying by wholesale and selling by retail,
any intoxicating drugs within any local area. A license from the Collector is necessary for the exercise of such privilege (section 16). It may be noted here that there is no definition in the Act of wholesale and retail, and that no such definition exists in any notification under the Act.
A duty shall, if the Governor in Council so direct, be levied on all intoxicating drugs sold in any part of the Presidency of such amount as the Governor in Council may from time to time prescribe (section 17).
Such duty may be levied by fees on licenses for manufacture or sale (section 18).
Every license or permit granted under the Act shall be granted— (a) on payment of such fees, if any, (b) for such period, (c) subject to such restrictions and on such condition, and (d) shall be in such form and contain such particulars,
as the Governor in Council may direct either generally or in any particular instance in this behalf (section 24).
The Governor in Council may from time to time frame rules for the warehousing of intoxicating drugs, and for the removal of the same from any warehouse in which they are deposited for deposit in any other warehouse or for local consumption or export; and for placing the storage of intoxicating drugs under such supervision and control as may be deemed necessary for the purposes of the Act; and generally to carry out the provision of the Act or of any other law for the time being in force and relating to abkari revenue (section 29). No rules have been framed under section 29 and no notifications issued with reference to any of the above quoted provisions of the Act relating to intoxicating drugs except such as relate to the delegation of powers and the extension to local areas of those provisions.

Supply of the drugs.
623. The hemp plant does not grow wild in the plains of Madras, and even in the hills there does not seem to be much spontaneous growth. But a few plants will be found in the enclosures of houses in several parts of the province, and there is systematic cultivation of the plant for ganja in the Kistna and North Arcot districts, and to a smaller extent in some others. Accurate information regarding the area under cultivation is not available, but the amount of regular cultivation accepted by the Commission is 350 acres. From this cultivation ganja is produced and bhang is collected, though statistics of bhang separate from those of ganja are not available, and the bhang of this province is probably in many cases only refuse ganja. Charas is not known. Ganja is said to be imported in small quantities from the Hyderabad, Bastar, and Banganapalle States, and exports made to Ceylon, Mysore, Hyderabad, and Cochin territory. From other sources it has been ascertained that there is a considerable quantity of Madras ganja smuggled to Burma and Mysore, and that the administration of this branch of excise in the latter tract is thereby rendered difficult. Apart from smuggling, the exports of ganja from Madras to Mysore amounted to 1,829 local maunds (equal to 552 Indian maunds) in 1892-93. This alone represents a considerable area of cultivation; and, judging from the consumption within the Presidency, it appears probable that the area of cultivation has been under-estimated.

System of excise.
624. The only system of administration which exists in regard to the hemp drugs consists in the restriction of the sale of these drugs to licensed vendors (with the proviso contained in section 15), and no limit of retail sale having been fixed, any person may purchase any quantity of the drugs from a licensed vendor. Up to 1st April 1891 licenses for sale were granted on payment of fixed fees, and the amount realised from these fees was in the year 1890-91 Rs. 8,805 as compared with Rs. 4,890 the previous year. In 1891-92 the system of selling the licenses by auction was introduced, and the amount realised was Rs. 54,989. In 1892-93 it was Rs. 47,292. The number of shops is determined by the Collector, subject to the Board's approval, and no increase can be sanctioned without the special orders of the Board obtained in each case. No form of license is to be found in the Madras Excise Manual.
There are only 246 retail licenses for the whole Presidency, or one shop for 144,781 of the population. The evidence shows that a good deal of the consumption does not pass through the shops, and that in certain tracts the drug passes freely from the cultivator to the consumer.

BOMBAY. 

Law in force.
625. The system of administration is based upon the Bombay Act V of 1878, and rules and notifications thereunder. The principal provisions are as follows:—
Import of intoxicating drugs into any part of the Presidency is prohibited save under permit and after payment of duty, if any. If the drugs have paid customs duty, this provision does not apply (section 9).
Export is prohibited save under the same conditions. This provision does not apply to drugs imported by sea, the export of which is permitted on payment of any fee or duty, if any, leviable by law on its transhipment or exportation (section 10).
Transport of any quantity of intoxicating drugs exceeding 40 tolas is prohibited save under permit (section 12).
Manufacture is prohibited save under license (section 14).
Sale is prohibited save under license: provided that no such license is necessary for the sale by a cultivator or owner of any plant from which an intoxicating drug is produced of those portions of the plant from which the intoxicating drug is manufactured or produced to a licensed vendor, manufacturer, or exporter (section 16).
The maximum quantity which may be sold by retail at one time or to one and the same person in the aggregate on any one day within any defined local area or place is half an Indian sér or 40 tolas (section 17 and notifications thereunder).
Whenever a license is granted for the manufacture or sale of any intoxicating drug, and whenever the import, export, transport, or removal from place to place of any intoxicating drug is permitted, such duty shall be levied as the Collector, acting under the general or special order of Government, thinks fit (section 27).
Under this section notifications have been issued prescribing that the duty leviable on account of a license for the joint privileges of manufacture and retail sale of intoxicating drugs shall be fixed by the Collector, who before granting any such license shall put up the said privileges to auction.
For a permit for the import or export of any intoxicating drug, or for its transport between any two places not situated within the same district, duty subject to certain exemptions is levied at the following rate:—
If the amount does not exceed 10 Indian maunds Rs. 5 For every additional 2 Indian maunds or fraction thereof 1 Every license, permit, or pass granted under the Act is granted— (a) on payment of such fees, if any, (b) for such period, (c) subject to such restrictions and on such conditions, and (d) shall be in such form and contain such particulars as Government directs (section 30).

Sources of supply in Bombay.
626. The wild plant is not much found in Bombay. There is cultivation of hemp for the production of ganja in a few districts, principally in Ahmednagar and Satara. The average for five years is 874 acres. The cultivator has to obtain a permit, for which no fee is levied, to enable him to dispose of his produce. The Excise Commissioner states that the cultivation is noted and watched by the village officers, and he cannot dispose of his crop without obtaining the necessary permit. There is not much evidence of the cultivation of plants in homesteads and enclosures for private use, but Mr. Sinclair, Collector of Thana, alludes to such cultivation as occurring in many private gardens. The amounts of imports of ganja from other provinces given in the statistics supplied by the Commissioner of Excise show an average for the last ten years of 1,820 maunds, and that officer in his memorandum states that the imports are chiefly from the Central Provinces. In view of the evidence the figures seem excessive, and a doubt suggests itself to the Commission whether imports from district to district have not been included.
Charas is imported in very small quantities from the Punjab. Except in the City of Bombay, it is hardly known. Bhang is produced to a small extent in Gujarat and Palanpur. It is imported from Ujjain. The average imports for the last ten years amount to 87 maunds, but not much reliance can be placed on these figures. Probably wherever the hemp plant is grown for ganja, a certain amount of bhang is also produced.
Bombay is intersected with a large number of Native States, in some of which ganja is grown. The illicit import of this ganja does not seem to be very extensive, but owing to the cheapness of the drug in these States, and to the high maximum of legal possession (40 tolas), it is inevitable that a certain amount of smuggling should take place, and this is considered to be the case by several witnesses.

System of vend in Bombay.
627. The rules provide that the joint privilege of manufacture and retail sale at one or more shops shall be auctioned. The vendors are the only importers of the drugs, and there are no wholesale dealers acting as middlemen between the cultivators and the farmers of retail vend. The farmers pay import and transport duties as above described. As a rule the farm of the drugs for a whole district is sold to a single vendor. The retail shops are usually fixed by the Collector. The total number of retail licenses has been very constant for some years, the average for the last ten years being 373. The number of shops, however, is larger, averaging 647 for the last ten years. The form of retail license contains no provision regarding consumption on the premises, nor regarding the persons to whom the drugs may be supplied. There is no fixed rule regarding "local option." In some districts it is attended to carefully. Any representation by the inhabitants would have full consideration, but representations relating to the location of shops are seldom received.

Sind.
628. The system of administration in Sind is in almost every respect the same as in Bombay, but there is some difference in the conditions. Neither ganja nor charas are produced, and the consumption of both is not large, though that of the latter is nearly, if not quite, equal to that of the former, and is said to be increasing. Ganja is imported from Panvel in Bombay, and charas from the Punjab. There is cultivation of hemp for bhang chiefly in Shikarpur and Karachi, averaging about 300 acres. The annual consumption of bhang is upwards of 4,000 maunds. There is a little smuggling of bhang from the Khairpur State, where it is grown and sold cheaper than in Sind.

Aden.
629. Aden is supplied with hemp drugs entirely from Bombay.

Berar.
630. The Abkari rules in Berar appear to rest upon the authority of a letter of the Government of India in the Financial Department, No. 3541, dated 10th October 1873. Berar is not British territory, and the rules constitute a special local law issued by the Governor-General in Council in virtue of specially acquired jurisdiction. Cultivation is prohibited except under license, and Rs. 10 per acre or part of an acre is levied on all cultivation. The area cultivated for production of ganja is confined to the Akola, Buldana, and Amraoti districts, and amounted in 1892-93 to 85 acres. The village officials are required to destroy any plants of spontaneous growth, and this growth appears to be kept under. Ganja is imported from Khandwa, and sometimes from Khandesh. About 1,300 maunds are consumed annually. Charas is not used. No information is given regarding bhang apart from ganja, and the bhang consumed is probably that produced locally in connection with the ganja cultivation. The monopoly of vend has been hitherto sold by auction to farmers together with that of opium. This is the only taxation besides the rate on cultivation. For the future separate drug shops are to be opened. The maximum amount for retail sale is 20 tolas for ganja and bhang and 5 tolas for charas. There is no limit for legal possession. There is nothing in the nature of local option, but objections to shops are considered. The average retail price of ganja is from Rs. 2 to 2.8 per sér.

Ajmere, Coorg, and QuettaPishin.
631. In these three small administrations Act XXII of 1881 is in force. There is a little cultivation in Ajmere, but none in Coorg or Quetta-Pishin. The contract system prevails, and the monopoly of vend is sold by auction or by tender. The amount realized is the only source of revenue. Shops are licensed, and the drugs are sold at the retailer's prices.

Summary of systems.

632. The following is a summary of the prominent features of the excise administration of the hemp drugs in the principal provinces (except Burma):— Bengal.—Cultivation and manufacture of ganja controlled. Smuggling rare, except in Orissa. Ganja and charas highly taxed. Bhang little controlled. Assam.—No cultivation of ganja permitted. Illicit cultivation rare. Some smuggling of an inferior kind of ganja from the hill tracts. Ganja highly taxed. Charas not used. Bhang little controlled. North-Western Provinces.—Cultivation and manufacture not prohibited. Some ganja produced in the province. Supply of ganja derived from Bengal, Central Provinces, Gwalior, and Bundelkhand. Little smuggling from Native States. Charas imported mainly from the Punjab. A little charas produced in Kumaon and Garhwal, and a small quantity imported from Nepal. Bengal ganja bears the tax imposed in that province. Other ganja and charas hardly taxed. Bhang not controlled. Punjab.—Ganja not used. Charas imported from Central Asia not smuggled, but hardly taxed, there being no direct duty, of which, however, the imposition is under consideration. Bhang not controlled. Central Provinces.—Cultivation and manufacture of ganja controlled. Smuggling from Native States and adjoining Bombay territory not wholly suppressed. Taxation of ganja fairly high—of charas light. Local bhang controlled as ganja. Foreign bhang highly taxed. Madras.—Cultivation and manufacture not controlled. Ganja produced to a considerable extent. Taxation very light, there being no direct duty, and licenses being very few. Charas not used. Bhang little known. Few statistics available. Bombay.—Cultivation and manufacture not controlled. Ganja produced to a considerable extent. Amount imported uncertain. Taxation light, there being no direct duty beyond import duty of 8 annas per maund. Charas hardly used, except in Sind. Bhang little known. Berar.—Cultivation and manufacture controlled. Production of ganja not large, but imports from Khandwa considerable. Taxation light, there being no direct duty beyond a tax on cultivation of Rs. 10 per acre or part of an acre.

PROVINCIAL SYSTEMS EXAMINED.

Scope of this Chapter.

633. In Chapter XIV the Commission dealt with the general policy which, in their opinion, should regulate the excise administration in respect of hemp drugs, and in Chapter XV they have described the systems at present existing in British India. They will now offer some remarks regarding the measures necessary to give effect to that policy, and will then proceed to examine the existing systems in the light of these remarks, adding their recommendations where change of any kind seems desirable.

Farm of monopoly of vend not sufficient.
634. The simplest method of dealing with the subject is to farm the monopoly of vend, leaving the lessee to make his own arrangements for a supply of the drugs and their sale to the public. This is the system (with some slight differences) which is in force in the North-Western Provinces, the Punjab, Madras, Bombay, and the minor administrations. It has the advantage of relieving the Government of all responsibility or interest in the matter beyond the disposal of the farms. It secures a preventive agency of a non-official kind for dealing with illicit sale and smuggling; and if proper care is taken to appoint respectable vendors to prevent combinations for the purpose of keeping down the price of the farms, and to license shops only when they are required by the local demand, such a system may appear to be successful and sufficient. But there are some serious objections to it. In the first place, it has the disadvantage of exercising no control over the production and consumption. Large profits do not depend upon the price being raised to the pitch necessary to check excess; they are as easily realised by large sales at low rates. Thus consumption may very probably be unduly stimulated. Secondly, the Government acquires no accurate information regarding the extent of the production, the sources of supply, and the increase or decrease of the habit of using the drugs. The Commission think it is the duty of the Government to acquire this information. Thirdly, the system leaves the whole revenue and consequent check on consumption at the mercy of competition, which is a very unsafe regulator. And, lastly, direct taxation has already been resorted to in some cases with good results, whereas in provinces where only the license system prevails control is insufficient and taxation inadequate.

Combination of direct duty with auction of licenses the best system.
635. In the opinion of the Commission, the combination of a fixed duty with license fees for the privilege of vend constitutes the best system of taxation for the hemp drugs. It is the system which prevails in regard to spirituous liquors produced in India, and is equally applicable to other intoxicants, in regard to which a policy of control and restriction is necessary. Unless there are special reasons to the contrary, the Commission think that the monopoly of vend should be auctioned. The special advantage of doing this lies in the fact that a method is thus secured of adjusting the total incidence of taxation to special circumstances, such as the local demand, the expense of carriage, the facilities for smuggling, the habits of the people, and the price of other intoxicants. The danger of relying mainly on the auction system as a check on consumption is that a combination, or the absence of competition, among the vendors might at any time destroy its efficiency. The fixed duty should therefore be as high as possible, due regard being paid to the considerations mentioned in Chapter XIV, paragraph 586. When this is done, the auction of licenses for vend will come in as a valuable adjustment, and, if properly worked, will indicate whether the limit of taxation has been reached. If the proceeds of the auction sales of licenses have a decided tendency to increase, this will be an indication that the fixed duty will bear an increase.

Control of cultivation.
636. But besides that which results from adequate taxation, another method of restricting consumption is available to the Government in the limitation of the sources of supply. And the most effective way of doing this, at all events in the case of ganja, is to prohibit cultivation of the hemp plant, except under license, and to grant licenses for cultivation in such a way as to secure supervision and registration of the produce. Unless this is done, it is impossible to have any idea of the extent of consumption. The opinions formed from time to time in regard to this matter in provinces where cultivation is not controlled are mere guesses doomed to be falsified. It is of the greatest importance that this control should be exercised. In regard to charas, the only way of limiting the supply is by taxation, and the conditions of the trade are such that the supply can be completely regulated by the application of this method. Where the hemp plant grows spontaneously in abundance, the supply of bhang cannot be regulated, but in other places there is no reason why its cultivation should not be placed under the same restrictions as that of ganja, and a direct duty, which must be light in proportion to the facilities for importing the drug free of charge, imposed. The subject will be referred to again further on.

Limitation of shops.
637. Another most effective way of reducing the sources of supply is by keeping the number of licensed shops to the lowest limit compatible with meeting the real demand. The increase of shops or failure to reduce them has often been pointed out as an error committed by individual district officers whose aim was too much to raise revenue. The impropriety of this and its danger cannot be too strongly insisted upon. The matter is one which should be kept constantly in view by the Local Governments and by the Government of India.

Artificial checks not desirable.
638. The Commission do not, however, advocate any attempt to restrict the supply of the drugs by an artificial check, such as limiting cultivation of ganja or import of charas, with reference to an ascertained or computed average demand. It is not for the Government to determine how much of the drugs should be consumed. Its function is to exert pressure, but not to fix limits; to regulate the conditions, but not the actual quantity; and it is far better that, subject to those conditions, the laws of supply and demand should not be interfered with.

Prices of the drugs.
639. The incidence of taxation in different provinces ought not cœteris paribus to vary greatly. The following table shows the retail prices per sér prevailing in the different provinces:—

The figure given as the maximum for ganja in the Central Provinces is not the true maximum. It is "the average retail price in most districts for small quantities of ganja." The maximum must, therefore, be higher. In Jubbulpore, the Commission found that in some shops ganja was selling at Rs. 12 per sér. The maximum for the province is not available. A maximum quotation of 4 annas per tola, equal to Rs. 20 per sér, is given for Ganjam in Madras: this may be Rajshahi ganja. Bhang is said to reach a maximum price of Rs. 10 per sér in the same district. In Malabar, Vellore ganja is said to reach 4 annas per tola, but the maximum price in North Arcot is 4 pies. Wynaad ganja in the same district is said to reach a maximum price of 2 annas per tola. With these exceptions, no district shows a higher maximum price than that given in the statement. It is evident that if the systematic treatment advocated by the Commission is to be applied, some means must be taken, especially in regard to ganja, of removing the extraordinary inequalities disclosed by this comparison. Up to year 1892-93, notwithstanding the high price of Rajshahi ganja, the cost of the daily average allowance of liquor to the habitual consumer in Bengal is, according to the memorandum, much higher than in the case of ganja. Judged by this test, there is room even in Bengal for increased taxation. A fortiori is this the case in other provinces except Assam. No doubt the quality of the drug varies in different provinces, but there is nothing in the analysis of the different kinds of ganja which points to such marked discrepancies in the price. And the general conclusion which must be drawn from these figures is that in all the provinces, except Bengal and Assam, taxation is totally inadequate to the due restriction of consumption. The same may be said of charas. As regards bhang, many witnesses are of opinion that there is no need to impose the same restrictions upon its consumption as in the case of ganja and charas, and the difficulty of doing so in the Himalayan region is considerable. But the Commission concur with the majority of the witnesses in thinking that the same general principles apply, and that, so far as may be possible, this product of the hemp plant should be brought under more efficient control and taxation.

Ganja administration in Bengal.
640. A historical sketch of the ganja administration in Bengal from the year 1790 will be found as an appendix to the Excise Commissioner's Memorandum. From the first the object of the measures taken was "to check immoderate consumption and at the same time to augment the public revenue." Up to the year 1853 hemp drugs were taxed by means of a daily tax on their retail sale paid monthly. From 1824 to 1847 it was usual to farm out the excise revenue of entire districts. From 1853 the daily tax was abolished, and a duty of Re. 1 per sér was imposed. The retail vendor had to pay the full amount on a specified quantity in each month whether he took it all or not. In 1860-61 a fixed fee of Rs. 4 per mensem was levied for each ganja license, in addition to the duty at the prescribed rate, on all quantities passed to the shop for retail sale, the rule regarding the quantity to be taken by each shop being withdrawn. This was the beginning of the combined fixed duty and license fees system which at present exists. In 1876 the system of selling licenses by auction was introduced, and this has continued to the present time. The following table shows the operation of the action taken by the Bengal Government since the time when the auction of license fees was introduced:—

Results obtained.
641. This table shows that up to the year 1892-93 on five occasions some increase was made in the rate of fixed duty. The revenue steadily increased, until at the end of the period it was double as much as in 1876-77; notwithstanding this, the number of retail licenses after the first period of six years steadily diminished up to the year 1891-92, though in the following year there was an increase. The result is that the number of the population per retail license increased by 38 per cent. in the whole period. The increase in the total average taxation per sér of the taxed drug increased from Rs. 4-0-2 to Rs. 10-15-1. As regards the area cultivated (column 2), it has to be remembered that these figures represent the growth of the plant for consumption in Assam, the North-Western Provinces, and some Native States as well as Bengal. The figures in column 4 represent the ganja actually consumed in Bengal, which has decreased largely since the first two years, and since then has been nearly stationary. In addition to the above facts, the evidence before the Commission tends to show that, except in Orissa, where the Garhjat ganja competes with the Rajshahi ganja, smuggling does not prevail in any part of the province; also that ganja is still the cheapest form of intoxicant, and that there is no evidence to lead to the belief that it is being displaced in Bengal by more noxious stimulants. The Bengal Government seems to have kept in view with the most successful results the principles which have been enunciated in Chapter XIV, paragraph 586, of this Report as essential to an efficient excise system, and to have intervened, when occasion demanded, to restrict the use of the Rajshahi ganja by administrative control and enhanced taxation. The effect of the enhancements which have been made since the year 1892-93 cannot be gauged, but the Commission have no hesitation in saying that this part of the excise administration in Bengal is being most carefully and ably supervised.

Weak points in Bengal system.
642. The weak points in the Bengal administration are— (1) The defective arrangements for storage of the Rajshahi ganja. (2) The smuggling into Orissa of the produce of the Tributary Mahals.

Storage.
643. The Bengal Excise rules provide that the cultivator must send into the public gola all the ganja he manufactures, and private golas are only permitted in the case of a cultivator who can satisfy the supervisor that he has a secure private place of his own. It has been shown above (paragraph 595) that there is no public gola for the storage of the crop, and that all the produce is stored in private golas. The opportunity for smuggling thus afforded has not escaped the notice of the authorities. In his report on the cultivation of and trade in ganja, 1877, Babu Hem Chunder Kerr (paragraph 131) dealt with the question, and recommended the absolute prohibition of private storage and the establishment of public godowns where the drug might be warehoused in bond. He was of opinion that six storehouses 125 feet X 20 feet, three of which should be at the sadar station of Naogaon and three at three outposts, would be sufficient to warehouse the crop. The Board of Revenue did not support the proposal, remarking that it would involve a very radical change in the existing system, and would also necessitate a very considerable expenditure on the part of Government in the construction of the necessary warehouses. The absence of any evidence as to extensive smuggling was mentioned as obviating the necessity for the measure. In 1892 the Board were of opinion that the objections to public golas appeared to be insuperable. Mr. Lyall in his evidence says that the storage arrangements can be improved, but that under existing circumstances it would be impossible without enormous expenditure to have a public gola. Mr. Gupta, Excise Commissioner, says that the "difficulty of having a public warehouse is that the ganja stored in it would consist of numerous parcels, all belonging to different individuals, and this would lead to much confusion. Again, the drug has to be frequently aired, turned out, and handled in order to keep it in good condition, and it is next to impossible to secure this periodical examination when the ganja is stored in public golas situated at a distance from the houses of the cultivators." He therefore considers the scheme "impracticable," on which Mr. Lyall notes: "Rather, I would say, too costly." Mr. Price, Collector of Rajshahi, does not recommend public golas because Government servants would not take care of the ganja as the owners would. But he does not think there would be any great difficulty if there were several Government golas situated in central places, though he does not think the cultivators would view the change with favour. He concludes by saying that he sees no great objection to the plan; and adds: "You cannot have a perfect system without Government golas." Babu Hem Chunder Kerr retains his former opinion in favour of the system, which is also advocated by Ganendra Nath Pal, Sub-divisional Officer, Naogaon, and Abhilas Chandra Mukharji, Excise Inspector. The Commission have formed the opinion that the objections are not insuperable, and that the system of Government storehouses should be introduced. The example of the Central Provinces system seems to prove its practicability, and they are of opinion that it would have the effect of bringing about the speedy conclusion of bargains between the cultivator and the wholesale dealer, in which case the main difficulty would be removed. The expense of erecting several godowns should not, in their opinion, operate to prevent the measure considering the very large revenue at stake and the great desirability of removing the existing temptations to illicit dealing. The matter should, however, be left to the discretion of the Local Government.

Smuggling in Orissa.
644. The smuggling of ganja from the Tributary States of Orissa into British territory has a long history, and more properly belongs to the general subject of excise administration in Native States, which will be dealt with further on.

Reduction of all ganja to chur.
645. The proposal of the Excise Commissioner to abolish flat and round ganja and have only chur is one that deserves notice. He explains rather more clearly in his evidence that what he advocates is not the compulsory production of chur, but the adoption of the chur rate of duty which is the highest for all ganja, which would result in the elimination of stick from the produce, and consequent reduction of the whole stock to chur. There are obvious advantages in having one rate of duty, but other considerations enter into this subject, such as the question as to the form in which the drug can best be packed and transported without deterioration. The experiments which are being conducted in connection with this question are still incomplete. The Commission feel that the matter is one for the Local Government to decide. It is mentioned here because it would materially reduce the bulk of the produce and make the introduction of public golas more easy of accomplishment. The plan is also advocated by some subordinate Excise officers and Deputy Collectors.

Ganja administration in the Central Provinces.
646. The present system of ganja administration in the Central Provinces has been in force since 1882-83, previous to which there were several changes, which may be briefly recapitulated. In 1871-72, the first year during which Act X of 1871 was in force, the monopoly of vend of drugs (which included madak) was put up to auction for each district as a whole, or for smaller areas, and knocked down to the highest bidder. The contractors were free to make their own arrangements for obtaining the drug from cultivators, and cultivation was free. In 1873-74 the Local Administration had to consider complaints by the retail contractors to the effect that the extensive cultivation of ganja for home consumption by private individuals seriously interfered with their profits, and prevented them from paying to Government as high a revenue as they otherwise might. Meanwhile the Government of India had issued instructions to all Local Governments to discourage the consumption of ganja and bhang as far as possible by placing restrictions on their cultivation, preparation, and retail, and imposing on their use as high a rate of duty as could be levied without inducing illicit practices. Accordingly, in April 1875, rules were introduced prohibiting cultivation except under license, for which the levy of an acreage fee was authorised, and embodying other provisions for inspection of stocks and licenses to cover the possession of the produce until its purchase by the licensed vendor. The acreage fee was fixed soon afterwards at Re. 1, and in 1876-77 a special penal fee of Rs. 10 per acre on unlicensed cultivation was introduced. These acreage fees were, however, pronounced illegal by the Judicial Commissioner in 1878, and new rules were framed providing for the storage of all ganja in Government godowns or in authorised private storehouses and for levy of duty on the drug when removed. The duty was fixed at Re. 1 per sér. Difficulties were experienced in working these rules, the cultivators not being able to dispose of their produce to the licensed vendors. The wholesale vendors held aloof, feeling uncertain of the effect which the enhanced duty might have on consumption, and the retail vendors would not purchase direct from the cultivators. The Local Administration accordingly purchased nearly the whole crop, amounting to some 6,856 maunds, at a cost of nearly Rs. 50,000. The Government of India, however, objected to the creation of a Government monopoly of ganja; so in 1880-81 the monopoly of wholesale vend for the province was granted to a single individual, who agreed to pay a duty of Rs. 2 per sér on all ganja sold by him to retail vendors, and to supply them with the drug at Rs. 3 per sér. It was contemplated in the agreement that the price might be raised by increments of 4 annas to Rs. 4 per sér, and the duty by increments of 3 annas to Rs. 2.12 per sér, within the year 1880-81. At the same time the system of auctioning the monopoly of retail vend by circles was done away with, and monthly licenses were issued at fixed rates, varying according to the size of the town or village, and without limit as to the number of licenses existing in one place. This system, however, was abandoned in the following year, and the auction system was again for the most part introduced. This was the origin of the system of monopoly of wholesale which exists to the present time in the Central Provinces. Since 1882-83, by which time Act XXII of 1881 had become law; the wholesale monopolist has been called upon to pay a certain amount per sér in addition to the direct duty of Rs. 2 per sér, the rate varying in different districts and being generally determined by tender. Such tender is limited by the necessity of supplying retail vendors at Rs. 3 per sér to an amount per sér less than Re. 1. The object of this measure was to fix the difference between the duty on the drug, Rs. 2 per sér, and the price at which it was to be sold to retail vendors, Rs. 3, at a figure considerably in excess of the cost price of the drug, and to put up the gross profits thereby secured to the wholesale vendor to auction in the form of tender. It was thought that this would practically raise the direct duty in the districts where the cost price of the drug was least, and so equalize prices throughout the province. Cultivation in British territories has been concentrated, and since 1891 it has only been allowed in the Khandwa tahsil of the Nimar district.

Table showing the results of the ganja administration from 1882-83 to 1892-93.
647. During the changes above described there were great fluctuations in the area of cultivation, but the revenue steadily increased. The amount of consumption is not available. From 1882-83 the statistics are more complete, and the tabular statement subjoined will show the progress of the administration in regard to exports and consumption of ganja, the amount and rate of taxation, and the number of shops. Column 2 contains the figures as accurately as possible for the area cultivated; the table appended to the Excise Commissioner's memorandum gives the areas for which licenses were taken out, which were generally in excess of the area actually cultivated. Column 5, showing the fixed duty, represents the Rs. 2 per sér duty levied on all ganja issued to the retail vendors of the province. Column 6 represents retail license fees, and the amounts, called wholesale license fees, obtained in accordance with the tenders of wholesale vendors:— 

Review of Central Provinces system.
648. It will be seen from this statement that the fixed duty of Rs. 2 per sér has not been raised since 1882-83. As above remarked, an increase was contemplated as far back as 1880-81. In 1887 the Local Administration declined to raise the duty, the principal reason assigned being that the effect would be to lower the bids for retail vend monopolies. The total taxation per sér of consumption has slightly decreased since 1887-88. The local consumption shows a tendency to increase. The number of shops per head of population has on the whole increased; and, although the revenue has increased, this is due partly to increased consumption, and partly to keener competition in the auction sales of licenses.
The basis of good administration has been laid, but progress has not been secured, and to this result it is essential that attention should now be directed.

Ganja exported to other provinces and Native States should pay duty.
649. One important defect of the system is that exported ganja is very lightly taxed. In regard to this subject, the Excise Commissioner in 1887 remarked: "The part played by the Khandwa store as an entrepôt for the supply of the ganja demand of those provinces (the Central Provinces) is quite insignificant when compared with its use as a mart for the convenience of foreign purchasers. To it throng traders from Bhopal, Indore, Gwalior, Rutlam, Dhar, Jodhpur, Udaipur, Rewa, Panna, Baroda, and other States of less note; and licensed vendors from the North-Western Provinces compete with contractors from Berar for the purchase of the cultivators' stock. Between 6,000 and 7,000 maunds of ganja have on the average of the last four years been annually exported from Khandwa to other provinces and Native States." Since these words were written the permit and registration fees have been imposed, and all the exported ganja pays something before being removed for export. But besides a small fee for storage, Government licensed vendors exporting to the North-Western Provinces or other British provinces only pay Re. 1 per maund by way of registration fees, and foreign purchasers only pay Rs. 2 per maund for permit and registration fees. An instance is here afforded of the necessity of the systematic treatment advocated in Chapter XIV, paragraphs 588 and 590. A large amount of ganja which leaves the Khandwa store is insufficiently taxed, and it is absolutely necessary that arrangements should be made both with British provinces and with Native States to ensure its being adequately taxed in future. Whether the duty should be levied at the place of production or at the place of consumption is a matter of detail: the main point is that it should be levied somewhere before it reaches the consumers.

Duty should be raised also on ganja consumed in the province.
650. The Commission cannot regard the possible falling off in retail license fees as any reason for refusing to raise the duty on the Khandwa ganja consumed in the province unless such a falling off produces other consequences detrimental to the Administration. Caution is always necessary in raising the duty lest it should lead to illicit practices, and the circumstances of the Central Provinces require special watchfulness in this respect. The difficulties in the way of increasing the duty owing to the much lower price of the drug beyond the borders of the province are brought out clearly in the Excise Commissioner's memorandum. But making all allowances for these difficulties and for the fact that the Khandwa ganja is inferior to that produced at Rajshahi, the Commission are of opinion that the rate might safely be raised.

The system of supplying ganja to retail vendors at a fixed price.
651. The question, however, is one which is intimately bound up with the whole system of monopoly existing in the Central Provinces, and this system demands close examination. It has arisen, as has been shown, from special circumstances. Its main features are that Government interferes at the point where the ganja passes from the wholesale to the retail vendor to fix the price at Rs. 3 per sér, and that the monopoly of wholesale vend is given to a small and selected number of persons who tender for payment of duty at Rs. 2 per sér plus as much of the margin between Rs. 3 and Rs. 2 as can be got from them. There can be little doubt that, apart from the difficulties above referred to, the system itself may have operated against a rise in fixed duty. The interference in the natural operation of the laws of supply and demand has rendered it more difficult for the Government to gauge for itself the necessity for increasing the direct duty. And it may be remarked that, in spite of the fact that the direct duty has not been raised, the receipts from licensed fees have not very materially increased, and therefore, while Bengal has doubled its taxation on the ganja consumed, the Central Provinces taxation has remained stationary. The cause of this may partly be found in the different circumstances of the two provinces. Except in Orissa, the question of smuggling has been set at rest in Bengal. In the Central Provinces the arrangements with the Tributary States which were undertaken with this object have only just been completed, and it may have been considered advisable to postpone any increase in the duty until this should have been done. But even allowing for this, the Commission think there is reason for attributing to the different systems, at all events in part, the widely different results obtained.

Advantages claimed for the system.
652. The advantages claimed for the system are— (a) that it enables the retail vendor to know what he is about, and makes him independent of combinations and caprice among the wholesale vendors. This would tend to induce him to bid more for his license: (b) that it enables Government to secure part of the wholesale dealer's profits: (c) that it tends to equalize the price to the consumer all over the province. The first two of these are not in themselves of any great importance. The main object is to secure that the drug is adequately taxed; and if, as appears possible, the license fees instead of being raised are kept down by the present system, while obstacles are placed in the way of raising the fixed duty, the advantage is more than counterbalanced. And as regards the third, it may be observed that the check imposed upon the price of the drug by fixing the price to be paid for it by the retail dealer may very possibly keep the price to the consumer unduly low in some districts, while in others, where the opportunities for smuggling are greater, there is no adequate test of its suitability.

Disadvantages of the system.
653. The principal disadvantage of the system appears to be that it imposes upon the Government the responsibility of taking into consideration several factors the precise value of which it is difficult to estimate; and the effects of which are better gauged by the unimpeded competition arising from the auction of the privilege of retail sale. And it seems possible that the present system may operate to a certain extent in checking the cost of production and the profits of the cultivator. If these had free scope, they would probably tend to raise the price of the article. Moreover, the profits of the wholesale vendor as such are kept down to such a low figure that it is almost certain that he recoups himself in many cases by taking out licenses for the retail vend. The system thus encourages a combination of interests which is not generally desirable. The subject is unfortunately not treated in the memorandum, but in Jubbulpore the Commission ascertained that out of 71 retail shops, 20 were held by the wholesale monopolist. The status of the latter is such as to give him practical command of the situation, and the inference is almost irresistible that he will make use of this power to acquire for himself some of the profits attaching to the retail business if dissatisfied with the profits of the wholesale business. Viewed in this light, the limitation of the price may be to a large extent inoperative.

Its abolition recommended.
654. Upon the whole it appears to the Commission that any attempt to regulate the price of ganja otherwise than by a combined system of fixed duty and auction vend of monopoly of retail sale in tracts differently circumstanced is a mistake. It amounts to an interference either too great or too little. A Government monopoly under which, through the agency of Government officers, the drug would be offered to the public at a maximum price would be a simple arrangement. This has been shown not to be the best system for ganja (Chapter XIV, paragraph 589). The alternative is to levy a duty which must be regulated according to experience, the maximum being determined by those general considerations which have been elsewhere explained, and leave the supply unhampered, except by such check as is afforded by the auction of monopoly of retail sale. The latter affords the necessary adjustment for disadvantages pertaining to different localities, such as unusual cost of carriage, facilities for smuggling, etc. If on account of such disadvantages the rate of duty needs to be reduced, there is nothing to prevent the adoption of special rates of duty for particular tracts.
In recommending an increase of duty, therefore, on Khandwa ganja, the Commission are prepared also to recommend that the rule under which ganja is supplied by wholesale to retail vendors at a fixed price should be abolished, and that wholesale vendors should not be required to pay fees for their licenses.

Storage of ganja and increase in number of wholesale vendors.
655. In one respect the Central Provinces system is more efficient than that of Bengal, viz., the storage of the produce. No difficulty seems to have occurred in these provinces in bringing all the ganja to a central godown at Khandwa. This is probably because the establishment of the godown has obliged the cultivators to come to early terms with the wholesale dealers or their agents. Mr. Robertson, Deputy Commissioner of Nimar, says: "The agents buy up the ganja on their own account as a speculation frequently while the crop is standing. The whole outturn thus passes into the hands of about a dozen men, who are then able to run up the price at the Khandwa storehouse to all except the wholesale vendors, by whom they have been specially retained. The existence of the 'corner' in no way affects the vend of ganja, so far as this province is concerned. The wholesale vendors have to supply the retail vendors at Rs. 3 per sér, so that the latter, and through them the consumers, are not affected. But wholesale vendors from other provinces undoubtedly find it difficult to make purchases at Khandwa." The Commission think that a system which leads to the speedy disposal of the crop by the cultivators to the wholesale vendors is desirable, but the monopoly of wholesale vend seems to be in this province in too few hands, whereby combination against a rise of duty is facilitated. Subject to the adoption of the measures advocated in paragraph 654, the Commission recommend that wholesale licenses should be more freely granted without charge as in other parts of India, the selection being carefully made by local officers according to requirement.
 
Assimilation of the Bengal and Central Provinces systems.
656. If the suggestions made in paragraphs 643, 649, 650, 654, and 655 of this chapter are accepted, the systems of Bengal and the Central Provinces will be practically assimilated. And apart from the fact that the system advocated appears to possess the greatest advantages, this result is in itself most desirable.

North-Western Provinces.
657. The statistics for the North-Western Provinces are regarded by the Excise Commissioner as very defective so far as regards the amount of imports and exports. In the absence of any fixed duty, and with a revenue determined solely by the license fees, no provincial record of the traffic has been kept up. Mr. Stoker is not confident that allowance has been made for transfers from district to district, and he thinks there is much risk that the same drugs may have been counted twice, and the provincial total thus exaggerated. Moreover, licenses for the sale of the different kinds of drugs have not been sold separately. All that can be gathered from the statements furnished is that the total amount of the license fees has increased by about 75 per cent. in the last 20 years and the number of retail licenses by 50 per cent., and that the imports and consumption of ganja seem to be on the increase. The excise ganja of Bengal is being displaced by the drug from the Central Provinces and Native States, which is almost wholly untaxed, and this is one of the weak points in the North-Western Provinces administration as pointed out in Chapter XV, paragraph 609. The total revenue from license fees is in 1892-93 Rs. 7,04,788, but from this would have to be deducted the amount due to licenses for the sale of charas and bhang which cannot be ascertained. At a rough guess, it may be put at one-third, leaving Rs. 4,70,000 due to ganja. To this must be added the duty on Bengal ganja levied in Bengal (about Rs. 1,12,600) and the registration fees at Re. 1 per maund levied on Central Provinces ganja at Khandwa, making a total of about Rs. 6,00,000, or Rs. 3-2-3 per sér on all imported ganja reckoned on an average of 4,774 maunds. On the whole this does not appear to be a very inadequate incidence of taxation, but it must be remembered that there is no control of production in the province, and that the taxation on the different kinds of ganja imported is very unequal. The number of shops is very large, nearly double in proportion to population of that which is found in Bengal. There can be no doubt that in this province more control is necessary, and some measures are urgently required for reducing the taxation of the different kinds of ganja which are brought into the province to some kind of uniformity. The need of remodelling the system has been fully recognised by the officers in charge of the excise, and the proposals of the Excise Commissioner, which have the support of the Member of the Board of Revenue in charge of Excise, include the following measures:—
(1) Prohibition of cultivation except under license. (2) Prohibition of manufacture of ganja. (3) Establishment of bonded warehouses, with control of storage and issue of ganja. It is also proposed to control the import of ganja, and to impose an import duty at first of Rs. 50 to Rs. 80 per maund on pathar ganja from the Central Provinces and Native States, to be increased by degrees. For this purpose an amendment in the law will be required. Subject to the remarks which will be found further on (paragraph 679), the Commission agree in these proposals.

Madras and Bombay.
658. In Madras and Bombay the general opinion among local officers appears to prevail that no changes are necessary, though the Commission have reason to believe that these Governments recognise the impossibility of continuing the present state of affairs in view of general considerations affecting the whole of India. A seizure of 14 maunds 24 sérs of Madras ganja imported by sea to Calcutta was made in January 1894. When the Madras Collector of Customs was communicated with and asked to enquire full particulars and take action if he considered it necessary, he replied to the Calcutta authorities asking under what law he was desired to interfere. The Madras Act contains full provisions regarding the import and export of drugs; but these provisions have not been extended to the province. In view of the illicit imports into Burma from Madras, regarding which there is ample evidence from the former province, of the complaints from Mysore which are mentioned in Chapter XVII, and of the cheapness of the drug, there can be no doubt that reforms are urgently required. The system in Bombay is somewhat more formulated, but in view of the large amount of ganja produced, and the still lower price of the drug in the producing districts, there is no less need of an improvement in the system of administration. The annexed table gives a comparative view of the cultivation and taxation of ganja in these provinces, and in Bengal and the Central Provinces. The only comparison which can be made is that of total taxation per acre of reported cultivation, because the areas of cultivation and totals of taxation are the only figures on which any reliance can be placed in these two presidencies:— 

Compared with Bengal and the Central Provinces.
659. The Bengal figure in columns 4, 5 and 6 represents nearly the whole of the revenue levied on all the ganja produced on the area given in column 2, as the Assam and Kuch Behar duties, which are not levied in Bengal, have been added. The only item which cannot be added is that portion of the North-Western Provinces license fees which is due to the sale in those provinces of Bengal ganja. If this is calculated according to the proportionate amount of such ganja, it would not materially affect the calculation. If a similar calculation is made to determine the amount of the license fees due to the sale of Khandwa ganja in the North-Western Provinces, about Rs. 1,57,000 would have to be added to columns 5 and 6 of the Central Provinces figures, and the result of this will be to raise the average revenue per acre of cultivation in column 7 from Rs. 219 to Rs. 393. Some of the Khandwa ganja also finds its way into Bombay and Berar and other tracts, and pays duty there in the form of license fees; so the average per acre of Rs. 393 is still under the mark, but in any case the taxation thus calculated is very much less than in Bengal. On the other hand, the average revenue per acre for Madras and Bombay is probably over the mark, as the amounts in column 6 represent the license fees paid for all the hemp drugs and not ganja only; and in the sales effected under these licenses is included a certain amount of ganja, at all events in Bombay, imported from other provinces. Against this, however, must be set the fact that both the presidencies export ganja,—in Madras to the extent of about one-seventh of the total produce, and in Bombay to the extent of more than onehalf. But as the bulk of these exports goes to Native States, or is exported by sea, no revenue is realized therefrom, and the figures of column 7 are therefore on the whole probably in excess of the true figures. The general conclusion is that as compared with Bengal, or even with the Central Provinces, the taxation of the ganja produced in Madras and Bombay is very light.

History of the subject in Madras.
660. In the Madras Presidency various proposals have been made from time to time for introducing some control into the excise administration in respect of hemp drugs. In 1886 a circular was issued to all Collectors by the Commissioner of Salt and Abkari calling for information as to the extent and nature of the trade in these drugs. In this circular it was suggested that for the present it would probably suffice (a) to forbid cultivation except under license, which would be granted free of payment; (b) to prohibit manufacture except under license; (c) to sell the monopoly of manufacture and vend by districts or taluks as might appear best, licenses for manufacture and retail vend being granted at the Collector's discretion in such number as might appear requisite as in the case of the opium farms. Most of the officers consulted recommended the adoption of these proposals. The Board of Revenue, although they considered that the information collected showed that the consumption of intoxicating drugs was very limited, remarked that it was clearly the intention of the legislature that cultivation should be licensed, and they made the following proposals to Government:— (a) to prohibit cultivation except under license to be granted free; (b) to restrict possession by persons other than licensed wholesale and retail vendors; (c) to grant free licenses to wholesale dealers; (d) to put up to auction licenses for retail sale; and (e) to impose a pass duty. In view, however, of the indefinite and uncertain information obtained regarding the extent of the traffic in the drug and the limited nature of the consumption, the Madras Government came to the conclusion that in most parts of the Presidency no restriction was called for, but remarked that it was prepared to extend the provisions of the Abkari Act relating to intoxicating drugs to limited areas on adequate cause being shown. Experience, however, showed that the demand for the drugs was considerably larger than was suspected, and that the competition in certain districts for the privilege of vend was very keen. Accordingly the licenses for retail vend were sold by auction, with the result that the revenue from this source rose the first year from Rs. 8,805 to Rs. 54,989. No further measures for controlling cultivation or restricting consumption were taken. The Board again considered the question of limiting the legal possession of the drug, which had been advocated by the majority of the Collectors, but came to the decision that restrictions on the cultivation of the plant should precede those on possession, and their objections to revising the idea of licensing cultivation appear to have been (a) that this would involve the taking out of a license by every person who had a plant or two in his garden; and (b) that it would have been necessary to make a large increase in the number of shops in order to meet the legitimate demands of consumers. It is not clear why the Board changed their views regarding prohibition of cultivation which they had previously recommended. And the number of shops existing in Madras is under the existing arrangement manifestly inadequate, being one for every 144,781 of the inhabitants. Considering that the consumption of the drugs in Madras is found to be much larger than was suspected, and that the propriety of introducing more control into the administration has for several years been recognized, the Commission are of opinion that the needed reforms should be no longer delayed.

Treatment of the subject in Bombay.
661. The system in Bombay, which was introduced in 1880, does not seem to have been brought under discussion since that time. The Commissioner of Excise states that the subject attracted little attention till the Commission was appointed. The Commissioner of the Northern Division says that the system seems to have grown up in a haphazard way. The subject has been treated mainly from the revenue point of view, and the control exercised has not been strict. At the same time the area of regular ganja cultivation in Bombay seems to be considerably larger than in any other province; and if measures with a view to restriction in consumption are necessary anywhere, they certainly appear to be so in this Presidency.

Control of cultivation for ganja.
662. The Commission on a full review of the whole circumstances connected with the ganja administration have framed the opinion that cultivation of the hemp plant for the production of narcotics in Madras and Bombay should be prohibited except under license, and that the licensed cultivators should be restricted to a limited area as in Bengal and the Central Provinces. They are of opinion that no greater difficulties exist in this respect than have been already overcome in these provinces. A few remarks are offered in justification of this view.

Restriction of area of cultivation.
663. First.—In Madras and Bombay, as was formerly the case in Bengal and the Central Provinces, the regular cultivation is already confined to limited areas. There is practically scarcely any regular field cultivation of ganja except in the Kistna and North Arcot districts of Madras and the Ahmednagar and Satara districts of Bombay; and the prohibition of cultivation in other districts will involve no serious difficulty. And though the ultimate inclusion of all the ganja cultivation in an area more circumscribed than that of two whole districts is desirable and probably feasible, still the limitation even thus far would be a considerable step in the right direction.

Objection as regards private cultivation.
664. Secondly.—If it be objected that the prohibition of occasional cultivation of a few plants in the private gardens or enclosures of individuals will be difficult to enforce, to this the Commission would reply— (1) This difficulty has been overcome in Bengal, Assam, and the Central Provinces, in parts of which, as abundantly established by the evidence taken by the Commission, this sporadic cultivation was equally prevalent. (2) The difficulty is not so great as it seems; for whereas at first sight it seems that it would be necessary in order to enforce the prohibition to increase establishments and exercise vexatious interference with the people, such has not been found from experience gained in other provinces to be actually the case. The difficulty of concealing the plant and the evidence of illegality involved in the mere existence of a prohibited plant in occupied lands, coupled with a legal prohibition, has in fact sufficed almost to exterminate such growth in tracts where ganja is produced with a minimum of prosecutions and penalties.

Objection as regards wild growth in Madras and Bombay.
665. Thirdly.—If it be objected that the wild hemp plant growing in unoccupied lands is so plentiful that, even if the prohibition against cultivation is successful, ample opportunity will still be found to bring a large amount of ganja into the market from this source, to this the Commission reply— (1) That the ganja derived from such spontaneous growth, untended and unimproved, is so inferior as to obviate all likelihood of its competing with the cultivated ganja. (2) That wild hemp in the strict sense is not found in tracts removed from human habitations, past or present; and the amount of ganja capable of being smoked which can be procured from such growth will not interfere with the success of the proposal.

Objection as regards Native States.
666. Fourthly.—If it be objected that the ganja produced in Native States adjoining the Madras and Bombay Presidencies cannot be kept out of the province, and that this fact alone vitiates the scheme, to this the Commission reply—
(1) That even if this be so, the same may be said of the provinces where cultivation is controlled; and while the arrangements of these provinces are, no doubt, affected by the proximity of Native States, they are nevertheless sufficiently successful for practical purposes. (2) That there is nothing to prevent the Government from entering into negotiations with the States (as has been done in the case of the Central Provinces, apparently with marked success) for mutual co-operation in the interests of the excise revenue, and the Commission (vide Chapter XVII) are prepared to recommend that this should be done.

Evidence relating to control of cultivation in Madras.
667. It will be desirable to analyse the evidence on this point in both presidencies. Several witnesses in Madras speak of the needlessness of controlling cultivation, but on this point it cannot be expected that they should take a sufficiently wide view, as the interests at stake are larger than those of individual districts. The only witnesses who consider the measure impossible are—Mr. Sewell, Collector; Mr. Mounsey, Collector; Mr. Willock, Collector (as regards the Agency tracts); and Mr. Taylor, Manager, Jeypore Estate (as regards the Agency tracts); two Deputy Collectors; and a Missionary.
On the other hand, there is a much larger consensus of opinion that control is feasible. The Hon'ble Mr. Crole, Member of the Board of Revenue, in charge of Excise, says: "If you were to order the stoppage of cultivation of hemp or even rice, it would be done. There would be no difficulty in having the order carried out. The people would stop the cultivation: they are quite amenable. It would be stopped without the necessity of espionage and interference, but there would always be the risk of false charges." Mr. Merriman, Deputy Commissioner of Salt and Abkari, says: "There is a good deal of backyard cultivation which is untaxed. It would be desirable to stop the sporadic cultivation if feasible. I think we could do this. I think it would be far simpler to issue an order stopping cultivation, and that would be far easier than attempting to tax it. I believe this cultivation could be stamped out by the mere issue of the order; and, supposing that there were reasonable facilities for consumers obtaining the drugs, the dissatisfaction would not be great." Mr. Benson, Deputy Director of Agriculture, says that "prohibition of cultivation would not harass the people, as those affected would be so few; and it would, I think, within a short time accomplish its object." Mr. Levy, Acting Deputy Commissioner, Salt and Abkari, thinks "the cultivation of the hemp plant, and the manufacture and possession of the drugs therefrom, should be brought under thorough control." Mr. Bradley, Collector, thinks that, except in the Wynaad, prohibition of cultivation would be possible in Malabar, and could "be generally carried out without much interference with the people, but would be hardly possible in the jungly parts." He thinks that for ordinary tracts the present abkari staff might be sufficient to secure compliance with the order, though he does not guarantee this.
Other advocates for the control of cultivation are—Five Deputy Collectors, one of whom, Mr. Azizuddeen Sahib Bati, in North Arcot, says that a prohibitive order would have the effect of stopping cultivation without any great interference; two Deputy Conservators of Forests, three Tahsildars or Acting Tahsildars, the Hon'ble Rai Bahadur Sabapathy Mudeliar, Raja K. C. Manavedan, three pleaders, five missionaries, and four others, viz., a municipal chairman, a zamindari manager, a cashier, and a sarishtadar.

Bombay.
668. In Bombay, though several witnesses say that further control is unnecessary, three of whom are under the impression that licenses are already required for cultivation, there is no opinion adverse to its restriction on other grounds. The following officers see no serious objection to restriction of cultivation:—Mr. Vidal, Chief Secretary to Government; Mr. Reid, Commissioner; Mr. Campbell, C.I.E.; Collector; and Mr. Ebden, Collector of Ahmednagar.
Mr. Monteath, Collector, though he thinks there is no need for controlling cultivation, is of opinion that the time has come for putting the drugs on the same footing as alcohol and opium. Three Deputy Collectors are in favour of control; also two mamlatdars, an inamdar, a forest officer, and a drug farmer.
From this analysis of the evidence it seems clear that no great difficulty need be anticipated in bringing the cultivation of ganja generally under control. There are tracts, no doubt, where measures would have to be taken by degrees and with caution; but the inclusion of these at the outset in a system of control is not essential.

Supervision of the manufacture and storage of the crop required with a view to imposition of duty.
669. The Commission are further of opinion that control and limitation of cultivation must be accompanied with such supervision of the manufacture and storage of the crop as is necessary to the imposition of a fixed duty on ganja in addition to the fees for licensed vend which are at present levied. In regard to both these matters, the experience of Bengal and the Central Provinces is available, though the systems differ at present as to storage.

Levy of duty in Madras and Bombay.
670. That there is room for the imposition of a duty on ganja in both presidencies can hardly be doubted. In Madras, though there are several officers of standing who are satisfied with the present arrangement, there is no protest against increasing the duty, while a few witnesses are in favour of increasing the price of the drugs. Mr. Willock, Collector, says: "I am not opposed to an increase of the price of the drug where practicable." Mr. Bradley, Collector, says: "At present I do not think hemp drugs are sufficiently taxed with reference to alcohol." Other advocates of increased taxation are: a District Surgeon, a District Forest Officer, a Deputy Tahsildar, two medical practitioners, a jagirdar, a pleader, a merchant, a newspaper editor, bank cashier, and three missionaries. In Bombay there is also a good deal of evidence as to the needlessness of further interference on taxation; but there is at the same time weighty evidence in favour of increased taxation. Mr. Mackenzie says: "I think the taxation of the hemp drugs in this Presidency might be raised; but the question would require details and careful examination. The ganja of this Presidency is roughly manufactured, though the cultivation is careful enough. A direct tax would necessitate the adoption of a system of distinct wholesale vend. I see no objections to that, as the tax does not fall on the cultivator. The variations in the retail price shown in paragraph 8 of my memorandum are, no doubt, excessive, and seem to indicate that there is room for taxation to regulate the wholesale rates of the drug." Mr. Vidal says: "In view of the higher taxation in other provinces, I see no reason why there should not be a higher direct tax in this province. The disproportion between the taxation of liquor and of hemp drugs, and the relative dearness of liquor which results from this, also points to the propriety of increasing taxation on hemp drugs." Mr. Monteath, Collector, says: "I think the present system of excise administration in respect of hemp drugs has worked fairly well, but that the time has come for putting these drugs on the same footing as alcoholic stimulants and opium. Hitherto the consumption of preparations of hemp has not been extensive, and so long as it was very small, the farm of the right to sell, as dispensing with the need of any preventive establishment, was perhaps more suitable. But it seems that not only in this district (Bijapur), but throughout the Presidency, the amounts bid for the right to sell have been increasing, and it may fairly be inferred that the habit of consuming these drugs is spreading. It cannot, indeed, be said yet to be prevalent; still the total consumption is, I think, sufficient to make it worth while to impose an excise duty; it is already in this district much in excess of the consumption of opium, though insignificant as compared with the consumption of alcoholic stimulants, particularly toddy. It is, I believe, generally admitted that the system of deriving a revenue by farming the right to sell is suitable only in the earliest stage, and that the levy of an excise duty is the fairest and most satisfactory method of taxing an article produced in the country. Now the levy of an excise duty on preparations of hemp will present no difficulties in this Presidency. The existing abkari establishments would probably suffice for the levy of the duty, or at least would require strengthening to but a small extent. The levy of an excise duty would not, I think, excite any opposition. An alteration in the form of duty could not reasonably be objected to." Mr. Ebden, Collector, says: "The hemp drugs are very much cheaper than liquor now. For a pice a man can get enough ganja to last him for a week if he is a moderate consumer. There is, therefore, considerable margin for heavier taxation of the drug without driving the people to liquor or other intoxicants. I consider there is a considerable margin for taxation, though the drug is consumed by the very poor. I have no sympathy with the excessive consumer, and the moderate consumer would not feel a moderate increase." Mr. Sinclair, Collector, says: "I consider there is a margin for increasing taxation, having regard to the price of other intoxicants, the fact that the drugs are mainly used by the poor, and the danger of smuggling." Mr. Almon, Assistant Collector, Bombay, says: "My impression is that the tax on the drugs is too low. I think that the ordinary liquor consumer pays twice as much for what he wants as the ordinary ganja consumer would, or three times as much as the ordinary bhang drinker. I think the rates should be equalized." Other advocates of increased taxation are three Deputy Collectors, the Administrator of the Jath State, an Assistant to the Commissioner, an inamdar, a mamlatdar, a pleader, and a drug farmer.

Recommendations regarding taxation of ganja in Madras and Bombay.
671. In view of these opinions, as well as of the general considerations which have been explained above, the Commission have no hesitation in advocating the gradual assimilation of the Madras and Bombay systems to that in force in Bengal. The process of arriving at adequate taxation must necessarily be gradual, but a commencement should be made without any further delay. The present is the time for this measure, while consumption of ganja is still believed by the authorities to be very limited. It cannot but be the case that the enormous difference between the taxation of liquor and ganja is an incentive to the increase in the drug habit, and such an inconsistency between the arrangements of different provinces and the administration of the excise on different kinds of intoxicants cannot, in their opinion, be any longer maintained.

Berar.
672. In Berar the foundation has already been laid for the introduction of a system of control in respect of ganja similar to that advocated by the Commission. Cultivation is already restricted and an acreage duty imposed on its growth. The Commission are not aware of the conditions under which this has been found possible. The law of the province stands on a special footing, as previously explained. The Commission believe that there will be no difficulty, and there certainly will be some advantage in assimilating the system to that which exists in the Central Provinces, and which may ultimately be adopted in Bombay. Ganja is inadequately taxed, and it is unlikely that the pitch of taxation necessary to restrict the consumption can be reached otherwise than by a direct duty, or that a much heavier acreage duty will effect the desired object.

Ajmere, Coorg, and Quetta-Peshin.
673. Not much need be said of the other minor administrations. Progress in Ajmere must depend upon co-operation with the British system in surrounding States. Ultimately it is probable that the system can be assimilated to that in force in the rest of British India. In Coorg the price of ganja is very low owing to the facility of obtaining a supply from the Madras Presidency. When the system of the latter is revised, care should be taken that similar restrictions in Coorg are not wanting. Quetta-Peshin hardly requires special notice. The consumption of ganja must be very small, if it exists at all, as the sources of supply are very distant. The retail price stated to prevail is higher than anywhere else in India except Bengal and Assam.

Taxation of charas.
674. As the only province which receives large imports of charas, the Punjab is primarily concerned with the administration of this drug. Hitherto there has been no taxation of charas in the Punjab beyond the levy of license fees for its vend. It is not used in Assam, Madras, Berar, and Coorg, and but little in Bengal, the Central Provinces, and Bombay. It is used in the Punjab, the North-Western Provinces, Sind, and Quetta-Peshin. Bengal levies a duty of Rs. 8 per sér on the small amount imported, and the Central Provinces Rs. 10 per maund. In Bengal, Mr. Gupta says that it will be necessary ere long to raise the duty. The import duty in Bombay is 8 annas per maund. In the other provinces the only tax is, as in the Punjab, that which is represented by the license fees for vend. Bengal is, therefore, the only province where the taxation is adequate. In the North-Western Provinces it is proposed to levy a duty of Rs. 80 to Rs. 100 per maund on all charas imported. In the Punjab, in pursuance of the provisions of Act X of 1893, a duty of Rs. 20 per maund has been proposed. This appears very small. The conditions under which the trade in charas from Yarkand is carried on operate to some extent against more severe taxation. But if provision is made to prevent the tax from being demanded from the actual importers, the Commission are of opinion that there is ample room for taxation without the trade
being seriously affected. There is a large amount of responsible evidence for taxing the drug in the Punjab and the North-Western Provinces, where the consumption is far greater than elsewhere, and the Commission think that Rs. 80 per maund is not too high to begin with. Ultimately, regard being had to the consideration above noted, the taxation might be raised considerably.

Transport of charas and interprovincial arrangements.
675. As the supply of charas is so completely within the control of Government, it is not necessary to say much regarding its disposal. The establishment of bonded warehouses, to which the drug can be taken on arrival, and from which it shall be issued only on payment of duty by the licensed vendors, has already been decided upon in the Punjab. This measure will relieve the importers from having to pay the tax in anticipation of sales, and consignments from these warehouses will be sent under pass to the different centres of consumption. The Commission do not think it necessary that the whole duty leviable under provincial arrangement should be demanded when these consignments are removed. The bonded warehouse system may be again resorted to by Local Governments which desire to impose further taxation locally. But as from time to time the Punjab Government will, no doubt, find it possible, with reference to political considerations, to enhance the duty, it will be desirable that there should from the first be an understanding as to the relative claims of the importing province and the consuming province to the duty realized. A similar question has arisen regarding the Rajshahi ganja exported to other provinces, and the procedure has not been uniform. This is one of the cases in which the intervention of the Supreme Government is needed for the settlement of inter-provincial arrangements and of arrangements between British provinces and Native States. It may be necessary to amend the Act in order to carry out the above suggestions. For although section 23-A of the Act provides for the imposition of duty on the imported drug without specifying where it should be paid, section 36 (d) lays down that the bringing of it into British India without payment of the prescribed duty is an offence. The matter is under the consideration of the Local Government. It is essential that arrangements should be made for taxing charas not at the frontier, but at the bonded warehouses.

Control of bhang.
676. The difficulty of controlling bhang in Bengal, Assam, the North-Western Provinces, and the Punjab arises from the fact that there is large spontaneous growth in the mountainous and submontane tracts of these provinces. There is undoubtedly a belt of growth which precludes strict control. But in parts of these provinces away from the hills there is little or no spontaneous growth, and in these parts as well as in the other provinces control is possible. There is a little cultivation in the Punjab and the North-Western Provinces, and considerably more in proportion in Sind. None of this cultivation is in the Himalayan region, where the wild growth exists. With the exception of Bengal and the Central Provinces, the only taxation is that realised by auction vend of the monopoly of sale. In Bengal a duty of 8 annas a sér is levied on all bhang brought to the storehouses under Government supervision, which represents but a small fraction of what is illicitly consumed. Without controlling the spontaneous growth of the plant, it has been found impossible to raise the duty, though the subject was fully considered in 1889-90. In the Central Provinces a duty of Rs. 2 per sér is levied on foreign bhang, which operates to prevent the imports from passing a very limited figure. The taxation of this bhang is excessive, and its sale is affected by the fact that only the wholesale dealers are allowed to sell it by retail.

Recommendations for its control and taxation.
677. The Commission are in favour of taking such measures as are possible for controlling and taxing bhang. For the present they consider that in the belt of growth above referred to nothing more can be done than to auction the monopoly of retail vend. In other parts they are of opinion that cultivation should be prohibited, except under licenses, and arrangements made for the transfer of the whole crop produced from licensed cultivation to the authorised vendors. In these tracts they are of opinion that some attempt may be made to extirpate the spontaneous growth by rendering the occupiers of land responsible that it shall not be found on their lands. Legislation may be necessary for the purpose. They would like to see Mr. Westmacott's circular which was cancelled by the Bengal Government revived, and they would suggest a modification of the Assam circular permitting the use of green or dry hemp for the use of cattle. Now that the habitat of the spontaneous growth has been clearly defined, Local Governments will have no difficulty in deciding where, for the present at least, the existing system must be allowed to continue. The Commission think that it may be impossible to treat the bhang which is produced in ganja-growing tracts in a different manner from ganja. To do so would probably be to imperil the ganja administration. But if this opinion is found to be mistaken, they would be glad to see this bhang more leniently treated than ganja. The Commission find that in the Central Provinces bhang is only permitted to be sold by the wholesale vendors, and the duty is the same as in the case of ganja. The reason for this is not apparent. As judged by the standard of other provinces, the incidence of taxation is high compared to ganja.

Distribution of the hemp drugs to retail vendors.
678. As regards the distribution of the drugs to retail vendors, the Commission think that when adequate arrangements have been made for their taxation, not much interference is required. The evidence contains various suggestions on this subject. Some witnesses point to the large profits reaped by wholesale vendors, and suggest that these middlemen should be abolished, and that the functions discharged by them should be assumed by the Government in order that these profits may be secured for the public revenues. The Commission are not in favour of this proposal. It is open to some of the objections against a Government monopoly which have been previously stated. If the profits reaped by the wholesale vendors are found to be excessive, this fact would point to a rise in the duty. If the latter is sufficient, the Government need not concern itself with the dealers' profits. Private enterprise is, moreover, better suited for the distribution of the taxed drugs than Government agency. The aim of Government should be to dissociate itself, as far as possible, consistently with efficient control and adequate taxation from the supply of the drugs. This general policy may admit of special exceptions. The Bengal Government has made provision for such exceptions, while affirming the general principle, in the following rule*:—" Except in districts where minimum prices have been prescribed by the Board, no attempt should be made to regulate the price at which spirits, liquor, or drugs are supplied by the producer or wholesale dealer to the retail vendor, or by the retail vendor to the consumer," In the Central Provinces the price at which the wholesale vendor is to supply the drugs to the retail vendor has been fixed for all districts, and the subject has been already considered. This is not done elsewhere in British territory, and any deviation from the ovestated principle seems to the Commission to require special justification. The privilege of wholesale vend should not be too restricted. This will result in great  variations of the prices paid by consumers owing to the absence of ompetition. In Assam the "effect of farming the monopoly of a whole dist to a single  person has been found to result in very high prices even were smuggling is known to exist," and this should be obviated if possible freer competition in regard to the supply. If this fails, special arrangements may be required for keeping the price at a reasonable figure.

Import, export, and transport duties.
679. In some provinces import, export, and transport duties are levied; and this practice is not uncommon in Native States. This practice arises from the want of uniformity which exists in the systems of administration. It is attended with considerable difficulties, and serves no useful purpose in itself. If all the drugs were adequately taxed at the sources of supply, subject to such additional taxation as local circumstances demand, the amount of which is best determined by auctioning the licenses for vend, there would be no need for such duties at all. As a supplementary means of taxation, where these requirements are not fulfilled, it may be necessary in special cases to maintain them. This must be the case, at all events for some time to come, if drugs are imported from Native States into British territory. But, if possible, such imports should be entirely prohibited, unless the State concerned has assimilated its system to that in force in British territory. Transport duties from one place to another in British territory should be entirely abolished as soon as adequate taxation of the drugs at the source of supply has been provided for. A system of free passes to licensed persons is all that is needed. Partil measures of this kind tend to obscure the real issue, viz., how far consumption needs to be checked by a rise in duty.

Retail vend. (a) Separation of licenses for different kinds of drugs.
680. The system of retail vend differs largely in the different provinces. In some places the licenses for retail vend of the drugs are held by the same persons and under the same contract as licenses for the sale of opium without any attempt to discriminate the amount of fees due to each. More frequently the licenses cover the sale of all kinds of hemp drugs, and the relative demand for the different kinds is not ascertainable. Where the demand is small there may be reasons for maintaining the latter system, but the hemp drug licenses should, in the opinion of the Commission, be distinct from all others, and in most cases it is desirable that the licenses for the different kinds of hemp drugs should also be distinct; for it is not the desire of Government that a demand for any of the drugs should be created. Shop licenses should only be given where the demand exists, and there may be a demand for one kind and not for another. The demand for a bhang license, for instance, should not be responded to by licensing the sale of ganja or charas in addition, which may not be necessary. As a rule the licenses should be sold separately. As Mr. Stoker says: "This would enable us to provide for the sale of the more harmless forms of the drugs without the others, and to meet the demand for one form without allowing the sale of the other forms of the drug."

(b)Separate sale of shops.
681. As to the question whether the licenses for different shops should be sold separately or collectively for any given tract, the Commission are not prepared to generalize. The latter system affords a better guarantee for the respectability of the licensee, and has the mt of simplicity. But where auction bids are affected by combinations, the seperate system may be desirable. The matter is one that must be left to the disction of Local Governments and Administrations.

(c) Grant of retail licenses to  wholesale vendors.
682. The Commission are averse, as a rule, to the grant of retail licenses to wholesale vendors, and there is a good deal of evidence against the practice. It is not desirable to insist on the wholesale vedors becoming also the retail vendors, and diversity of practice tends to produc complications. If both functions reside in the same person, he has too extensive a monopoly, and will command the market to an undesirable extent. It cannot be too strongly insisted upon that uniformity and simplicity of system are essential to providing the means for ascertaining whether the drugs are sufficiently axed; and when some of the shops are held by the wholesale vendors, and others be separate retail vendors, it is more difficult to gauge accurately the effect of the system. At the same time the Commission are aware that the practice of allowing wholesale vendors to hold retail licenses is very general, and they are unable to recommend that it should be authoritatively put a stop to. The subject is one which they would commend to the notice of Local Governments with reference to the above remarks.

(d) Licensing of shops.
683. A separate license should be granted for each shop. This is ordinarily the practice, but there are exceptions. None should be permitted. The District Officer should watch the auction bids and refuse to renew licenses if they only amount to a nominal figure. The principle should be to supply a real demand, not to create one; and if the demand only exists to a very limited extent, the danger of stimulating it must prevail against the convenience of the very limited number of consumers. The number of the population per retail license in the different provinces in 1892-93 was as follows:—
Souls. Bengal 23,560 Assam 19,975 North-Western Provinces 12,012 Punjab 12,869 Central Provinces 9,109 Madras 144,781 Bombay 43,528 Sind 4,478 Berar 6,061 Ajmere 30,130 Coorg 28,842
The number of shops in Madras is only 246, and the allegation of some of the witnesses that there is no need for shops because the consumers of ganja can get ganja when they require it from the cultivators receives confirmation from these statistics. In Bombay the number of shops is stated to be nearly double the number of retail licenses, and the difference is not explained. The number of souls per shop is only 24,681. No doubt density of population is an element in the consideration, and thinly populated tracts will require more shops proportionally than where population is dense; but the number of shops in the North-Western Provinces, Punjab, Central Provinces, Sind, and Berar seem to require attention with reference to these remarks. A considerable reduction of shops has been under consideration in the North-Western Provinces which was to come into force in 1893-94.

(e) Consumption on the premises.
684. The hemp drug shops in British India are rarely used as smoking resorts. They are not unfrequently shops where other articles are also sold. If not, they are generally small and incapable of affording accommodation for a number of persons. Ganja smokers who smoke in company generally congregate in places of public resort or in their own houses. And the evils which result from consumption of liquor on the licensed premises in England may be said to be unknown in connection with ganja shops. There are a few witnesses who in answer to the Commission's question on the subject say that such shops are undesirable; but these remarks are mainly founded on theoretical objections, not on practical experience. In the Central Provinces consumption on the premises has been prohibited since 1891, but there is no information as to the origin of the prohibition. It seems probable, however, that when the prohibition was issued as regards madak and chandu, the clause was made to include the hemp drugs without special inquiry. In the City of Bombay there are two classes of shops—those in which consumption on the premises is permitted, and those in which it is prohibited. With reference to the former, Mr. Campbell, Collector, says: "I think it is a good thing to have some shops in Bombay City where the drugs are consumed on the premises. It keeps the consumers under notice. The shops are bound to close at a certain hour and the consumers to behave in an orderly manner. This tends to regulate the practice and control the habits of consumers. The closing of the chandu and madak shops is said to have really increased the number from 14 shops to about 150 clubs. The latter are not open to inspection or visit by the authorities. As a matter of fact, too, consumption of ganja within licensed shops is really small and shows no serious evil." Places for sale and consumption of ganja are contemplated by the old Bengal Acts II of 1866 and IV of 1866 relating to Calcutta. The Excise law is generally silent on the subject. The Commission have no recommendation to make on the subject which may be left to the discretion of Local Governments. In the course of their inquiries in the North-Western Provinces, it came to the notice of the Commission that in Lucknow shops were kept by females (called Sakins) for the sale of hemp drugs. The witness who mentioned the fact described the "Sakins" as "worse than prostitutes." The practice was brought to the notice of the Local Government, and stringent orders prohibiting the grant of licenses to "Sakins" have been issued. It has been brought to the notice of the Commission that in Assam, where indulgence in liquor sometimes is so rife among the coolies that the garden work is entirely stopped, some planters have taken the shops themselves, and kept them under control to prevent drunkenness. The plan is one which might be tried as regards ganja in cases where its use has any tendency to a similar result. In the Punjab and in Quetta-Pishin the licenses for retail vend have a provision binding the vendor not to sell the drugs to children or insane persons. The sale to children has been noticed by a few witnesses in other provinces, and the Commission recommend the adoption of a similar provision in all such licenses everywhere.

Local option: Law regarding—
685. The provision made in the law or rules of the Excise Department for consulting local public opinion in regard to the opening of shops is very limited. The Bengal Act contains a provision for assigning to any municipality with its consent the functions of the Local Government relating to the grant of licenses, and after such assignment no conditions or rules may be imposed by the Local Government without the consent of the Municipality. It is not clear whether any municipality in Bengal has been invested with these powers. But in every case of licensing shops in a municipality the Collector is ordered by rule to notify to the Municipal Commissioners the sites selected for shops within municipal limits; and should they object to any of them, he is instructed carefully to consider their objections, and, if he does not agree with them, refer the matter to the Commissioner of Excise for decision, pending which he must not allow any shop to be opened on a site objected to. In no other province is there any special provision of the law for ascertaining the wishes of the people in regard to the opening of shops for the sale of hemp drugs.

Evidence of revenue authorities regarding local option.
686. The subject of local option was put to the witnesses, who were asked whether the wishes of the people are consulted or considered in any way before a shop is opened in any locality, what measures are taken for this purpose, and whether local public opinion ought to be thus considered. The number of witnesses who have replied in the affirmative to the latter question is considerable—228 in all, of whom 31 are superior civil officers, 79 subordinate civil officers, and 104 non-officials. But very few of these witnesses express any opinion as to the method by which local opinion should be consulted. The existing practice is not to consult local opinion definitely. The opinions of local subordinate officers are received, but seldom those of the residents of the locality, though any objections which may be made are considered. With this procedure the highest authorities generally are satisfied. In Bengal, Mr. Lyall says: "No attempt at a plebiscite or anything of that kind is made. The number of shops has been greatly reduced of late years, as statistics will show. Further reduction would cause great discomfort to consumers, and I think they have a right to be considered. I am not prepared to say whether an appeal to public opinion would result in the closing of many more shops." Mr. Westmacott says: "I think it is rubbish consulting local public opinion. It generally means consulting a number of babus who are out of all sympathy with other classes, and utterly ignorant and careless of their requirements. By babus I mean those known in Bengal as the bhadralok, comprising pleaders and schoolmasters in great part. My remarks do not apply to zamindars, who would  not come forward and give an opinion in the matter of local option, but I should undoubtedly go to them if anxious to find out what the local public opinion was. There would be no difficulty in getting public opinion in the villages, for it would be ascertained from the pradhans or principal raiyats; but in towns the division between classes is such that there is no homogeneous public opinion, if I may use the phrase." Mr. Gupta says local "opinion is not formally consulted, but attention is paid to any reasonable objection raised against particular sites, though most of the sites being old ones, it is seldom that they are objected to. Moreover, shops for the sale of hemp drugs are not considered a nuisance, and are often accommodated in the same room where other busins is carried on." In the North-Western Provinces, Mr. Cadell says: "I have never heard of any objections to drug shops. I have heard such objection regarding spirit shops. The wishes of the community should be consulted. Hitherto the objection to drug shops has always come from above, viz., from the Board, the Commissioner, or the Collector." Mr. Stoker's evidence is to a similar effect. In the Punjab, Mr. Gordon Walker says: "There is nothing in the nature of 'local option.' In practice the shop sites remain as they have been established for a long time, and the necessity for a change in the way of adding new shops or closing existing ones seldom arises." It may, however, be noted that there is special provision in the Punjab for inviting the opinion of the residents of a locality regarding the opening of a new liquor shop and holding a local inquiry if necessary. Similarly in the Central Provinces, there is a modified system of local option as regards liquor shops, which are more than six times as numerous as ganja shops, but not in regard to the latter. Mr. Drake-Brockman says that the administration has all along shaped its policy on the assumption that the drug is extremely deleterious, and it is a standing order that no more should be licensed than are necessary to meet the demands of consumers, who, if a licit supply were not available, would probably supply themselves illicitly. Mr. Laurie says: "In an agricultural province like this, the people are not given to formulating their views in speech or writing; and 'public opinion' can only be arrived at by laborious research." In Madras "it has been directed that in cases of alterations in the number or sites of shops in municipalities, a list of the proposed shops with their sites should be forwarded to the Council in sufficient time to admit of its remarks being received and considered; and though in the rural tracts the location of shops is at the discretion of Revenue officers, representations from District or Taluk Boards or Taluk Unions would invariably be received with attention." In Bombay, Mr. Mackenzie says: "There is no fixed rule as to local option. In some districts it is attended to carefully; in others the Collector uses his discretion according to the information he possesses as to the demand; but in all any representation by the inhabitants for or against the establishment of a shop would have full consideration. Such representations, however, have seldom been made." The same is the case in Sind. Mr. James, the Commissioner, says: "No concession of local option in the matter of hemp drug shops has been made, nor is it necessary. Where there is sufficient demand, the farmer applies for a shop, and retailers are all grocers, and the drug forms an addition to their ordinary stock of groceries A farmer does not, like a publican at home, stimulate sales by accessories calculated to make his shops attractive. He simply depends on the demand. The Collector and District Magistrate, after consulting the local officials, is able to judge whether a shop should be opened or not, and local residents other than the consumers of the drug take no more interest in the matter than a tailor in an English country town in the question whether a particular grocer down the street should have a license to sell claret or not. The subordinate officials whom the Collector would consult before deciding no doubt ask the local zamindars or Hindu mukhi their opinion upon this as upon most matters affecting the peace and comfort of the village. But the matter is too insignificant for any formal rule to be made or to be necessary."

Other evidence.
687. It is perhaps doubtful what might be the effect of an attempt to canvass public opinion more completely than is at present done. A missionary in Bengal and another in Assam think that local public opinion would close every ganja shop. But Mr. Cockburn, an officer of long standing in the Opium Department, North-estern Provinces, says: "If the wishes of the people were consulted, the number of liquor shops would be at once doubled, and ganja and bhang obtained at every bania's." Mr. Thorburn, Commissioner in the Punjab, takes the same view. A missionary in Madras, who is an advocate of prohibition, says: "I do not see the use of consulting local opinion on such a question. Though public opinion is decidedly against the use of hemp drugs, it is doubtful if the majority of the people would take the trouble to express any opinion on the subject, while consumers of the drug would certainly try to show that opinion was in favour of opening such shops." One witness in the Central Provinces sees serious objections to referring the question to public opinion on the ground that, "whenever public opinion is taken, it has led to many difficulties and mal-administration." There are three opinions, two in Bengal and one in Madras, for consulting district and local boards as well as municipalities regarding the opening and shutting of shops; and one witness in Bengal would ascertain local option through the panchayats which exist under the Chaukidari Act; but none of these witnesses seem to have much confidence in the plan they propose.

Commission's view of local option.
688. The Commission feel that except in municipalities where the responsibility of regulating the number of the shops might with advantage be shared by the District and Municipal authorities, there is not much need or opportunity for soliciting public opinion in regard to the matter; but that the leading rural notables, zamindars, or headmen should be consulted by the subordinate officer who reports the case when new shops are proposed, and that objections, if presented, should continue to receive the most careful attention. But the district officer must be wholly responsible for not allowing shops to exist where there is not a demand for them.

Maximum of possession.
689. The object of limiting the amount of the drug which may be legally possessed by any one person is to place a check upon smuggling and to restrict consumption. The imposition of this limit is specially required where the proximity of Native States affords facilities for the former; and recommendations for lowering the maximum are made by several witnesses in this connection. Consumption is also thereby checked, for not only is excess fostered by the possession of a large store, but means are afforded for more extensive distribution of the drug. The maximum of legal possession is very different in different parts of India. The limit as fixed by Act XXII of 1881, which is in force in the North-Western Provinces, the Punjab, the Central Provinces, Ajmere, Coorg, and Quetta-Pishin, is as follows:— Ganja or charas, or any preparation or admixture thereof 5 tolas. Bhang, or any preparation or admixture thereof 1/4 sér. This amount is held to be reasonable by the Excise Commissioner, NorthWestern Provinces, and there are no opinions of any weight in favour of its alteration.
In Bengal the limit fixed by Bengal Act VII of 1878 is as follows:— Ganja or bhang, or any preparation or admixture of the same 1/4 sér. Charas, or any preparation or admixture of the same 5 tolas. There are several witnesses who recommend the reduction of the maximum for ganja to 5 tolas; and, though the subject has not been noticed by any very high authority, the majority of these witnesses are men of special experience in excise matters. As regards ganja imported from the Orissa Tributary Mahals, the Bengal Government has authority under the Act to fix a lower maximum, and it has accordingly fixed 5 tolas. In Madras the Act (I of 1886) provides that the Government may fix a limit. No such limit has been prescribed, and the Commission are of opinion that this should be done. In Bombay and Sind the Act (V of 1878) prescribes the limit fixed by the Government for retail sale as the limit of possession. This limit has been fixed by notification for the whole Presidency at 40 tolas or half an Indian sér for all intoxicating drugs. There is a considerable amount of evidence in Bombay that this limit is too high. Mr. Mackenzie says that it might be very considerably reduced, and four Collectors, Messrs. Campbell, Monteath, Woodward, and Lely, recommend the adoption of 5 tolas as the limit for ganja. Eleven other witnesses in this province advocate reduction of the maximum. In Sind there are fewer opinions on the subject, but there also the reduction of the limit is recommended by three witnesses. In Berar no limit of possession is prescribed; the limit for retail sale is—ganja and bhang, 20 tolas; charas, 5 tolas. Three witnesses recommend reduction of the limit, two of whom are excise officers.

The Commission's view.
690. As regards ganja and charas, and any preparation or admixture of the same, the Commission are of opinion that there should be one limit for the whole of India, and that this limit should be 5 tolas. It is only in Bengal that this measure would require an alteration of the law, and the opportunity should be taken when the Excise Act is amended to make the necessary provision. It is understood that the subject has already been under discussion, and that this amendment of the law has been recommended by the Excise Commissioner. As regards bhang, the limit is nowhere less than 1/4 sér. This limit is probably low enough where the hemp plant grows wild, viz., in the Bengal Presidency. For other provinces, where bhang is  merely the refuse of the ganja plant, the question arises whether the limit ought to be higher than in the case of ganja. But upon the whole the Commission think that the two products, ganja and bhang, are sufficiently distinct, and that no great objection exists to allowing a higher maximum. They would therefore recommend that 5 tolas for ganja or charas and 20 tolas or 1/4 sér for bhang be regarded as the proper maxima for all provinces, and that as opportunity offers all Native States be advised to accept these limits. There is certainly some advantage, considering how British territory is interlaced with Native State territory, in having one standard in this respect for the whole of India.

Taxation of hemp drugs according to strength.
691. In the case of the excise of spirits, the duty is levied on the alcoholic content of the liquid as determined by the percentage of proof spirit present, and, in view of the varying amount of resin extraction present in different qualities of hemp drugs (on which the narcotic value depends), it might be argued that the equitable mode of levying duty would be by the adoption of a sliding scale, the duty varying with the percentage of resin extraction present. But there are at present practical difficulties against the adoption of such a system. The physiological value of the resin extraction present in all samples is not similar; and, though two specimens may contain precisely the same percentage of resin extraction, it does not follow that the narcotic power of the drugs would be equal, and also that the percentage of extraction in the drugs may vary from year to year. The Commission, therefore, make no recommendation regarding the taxation of hemp drugs according to their strength.

Burma. History of prohibition.
692. The province of Burma stands on a different footing from that of any other province, inasmuch as the hemp drugs are entirely prohibited. This prohibition was put into force in the year 1873 and embodied in the Excise Act, 1881. The Chief Commissioner has power to grant special licenses for cultivation, sale, and possession of the drugs; but the power has not been used. The prohibition arose out of the inquiry made by the Government of India in 1871. Sir Ashley Eden, then Chief Commissioner, recorded the following remarks regarding ganja in his review of the Excise Report for 1870-71: "The sale of this article is prohibited at Ramree, Sandoway, Tavoy, and Mergui, and the Chief Commissioner considers that no further addition should be made to the number of places for the sale of this pernicious drug, which is smoked only by the natives of India. Indeed, he would be glad to have the opinion of the Commissioners as to the possibility of withdrawing all licenses for the sale of ganja throughout the province. Its use is at present happily little known to the people of the country; at the same time there is every reason to fear that a taste for it may be spread among them by the people of India as in the case of opium. It certainly seems to the Chief Commissioner that it is very desirable to at once sacrifice the small revenue derived from this source and stop the consumption absolutely before the evil comes upon the country. The only sufferers from the cessation of the supply will be a few of the Indian labourers who come to work here during the rice season. They must learn to take the want of ganja as one of the discomforts of a sojourn in a foreign land, for which they are amply compensated by the large earnings they obtain. The Chief Commissioner observes that the percentage of persons admitted to the Dacca Lunatic Asylum in Bengal who had lost their intellect from the effects of ganja was from—
Per cent. 1860 to 1867 45.4 1868 to 1870 34.7 It has been said that some ganja has been grown lately in this province. The cultivation should be at once checked." A copy of these remarks, together with the opinions of local officers, civil and medical, was sent to the Government of India in reply to the enquiry. There is very little in the opinions which goes to establish the injuriousness of the drugs, and it may therefore be taken that Sir Ashley Eden's strong expression of opinion embodies the reasons for which the Government of India concurred in absolute prohibition which was enforced from the beginning of the year 1873-74. Apparently Sir Ashley Eden relied largely upon the statistics of the Dacca Lunatic Asylum for his opinion. The arguments to be derived from these statistics have been considerably modified by the Commission's investigations. In 1878 the Government of India addressed the Chief Commissioner of Burma in the following terms: "In 1873 the sale and cultivation of ganja in British Burma were prohibited. In September 1874 the import of the drug by sea was also prohibited. These arrangements received the approval of the Government of India on the understanding that it would be possible by this means to prevent the use of ganja altogether in British Burma. Your present proposals show that it has not as yet been found possible, and tend to throw some doubt upon the policy of 1873 and 1874. I am therefore directed to request that you will be good enough to examine the result of the repressive measures already adopted, and favour the Government of India with your opinion as to whether it would be advisable to persevere in the attempt to prohibit absolutely the use of ganja in British Burma, or whether it would not be preferable to revert to a system of licensed sale of the drug upon payment of heavy duties." The Chief Commissioner, however, considered that "a return to the license system would be a retrograde step, and that the possession of ganja in British Burma should be altogether prohibited by law. The grounds for this opinion are that ganja is admittedly more baneful than opium; that as yet the drug is unknown to the Burmese, or at any rate is not used by them to such an extent as to become a luxury the sudden withdrawal of which would be felt; that in the Arakan Hill Tracts the total prohibition of ganja has worked well; and that the people of Burma at present addicted to its use are solely, it is believed, immigrant natives of India" (Excise Report for 1877-78). These views were accepted by the Government of India, and the provisions relating to Burma in Act XXII of 1881 were the result. From that date the subject was not mentioned in the Excise Reports for the next 8 years. In the report for 1890-91 the only notice is that one Burman was prosecuted for cultivation of ganja. In the report for 1891-92, 31 breaches of the Excise law in respect of ganja are mentioned, in which 27 convictions, involving 236 tolas of ganja, were secured. This was in the Arakan Division. There is a special statement for Upper Burma showing 12 tolas of ganja confiscated in Yew and 13 viss and 1 tola in Lower Chindwin. The same statement for 1892-93 shows 2,000 tolas of ganja as confiscated in Yew and 532 (or 352) in Upper Chindwin. There is still no mention of the subject in the reports.
correct or not. But in the case of ganja there seems little or no risk of the Burmese taking to its use in contravention of the law, inasmuch as they seem to have no predisposition to do so. Under these circumstances the Commission would recommend that where there is a demand for the hemp drugs among natives of India in Burma, provision should be made for meeting this demand by a licit supply under the same regulations as are in force in other non-producing countries, the prohibition of cultivation being maintained as well as that of the use by the Burmans.

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.

States in the Himalayan tract where the plant grows wild.
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.

In other States the production of ganja is the most important feature.
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.

Hyderabad.
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 270 shops for the sale of ganja and bhang and 50 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. 10 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 1,500 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.

Mysore.
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 production 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 sér for ganja and 2 annas for majum, etc.; (2) he sells at fixed rates to retail vendors, viz., ganja 10 annas per sér, and majum, etc., 4 annas per sér; (3) he sells to retail vendors in quantities not less than 10 sérs of ganja and 5 sérs of majum in Bangalore and Mysore, and 5 sérs of ganja and 2 sérs 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 sér in Mysore consists of 24 tolas. The amount guaranteed appears to be fixed by tender. There are 57 wholesale shops licensed free, and 109 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 sér for ganja and 6 annas per sér 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.

Baluchistan.
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.

Baroda.
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 101 shops for sale of ganja, etc., and as many as 157 more have been 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.

Central India Agency.
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.

Indore.
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 Rs. 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 900 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.

Gwalior.
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 sér. 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.)

Bhopal.
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 100,000 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.

Baghelkhand Agency.
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.

Bundelkhand Agency.
708. There is no information in the memorandum regarding the administration 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. 1 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 Damoh 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.

Bhopawar 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.

Western Malwa Agency.
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.

Rajputana Agency. Jeypore.
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.

Jodhpur.
712. Duties are levied in the Jodhpur State as follows:—
Import duty per maund. Rs. A. P. Ganja and Charas 4 8 0 Bhang 0 2 0 Export duty per maund. Rs. A. P Ganja and Charas 4 8 0 Bhang 0 2 0 Transit duty per maund. Rs. A. P. Ganja and Charas 3 0 0 Bhang 0 2 0
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 1880 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.

Udaipur.
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.

Bikanir.
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. CXXVIII, 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.

Alwar.
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.

Bhartpur.
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.  

Kotah.
717. The monopoly of vend in the Kotah State is auctioned to contractors. Besides the revenue thus realised, a duty of Re. 1 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 1881 about buying, selling, and possessing intoxicating drugs, but it is not enforced. This State does not adjoin British territory.

Tonk.
718. Beyond the levy of a customs duty at the rate of Rs. 20 per cent. of value on all 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.

Jhallawar.
719. An import duty of 8 annas per maund of 35 sérs on ganja and bhang 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.

Bundi.
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 100 and 25 maunds respectively. The total import duties amount to Rs. 4,440 and transit duties to Rs. 610. The State does not adjoin British territory.

Dholpur.
721. In Dholpur import duties are levied on ganja and bhang at Rs. 4-4-0 per maund and on charas at Rs. 1-1-0 per sér. In the Sri Mathra Estate the duties are—ganja Rs. 4-8-0, 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.

Banswara.
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.

Serohi.
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.

Kerowli.
724. Customs duties are levied in the Kerowli State on imports at the rate of Rs. 2-8-0 per maund on ganja, Rs. 10 on charas, and Re. 1 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.

Kishengarh.
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. 1-8-0 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.

Jaisalmir.
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.

Shahpura.
727. In this small State import and export duties are charged at rates not mentioned. Transit duty at 3 pies per sér 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.

Partabgarh and Lawa.
728. No information has been received regarding these small States.

Hill States lying between Bengal, Central Provinces, and Madras.
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:— 

Tributary States of the Central Provinces.
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 furnished 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 sér 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."

Tributary States of Chota Nagpur.
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 prepared 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."

Tributary States of Orissa.
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 sér. 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 sér, 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 sér. 89 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. Further, 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 sér (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. 2-8-0 a sér 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 sér 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 pass 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 sér, 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 sér, 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. 2-8-0 per sér, 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—
Rs. A. P.
Rajshahi ganja— 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.

Remarks on the administration of Orissa Tributary States.
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 Tribuary 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 representation 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 administrtion of the Orissa Division, the Bengal Government shooud 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 te 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.

Agency Tracts of Madras.
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, Vizagapatnam, Gdavaru, and Kistna districts is perhaps doudbtful. 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 Vizagapatnam, 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 interest of other provinces. There would ceertainly 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 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 Commisssion 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 productiona dndistribution of the drug.

Punjab Native States
735. As ganja is not produced or used in the Punjab and charas is an imported article, which will be dealth with before it reaches any of the Native Sates of that province, the control of bhang is the only question for consideration in connection with the latter; and this is not a difficul one. For bhang is only cultivated in Bhawalpur, and its sale is controlled. If any further arrangements made in the Punjab for the control of the hemp drugs, the cooperation of the various States may be desirable, but at present there is no need to offer any suggestions. the sale of the drugs is conductedunder licenses granted by the States. In the Nabha State it is said that ganja and charas are prohibited.

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

Bombay Native States.
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 undertsood 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.

Khairpur in Sind.
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 nor 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 would not be invited to cooperate with the British Government in adopted that system. It is probable that in these States, as in most of the British provinces, the subject has not recieved the attention 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 admininstration.

BENGAL MEMORANDUM.

1. There is a uniform system throughout the Lower Provinces. 2. Hemp drugs, of which ganja is the principal, constitute one of the chief sources of excise revenue in Bengal. 3. In excise matters there is one central controlling authority, which is vested now in the Commissioner of Excise, acting under the general control of the Board of Revenue. The excise department of each district is managed by a selected Deputy Collector under the personal supervision of the Collector, who is primarily responsible for the administration of the excise of his district. In the more important districts there is a Special Deputy Collector mainly for excise work. With the appointment of a Commissioner of Excise under section 33 of the Bengal Excise Act, VII of 1878, from the 4th April 1889 the connection of Divisional Commissioners with excise ceased, but recently (from 1st April 1893) they have again been brought into touch with the department by executive arrangement, in accordance with which annual and other reports and proposals involving any change in principle and policy pass through them. 4. The Excise Commissioner is assisted in the work of inspection by two Deputy Collectors under the designation of Inspectors of Excise. The subordinate district agency consists of Superintendents, Deputy Inspectors, Sub-Inspectors, clerks, jamadars, and peons, who are variously employed in the management of central distilleries, in the inspection of shops, in the collection of revenue, and the compilation of statistics, and in the detection and prevention of excise offences, and who are controlled by the Excise Deputy Collector acting under the orders of the Collector. The system of excise on hemp-drugs is based on the Bengal Council Act, VII of 1878, and the Regulation and Acts noted on the margin, as well as on the Board's Excise Manual and the circulars issued by the Board from time to time.
5. The following sections or parts of sections of the Bengal Excise Act relate specially to hemp-drugs:— 4, 15, 16, 35, 54, 62, and 63.
The following Board's rules have special reference to those drugs:— Sections XIX, XX, and XXI of the Board's Excise Manual, 1891.
7. It will be seen that bhang does not really come under excise control until it is collected and stored in golas, and the rules so far are defective. But the difficulty of introducing a stricter system lies in the fact that the plant, as it stands on the ground, has very little marketable value. If it is growing on waste land, any one can have it; on the other hand, the cultivator on whose land it is found is only too glad to get any one to remove this troublesome weed, and all that the collector of the drug has to pay are wages for gathering and drying the leaves and cartage to the gola. 8. The cultivation of the hemp plant for the production of ganja is permitted under special licenses. Prior to the passing of Act II (B.C.) of 1876 persons engaged in the cultivation of ganja apparently were not required to take out licenses, though by section XXIII of Act XXI of 1856 the Board of Revenue were empowered to "place the cultivation, preparation, and store of the drugs under such supervision as may be deemed to be necessary to secure the duty leviable thereon," and by section L of the same Act the cultivators of ganja and bhang were prohibited from selling the drug to any one other than a licensed vendor or other duly authorized purchaser. Unlicensed cultivation was prohibited under section 13 of the Bengal Council Act, No. II, 1876. The same provision has been retained in section 54 of the present Act, VII (B.C.) of 1878, and every cultivator has to take out a license for which no fee is charged.
9. During the first half of the present century the district of Jessore was celebrated for its ganja, and large quantities of the drug were prepared there for the market. The cultivation in Jessore was entirely suppressed in 1875. Ganja is now cultivated in a compact tract of country with a radius of about 16 miles lying in three districts, viz., Dinajpur, Rajshahi, and Bogra. The whole tract, though situated in three districts, is for the purposes of ganja administration, placed under the jurisdiction of the Collector of Rajshahi, who is styled the Superintendent of the Ganja Mahal, the Sub-divisional Officer of Naogaon, who is in immediate charge, being designated Deputy Superintendent. The cultivation and manufacture of ganja and its sale by cultivators are regulated by clauses 3 to 27, section XX of the Excise Manual, pages 154 and 158.
10. Any person who intends to cultivate the hemp plant for the purpose of making ganja must first apply in writing to the Sub-Deputy Collector at Naogaon, who is also the supervisor of the Ganja Mahal, for a license authorising him to cultivate. The license is ordinarily granted, unless there be any valid objection, and remains in force for one working season only.
11. In February and March the supervisor or one of his three assistants visits each manufacturing yard or chatter as often as possible to take note of the outturn, and to see that the drug as manufactured is forwarded to the public gola or stored in some secure authorized place in the premises of the cultivators, or of such wholesale dealers as purchase the standing crop and prepare their own drug.
12. The manufacturer of the drug, whether a cultivator or a wholesale goladar, is bound to give notice three days before he commences to cut his crop to the supervisor or to an assistant supervisor; the rule also requires him to send into the public gola all the ganja he manufactures, unless he has a secure private place of his own. But hitherto the rule regarding storage in the public gola has not been enforced owing to practical difficulties, and the cultivators have been permitted to keep the manufactured drug in their own houses. A cultivator has to obtain a license from the supervisor to retain ganja in his own private gola until it is disposed of to a licensed purchaser. This license shows the quantity and the kind of ganja covered by it, and has to be returned to the supervisor endorsed with the names of the purchasers to whom the ganja may subsequently be sold, and the quantity sold to each.
Clause 14, section XX. Clause 25, section XX. 13. A cultivator may sell his standing crop to a duly licensed wholesale purchaser, but not without the written sanction of the supervisor of ganja cultivation. Every purchaser licensed to purchase ganja for export is bound to keep for the inspection of the supervisor, or other excise officer, a statement of his purchases and sales on pain of forfeiture of his license. 14. Owing to the area within which cultivation is permitted being extremely limited, and to the close supervision exercised there, there is every reason to believe that unlicensed cultivation has been all but suppressed. The manufacture of the drug entails a series of elaborate processes, and cannot be successfully carried on in secret, at all events to any appreciable extent, and it may be safely affirmed that the manufacture of ganja is now confined in these provinces to the very limited tract which has been specially set apart for the purpose. Isolated cases of one or two plants being grown in the inner courtyards of houses are occasionally detected, but these only show how effectually unlicensed cultivation has been put down. 15. But much remains to be done to bring the manufacture of the drug, and more especially its storage in private houses, under more effective control than is exercised at present. Manufacture begins almost simultaneously in every part of the tract, and it is physically impossible for the limited excise staff to visit the chatters or manufacturing yards with sufficient frequency and to check the outturn.
16. Again there is no Government monopoly in ganja as there is in opium, and Government is not concerned with either the wholesale or the retail trade beyond seeing that the drug pays duty before passing into consumption. The difficulty of having a public warehouse is that the ganja stored in it would consist of numerous small parcels, all belonging to different individuals, and this would lead to much confusion. Again, the drug has to be frequently aired, turned, and handled in order to keep it in good condition, and it is next to impossible to secure this periodical examination when the ganja is stored in public golas situated at a distance from the houses of the cultivators. It is mainly owing to these difficulties that cultivators have so long been allowed to keep the ganja in their own houses, but the so-called private golas are often mere open sheds, and are not the secure warehouses that the rules contemplate. A properly built gola would be beyond the means of the average cultivator. But even with suitable buildings there would be no security unless one key remained with a Government official, whose presence would then be necessary every time the gola had to be opened. 17. The present system of storage is admittedly defective, and it cannot be denied that some ganja is smuggled or otherwise illicitly disposed of. But owing to the comparatively bulky nature of the drug there is reason to think that the extent of smuggling is not large. The small number of cases detected also point to the same conclusion. The privilege of growing ganja is valued, and the cultivators, who are generally well-to-do men, are averse to doing anything that may cause forfeiture of their licenses, not to speak of other penalties; and it is the general opinion of those who have any experience of the ganja tract that the cultivators as a class honestly and faithfully carry out the engagements. 18. Garhjat ganja, as its name implies, comes from the Garhjat or Tributary States of Orissa, and is in use only in the three districts of the Orissa Division. Its cultivation and manufacture is apparently under no control. Small quantities of Garhjat ganja are imported into Puri under excise rules, but more is smuggled there as well as in the other two districts, the extended frontier and the jungly nature of the country affording great facilities for such illicit dealings and rendering detection extremely difficult. 19. The resin from which charas is manufactured is not produced in abundance in the plant in Bengal, and charas is not made here. It is obtained from Amritsar and Mirzapur, where again it is imported from Yarkand and other places in Central Asia. Charas used at one time to be imported from Nepal also, but the trade has apparently died out. 20. The importers of ganja and other hemp drugs are the wholesale dealers of those drugs. They are licensed.
As regards ganja the following procedure is observed:— A licensed wholesale merchant or retailer of another district who wishes to purchase ganja from the cultivators has in the first place to apply for a pass to the Collector of his own district, which is granted on payment of a fee of Rs. 2. The pass having been granted, a duplicate of it is sent by the officer granting it by the same day's post to the Collector of Rajshahi, who on receipt of it prepares a license to purchase, and transmits it to the supervisor of the ganja cultivation at Naogaon for delivery to the purchaser. The license is granted subject to the condition that the purchaser shall, when he has made his purchases, collect the whole of the ganja in a place to be approved by the supervisor until it is ready for export. The importer on reaching the place of purchase has to give up to the supervisor the original pass granted to him by the Collector of his own district, and receives the license authorizing him to purchase. He then makes purchases and stores the ganja in the place approved by the supervisor. The ganja purchased for export is weighed, first without straw or covering, and then with the covering, and both the aggregate and net weights of each package are entered on the back of the license or permit and on the importer's original pass. The ganja is packed and sealed in bales or bags in the presence of the supervisor or one of his assistants.
Choor ganja from which all the woody fibre has been removed is packed in bags only which are sealed on each seam and at the mouth. No small or detached twigs of ganja are inserted in the bundles of flat ganja, but any such twigs as may be detached in the process of preparation are made up into separate bales or bags and charged with the duty leviable on round ganja. When the drug purchased has thus been weighed, packed, and sealed and made ready for despatch, the supervisor returns to the exporting merchant the original pass after having endorsed on it all the particulars as regards the weight and number of bales, the name of the purchaser and of the charandar or person in whose charge and custody it is conveyed, the mode of conveyance by which the ganja is to be transported, the places, warehouses, or shops to which the transport is made and the period for which the pass is current. The supervisor at the same time sends the license or permit with the necessary entries endorsed on the back to the Collector of Rajshahi for entry of the weights on the duplicate pass, which is then forwarded to the Collector of the importing district. A report of these particulars is at the same time made by the supervisor to the Collector of Rajshahi, a duplicate of this report being forwarded by him by post to the
Collector of the importing district. Any ganja found on weighment by the supervisor to be in excess of the quantity entered in the import pass is kept in the public gola and warehouse, a rent of Re. 1 per maund being charged for the first month, and 4 annas per maund for subsequent months. This quantity is not allowed to be exported without a fresh import pass, but the cultivator may sell the same to other goladars.
Siddhi or Bhang.—No person is permitted to purchase siddhi for export to another district or obtain siddhi for sale without a pass on payment of a fee of two rupees, and a license from the Collector of the district to which the siddhi is to be conveyed or in which it is to be stored. The pass and the license must be countersigned by the Collector of the district in which the siddhi is bought or obtained. Siddhi, whether obtained locally or imported from another district, must be stored in a warehouse in the same way as ganja is stored. A licensed wholesale merchant or retailer of another district who wishes to purchase siddhi in the producing district is bound to purchase it from the wholesale dealer of that district in the same manner as ganja is purchased. But when he wishes to obtain his supplies from any local fields or places where the siddhi-yielding plant grows wild, he is allowed to do so in the presence of an excise officer deputed by the Collector for the purpose. Such officer is bound to weigh the drug before it is removed, and to report to the Collector its weight, condition, quality, &c. As a matter of fact, however, wholesale dealers of other districts always obtain their supplies from the licensed golas of Monghyr and Bhagalpur.
21. Charas.—No person is allowed to import charas into Bengal excepting under a pass from the Collector of his district. No fee is required for the pass. The importing merchant on arrival presents the pass to the Collector of the exporting district, who returns it to him after endorsing on it the quantity of charas to be imported; similar entries are made by him on the back of the duplicate copy of the pass sent to him by the Collector of the importing district, and it is then returned direct by post. When charas is imported from Nepal the pass need not be endorsed except in the importing district.
The charas, on its arrival in the district from which the pass was issued, is produced for examination and comparison with the pass before the Excise Deputy Collector. The whole consignment is liable to confiscation, and the importer is liable to other penalties of the Excise law for each of the following offences:— (1) Selling any portion of a despatch before arrival at the Collectorate from which the pass was given. (2) Being in possession of a quantity greater or less than that shown to be the quantity covered by the pass, unless the difference is fully explained and full duty paid.
Clause 65, section XX. 22. Garhjat ganja.—Any licensed wholesale or retail vendor of ganja wishing to purchase Garhjat ganja from the cultivators in the Tributary Mahals has to apply to the Collector of his own district for a pass, stating the locality or localities and the Tributary State in which the ganja is to be purchased and the quantity for which the pass is required. It has lately been ordered by the Board as an experimental measure that the sources of export of Garhjat ganja should be confined to those States which are under the immediate control of Government. Board's No. 1618-B., dated 11th September 1893. A pass is granted for any quantity not less than one maund on payment of a fee of Rs. 2. A duplicate copy of such pass is sent to the Superintendent of the Tributary Mahals, who issues instructions to such authorities as may be subordinate to him in the specified locality or localities to superintend the weighment, packing, sealing, and despatch of the drug. The local authority, on production of the pass as aforesaid, weighs the ganja, superintends its packing, and seals the bales or bags in which it is packed in such a manner that they cannot be opened without breaking the seals.
When the bales are ready for despatch, the local authority returns the original pass to the importer after endorsing on it the locality in the Garhjat Mahals from which the ganja is transported, the weight and number of the bales or bags of ganja transported, the distinguishing marks by which the bales or bags may be known, the name of the purchaser and of the person in whose charge and custody it is conveyed, the mode of conveyance, the route to be taken, the point of crossing the frontier and such other particulars as he may think it desirable to note. He is required to submit at the same time a copy of the endorsement to his immediate superior. Every pass must be surrendered to the Collector of the importing district or to the sub-divisional officer (if the ganja is consigned to a sub-division) within three days of the expiration of the period of its currency. After crossing the British frontier, the importer is bound to take the consignment to the first police-station for inspection. The importer is not authorized to make sales during the journey, and any police or excise officer may challenge and examine consignments during transit. The rules as to storage and levy of duty on Rajshahi ganja apply mutatis mutandis to Garhjat ganja. Any vendor licensed to retail Rajshahi ganja may sell Garhjat ganja under the same license. 23. Both the wholesale and retail dealers are under control and are licensed. The wholesale licenses are granted free and the retail licenses are annually sold by auction. 24. Before ganja is allowed to be stored in a warehouse the Excise Deputy Collector of the importing district, or where the gola is situated in a sub-division, the sub-divisional officer, is required to ascertain by personal inspection of the consignment that the seals of the bales or bags are unbroken, and that the weight and sorts correspond with the weight and sorts noted on the pass given in the producing district. He opens some of the bags, and having ascertained that they contain flat, round, or choor ganja as invoiced, reseals them. He examines the general quality and the condition in which the drug is received, whether dry or damp or in process of deterioration or decay. If any of the particulars do not agree with the entries in the pass under which the ganja is imported, the circumstance is reported to the Collector. The full duty, at the rate chargeable on the sort of ganja in which the deficiency or defect is found, is at once levied on any deficiency of weight and on any broken bundles. Any bale or bag received without the original seal may, if the Collector thinks fit, be confiscated. A wholesale dealer can sell ganja only to another duly authorized wholesale dealer, or to a retail dealer duly licensed. Stock is taken annually in each ganja and siddhi warehouse between the 25th and 31st March at the head-quarters of the district by the Excise Deputy Collector, and at the sub-divisions by the sub-divisional officer. The ganja and the siddhi goladars are held responsible for any deficiency in excess of 2 1/2 per cent., and duty is levied on such excess on or before the 31st March of each year. Each warehouse is secured by two reliable locks, the key of one of which remains with the goladar, and that of the other with the officer in charge of the warehouse. No gola can, therefore, be opened except in the joint presence of the goladar and the officer in charge.
Clause 5, section XXI. 25. Every importer of charas is bound to keep an account of the quantity received and expended, and if he wishes to dispose of the drug to the public, he must take out a separate license for retail vend.
Clause 75, section XX.
(Vide forms of licenses Nos. 63, 116, and 124, pages 267, 312, and 318, respectively of the Manual.)
26. Ganja and siddhi golas are liable to periodical inspection by the Collector, the Excise Deputy Collector, and the sub-divisional officer. The inspecting officer is required to test the stock in hand and to examine the ganja registers and the treasury receipts to ascertain that the duty has been properly levied on all ganja issued, and finally that the collections have been duly credited to Government. 27. Retail licensees are bound to act according to the excise law and rules, and licenses are granted to them under certain conditions, which they must observe on pain of forfeiting the license.
28. Retail shops are also liable to inspection by Excise officers. Retail vendors pay duty according to the prescribed scale at the time of obtaining their supplies from the golas, and the drug is issued in the presence of a responsible officer (generally a gazetted officer), and the consignment is protected by a pass during its transit from the gola to the licensed shop. 29. The excise revenue from ganja and other hemp drugs is levied in two ways, viz., (1) in the form of license fees, and (2) in the form of duty at af ixedr ate per seer on the quantity issued for retail vend. 30. License fees.—For some time prior to 1860, no fee was taken on licenses for the retail sale of ganja. Duty only was charged at the rate of Re. 1 per seer. During the year 1860-61 a fee was imposed on licenses for the retail vend of ganja, and licenses were issued at a fixed rate of monthly fees till the introduction of the auction system in 1876. Licenses are now put up to auction and sold to the highest bidder at or above the upset fee. The term of a license is one year, except in Calcutta, where it is three years. The Sadar Excise Deputy Collector generally presides at the annual auction sales. A shop is put up to auction at an upset price approved by the Board. In the event of the upset price not being obtained in any particular case, a lower offer may be accepted with the sanction of the Commissioner. A sum equivalent to the fee for two months is taken at the time of sale as advance fees, and one month's fee is paid on the date on which the currency of the licensecommences, and one month's fee on the first day of every succeeding month until the whole of the fee due on the license has been realized. In cases of siddhi, charas, and majum (a sweet preparation of siddhi) shops, however, only one month's fee is taken in advance. A brief account of the earlier laws and rules for regulating the sale of hemp drugs is given in Appendix A. 31. Duty.—The different rates of duty on ganja, bhang, and charas levied from time to time are given in paragraphs 36—38. No duty is levied separately on majum as duty is paid on the siddhi used in its preparation. The present rates of duty as well as those that will come into force from 1st January 1894 on different sorts of ganja and bhang and charas are shown below:—
Present. Rate per seer from 1st January 1894. Rs. A. Rs. A. Ganja, choor 8 0 9 0 "round 7 4 7 8 " flat 6 0 7 6 4 0(small twigs).
(large " ).
" Garhjat 3 8 3 8 Charas 8 0 8 0 Bhang 0 8 0 8 In the Orissa Division, however, owing to the competition of Garhjat ganja, the duty on different sorts of the Rajshahi ganja is leviable at the following reduced rates:—
Present. Rate per seer from 1st January 1894. Rs. A. Rs. A. Choor 6 8 7 8 Round 6 0 6 4 Flat 4 8 4 8
32. Exportation of ganja.—Exportation from the producing district, or from one district to another, or from one licensed warehouse to another in the same district by wholesale vendors is allowed without prepayment of duty within the Lower Provinces of Bengal or Assam, as, according to the system in force in these provinces, duty is levied on the drug as it passes into the hands of the retailers. But before the exportation of ganja is allowed to foreign territory or to any district not within the Lower Provinces of Bengal or Assam, full duty is levied in the exporting district. Ganja when exported by sea to a country beyond the boundaries of British India is not liable to duty, and rebate is allowed on proof of export. Licensed retail vendors are required to pay duty at the prescribed rate before removing the ganja from the wholesale dealer's warehouse. The duty is calculated upon the actual weight of the drug issued.
Clauses 7 and 9, section XIX, Excise Manual.
33. Siddhi.—Duty is realized on siddhi in the same way as on ganja. A retailer, when he applies to supply himself locally, is required to prepay the duty on the quantity applied for.
Clause 3, section XXI, Excise Manual. 34. Charas.—Duty on charas is levied at the rate of Rs. 8 per seer, of which one-half is levied at the time of taking out the pass for the importation of the drug. The payment of the second moiety is made on the arrival of the drug in the district in which it is to be sold or stored, as the case may be.
Clause 46, section XX, Excise Manual.
35. To provide against evasion of payment of duty as regards ganja and siddhi, the following precautions are taken:— (1) The warehouse must have only one door, which is secured by two locks, one of which at least is Chubb's; the key of one is kept by the owner, and that of the other, which must be Chubb's, by the excise officer in charge of the warehouse.
Clauses 52—55, section XX, Excise Manual.
(2) No delivery of the drugs is made except in the presence of an excise officer (generally a Deputy Collector), and under an order from the Collector or from an officer duly authorized by the Collector to grant passes, and no pass is granted. until the full amount of duty has been levied, as evidenced by the treasury chalan. (3) A ticket is attached to each bale or bag showing the actual quantity contained in it, and whenever ganja is taken out of a bag, the quantity so taken out is noted on the ticket and the balance struck after each transaction. These entries are mad'3 by the officer issuing the drug and initialled by him. (4) The gola licensee is not allowed to sell any quantity of ganja by retail vend under his license. (5) The goladar is bound to give access to the store whenever required by the excise officer in charge or his official superior. Besides, as already stated, at the end of each year stock is taken of the quantity of ganja or siddhi in the gola by the Excise Deputy Collector or the sub-divisional officer, as the case may be, and duty is levied on all deficiency in excess of 2 1/2 per cent.
36. Rates of duty on Rajshahi Ganja from 1853— 

 
Garhjat ganja is not manufactured with as much care as Rajshahi ganja. It contains more leaves and seeds and less resin, and is much inferior to the Rajshahi drug in quality. A lower rate of duty is, therefore, fixed on it. It is only of one variety—flat. 37. Duty on charas.—The duty was fixed at Rs. 8 per seer under Government order, No. 3347, dated the 23th October 1880, referred to in paragraph 104 of the Excise Report for 1880-81. 38. Duty on siddhi or bhang.—It appears from paragraph 123 of the Excise Administration Report for 1874-75 that a duty of 4 annas per seer was levied in Calcutta in that year for the first time. It further appears from paragraph 82 of the Excise Report for 1879-80 that a duty of 8 annas per seer was fixed on siddhi from 1st April 1879 for the entire province. 39. The number of retail licenses for the sale of hemp-drugs is determined according to the bond fide demand of the drug at a place. This may be regarded as the guiding principle in opening a new shop. But the vast majority of the shops are of old standing, and the question in recent years has been one rather of elimination than of augmentation. In 1873-74 the number of ganja shops was 4,898, while in 1892-93 it was only 2,673. The object that the department has kept steadily in view is to do away with unnecessary places of vend. There is no fixed rule based on area or population, as the demand varies largely in different districts and in different parts of the same district. In December every year the Collector decides the number and sites of retail shops to be licensed during the next official year. As a rule no new shop is allowed to be opened unless there is a sufficient demand for the drug at the locality. An upset price is fixed as regards each license, based generally on the average fees paid in the last three years, any increase or decrease in sales being also taken into consideration. The Collector's proposals are reviewed and finally sanctioned by the Commissioner with the approval of the Board of Revenue. All the licenses are sold by public auction in March for the ensuing year. 40. As regards sites local opinion is not formally consulted, but attention is paid to any reasonable objection raised against any particular site, though most of the sites being old ones, it is seldom that they are objected to. Moreover, shops for the sale of hemp-drugs are not considered a nuisance, and are often accommodated in the same room where other business is carried on. 41. No rate is fixed at which any of the hemp-drugs must be supplied by wholesale to retail vendors. The retail price of each of the drugs varies considerably in different districts. The average retail price of each is shown below:— Rs. A. Ganja 20 0 per seer. Siddhi 2 8 " Charas 40 0 " Majum 3 0 " 42. The retail selling price of each of the drugs in the following districts is shown below:—

 
43. Yes, a maximum amount is fixed for retail sales to, and possession by, the ordinary consumer, as regards each of the articles as shown below:— Rajshahi ganja, siddhi, and majum or any preparation or admixture of the same, one quarter of a seer (20 tolas); Garhjat ganja (5 tolas experimentally); charas or any preparation or admixture of the same, 5 tolas. No minimum price is fixed for any of these drugs. 44. A statement is given below showing the number of ganja cases during 1892-93:— 

 
Of the 90 arrests shown under the head of smuggling, no less than 80 were made in Puri. Of the remaining 10, 5 took place in Bhagalpur, 4 in Dinajpur, and 1 in Shahabad. These figures give a fair indication of the extent of smuggling as also of the localities where it prevails. Some ganja is smuggled from Nepal into the districts bordering on that State, but the evil is not widespread, and does not appreciably affect the revenue. The drug is of inferior quality, so much so that considerable quantities of duty-paid Rajshahi ganja is annually exported to Nepal from the North Gangetic districts. Garhjat ganja, on the other hand, is largely smuggled into Orissa. The drug is in great demand with the priests of the famous shrine of Juggernath, and is affected by the attendants of other Orissa temples. It is usually brought in small quantities by pilgrims, mendicants, and others as an acceptable offering to the priests. The offence is most rife in Puri, and also prevails in Cuttack and Balasore, though no cases were reported from either district in the past year. There are thus two distinct sources of illicit supply—Nepal and the Garhjat States of Orissa. The extent of smuggling from Nepal is small, and no special measures are taken to check it; in fact none could be effectively taken, regard being had to the length of the frontier to be guarded. Various attempts have from time to time been made to stop smuggling from the Garbjat and with varying success. The chief difficulty lies in bringing the excise administration of these petty States under some sort of control. Some of them are now under the direct management of Government, owing to the minority of the Chiefs or other causes, and it is in contemplation to make a beginning with them. In 1878 cultivation of ganja was prohibited within three miles of the frontier, and this was followed by a considerable increase in the consumption of the Rajshahi drug in all the three districts. The order was withdrawn in 1889, and consumption has since decreased considerably in Cuttack, though this result is not so apparent in Balasore or Puri. At one time the importation of Garhjat ganja or siddhi was entirely forbidden (vide notification of 21st June 1882), but this is now allowed (vide notification of 23rd March 1892) under separate rules framed for the purpose, though little advantage has yet been taken of them to import the Garhjat drug. With a view specially to prevent smuggling, the limit of possession of Garhjat ganja has been experimentally reduced to 5 tolas. 45. Arrests for illicit cultivation were made in 25 districts, but all the cases were for growing a few plants (very often only a single plant) in the courtyards of houses more for the purpose of using the leaves as bhang than for manufacturing ganja, and the fact that not a single case occurred in Dinajpur, and only one in each of the districts of Rajshahi and Bogra, shows clearly that unlicensed cultivation for the manufacture of ganja is all but unknown even in the ganja tract. 46. Similarly, cases of unlicensed sale of ganja, though comparatively numerous, generally represent sales of the excised drug by petty dealers who obtained their supplies from licensed vendors, and are often the outcome of the licensed shops being too few to supply the local demand, or, in other words, these unlicensed men distribute the drug to a larger circle of consumers. This is particularly the case in the Dacca Division, where the consumption of ganja is large and where nearly a third of the arrests were made. 47. Nearly half the arrests for illicit possession were made in the Rajshahi Division, and of these all but two occurred in the three ganja-growing districts. In these cases the ganja was doubtless obtained clandestinely from the cultivators, but the quantities seized were not large. 48. It may be said generally that, except in Orissa, where there is smuggling of Garhjat ganja, in some of the north Gangetic districts, where Nepal ganja is introduced, and in the immediate neighbourhood of the ganja tract, where there is some consumption of untaxed ganja, in the rest of the province most of the drug consumed has paid duty, and that the majority of the cases of illicit cultivation and unlicensed sale do not mean any serious threat to the revenue. The police and the excise detective staff are encouraged in their efforts to put down excise offences by the grant of liberal rewards in all important cases of seizure. 49. No material modifications of the present system are actually under consideration at the present moment. The question of bringing the excise of the bordering Garhjat States in Orissa under some control so as to protect our own revenue, more especially with reference to the smuggling of Garhjat ganja, has been for some time under consideration.
50. Column 3.—Area under ganja cultivation.—It will be observed that, except in the past year, there has been no material increase in the area under ganja cultivation during the last twenty years. The column shows the quantity of land in which the crop finally matured, excluding such land as was cultivated, but in which the plants failed altogether, and therefore, although it would appear that cultivation was greatly curtailed during the years 1875-76, 1878-79, 1879-80, 1885-86, and 1891-92, this was not really the case in all the years excepting 1885-86, as the plants on large areas under cultivation were destroyed in those years by heavy floods, and such lands were not taken into account. The decrease in the area cultivated in 1885-86 was due to the smaller profits of the cultivators in the preceding two years. The high price which the drug had realized in 1891-92 owing to wholesale failure of the crop in the previous year, caused by inundation, induced a large number of raiyats to take up lands for ganja cultivation during the following year. Some raiyats are regular growers of ganja and annually set apart a portion of their holdings for the purpose; others are induced to take to ganja cultivation by the high profits of one year, to abandon it again when prices fall.

 
 51. Columns 4, 5, 7 and 8.—These columns are blank, as no land is cultivated for the production and manufacture of bhang and charas in these provinces. 52. Column 6.—In this column the number of raiyats engaged in ganja cultivation, and not the number of licenses issued, has been shown. Cultivation did not require a license before the year 1876-77, when licenses were for the first time introduced under section 13 of Act II (B.C.) of 1876. Each cultivator has to take out a separate license. 53. Columns 9, 11 and 12.—These columns are blank except for 1878-79. Ganja and bhang are not as a rule imported from any other province. It, however, appears from the Board's Excise Administration Report for the year 1878-79, from which extracts are given below, that ganja was actually imported during that year from Bombay and the Central Provinces:— "During the year under report 10 maunds of flat choor ganja were for the first time imported into Calcutta from Bombay under a pass granted by the Excise Superintendent. The Commissioner states that the Bombay drug, though good-looking, is less narcotic than Rajshahi ganja, and has not therefore come into much repute on this side of India." As regards the Nimar ganja imported, it is stated as follows:— "In consequence of short supply of ganja from Rajshahi, 8 maunds of Nimar ganja were imported into Monghyr from the Central Provinces and 32 maunds 34 seers of the same description of ganja were brought into Shahabad by a dealer. Of the latter quantity, 17 maunds 25 seers were sold locally, and the balance at Monghyr. The ganja produced in Nimar is inferior in quality to Rajshahi ganja, and does not meet with ready sale. Its wholesale price is cheap. On importation into Bengal, it is dealt with like Rajshahi ganja, and duty on it is levied at the rate of Rs. 4 per seer."
Vide paragraph 101 of the Excise Report for 1880-81.
54 Column 10.—No information as regards the quantity of charas imported can be furnished prior to the year 1880-81, when a duty of Rs. 8 per seer was for the first time imposed on this drug under Government order No. 3347, dated the 25th October 1880. Before this year charas used to be imported free, and apparently no account of the quantity imported was kept. This remark also applies to the figures in columns 33 and 43. 55. Column 13.—Complete information for this column is not available. The figures for the first four years show only exports to the North-Western Provinces, as exports to other places were not separately shown in the reports of those years. Similarly, the figures for some succeeding years represent exports to North-Western Provinces and Assam only. The figures for the last few years only represent the quantities exported to North-Western Provinces, Assam, Kuch Bihar, and Nepal. 56. Columns 14 to 16.—No information. 57. Columns 17 to 21.—Wholesale vendors who are the goladars pay no license fees, and their number is not reported. 58. Columns 22 to 26.—It will be observed that the number of licenses for the retail sale of ganja, charas, and majum has fallen off appreciably, while there has been very little fluctuation in the number of licenses issued for the retail sale of bhang. The number of ganja retail licenses issued in 1873-74 was 4,398, while 2,672 licenses only were issued in 1892-93, the average license fee being Rs. 55 and Rs. 413 respectively. The largest reduction in number was made in 1875-76: since then there have been considerable fluctuations, but the object steadily aimed at has been to keep the number down as much as possible. 59. Columns 27 to 31.—In spite of the great falling off in the number of licenses, the revenue from license fees has remarkably expanded—that from ganja licenses from 2 1/2 lakhs of rupees to 11 lakhs, that from charas licenses from Rs. 3,000 to Rs. 5,000, and that from bhang licenses from Rs. 13,000 to Rs. 33,000. The fees derived from majum licenses, however, show no improvement, but rather a slight decrease owing doubtless to a falling demand. The total license fees show an increase of nearly 9 lakhs of rupees, or 340 per cent. The great increase in ganja license fees in 1875-76 and subsequent years was due to the introduction of the auction system and to keen competition at the time of settlement. In recent years much care has been bestowed in fixing the upset fee of each shop, so as not to leave everything to the chances of auction. The sudden increase of revenue on account of license fees for charas shops in 1880-81 was owing chiefly to the better settlement of shops in Calcutta on account of an increased demand for the drug, and to the opening of 14 new shops in the district of Shahabad. It will be seen that the imposition of a duty of Rs. 8 per seer in 1880-81 seriously affected the total revenue: it decreased till the year 1884-85, from which time there was a slow, though steady, increase till 1889-90, followed by a rapid rise in the past three years. The rate of duty on ganja has been several times enhanced since the year 1873-74, and this with the augmented license fees has caused a decrease in consumption from 8,125 maunds in 1873-74 to 5,451 maunds in 1892-93; but the duty receipts have risen from Rs. 8,36,355 in 1873-74 to Rs. 12,80,631 in 1892-93. The great increase under the head of license fees has already been noticed. It is satisfactory to note that though the consumption of ganja has been reduced in 20 years by nearly one-third, the total revenue has during the same period been more than doubled. The taxation on each seer of ganja was represented in 1873-74 by license fee Rs. .7 plus duty Rs. 2.5 = Rs. 3.2, while the figures for 1892-93 are —license fee Rs. 5 plus duty Rs. 5.8 = Rs. 10.8, or a rise of more than 3 ½ times. In view of the above facts it may be justly claimed for the department that the administration of excise on ganja has fully realized the principle of a maximum of revenue with a minimum of consumption. The consumption of charas shows a large increase, though the quantity is still small, and it will be necessary ere long to raise the duty on it. The rate is the same as for choor ganja, while the proportion of narcotic matter is much larger in charas. The great increase in the consumption of bhang is more apparent than real, and is due to larger use of the duty-paid drug. 60. The importance of hemp-drugs in these provinces will be apparent from the fact that out of a total excise revenue of 115 lakhs in 1892-93, ganja and its congeners contributed 24 1/4 lakhs, or about 21 per cent., and occupy the second place, being next only to country spirits. Of the four varieties that are taxed, ganja, bhang, charas, and majum, ganja alone yielded more than2 33/4l akhs. The revenue from majum, a sweet preparation of bhang in the form of confection, is insignificant, being under Rs. 2,000. The consumption of majum is practically confined to Calcutta, Patna, and Cuttack. The revenue from charas was under Rs. 10,000. It is consumed in the urban areas of a few districts in Central and Western Bengal. The revenue from bhang exceeded half a lakh. Its consumption is general, and the quantity (1,034 maunds) that paid duty represents but a small fraction of what was illicitly consumed. 61. The cultivation and manufacture of Rajshahi ganja that not only supplies the Lower Provinces, but is also exported to Assam, Nepal, North-Western Provinces, &c., is confined to a small well-marked area. It is a paying crop, and a year of good prices usually leads to extended cultivation in the next. From the time the drug is brought to the Naogaon head office, to be weighed, packed, and despatched to the consuming districts, the safeguards against fraud provided by the existing rules appear to be ample, and it may be safely affirmed that there is little room for evasion of duty during transit or in the subsequent stages, including storage in golas, issue to retail vendors and sale to consumers. There is likewise good reason to think that there is no unlicensed cultivation, and that no ganja is made for the market outside the recognized tract. 62. The weak points of the system may be said to be all connected with the process of manufacture and the storage of the drug in private golas prior to disposal to wholesale dealers. Manufacture begins simultaneously at different places, and its progress is not watched as closely as it ought to be. The outturn is not checked then and there, but a rough estimate is subsequently made by merely counting the number of bundles of each sort, which can hardly supply the place of an accurate weighment. Then the drug is stored in private houses, in mere sheds which are sometimes open and always insecure, and there is ample opportunity for petty pilfering by outsiders, even supposing the cultivators were all above suspicion. 63. The difficulty of working a scheme of public golas without a Government monopoly has been adverted to under section (c). In the case of opium the cultivator sells his produce outright to Government at a fixed price and has no further concern with it. The entire quantity purchased from the different cultivators is dealt with as one stock. In the case of ganja, however, the drug remains the cultivator's property and in his charge until he disposes of it to a licensed purchaser. It has therefore been found impracticable to introduce public warehouses where all the drug could be stored immediately after manufacture. In view of the attacks made against the Government monopoly in opium, it is not likely that any proposal to establish a similar monopoly in ganja would be received with favour. But with a larger establishment the existing checks on manufacture might be rendered more effective. 64. Four sorts of ganja are now made, flat large twigs, flat small twigs, round, and choor, and these distinctions are observed for the levy of duty and for the purposes of the wholesale trade but no twigs or woody matter are taken by the retail purchaser, and for retail sale the other varieties are also reduced to choor by the retail vendor. It would therefore be a good plan to have only one sort and abolish flat and round. Particular localities are said to favour particular sorts, but the fact that the consumption of choor increased very largely (from 424 maunds to 1,369 maunds) during the past year owing to the discovery that it was more lightly taxed in proportion to the amount of narcotic matter present in it, would seem to show that there can be no great objection to its general adoption. To the wholesale dealer this would reduce cost of carriage and save storage room; to Government it would simplify accounts, and remove all chances of fraud to revenue for which differential rates afford some room. 65. The cost of daily average allowance of ganja is 3 to 6 pies, while the cost of liquor to the habitual consumer is much higher. The cost of liquor is almost prohibitive to the poorer classes in Eastern and Central Bengal, but even in Bihar, where liquor is cheap, the daily cost is seldom less than 9 to 12 pies. In this view ganja may be said to be insufficiently taxed. Competition, however, is annually raising the license fees, and the duty is also enhanced from time to time. 66. Under the present system the wholesale dealers (goladars) make very large profits in some districts. They pay no license fees and combine to create a monopoly. It would perhaps be a better plan to recognize the monopoly, but to obviate its evil effects by fixing a maximum price for sales to retail vendors. Government might also appropriate a portion of the profits by giving the wholesale license for a given area to the person who agreed to pay the largest amount for each seer sold, in addition to the duty.
CALCUTTA; K. G. GUPTA,
The 27th November 1893. Commissioner of Excise, Bengal.

APPENDIX A.
(SEE PARAGRAPH 30 OF MEMORANDUM.)
Brief historical sketch of the modes of taxation of ganja. It will appear from paragraph 1, section XI of Harrington's Analysis, Vol. III (1817), that with a view to check immoderate consumption, and at the same time to augment the public revenue, it was judged expedient to continue and extend the duties levied on liquors and drugs, when the sayer collections were resumed from the landlords in the year 1790. Rules and orders were accordingly issued from time to time which were subsequently enacted with modifications in Regulation XXXIV, 1793, as regards the Lower Provinces. It was enjoined in section XVIII of this Regulation that "no person shall manufacture or vend any such drugs ('bhang, ganja, charas, and other intoxicating drugs') without a license from the Collector of the zillah."
Daily rates of license fees.
2. In section II of Regulation VI of 1800 the following daily rates of duty on the sale of intoxicating drugs were laid down:— Rs. A. For cities (Dacca, Murshidabad, Patna, and Benares) 1 0 Towns or villages (1st class) 0 12 " (2nd " ) 0 8 " (3rd " ) 0 4 It is noteworthy that the manufacture and vend of "charas" (as well as that of madak) were prohibited by section 8 of this Regulation as "being of a most noxious quality." Unlicensed sale of intoxicating drugs was again prohibited by section 17 of Regulation X of 1813, and vendors were enjoined to pay a daily tax for their licenses. The sale of charas was again prohibited.
Farming system.
3. Section 8 (1st clause) of Regulation VII of 1824 authorized the Board of Revenue to sanction the grant of leases of the duties leviable on the manufacture and sale of spirits, drugs, &c. Section 15 permitted the retail sale of charas under the same rules and restrictions as ganja, &c.; it was said that the restriction was withdrawn, as this drug was found on examination to be not more prejudicial to health than ganja or other intoxicating drugs.
Limits of retail sale. 4. In section 5 of Act XI of 1849 (I.C.), which was passed "for better securing the abkari revenue of Calcutta" the present limits of retail sale of ganja, bhang, charas, and other hemp-drugs, &c., were fixed. This provision was extended to the whole of Bengal by section 35 of Act XXI (I.C.) of 1856.
5. From the beginning of British rule up to the year 1853, hemp-drugs were taxed by means of a daily tax on its retail sale, and it appears from section 4 of Regulation VI of 1800 that it was paid monthly and on the last day of each month of the Bengali (or fasli) year. With the introduction of the farming system in 1824, it was usual to farm out the excise revenue of entire districts. This continued till 1847.
Fixed duty system.
6. From 1853 the daily tax was abolished and a duty at Re. 1 per seer was imposed, and the retailer had to pay the full amount on a certain specified quantity in each month, whether he took it all or not. A series of rules called "Abkari Series" were subsequently framed by the Board in 1857, from which extracts are given below, which will show how the revenue was collected during the period of the fixed duty system:—
(Settlements—Ganja—clauses 16 to 20.) "16. Retail vendors will engage to take supplies sufficient for a specified daily consumption and to pay tax at the rate of one rupee per seer upon such specified quantity." "17. Retail vendors will pay their tax at such fixed intervals, not exceeding twice a month, as the Collector may determine, and will take their supplies from any registered golah or from a despatch in transit, under passes or delivery orders which will be granted by the Collector to the extent specified in their pattahs." "18. If any extra quantity be required, a pass or order for such extra quantity will be granted on payment of duty at the rate of one rupee per seer." "19. No tax or fee in excess of the one rupee per seer will be required from retail vendors. The settlement of the ganja mahal will thus be on the same principle as that of the spirit mahal under the sadar distillery system, the license specifying the quantity of ganja to which the retail vendor is entitled at the rate of one rupee per seer, with the privilege of taking further supplies under extra passes on payment of extra duty." "20. Ganja vendors, who are unable to dispose, within the month, of the whole quantity of ganja to which their jama entitles them, may be permitted to draw the balance in the succeeding month without further payment of duty."
Combined duty and fixed monthly license-fee system.
7. The fixed duty system continued up to 1860-61, or for about seven years, when a fixed fee of Rs. 4 per mensem was prescribed for each ganja license in addition to the duty at the prescribed rate on all quantities passed to the shop for retail sale, the previous rule regarding the quantity to be taken by each shop being at the same time withdrawn. A revised form of ganja license, necessitated by these changes, was issued with the Board's circular order No. 26 of 1st June 1860.
Summary.
8. Thus there was a daily tax system from 1790 to 1853 (with farming system from 1824), fixed duty system from 1853 to 1860, fixed license-fee and duty system from 1860 to 1876, when the present system came into force.

ASSAM MEMORANDUM.

Both cultivated and wild hemp are consumed in this province. The cultivated hemp is entirely imported from Rajshahi in the form of flat, round, choor ganja by licensed wholesale vendors, who place the drug in registered warehouses, and the duty is paid by retail vendors when the ganja is taken from the registered warehouses. The vend of charas and bhang is at the present moment forbidden in Assam, no licenses having been taken out. The use and sale of wild hemp as an intoxicant is forbidden. But the possession of wild hemp as a medicine for cattle is permitted by a circular issued in 1882, a copy of which is enclosed. The wild plant grows freely in all parts of the province and especially in the hill tracts by dwellers in which it is illicitly sold in small quantities to the neighbouring plains people. It is also grown in the Bhutan Hills and is sold privily in small quantities when the Bhutias come down to trade in the cold weather. Similarly, men from Independent Tipperah sell the wild plant to the inhabitants of Sylhet. No pains are taken, it is believed, to extirpate the male plants by people who deal in wild hemp, of which the leaves and stalks as well as the flowers are sold. There is nothing to show that the trade in the wild plant is sufficiently large to compete seriously with excise ganja, unless possibly in the Khasi Hills, where the continuous decrease in the consumption of the Rajshahi drug can, I think, only be attributed to the cheapness of wild hemp, and the great facilities for its use. But the excise administration of this district is attended by abnormal difficulties owing to the fact that the Khasi Hills are parcelled out into the territories of many semi-independent Chiefs. On the whole, the consumption of wild hemp is small, is effectually checked by prosecutions from time to time, and cannot, I think, be checked in any other way. The wild plant is used by habitual consumers only as a pis aller, and when their supply of the excise ganja runs short. I do not think any more need be said about the wild plant. 2. With regard to excise ganja, we only use the three varieties above mentioned, and in our dealings with them are entirely guided by the excise system of the neighbouring province of Bengal. All our excise ganja comes to us from Bengal, and is dealt with in accordance with the Bengal Board of Revenue's Excise Manual. The three districts of Sylhet, Cachar, and Goalpara, in the matter of ganja consumption, entirely resemble the adjacent Bengal districts of Mymensing, Tipperah, and Rangpur. In the five districts of Assam proper, namely, Kamrup, Darrang, Nowgong, Sibsagar, and Lakhimpur, and in the three hill districts, namely, the Garo, Khasi, and Naga Hills, ganja is consumed chiefly by foreigners. The inhabitants of the first five districts are perhaps the largest consumers of opium in India; and in spite of the great decrease of opium shops, and the enormous increase in retail prices which our excise system has brought about, ganja has not, to any considerable extent, taken the place of opium. But these five districts contain about half the tea gardens of the province, and consequently possess a large immigrant population—men from Behar, Chota Nagpur, the North-Western Provinces, &c., who are many of them habitual consumers of ganja. In the three hill districts ganja is chiefly consumed by imported servants of the State—sepoys, police constables, &c. The duty on ganja, as I have already said, is the same as that in Bengal. The varying retail prices are regulated by (1) the cost of importation (which is very heavy in the hill districts); (2) by license fees, which are fixed by putting up each retail shop to auction sale. The results of sale usually agree roughly with the local demand and the probabilities of making a profit. Occasionally, however, a combination is formed among the bidders for keeping down prices. In such cases, it has occasionally been found necessary to let a whole district to a monopolist. This expedient is, however, very rarely adopted, inasmuch as it leads to an enormous increase in the retail prices and a consequent encouragement to smuggling and the use of the wild plant. This preface will probably make the following answers to the questions proposed by the Commission complete and readily intelligible:— (a) The vend of the drug throughout the province is carried on under one uniform system under the general supervision of the Commissioner of Excise. The district administration is carried on by the respective Deputy Commissioners assisted by the Sub-Divisional Officers within the boundaries of their respective charges. No separate coercive establishment is kept up, and enquiry into the breaches of the Excise Law is made chiefly through the police. The Act in force is Act VII (B.C.) of 1878, as amended by Act IV (B.C.) of 1881, and also Act I (B.C.) of 1883 and the rules and circulars issued by the Bengal Board of Revenue under that Act. I append a list of circulars (with an abstract of their subjectmatter) issued by the Chief Commissioner and by the Commissioner of Excise, Assam, for this province exclusively. (b) I have already stated the extent to which wild hemp grows in this province and the steps taken to control its use. A perusal of Circular No. 28 of 1882, above alluded to, will make this quite clear. (c) The cultivation of hemp for the production of drugs is entirely forbidden. (d) Ganja is imported by licensed wholesale vendors, who hold licenses to open registered warehouses. These warehouses are under double lock and key, one key being in the hands of a Government officer, the other in those of the vendor. Ganja is imported, as in Bengal, under passes issued by the District or SubDivisional Officer, a fee of Rs. 2 being charged for each pass. When a retail vendor desires to remove ganja from a registered warehouse, he pays the requisite amount of duty into the Treasury and receives a pass (without fee) which enables him to take the necessary supply of drug from the warehouse to his shop. The warehouses are usually small constructions of wood, lined with tin. In rare cases they are made of masonry. Transport is allowed from one warehouse to another under the cover of passes issued by the Deputy Commissioner. (e) The number of wholesale vendors in a district is fixed by the Commissioner of Excise in accordance with local requirements. That is, new licenses are not given without careful enquiry, and without ascertaining that the existing licensed vendors are not sufficient in number to carry on the business of importation. An excess in the number of wholesale vendors might lead to an undue cheapening of the drug or to smuggling. In Sylhet, the most populous district in the province, there are 17 vendors. In the Assam Valley the largest number is in Kamrup, namely, 9. But the licensed vendors of several other districts draw their supply from Kamrup. The retail vendors are all licensed; they have to pay their license fees monthly in advance, two months' fees being paid at the date of sale. They are compelled to keep accounts of all purchases and sales of the drug. These are carefully scrutinized from time to time by Magistrates and Police officers, who can demand the immediate production of the license and accounts at any time. (f) The tax on ganja consists of (1) duty collected as above, (2) and license fee paid monthly as above. Payment of duty can only be evaded by the collusion of the Excise Officer. (g) The number and sites of retail shops are fixed by the Commissioner of Excise in consultation with the district authorities, who endeavour, as far as is possible by personal enquiries, and by consulting the police, mauzadars, &c., to discover the wishes of the people of the locality. An upset price is fixed on the average fees paid during the previous three years. Experience shows that a minimum upset price is a good guide to local demand. Statement appended gives the number of shops to population. The population varies so enormously in proportion to area in different parts of Assam, that it is impossible to make area a factor in fixing sites for shops. Shops are commonly placed in bazar and other centres of trade, and the vendors usually deal in other commodities, such as spices, &c. Complaints as to the location of ganja shops are carefully considered, but very rarely occur. Complaints by people living near spirit shops and specially by European planters are comparatively common. Ostensibly we have no local option, except as above described, that, as a matter of fact, if the people of any locality objected to, or desired the opening of a new shop, they would not hesitate to make their wish known to the district officials, or, if necessary, to the Commissioner of Excise. In the case of ganja, such references are extremely rare. In the hill districts and Assam proper, the shops are few and far between; in Sylhet and Cachar the number has been largely reduced of late years, and the only doubt possible is whether the reduction has not been too great. In 1890-91 the retail shops in Sylhet were reduced from 148 to 110, and in Cachar from 52 to 42. No complaints were made by the general public.
(h) No rate is fixed at which the drug is to be supplied by wholesale to the retail vendors. The rate is fixed by competition, and if the wholesale vendors of one district attempt to force the price too high, retail vendors have recourse to the "golahs" of a neighbouring district. In many cases the wholesale vendors also hold retail shops. The average retail price to consumers, district by district, is given below for the past two years. The circumstances which affect the retail price have already been stated:— 

(i) The maximum limit of possession by ordinary consumers is, as in Bengal, 20 tolas. It has not been found necessary to fix any minimum price. But in this matter we simply follow the precedent of Bengal. (j) The dried wild plant is smuggled into the province in small quantities from Bhutan and Hill Tipperah. Beyond the intervention of the police, no steps have been considered necessary to defeat a practice which is carried on on a very small scale. We occasionally get information (for which rewards are paid by the Deputy Commissioners) from retail vendors and others. (k) No modifications of the excise system with reference to hemp drugs are under the consideration of the local Government. (l) The statement called for by the Commission is appended hereto. I add some explanations of the more important variations in consumption from year to year. In 1874-75 there was a decrease in consumption in Cachar owing to a combination among the wholesale vendors to raise the price. In the following year a similar cause produced similar effects in Sylhet, while the breaking up of the combination in Cachar led to a reduction in retail prices and increased consumption. In 1876-77 the combination in Sylhet continued and resulted in a further decrease in consumption, while in Cachar, Goalpara, and Kamrup the whole district was farmed out to a monopolist, who found his profit in charging high prices, which checked consumption. In 1877-78 the consumption in Sylhet increased owing to the breaking up of the combination among the goladars and a consequent fall in retail prices. The increase in Goalpara was attributed by the district authorities to the fact that opium had become too costly for common use and that people were taking to ganja instead. This was probably a mere guess, and does not appear in the explanations of subsequent years. In fact, careful inquiries have since shown that ganja is not taking the place of opium. In 1878-79 there was an increase of the rate of duty in Sylhet alone, and this was followed by a large decrease in the amount of ganja taken from the district shops. Strange to say, however, there was also a decrease in the neighbouring district of Cachar, where the rate of duty was not enhanced till the following year. In Cachar the diminution was attributed to the high rates charged by the wholesale vendors in anticipation of an enhanced duty. In 1879-80 when the enhanced rate of duty was extended to the whole province, an increased consumption of about three maunds in each case occurred in Sylhet and Cachar. There was a decrease in all the remaining districts, and especially in Goalpara, where the season was a bad one, and the price of food-grain was high. In the next two years consumption remained pretty steady. In 1883-84 there was a somewhat large increase of 58 1/2 maunds. This was chiefly due to the breaking up of the monopoly in Cachar, which resulted in a reduction of retail prices. In Kamrup there was an increase of over 16 maunds, but, as above explained, many districts (Darrang, Nowgong, the Khasi Hills, &c.) draw their supply from this district. In Sylhet there was a falling off of over 19 maunds, but no doubt many consumers drew their supply from Cachar. In 1885-86 there was a very large decrease in consumption, entirely due to the decrease in the Sylhet district attended as before by an increase in Cachar. In the following year the pendulum swung backwards, and in Sylhet and Kamrup, which had shown a large falling off in 1885-86, there was an increase in consumption. This, as before, was no doubt due to the breaking up of combination among the wholesale vendors. In 1887-88 there was again a decrease in Sylhet and Cachar, in the former district amounting to as much as 73 maunds. The year was one of scarcity and high prices, but an increase in prices and decreased consumption would probably have occurred in any case. In Lakhimpur the rapid increase of the immigrant population induced the Commissioner to authorize the opening of a second registered warehouse (there had only been one heretofore). This appears to have led to a fall in retail prices and a small (temporary) increase in consumption. In 1888-89 Sylhet and Cachar again show an increase between them of some 71 maunds. The year was a good one from an agricultural point of view, and probably the anticipation of good sales brought about the breaking up of the combination among wholesale vendors. Moreover, the increase in this year was less than appears at the first sight. The duty on choor and round ganja was raised; that on flat ganja remained the same. This stimulated the consumption of flat ganja, which consists largely of stalks and stems. In 1889-90 the increased consumption continued, the year being again one of good harvests. So also in 1890-91, in which year the consumption in Cachar was greatly stimulated by the influx of foreigners in connection with the Lushai expedition. In 1891-92 the decrease of 27 maunds odd was chiefly due to the partial failure of the crop in Rajshahi, which raised the wholesale price of the drug; nor was the quantity required available for import. The decrease of nearly 80 maunds in 1892-93 occurred almost entirely in the district of Cachar, and was due to the fact that the whole district was leased to a monopolist. In other districts the decrease was more apparent than real, owing to an increased resort to the use of round and choor ganja in preference to flat ganja. (m) As I have already pointed out at length, our system of administering ganja is derived from, and carried on, in conformity with the Bengal system. It would be possible for us to vend ganja in the same way as we now vend opium. To take this step would give us an increased hold over the vendors, and a possibility of influencing retail prices more effectually than at present. The experiment is in fact being tried on a small scale in the Khasi Hills. But to adopt it for the province at large, we should require the co-operation of the Bengal Government. Probably the introduction of a similar system in Bengal would be necessary. With regard to opium the system, as is well known, is for Government to buy the opium from the cultivators, and to sell it directly after manufacture to the retail vendors. Whether such a system can profitably be applied to ganja is probably best known to the authorities in Rajshahi. In practice the present system works fairly well: all reasonable facilities for the sale of the drug are given, while it cannot be said that the number of shops is such as to create an artificial demand for ganja. The one drawback of the system lies in the violent vacillations in retail prices due to the forming and breaking up of the combinations among the wholesale vendors.

Circular No. 28, dated Shillong, the 26th October 1882. From—C. J. LYALL, ESQ., C.I.E., Offg. Secy. to the Chief Commissioner of Assam, Revenue Department, To—All Deputy Commissioners, Plains Districts. I AM directed to invite your attention to the Notification No. 27, dated the 20th October, published in the Assam Gazette of the 21st idem, declaring, under section 17A of the Excise Act, VII (B.C.) of 1878, as amended by Act IV (B.C.) of 1881, that the possession without a license of any "foreign exciseable article" (except spirituous and fermented liquors imported by sea, and kept only for private use and consumption and not for sale) in any quantity whatsoever, is absolutely prohibited in the plains districts of this province. 2. "Foreign exciseable article" is defined in section 3 of Act IV (B.C.) of 1881 so as to include not only exciseable articles manufactured or produced at any place beyond the limits of British India, but also all such articles produced or manufactured in places within British India, where no duty of excise is levied upon them. Such places are the Hill Districts in respect of country spirits and ganja, and the Act amending Act VII (B.C.) of 1878 was passed mainly with the object of preventing injury to the excise revenue of the plains districts from the introduction into them of untaxed spirits and ganja or bhang from the Garo, Khasi and Jaintia, North Cachar, and Naga Hills. If in your district any such importation, or importation from foreign territory, exists, you should take steps to make the prohibition widely known and understood. Magisterial officers should of course, especially at the outset, deal leniently with such cases of possession, where there is reason to believe that the importation was made in ignorance of the prohibition. It must be understood that this notification does not make the possession of wild ganja, whether green or dry, illegal, if it is grown in a plains district, but only if grown in a hill district, or beyond the British boundary. 3. In connection with the discussions which have preceded the issue of this notification, it has been brought to the Chief Commissioner's notice that the wild hemp plant, which grows abundantly both in the hills and plains of this province, is largely used, after being cut and dried, as a medicine for cattle. I am to invite your attention to sections 16 and 17, rule 2 of Chapter XV of the Board's Rules, Vol. I., edition of 1878, which bear upon this subject, and describe the different preparations of hemp which are "exciseable articles." Ganja is said by the Board to be made from the dried flowers of the female hemp plant, and some authorities say that it is only made from the cultivated plant. Bhang, again (which according to the Board is otherwise called siddhi, patti, or sabji), is said by them to be made from the dried leaves of the wild plant, and to be usually consumed in some liquid or to be mixed with sugar and ghi in the electuary called majum. Charas is the resin found on the flowers and leaves of the plant, in which the active intoxicating principle of all the preparations resides: it is not sufficiently abundant to be collected separately in most of the varieties of hemp grown in India, and is chiefly imported from Afghanistan and Yarkand. Thus, the danger to the excise revenue from the illicit use of wild hemp arises from its use as bhang, not as ganja properly so called. Its cultivation without a license is already prohibited by section 5 of the Excise Act. By section 2 of the Act the sale of bhang in any quantity without a license is forbidden. By sections 15 and 17 of the Act the possession of a larger quantity of bhang than a quarter of a seer, except by a licensed vendor, is prohibited. 4. But you will observe that in rule 2 of section 17 of Chapter XV of the Board's Rules it is said that "no restriction is imposed on the use of the hemp plant in its green state for medical or other purposes, or on its manipulation for the manufacture of fibre. But any preparation of the plant to be used, stored and sold as a narcotic or stimulant is prohibited, except under the rules framed under the Act." This rule mentions the medicinal use of the plant only "in its green state;" but if, as appears to be the case, the wild hemp is also used as a medicine for cattle when dried, the Chief Commissioner desires that the rule may be liberally interpreted, and no penalty imposed when it is probable that the cultivation or the drying and storing of it was only for this purpose. Whether this was so or not is of course a question of fact. 5. This circular should be communicated to all judicial officers subordinate to you and. also filed in the judicial side of your office. 

 

NORTH-WESTERN PROVINCES AND OUDH MEMORANDUM

13. Under the rules now in force under section 11, Excise Act XXII, 1881, the cultivation of the hemp plant in these provinces is free to all parties. The possession of the drug is permitted to cultivators, to owners of laud in which the plant grows spontaneously, to licensed vendors or to persons duly authorized to supply licensed vendors. Its possession by other persons in larger quantities than one quarter of a seer of bhang and five tolas of ganja or charas, is prohibited under sections 22 and 23, clause (k), Excise Act. Section 12 (d) permits any cultivator to sell intoxicating drugs prepared from his plants to any person licensed to sell drugs or specially authorized to purchase the same. This permission to cultivators is considered to extend to the sale of their bhang by owners of spontaneous produce. Bhang requires no preparation or manufacture, being only the dried plant stripped of its stalk. The rules are silent on the subject of manufacture or preparation of drugs. This is probably because outside the hill districts there has hitherto really been no manufacture or preparation in the proper sense of the word carried on in the provinces except a little quasisurreptitious manufacture of ganja which will be noticed further on. Excepting the wholesale contractor in Saharanpur, no persons are specially authorized to purchase under section 12 (d). The business is entirely in the hands of the contractors, who are licensed to sell. 14. In the few cases abovementioned, where the plant is cultivated, the produce is stored by cultivators themselves in their own houses. It is sold to contractors, and when bought for export, is weighed and sealed before the tahsil officials, and exported under pass in the usual way (hereafter described). The produce of the wild plant is similarly treated. The real control lies in the restrictions on sale and transport. But the rules governing cultivation, collection of wild plant, preparation and manufacture, are, I think, susceptible of improvement. So far the rules, however, have worked well enough, partly because the supply of drugs has been ample and cheap and partly because the people generally have not known or realized how far they might go without violating the law and rules. They see that all excisable commodities are a Government monopoly, and, except where hemp is cultivated or collected for sale, they have a belief that its cultivation would render them liable to penalties. The ignorance is shared by some of the officials, who occasionally take cognizance of cases where a few plants are found growing in or about a man's house. In such cases he never pleads that he is entitled to grow them; he always denies the fact or alleges that the plants grew spontaneously without his knowledge. If drugs were forbidden or made prohibitive in price the case would at once alter, cultivation, collection, and manufacture would have to be placed under such control and restriction as might be found possible. 15. The question of manufacture as well as growth of bhang has, perhaps, been sufficiently explained in the foregoing paragraphs. In the case of ganja the manufacture and growth cannot well be separated. The hemp plant, as I have stated, can be, and is grown everywhere, but the production of good ganja requires either the extirpation of the male plant or the isolation of the female plant. The regular cultivation of ganja in this way is not carried on openly anywhere in these provinces. The whole of the ganja offered for public sale is imported. At the same time it would be incorrect to say that ganja is nowhere grown or manufactured. Careful enquiry has elicited reports from several districts that a small amount of ganja is surreptitiously made. I have endeavoured to verify this by obtaining specimens of the local manufacture. It is naturally difficult to obtain a clandestine article, but I have succeeded in getting specimens from Ghazipur and Sultanpur, which have been handed over to the Commission. In appearance the Ghazipur ganja is better than the ordinary "pathar," and not much inferior to Bengal "baluchar" (flat). The other is much the same as " pathar." I hope to obtain further specimens which will be duly submitted. These two samples are clearly made from unfertilizedf lowers,a nd the people who made them knew the necessity of preventing fertilization. In Ghazipur the male plants are extirpated and the ganja is prepared from the female flower by a process which closely resembles that employed in Bengal. It sells, I am informed, for two annas per tola. The method of cultivation and manufacture in Sultanpur has not been described. 16. The deduction is significant and instructive. Ganja, of fair or good quality, can be made, and is made, locally. People understand the principle of its manufacture. If this happens in a few districts, it may happen in any district. There can be no doubt it would happen very generally if the import of ganja were prohibited. The distinction between the male and female plants is everywhere recognized (though the names are sometimes transposed), and it is generally known that the latter yields ganja and the former bhang only. But as yet it is not everywhere or generally known that proper ganja can only be made from the unfertilized flower. Such knowledge, however, would soon spread.
Ganja of a certain sort is also made in Nepal territory, and there is reason to believe in the adjoining parts of this territory. It is introduced by Nepalese who come down for one reason or another and who primarily bring it for their own use, but possibly also do a little trade in it. I will submit a specimen which was procured by the Collector of Basti from a fakir who wanders in and out of Nepal and could not clearly say on which side of the frontier it was grown. The ganja is no doubt very inferior, but compared with the purely wild female plant it seems to me to indicate some preparation from a plant specially grown or tended.
17. Besides these cases it has also been ascertained that wild ganja is collected and used in the Kheri district. I have procured a specimen of this and submitted it to the Commission. It is simply the unprepared flower of the wild female plant fertilized and fructifying. The Deputy Commissioner reports that the people do not understand the necessity for keeping the flower barren. This stuff is locally smoked as ganja, but it is recognized to be of very inferior quality and has no commercial value. In Bara Banki also the wild female plant is collected and smoked under the name of ganja. The specimens indicate an absence of any form of special cultivation or manufacture. There are indications that wild ganja is similarly used in other districts, but the matter is not certain, and I have seen no specimens. The Kheri experience shows that the produce of even the wild plant can be used as ganja at a pinch, and raises an inference that ordinary bhang could be smoked if ganja were not procurable.
18. The hemp plant is cultivated for its fibre in the Almora and Garhwal districts, and yields charas generally as a subsidiary product. Some description of the process will be found in the North-Western Provinces Gazetteer, Volume X, pages 760 and seq and 799 and seq. The information now supplied to me by the local authorities and gained by my own enquiries shows that the charas is extracted by rubbing in the hands the flowers of the female plant after it has been cut and scraping off the resin which adheres to them. A certain amount is also said to stick to the hands when the stalk is manipulated for preparation of the fibre, but this requires confirmation. No intentional effort seems to be made to keep the female plant from being fertilized, but the male plant matures a month or six weeks before the female plant, and is then cut to prevent deterioration of the fibre. Where the primary object of the cultivation is charas, the male plant is similarly removed to give the female room to spread. This practice may act to check fertilization, but obviously does not prevent it, as the female plants are said to always produce seed. Moreover, the wild plant grows round about and presumably its pollen would fertilize the cultivated plant. Charas is also extracted from the female flowers of the wild plant which must of course be fully fertilized. Such charas is esteemed to be of inferior quality. In a letter from the Political Agent and Superintendent of the Punjab Hill States it is said that in Bashahr a resin is extracted from the terminal leaves of the wild female plant by rubbing them between the palms of the hands till the resin adheres. It is then scraped off and smoked like charas. Each man makes his own in this fashion. This private manufacture of the drug in a small way is common. This account agrees exactly with the description given of the preparation of charas in the hill districts of these provinces and in Native Garhwal. Charas, which is a resinous secretion of the female flower, would seem scarcely distinguishable in its properties and effects from ganja, which is the female flower with its resinous secretion still present.
IMPORTS AND EXPORTS.
19. The imports of bhang may be very briefly stated. Nearly the whole of the bhang consumed here is grown in the provinces. A certain amount is imported from the Punjab, coming chiefly from Jagadhri, Kalsia, Umballa, and some from Amritsar, Hosbiyarpur. Nearly all of it goes to a few of our western districts. This is not because of any failure in the local supply which is unlimited and inexhaustible, nor because of any superiority of the Punjab article, but apparently on account of the trade connection of some of the contractors with the Punjab. These imports are made under pass in the manner prescribed in rule 98, Chapter X, of the North-Western Provinces Excise Manual. No import duty is levied. A little bhang also occasionally comes from Bhartpur and Jeypur and perhaps from a few Bundelkhand Native States, but in that direction we give more than we get. The amount is not considerable and seems to be diminishing. Some of the bhang from Gonda and Bahraich is really grown on the Nepal side of the border. The Nepalese officials are said to exact a trifling duty of one or two annas per maund. The plant is treated in the same way as the growth of our own villages. A certain amount of bhang finds its way out of the provinces to the neighbouring districts of Bengal, the Punjab, the Central Provinces, and the Bundelkhand States.
20. The chief districts from which bhang is exported are Gonda, Gorakhpur, Bahraich, Basti, and Kheri, the Tarai (Naini Tal), Bareilly, Pilibhit, Saharanpur, Gorakhpur, and Fatehgarh; but any of the other districts mentioned in my 8th paragraph are capable of yielding a practically unlimited supply, and bhang is occasionally procured from them. In Saharanpur a separate contract is given for a wholesale depôt. It only fetches a few hundred rupees and is almost invariably taken by the contractor for retail vend in the district. Elsewhere the local contractor does some business in wholesale export, or the contractors of other districts send their agents to purchase direct from the owners or occupiers of land who collect and store the plant.
This export, or, more correctly speaking, transport, within the provinces is effected under passes issued by the Collector of the district in the form printed as Appendix XL, in the North-Western Provinces Excise Manual, which is framed for opium, but also used for hempdrugs. The rules will be found in chapter X of the Excise Manual.
21. The three main localities from which ganja is imported are— 1. Bengal. 2. Khandwa in the Central Provinces. 3. (a) Gwalior. (b) Bundelkhand Native States. That imported from Bengal is almost exclusively the cheapest kind, "flat ganja." I believe some very small quantities of the superior kinds are occasionally imported, but I have never seen any. This import business is chiefly in the hands of a large Patna firm who hold contracts for several districts in these provinces and also supply other contractors. Some contractors, however, obtain their supplies direct from Patna, Rajshahi and Buxar, or from the border districts of Saran and Champaran. This is entirely a matter for their own choice. The Bengal Government impose a duty which is now Rs. 6 per seer on flat ganja. This is collected and credited in Bengal. Till the 1st April 1892 these payments were subsequently credited to this Government by inter-provincial adjustment. Since that date they remain to the credit of Bengal. The cost price varies considerably according to the character of the crop and the state of the market. Within the last two years it has been as high as Rs. 70 per maund and as low as Rs. 9.
The Bengal ganja is known here as "baluchar" from the name of a village in Bengal, whence it is supposed to come. It is used chiefly in the eastern districts forming the Benares and Gorakhpur Divisions, but a little still finds its way further west, where its superior quality secures for it a certain, though small, demand in spite of its much higher price. The high quality of the Bengal drug is universally admitted, and I believe that weight for weight it possesses greater intoxicating power. This point could be best determined by a chemical analysis. Its appearance would indicate that it contains more of the resinous secretion, but, so far as I know, it seems to be preferred on account of its flavour and less unpleasant aftereffects. Notwithstanding its better reputation and its older trade connection, the Bengal drug is losing its hold in the market here. The decrease in Bengal exports attracted the attention of the authorities there, and I was asked about a year ago to ascertain the causes. The result of my enquiries was to show that the consumption of baluchar was falling off because of (1) the successive increases of the duty levied in Bengal and the consequent enhancement of price; (2) the increasing competition of the cheaper "pathar" ganja from the Central Provinces, Gwalior, &c.; (3) extended use of charas. No doubt cause (2) is greatly fostered by cause (1), and is a consequence as much as a cause. But I think in any case the cheaper drug was bound to assert itself and gradually supplant the dearer article. The difference in price is considerable. Baluchar has lately been generally retailed in our towns at six annas per tola, while pathar sells at one anna and half an anna.
22. In those districts where the use of baluchar prevailed I do not think the pathar ganja was, at first at least, openly offered under that name. It was rather used to adulterate baluchar. Ordinary specimens of the two are easily distinguishable to the experienced eye. But there is sufficient resemblance to make adulteration easy. I have no doubt a good deal of pathar is sold as baluchar. The Commission will remember that on their inspection of the two chief drug shops in Allahabad the vendors professed to have no "pathar" for sale, but on visiting the contractor's storehouse a quantity of pathar was there found in stock. Last year Babu Ganga Bishen, the head of the Patna family, and the largest contractor in the provinces, was found in the Nimar district engaging with the cultivators to manufacture their ganja so as to resemble baluchar and instructing them in the process. This had occurred also on a previous occasion. I have handed to the Commission a specimen of Khandwa ganja which I found on sale in a shop here and which approaches baluchar in quality and appearance. All these circumstances seem to indicate that the duty on Bengal ganja has reached a point which must lead to its gradual exclusion from a market where it has to compete with the cheaper products of other localities. I should also add that the districts in which there is reason to believe that locally grown ganja is surreptitiously prepared are chiefly districts in which baluchar is used.
In Garhwal a substance is produced and used which might be classed with either ganja or charas. After the charas has been extracted from the female flower the powdered or brokenf lowersa re mixed with hemp seed and smoked in a chillum. This seems akin to the "garda" of the Punjab. The ganja coming from the Central Provinces is known here as "pathar," "pattiyara or pattiyala," possibly on account of its leafy character. It has more waste in the shape of stalk and leaf and apparently less of the resinous secretion than the Bengal drug. But, as I have already said, it can be prepared to simulate the latter.
Mds. Mds. 1882-83 503 1887-88 1,145 1883-84 2,472 1888-89 1,879 1884-85 741 1889-90 3,237 1885-86 4,223 1890-91 1,530 1886-87 229 1891-92 1,450
I need not here attempt to describe its method of cultivation, preparation, storage, wholesale price, &c., because such information can be more accurately procured from the Central Provinces. Our contractors who bring it from Khandwa pay no duty there, but have to meet warehouse and registration fees, which, I believe, come to about Rs. 2 per maund. It varies a good deal in quality according to the season and probably also according to the skill of the cultivators who grow and prepare it. Many of the specimens I see contain more or less seed, showing that the male plants have not been completely extirpated. Pathar, whether from the Central Provinces or Gwalior, &c., is most largely used in the central districts of these provinces and in those western districts where ganja is consumed at all. It is gradually making its way in the eastern districts, where it is supplanting baluchar. I do not think the import of Khandwa pathar is increasing just at present. The figures marginally noted show the imports for the last 10 years.
From what some of our contractors have told me, I think Gwalior ganja has been gaining ground, as it has latterly been rather cheaper owing perhaps to bad crops in the Central Provinces and the heavier railway freight to many of our districts. The construction of the Indian Midland Railway has apparently improved the market for Gwalior ganja. 24. The Gwalior ganja is of the same character and appearance as the Central Provinces "pathar." It is known here by the same name and is used in the same places and by the same people, in fact it stands on exactly the same footing as the latter. Like the latter, too, it seems to vary considerably in quality. On an average I should say, it is neither better nor worse than that which comes from Nimar. It is the product of careful cultivation and preparation. Colonel Pitcher, Director of Land Records and Agriculture for the Gwalior State, has kindly supplied a memorandum on this point prepared by his Assistant, Pandit Gopal Ram, which will be found as an appendix to this report. The State duty of Rs. 5 per maund must be calculated on the drug stripped from stalk and waste and ready for use. My enquiries here show that our contractors pay duty to the farmer at the rate of Re. 1-8-0 to Rs. 2 per 100 bundles. The fact seems to be that the farmer, paying a lump sum to the State, collects the duty in the way he finds most convenient to all concerned, and is not very particular provided he gets a fair offer. The incidence of the duty on weight of the drug is very much a matter of conjecture or estimate. I have no doubt myself that the actual incidence on the cleaned stuff comes in the end to less than Rs. 5 per maund. Some of the contractors I have spoken to have been under the belief they paid less dues in Gwalior than Khandwa. The Gwalior ganja as a rule is despatched by rail from Antri on the Indian Midland Railway, The State is bound by treaty not to permit the export of intoxicating drugs, &c., by any route or direction formerly barred by the Inland Customs line. This restriction had been disregarded, but the attention of the Darbar was called to it in 1887, and they took measures to enforce it. The principal measure, curiously enough, was to double the duty on ganja exported to British territory. The convenience now afforded by the Indian Midland Railway, added to the above restriction, now confines the conveyance to the railway, but I have no doubt that if the inducement existed, it would be quite easy to smuggle in the drug at many points of our land frontier.
Dattia. Chattarpur. Sampthar. Kadaura (Baoni). 25. Of the same class as the Gwalior ganja is that imported from some of the Bundelkhand Native States. I give in the margin the name of those States from which ganja has been from time to time procured by our contractors. To these may be added Dholpur, which is under the Bhartpur agency. The plant is cultivated in Dattia, Sampthar, and Chattarpur to some extent, and the drug is not, so far as I could observe, distinguishable from Gwalior ganja. In all these States there is some duty on export, but it seems to be variable and unequal. In one place I am told it is two annas per rupee of the price of the drug which would be about Re. 1 to Rs. 2 per maund. In another place it is said to be Re. 1-9-0 on each purchase irrespective of quality. But these rates require confirmation. I am not sure that all the ganja brought from these States is of local growth; some of it, I suspect, comes from Gwalior or Khandwa originally. I learnt in Hamirpur that the Chirkari State supplies itself from Khandwa. I believe also that ganja as well as bhangf indsi ts way from our districts into adjoining native territory. The import of ganja from these States is inconsiderable and irregular. It is only brought into a few of our Bundelkhand districts, but it is a source of supply which is capable of extension. 26. Before quitting this part of the subject I ought to mention that these and other Native States not only adjoin, but are interlaced and intermixed with British territory. There are numerous native villages scattered over our districts, and in some cases considerable tracts entirely surrounded by British possessions. The capital and a great part of the Chirkari State is situated in the middle of the Hamirpur district. All these places serve as centres from which excisable commodities are freely smuggled into our territory. The country being wild and mountainous prevention is impossible. I have elsewhere mentioned that a small quantity of very inferior illicit ganja is introduced from Nepal. I am told that there recently used to be authorized import of an inferior sort of ganja known as Mahadewa from Nepal; but I have been unable to verify this or get a specimen. A little pathar ganja still comes from Indore. The supply from this quarter used to be large. Ganja of a potent sort is said to be also procurable in Rewah, but whether of local growth or imported from the Central Provinces is not clear. A small amount of ganja is exported from Bahraich into Nepal. It is imported ganja. 27. I have mentioned all the sources, so far as I can discover, from which ganja is at present imported. But within recent years ganja in considerable quantities has been brought from places further south. Holkar's territory, Berar, Mewar, Nasik, Nasirabad, and Khandesh, and perhaps other places in the Bombay Presidency are sources from which supplies have been drawn within the last ten years. Latterly, however, the proximity of Khandwa and Gwalior and the cheapness of the drug there seem to have given them a monopoly of the business in pathar. But in considering the possible sources of supply, the places I have mentioned should not be overlooked. 28. The great bulk of the charas consumed in these provinces is brought from Yarkand and Bokhara. It comes through the Punjab, and the Commission can procure there better information than I can give them concerning its manufacture, quality, transport, &c. Some information on the subject will be found in my predecessor's letter of 29th August 1881 to the address of the Board of Revenue, of which a copy, I understand, has been supplied by the Board to the Commission. I am told by the traders that the charas from Central Asia is now less pure than it used to be. It is also much cheaper at present than it was some years ago, but the price is liable to considerable fluctuations. 29. The other sources of supply are Nepal and our own hill districts, Almora and Garhwal, A small amount also finds its way from Thibet into both British and Native Garhwal. A little is also sent from Garhwal into Thibet. The drug imported from Nepal is known as Shahjahani or Saljahani charas and is introduced through the Bahraich district from Nepalganj. A small amount is also introduced from Nepal into British Garhwal or Kumaun. I append a report by the Deputy Commissioner of Bahraich describing the method of production and manufacture. His information was, I believe, derived from the Nepalese frontier officials and the local traders. This charas is of a very superior quality and commands a high price; Rs. 10, 1st quality, and Rs. 3, 2nd quality, per seer. At present it seems all to go to Lucknow, where it is retailed at Rs. 35 or Rs. 40 per seer. Some used to be sent to Cawnpore. The importation appears to have fallen off, as the Yarkand charas has become cheaper, but its better quality still secures a market for the Shahjahani drug. Dr. Watt states on the authority of Dr. Gimlette that Nepal charas sells in Katmandu for Rs. 2 and in the Tarai at Rs. 3 per tola (Rs. 160 and Rs. 240 per seer). If thesef iguresa re correct, they show how enormously the drug must be adulterated before it reaches our market. I remember once hearing that very superior Nepal charas has been sold in Lucknow at its own weight in gold. This source of supply could, no doubt, be again largely extended if the demand arose. I believe the amount at present imported is from 25 to 50 maunds a year. 30. The hemp plant, I should add, is also cultivated in the Native Hill State of Tehri Garhwal, but none of the products which include charas are said to be imported into our districts at present.
31. The whole of the charas produced in the Himalayan hill districts is locally consumed and is also supplemented by the import of Yarkand drug which is cheaper and which is said also to be gaining favour because it is more potent. I find it difficult to believe this latter statement because I have little doubt the Himalayan charas is much the purer. It has been described to me as milder (colder) and less injurious than the other. This can best be settled by a chemical analysis, and for this purpose I am procuring specimens, which will be submitted. Possibly the more pungent taste of the Yarkand charas may be due to substances with which it is adulterated. But that it contains more of the true hemp resin I find it difficult to believe. My predecessor appears to have been misled in describing the Kumaun charas as inferior. The price paid by the contractor is from Rs. 5 to 8 per seer, about twice or thrice the price of the imported charas. It is difficult to estimate the amount of the annual produce, as much of it is consumed by the people who make it, or is illicitly sold. So far as the contractors' statements go only five or six maunds annually pass into their possession. This must be a small part of the produce, which, moreover, could be largely extended if there were a sufficient demand. 32. I have made many enquiries to ascertain if true charas is in these parts of India ever extracted from the plant grown in the plains. I have now got definite information of two localities in which this occurs. It was stated incidentally that some charas is made by the ganja cultivators in Gwalior. Colonel Pitcher has kindly verified this through his Assistant, Pandit Gopal Ram, who reports that "a certain amount of charas is obtained in this (Gwalior) State by scraping off the resin which adheres to the hands in cutting the ganja plant. In tahsil Antri the cultivators do not care much about the charas. In tahsil Kalaras, district Narwar, I hear charas is obtained in small quantities by the same process as in Kumaun and Garhwal." The second locality is in the Kumaun Tarai and Bhabar, where the practice was possibly introduced by the hill men who come down to cultivate there. The method is the same as that employed in the hills. Thef lowerso f the wild plant are rubbed in the hands and the resin which adheres is scraped off. No record can be kept of the amount so prepared, but it does not as yet seem to be considerable. I have obtained specimens' of this charas from both Gwalior and Kumaun, and will submit them to the Commission. It is a fact off irst-ratei mportance to know that charas can be and is manufactured in the plains and from the wild plant. This at once enlarges immensely the possible sources of supply. It has been stated that charas is collected in Sind and Central India by the traditional process of men, naked or leather clad, running through the hemp fields. The story seems to require verification. It seems strange that no charas is produced in all the handling which the Bengal ganja undergoes in the process of preparation.
ADMINISRATION 33. The excise on hemp-drugs is administered under Act XXII of 1881 and rules thereunder. The administration is carried on by the ordinary district staff. The central controlling authority is the Board of Revenue. The Commissioner of Excise has the power of a Revenue Commission under the Act. His statutory powers are limited to those defined in sections 54 and 14 of the Act. He has little initiative or final authority, and acts chiefly as an intermediary between Collectors and the Board. There is one uniform system of administering the drug revenue for the whole provinces. The right of sale over a fixed area is farmed to a contractor, who is at liberty to procure his drugs wherever he likes and to sell them at any price he chooses. No distinction is drawn between the different sorts of hemp drugs; all are included in the same license and are stored by the farmer on his own premises. There is no import duty here of any sort. The contracts are usually for an entire district—in some cases for tahsils or parganas. There is nothing to prevent a contractor having separate contracts for several districts. The ordinary period is for one year, but contracts are now often given for two or three years and the longer periods always fetch proportionally higher sums. The chief reason for this is that there is an enormous difference between the wholesale and retail prices, and an out-going contractor canf loodt he market with cheap drugs, which lessen the sales of the new contractor for weeks or months. The number and locality of the retail shop has been fixed by the Collector subject to the orders of the Board and is revised from time to time. Shops are only located in places where a demand exists. The maximum proportion is one to every 10,000 of the population. In a very few cases this is exceeded for special reasons. In more cases the proportion is less. In the tabular statement which accompanies this memorandum, the number of shops before 1878-79 cannot in many cases be stated, as the returns showed only the number of farms. A general revision of the number of drug shops was undertaken some time ago, and considerable reductions effected which will come into operation in the year now commencing (1893-94). For that year the total number of shops in the provinces is 3,673, being one for every 12,770 of the population. A list of the shops is notified at the time of sale, and no alterations are permitted without sanction. The contractor either sublets the shops or works them through his servants. As a rule, he holds the best shops in the large towns in direct management, and sublets the rest. He keeps the wholesale vend in his own hands and supplies his servants and sub-lessees, charging the latter at prices which leave him a large margin, and he makes his profits partly in this way and partly by requiring cash payments from sub-lessees. The shop licenses are all issued by the Collector on printed forms (Appendix XX, Excise Manual). When the contractor has made his arrangements, he applies to the Collector, filing a list which shows the names of the shops and licensees. This is compared with the sanctioned list of shops, and the licenses are made out in the Collector's office and given to the contractor. If he wishes at any time to change the retail vendor, he can do so by applying to the Collector and returning the first license.
I do not know of any case in which an objection was ever made on public grounds to the number or locality of drug shops. If any such objection were made, it would receive due consideration. The neighbours are not affected by the presence of these shops, as there is rarely any consumption on the premises. 34. The contracts are sold by auction in each district at the time of the other annual excise settlements. As a rule of course the highest offer is accepted, but it is sometimes found necessary to arrange otherwise. Regard is paid to the solvency and respectability of the rival bidders. The Collector has always the prices of previous years to guide him, and is obliged to explain any substantial fluctuations. These depend on the competition, on the character of the season, and on the variations in the cost price of drugs. The number of capitalists engaged in the trade is not very large, and nothing is commoner among them than combinations to keep down the price. I have noticed this point in my annual report for 1891-92. Latterly, I think, the value of these contracts has become better known and the contractors' profits shorn to more reasonable dimensions. Measures have also been taken to defeat combinations, and with good results. Still it is a defect in the system that it leaves the whole of the revenue collected here to be determined by the competition of the auctions. The advantages of the system are that a large revenue is very easily and cheaply collected and that smuggling and other evasive or illegal acts are minimized. The contractor has no reason to commit them himself, and it is his interest to detect any one attempting them. This is no small advantage from an administrative point of view. Retail prices are under the existing system kept at the highest possible point. 35. The rules which govern the import of all forms of hemp-drugs will be found in the Excise Manual, Chapter X. All import, export, and transport is under passes signed or countersigned by the local authority. In the case of ganja and bhang the only importers are our own contractors. Charas is also brought in by Panjabi traders, who sell to those of our contractors who do not care to procure their supplies direct from the Panjab. These traders frequent a few centres to which they convey their stock. Their sales are all reported and duly registered on their passes. They take out no licenses as they sell only to contractors, for whose convenience they are permitted to trade in the manner described. The legality of this arrangement is questionable and will be considered when the rules come under revision. Some of these traders themselves hold district contracts, and in such cases of course their proceedings are open to no objection. Sometimes contractors, instead of importing from foreign provinces, obtain their supplies from contractors of other districts. This happens in the case of drugs in small demand or in the event of sudden emergencies. Such consignments are conveyed under pass. In these ways a good deal of transport of drugs takes place from one part of the provinces to another. The amount of smuggling from outside the provinces is, I believe, quite inconsiderable: the reason is given above. A little ganja and charas finds its way over the frontier, no doubt at many points in the possession of travellers, fakirs, and the like, who chiefly bring * Ganja and charas, 5 tolas. Bhang, it for their own consumption. Within the legal limits of quarter seer. possession* this cannot be prevented. I have no reason to believe that any illicit traffic or sale occurs which is worth taking into consideration. Occasionally drugs brought from one district are illicitly sold in another to the injury of the contractors. This can rarely be done without the connivance of some licensee of the district from which the drugs are brought, and is usually the result of hostility between rival contractors. The authority of the police and revenue staff is always exerted to suppress such practices. But there is undoubtedly a considerable consumption of bhang and a certain, though small, consumption of ganja locally produced which pays no tax direct or indirect. How this happens will be sufficiently understood from what I have said in the earlier part of this memorandum. It would be difficult to check and impossible to wholly suppress this consumption. Illicit import would easily and rapidly increase if stringent measures were adopted to repress trade in, and consumption of, drugs.
CONSUMPTION.
36. In the tabular statement which accompanies this memorandum, the columns showing the quantities sold retail, are necessarily blank. Any record of the sort would have to be kept by the retail vendors, and, if it could be maintained at all, would be utterly untrustworthy. It follows, therefore, that statistics showing the amount of drugs actually consumed or retailed are nowhere available. This is inevitable. Where a commodity is issued as required, like opium or country spirits, from a Government depôt on payment of a fixed duty, such a record can be kept, and it may fairly be assumed that the whole amount issued is consumed within the year. But this is not the case with hemp-drugs. The amount consumed can only be inferred from the amount of imports and exports. This might not be correct for any one year, because the imports of one year are often consumed or exported in the next. But over a series of years the net imports of charas and ganja will afford a very fair indication of the consumption if allowance is made for waste and deterioration. In the case of hemp-drugs this is not inconsiderable, for they deteriorate rather rapidly. Even an accurate return of the import and transport of bhang would fail to show the true consumption, as there is a large amount locally grown of which no trustworthy return could be secured.
The statistics of import and export are, I regret to say, very defective. In the absence of any fixed duty and with a revenue determined solely by the license-fees no provincial record of the traffic has been kept up. An enquiry commenced a year and a half ago showed that even complete figures for 1890-91 were not always available. Hence the fragmentary character of the details in columns 11 to 18 of the tabular statement required by the Commission. Even such figures as are available in the years anterior to 1891-92 must be received with caution, as I am not confident that allowance has been made for transfers from district to district, and there is much risk that the same drugs may have been counted twice and the provincial total thus exaggerated. More accurate figures and for a longer period could be furnished to show the total imports of ganja from Lower Bengal and the Central Provinces. But in the absence of correct information from the other sources of supply these are useless as an indication of the Provincial consumption. The official returns of bhang are peculiarly apt to be misleading. They give the imports and exports district by district, and, as bhang is moved a good deal about the provinces, there has been considerable opportunity for error as long as no regular register and return of the consignments was maintained. Moreover, these statistics can take no account of the bhang consumed in districts where it is grown. In the case of untaxed bhang this must always happen, and I doubt if any system of registration will secure very accurate returns of even the bhang which passes through the licensed dealers' hands. The trade returns are of little value. An attempt to utilize them has shown that much of the imports and transports follow routes by which they escape registration. 37. The special enquiries which were made in 1881-82 give the amount of imported ganja to be approximately 4,451 maunds. The later and I think more trustworthy returns show a total import of 4,935 maunds in 1890-91 and 4,187 maunds in 1891-92. The imports of charas are similarly shown to be 1,135 maunds in 1881-82, 1,091 maunds in 1886-87, and 1,286 maunds in 1887-88. For 1890-91 the returns show maunds 1,133-30-9 and for 1891-92 maunds 1,217-4-12. Collating these figures, it might be reasonable to assume that the imports of ganja are between 4,000 maunds and 4,500 maunds yearly and the imports of charas between 1,100 maunds and 1,200 maunds. Thesef igures,h owever, exaggerate the actual consumption because, besides other reasons, there is good deal of waste. Both ganja and charas deteriorate by keeping and considerable quantities become useless from this cause. On the other hand there is a certain consumption of locally-grown drugs of both kinds which cannot be ascertained. 38. The average consumption per head of ganja is estimated by Babu Hem Chander Kerr at1 ½s eers per annum. This appears to me a very high estimate. In the case of baluchar retailed at 6 annas per tola it would mean for an ordinary consumer an outlay of Rs. 45 per annum, a quite impossible figure. Ganja is generally smoked in company, and a pice worth will go round two, three, or more people. It is also smoked several times a day. I should put two pice a day or Rs. 11-6-6 per annum as the maximum possible per head. This would represent less than half a seer yearly in the case of baluchar. On the other hand, baluchar sells for half the price in the villages, though consumption there is relatively much smaller. Pathar sells for one anna or half an anna a tola, but more of it is used in each pipe. Two pice worth a day of this would represent about 4 1/2 seers yearly at the latter, and 2 1/4 seers at the former price. Taking one thing with another and averaging all sorts of ganja, I should think a seer a head would be about the amount annually consumed by those who habitually indulge in the drug. This would give 180,000 consumers for the 4,500 maunds imported, if it were all used.
My observations go to show that those who use ganja and charas indulge in them habitually and regularly. The craving is perhaps not so dominant and the abandonment not so difficult as in the case of opium. But where they can be procured, they are, as a rule, regularly taken. This is not the case with bhang. 39. Concerning the average consumption of charas, I have received most conflicting statements. But every one agrees that a much smaller quantity of it makes a dose. I should say half a seer per head yearly would be a fair estimate. That would represent 92,000 consumers of the 1,150 maunds imported. These figures are on the basis of habitual consumption and would be susceptible of increase if there were many occasional consumers. But on the other hand considerable abatement must be made for drugs imported, but not consumed. I submit these calculations with much diffidence, for I am aware that anything like absolute accuracy is unattainable. They are framed on the highest scale, and would show that even so computed only a very small proportion of the population is addicted to the use of these drugs. 40. The use of bhang is much more general. It is also much more harmless or even positively beneficial. I am informed that in Bengal Dr. Prain has pronounced bhang to be more harmful than ganja. I have not been favoured with a copy of his report, and so I cannot examine his reasons, which may be peculiar to Bengal. But I can affirm with much confidence, as the result of repeated enquiries, both official and private, and of personal observations extending over many years, that bhang as used in these provinces is not only the least harmful of all forms of hemp-drugs, but is largely used and much esteemed as a tonic by very many people who do not take it for its intoxicant effects and who only use it at certain seasons and in certain states of health. I cannot frame any estimate of the number of bhang consumers. Only a portion of those who use it, take it regularly all the year round and it is used in very variable quantities. There is no safe estimate of the amount consumed, and it is used for other purposes than human consumption.
41. The returns showing the annual revenue from hemp-drugs are complete and some deductions may be drawn from them. To facilitate this I append an abstract statement showing the district and provincial revenues since 1873-74.

 

It is necessary, however, to remember that abnormal figures which appear in this table are in some instances due to the method of keeping accounts on which the Accountant General's Department insists. For instance, some part of the unusual increase in 1886-87 is caused by the inclusion in the returns for that year of the security advances made on account of the following year. In the previous year the sums shown were those paid on account of the year of report. In the last year 1892-93 these security advances for 1893-94 are not shown, as they had not been made when the statement was compiled. In some cases, again, security advances have been refunded where sanction to a contract has been refused by higher authority, but the sums have still to appear in the accounts. I must also observe that these figures do not take account of the very large revenue collected in Bengal on ganja consumed in these provinces, and which from 1884 to 1892 was credited to us by inter-provincial adjustment though it was not reported to this Department and does appear in our Excise returns. In 1889-90 this was as much as Rs. 1,37,741, but has since fallen off.
42. Still these figures on the whole give a fairly correct view of the progress of the provincial revenue from this source. In the twenty years since 1873 the receipts have grown from Rs. 4,07,822 to Rs. 7,06,788, or over 73 per cent. In Oudh the increase has been over 193 per cent., in the N.-W. Provinces it has been 50 per cent. For this increase I assign three causes:— 1st.—Increased general prosperity which has shown itself in a larger expenditure on excisable commodities. 2nd.—Better administration, which has secured a larger proportional revenue from the amounts consumed. 3rd.—An increased use of hemp-drugs. These causes are, of course, mutually co-related. That the causes in operation have not affected hemp-drugs alone is clear from the fact that there has been a similar growth in other branches of excise revenue. The receipts from country spirits have increased between 1873 and 1892 from Rs. 11,70,242 to Rs. 21,16,977 in the N.-W. Provinces and from Rs. 5,52,364 to Rs. 11,04,949 in Oudh, a gross increase of 87 per cent. In the case of spirits at least this revenue is gained not on a larger, but on a smaller consumption. Owing to the extension of the distillery system and to administrative improvements, which have checked fraud and peculation, the gallonage has actually diminished, while revenue has increased. 43. The first substantial increase of drug revenue began in 1881-82. After that it was, though more irregular in Oudh than the N.-W. Provinces, continuous and rapid for both provinces. This movement must, in my opinion, be associated with the reforms which originated with the Excise Committee of 1877. Some of these had a direct effect on hempdrug revenue. For instance, a most important measure was to place the Excise Department of each district in charge of a selected Covenanted Assistant Collector. The contract system requires particularly efficient and honest management, which was thus secured. It is a matter of regret that the depletion of the Covenanted European Staff has latterly led to this salutary measure falling a good deal into abeyance. There are many indications in the tabular statement that contracts used, for one reason or another, to be given in some cases for much below their real value. Without multiplying instances I may point to Unao, Rai Bareilly, and Sultanpur in 1885-86, where the revenue rose at one bound from Rs. 12,991 to Rs. 30,350 from Rs. 9,166 to Rs. 19,918, and from Rs. 4,583 to Rs. 11,800, or to Partabgarh in 1886-87, where, after allowing for advance payments, the revenue jumped from Rs. 4,469 to Rs. 11,483. In all these cases the higher revenue has since been fairly sustained. These and such like instances indicate leakage, which has since been stopped. In some cases, as in Azamgarh in 1882-83, a large enhancement was gained by granting separate contracts for each tahsil and so admitting competition. The annexation to Oudh of the N.-W. Provinces seems to have been followed by better methods, which partly account for the more rapid growth of the drug revenue in the former province.
44. Some of the measures of excise reform have indirectly affected drugs by raising the price of country liquor. It seems to me impossible to doubt that restrictions on the use of spirits, either in the shape of prohibitive prices or diminished supply, tend to stimulate the use of drugs. I have dealt with this point in my Annual Reports for 1890-91 and 1891-92. I find running through all the Excise Reports for many years past assertions that drugs have been taking the place of liquor. I may point here to a few specific instances which seem to confirm that view. It will be seen that the drug revenue fell in certain districts of the Rohilkhand Division (Bareilly, Shahjahanpur, Budaon), during the years 1880-81 to 1883-84. The reason of that fall was that outstills were introduced at the beginning of that period into portions of these districts, and liquor in such areas became cheap and accessible. At the close of the period the outstills were abandoned, and this, coupled with other changes, made liquor again dear, and the supply scanty. On this the drug revenue at once revived. Within the last two years the contraction of the outstill area in Bijnor and Pilibhit and the enhancement of the still head duty on distillery liquor has been followed by an increased importation of charas and an enhancement of the drug revenue. The same phenomenon has been observed in other parts of the provinces. The history of the Banda district is also a case in point. During the years 1864-71 the distillery system was in force. The drug revenue then averaged Rs. 7,661, rising in 1870-71 to Rs. 8,090. The distillery system was condemned as unsuitable to the district and was abandoned in favour of the outstill or farming system. The drug receipts fell in 1872-73 to Rs. 4,256, and in 1873-74 to Rs. 3,650, and notwithstanding the general provincial improvement are now below Rs. 6,000. The fall of drug revenue in 1872-73 is due altogether to the change of system which made country liquor again accessible to the people. In the North-Western Provinces the most marked increase of drug revenue has been in the eastern districts belonging to the Gorakhpur and Benares Divisions. These are the districts in which the habit of spirit-drinking was most prevalent and where the enhancement of price and curtailment of supply under the Central Distillery System has been most severely felt. Before the introduction of that system these districts furnished 40 to 50 per cent of the total revenue of the North-Western Provinces from country spirits. I find that in 1862-63, when the system was introduced, the percentage was 48. The percentage of the total provincial revenue from hemp-drugs furnished by the same area in that year was only 18. In 1890-91 the former percentage had fallen to 31 and the latter had risen to almost 32. In 1862-63 the drug contract for the Benares district was Rs. 7,000: in 1890-91 it had risen to Rs. 44,000. Oudh was essentially a spirit-drinking province. The consumption was everywhere large. The administrative changes have affected it more than the North-Western Provinces. In Oudh the S. H. D. before 1877 was 12 annas per gallon, in the North-Western Provinces it was Re. 1-8. In that year a uniform duty of Re. 1 was imposed in both provinces. The figures already quoted show that while the drug revenue of the North-Western Provinces has increased by Rs. 50 per cent., that of Oudh has increased by Rs. 193 per cent. Meanwhile the liquor revenue from Oudh has increased by Rs. 100 per cent. only. A reference to the tabular statement will show the very low incidence of drug revenue in the Bundelkhand districts where the outstill system is in force. I am unwilling to prolong this memorandum by accumulating figures and arguments on this point. But it is one which seems to me to deserve the most serious consideration. Facts, figures, and opinions point irresistibly to the conclusion that the measures which have been taken to restrict the supply of country spirits and increase the revenue from it have tended pari passu to stimulate the use of drugs. If it be admitted that so long as human nature remains unchanged, some form of stimulants will be used, it follows that any measures to restrict drugs will be only half successful unless they are accompanied by measures which will render less harmful stimulants more accessible. It is necessary to remember that even behind hemp-drugs there are deeper depths. Dhatura, strychnine, aconite, and other poisons may occupy the field from which spirits and hemp-drugs are excluded. 45. There is one other matter which I would like to mention before quitting the subject of the provincial revenue from hemp-drugs. In his otherwise admirable monograph on the hemp plant, the author of the Dictionary of Economic Products has committed himself to many severe strictures on the fiscal and administrative policy of this Government. I have no hesitation in asserting that he has been largely misled by fallacious conclusions from erroneous statistics. It would be out of place here to enter into a detailed examination of his errors, some of which lie on the surface. But as his work is, no doubt, in the hands of the Commission, I would venture to record a warning against accepting either its statistics or its conclusions as far as these provinces are concerned without a careful scrutiny or without a reference to those who could explain supposed anomalies or defects.
Prices. 46. I have at various places mentioned the current prices of the different drugs. I here give them in collective form. The wholesale prices are those at which the contractors procure them. The retail prices are those at which the public buy them. There is a third set of prices at which contractors supply their sub-licensees, but these are merely for the adjustment of accounts. The retail prices are only approximate. They vary very widely from place to place. Besides district variations, prices are often twice or thrice as high in large towns as in rural parts. They are also lowest at the borders of districts where they come into competition with the drugs of other vendors. Prices also vary with the amount purchased. When sold by weight in any quantity, the drug is cheaper; when sold in made up packets or doses, the price is higher. I doubt if retail prices vary much from year to year. The vendors in every year charge as much as they can get, and as the difference between cost prices and retail prices is enormous, there is always a large margin of profit, A rise of cost price comes out of the profits of the contractor or the Government revenue, or both. But wholesale prices vary very much from year to year, according to the supply and demand and to the duty which may be imposed on the produce or in transit. The prices here given are those now current. It is hardly necessary to add that all prices vary with the quality of the articles sold. These drugs deteriorate rapidly and are often sold off at nominal prices, a circumstance which will frequently account for the extraordinary discrepancies in reported rates.
BHANG. SELF-GROWN FROM SUB-MONTANE AND HILL DISTRICTS. Wholesale. Re. 1 to Rs. 2 per maund besides cost of railway freight. Retail. Generally one to two annas per quarter seer (Rs. 10 to Rs. 20 per maund). In large towns it goes higher, reaching as much as Re. 1 per seer. TATIA FROM FARAKHABAD. Wholesale. Rs. 4 to Rs. 6 per maund besides freight. Retail. Two to four annas per quarter seer (Rs. 20 to Rs. 40 per maund). In large towns higher rates prevail.
GANJA. BALUCHAR FLAT Wholesale. Rs. 10 or Rs. 12 per maund, besides duty at Rs. 240, and freight from Bengal.
Retail. Six annas per tola in towns, 4 annas in rural parts (Rs. 30 and Rs. 20 per seer).
GANJA PATHAR.
GWALIOR, &C. Wholesale. Rs. 7 to Rs. 14 per maund, including duty and exclusive of railway freight. KHANDWA. Rs. 10 to Rs. 16 per maund, including dues and excluding freight. Retail. All sorts of Pathar. Half an anna to one anna per tola (Rs. 100 to Rs. 200 per maund).
CHARAS.
YARKAND OR BOKHARA. Wholesale. Rs. 60 to Rs. 80 per maund. Inferior or damaged stuff as cheap as Rs. 40 or Rs. 30, very superior Rs. 100 and upwards. Retail. Generally 3 annas per tola (Rs. 15 per seer). Is sold as low as one and a half annas and in large towns at 5 annas (Rs. 25 per seer). NEPAL SHAHJAHANI. Wholesale. Rs. 400 per maund (an inferior sort, Rs. 120).
Retail. Four annas to 5 annas, 7 annas, and 8 annas per tola (Rs. 20 to Rs. 25, Rs. 35, and Rs. 40 per seer).
KUMAON. Wholesale.
Rs. 200 to Rs. 320 per maund.
Retail. About 2 annas per tola (Rs. 10 per seer), doubtful. 47. I would again call attention to the great disproportion between the wholesale and retail prices of ganja and charas. In bhang the scale of profit is not so high because it has to compete with the wild or illicit plant. The high prices are due to the monopoly of sale under which the contractor exacts the very highest price he can without creating illicit competition. He does not wish to extend his sales because he finds a greater profit in smaller sales and higher rates. CONTEMPLATED CHANGES OF SYSTEM. 48. Finally I come to the proposed modifications of the present system. A suggestion has more than once been made to impose an import duty on hemp-drugs, but it did not meet the approval of the higher authorities. It is also open to the objection that the Excise Act does not authorize the imposition of an import duty. I made a representation on this subject some time ago. Since then the Excise Act has been amended by Act X of 1893. That Act, as I understand it, deals only with imports from beyond British India. The statutory power seems still wanting to control imports and impose import duty on drugs brought from other parts of British India. If this view is correct, a further amendment of the Excise Act is required to legalize the arrangements now suggested. 49. I do not think it possible to impose either an import duty or a fixed local duty on bhang. The opportunities for evasion are altogether too extensive. For bhang we must trust, as at present, to our contract license fees. But it might be well to prohibit the import of bhang altogether. The province can supply its own wants, and there would be always some risk that ganja or charas might be surreptitiously introduced under cover of a pass for bhang. But for ganja and charas I think it both possible and desirable to impose a fixed import duty. For this purpose it will be necessary to make rules to control both local cultivation and manufacture and import. Briefly I would suggest rules to provide for the following heads:— (1) To prohibit cultivation (as opposed to spontaneous growth) except for the manufacture of bhang or fibre and to permit it for bhang only under license from the Collector. (2) To prohibit absolutely the cultivation or protection of the plant for the production of ganja or charas and to prohibit the manufacture of those drugs. Power might be reserved to Government to relax this rule in any special locality and permit the cultivation and manufacture under license with such duty as might be fixed. (3) The two foregoing rules not to be applied to the hill districts where hemp is grown for fibre and charas obtained as a subsidiary product. Export of charas to the plains might be prohibited. (4) The rules not to take cognizance of wild spontaneously grown plant. But any one desiring to collect, store, or sell the same, or to prepare any drug from it, to obtain a license from the Collector. (5) To consolidate and improve the rules controlling the import of ganja and charas. The import of bhang might be prohibited. (6) To impose an import duty on ganja and charas. The duty should be light at first, say from Rs 50 to Rs. 80 per maund on pathar ganja and from Rs. 80 to 100 on charas. It could be increased by degrees. It would probably be best to collect the duty at the place of import in these provinces, and to make prepayment of the whole or part of the duty a condition precedent to the issue of the pass. The Bengal duty on baluchar ganja is already sufficiently high; but it should be made possible to levy it in these provinces. (7) To establish, if necessary, bonded ware-houses at a few central places where drugs could be stored duty free on import and the duty levied on removal. (8) To continue the present system of farming the right of vend; but it should be made possible for the authorities to control the storage and issue of drugs by the contractors so as to prevent forced sales at nominal prices during the last days of an expiring contract. It might also be found practicable and advisable to limit licenses to the sale of one or more forms of hemp-drugs to the exclusion of others. T. STOKER, Commissioner of Excise.

MEMO. ON NIPAL (SHAHJAHANI)

CHARAS. The ganja shrub from which charas is made grows wild in certain villages of the hills one hundred miles and more inwards. "Kala Des," "Gora Des," "Pentan" are mentioned as some of the places. Charas is a sticky exudation from the seed pods and minute leaves surrounding the seeds. It is obtained by gently rubbing these pods and leaves between the hands. The "resin," for want of a more correct term, adheres to and is peeled off the hands, and during this process the originally colourless matter becomes black. The small leaves must not be confounded with the ordinary leaves of the plant. I give an illustration.* Charas is made in April and May when the seeds are ripe and the big leaves fall off.
I am sending you two samples. The larger one, made into sticks a foot long and 1/2 inch thick, is adulterated with the leaves and cuticle, and probably other foreign matter. The smaller sample is in the form of a cake and is the pure stuff. The first sells in Nipalganj at Rs. 3, the second at Rs. 10 a seer. The quantity exported annually from Nipaljang is said to be 50 maunds of 40 seers a maund, but this information must be received cum grano. It is true, however, that some years ago a very much larger quantity was imported into British territory. I do not know the cause of the decline. There is very little consumption among the Nipalese I hear. At Nipalganj an imperial export duty of Rs. 11-4 per maund and a choongee-tax of the market value of 1/4 seer per maund are levied. The shrub is not cultivated. The resin is not produced by the shrub in the Tarai or plains. It is secreted only in the villages among the mountains, but at what altitude I can't say. It is called charas in the interior, but Saljehani (probably a corruption of Shahjehani) is the name given to the coarser kind in Nipalganj. The fibre is not utilized. The shrub is an annual, dying in the rains and springing up in October. Ganja is not cultivated or prepared in the Bahraich district. Ganesh Murao, a contractor in Lucknow, imports charas from Nipalganj. There is a slight exudation in the bud in the shrub found here. By bud I mean seed cuticle, flower, and adjacent leaves, but is too slight to collect. Natives say the ganja shrub has no flower, and they distinguish ganja from bhang by this difference, and the circumstance that the bhang shrub is sterile, bearing a flower, but yielding no seed. The bhang tree is consequently not reproductive, but comes from the ganja seed. Charas is known to be conveyed to Lucknow and Cawnpur. It is taken probably to other places. It is carried in skin vessels and inside bundles of bhang. The profit made by contractors should be considerable, as they sell it in British territory at double the price paid for it in Nipal. A cloth, a strong canvas, used for bags, is made from a cultivated plant in the hills called Bhangra, which natives confuse with bhang. It grows in the form of hemp, "san," in the plains, and the raw material is extracted in the same way, that is, by immersion in the water till it rots.

MEMO.—GANJA CULTIVATION IN GWALIOR STATE.

1. Gwalior Bigha = 1/2 an acre.—Ganja is sown in tahsíls Antri, Sipri, and Kalaras, and is a kharif crop. Antri = 250 bighas cultivated last kharif. Kolaras = 253 bighas, Ditto ditto. Sipri.—Return not received, but I think about 300 bighas.
The business is carried on chiefly by Kachis. Method of cultivation and of preparation of drug 1 will give after writing all other replies. Average outturn per bigha 7 maunds 20 seers. Ganja is sown in July. No control is exercised by the State. Custom duty, Rs. 5 per maund, is paid by the purchaser if he exports ganja to British or any other territory, and Rs. 2-8-0 if he exports to any other place in the Gwalior State. It is farmed to a cultivator who gets contract of all custom dues in the tahsíl. Usual price paid by the purchaser is Rs. 3 per maund. Ganja is a product of cultivation. It cannot be procured from the wild plants. The cultivation requires the careful extirpation of the male flowers, and the trees are very carefully seen by the cultivator every week. Even a few of the male flowers may destroy a whole field

 GENERAL REMARKS. Column 2.—The population has been taken according to the census for the year. Columns 3 to 5.—The figures supplied by the Director of Land Records and Agriculture have been added and explanation given as to the value of the figures. Columns 6 to 8.—No information. Columns 17 to 20.—No separate wholesale licenses for each kind of drugs in these provinces. Column 21.—The printed reports show no wholesale licenses for vend of drugs. The figures entered in this statement represent the number of separate farms, each farmer holding a wholesale license. These figures have been taken from the original Settlement Reports where available.

 GENERAL REMARKS. Columns 22 to 25.—No separate licenses for each kind of drugs. Columns 27 to 31.—See remarks against columns 22 to 25. Columns 32 to 36.—No fixed duty levied in these provinces. Columns 37 to 41.—See remarks against columns 22 to 25. Columns 42 to 45.—No information available. Column 46.—In calculating the revenue per head of population sums exceeding half pies have been taken as one pie, and half pies and smaller sums have been omitted, except where the revenue per head only amounts to a fraction of a pie in which case fractions of a pie have been shown.

PUNJAB MEMORANDUM.

The system of excise administration in respect of intoxicating (hemp) drugs in the Punjab has been receiving a great deal of attention during the last five or six years; and it so happens that, as the outcome of much inquiry and discussion, we are now on the eve of the introduction of a new set of rules which will alter and improve that system in many respects. It will, I think, be convenient if I explain how matters stand at present. The correspondence on the subject is voluminous, and there is certainly no dearth of information.
General facts with regard to hemp drugs in the Punjab.
* Note.—This does not of course apply to the manufacture of majum, &c., by the licensed vendors. T. G. W.
2. The broad facts with regard to these drugs in the Punjab may first be stated. Charas is imported across the northern and western frontiers (mostly from Yarkand) to the extent of about 4,000 maunds (the import actually rose to close on 5,000 maunds last year) annually. Of this quantity between one-fourth and one-fifth is retained for consumption in Punjab districts, the remainder passing on, principally to the North-Western Provinces and Oudh, the Native States under the political control of the Punjab Government and the Rajputana States. The quantity of the other forms of the prepared drug coming into the province is trifling and may be neglected. The supply of bhang is derived from the wild hemp plant which grows within the province in the sub-montane tracts under the Himalayas and the Suleiman range. The annual consumption of bhang (which is merely the leaves of the wild plant) falls little short of 4,000 maunds in the districts of the Punjab. The import into and the transport through the Punjab of charas, and the transport of bhang from the districts of growth to those of consumption are regulated by a system of passes; but no direct duty or tax of any sort is levied. With the exception of a few plots, grown by fakirs principally for their own consumption in one or two of the western districts, there is no cultivation of the plant for the production of intoxicants. The total area of these plots does not, I believe, exceed 100 acres; and the produce is taken in the form of bhang. There is, so far as I am aware, absolutely no manufacture within the province of hemp drugs from the plant.* The only taxation now levied is in the form of fees for the monopoly of vend. "The excise income from intoxicating drugs in the Punjab is derived from the farm of the monopoly of sale within tahsils or other subdivisions of districts" (Rule 1). The total amount of this income is between 1½ and 1¾ lakhs per annum.
Punjab Government Proceedings (Revenue and Agriculture) for January 1889, Nos. 1—5. 3. With this explanation I would invite attention to the (printed) collection of papers in Punjab Government Proceedings, Revenue and Agriculture (Revenue), for January 1889, Nos. 1—5. That correspondence arose out of a reference from the Government of India in connection with a draft article in Dr. Watt's Dictionary of Economic Products; but the local Government requested the Financial Commissioner to consider "the question of the feasibility of putting an import duty on charas," A reference to local officers produced the papers which will be found in 1 the above quoted Proceedings, and it will be seen that they contain a great deal of information on the subject. The Punjab Government summed up the results in their letter No. 1, dated 3rd January 1889 (No. 4 in the Proceedings). From this I make the following extract (paragraph 4): " In the Lieutenant-Governor's opinion, however, the whole subject is still rather observe, and is one which should be carefully studied by the new Commissioner of Excise. The Commissioner should therefore be requested to find out exactly what the system of other local Governments is, and from what other places ganja and charas come to the Punjab besides Leh, and in what quantities.  * * * * * * The Commissioner of Excise should also study the subject and the system and facts as regards bhang carefully, and report on the whole question after the end of a year."
Report and proposals made in 1890.— Punjab Government Proceedings (Revenue and Agriculture) for January 1892 (Nos.13—16). 4. I would next refer to the collection of papers in Punjab Government Proceedings, Revenue and Agriculture (Revenue), for January 1892, Nos. 13—16, regarding "taxation of charas and bhang." In accordance with the orders contained in the passage quoted at the close of the preceding paragraph I took up the question early in 1890. My report will be found as No. 14 of the above Proceedings (my letter No. 76, dated 10th April 1890). I would invite a perusal of that report and more particularly of paragraphs 8—11, 14, 15, and 18. The proposals which I made are summarized in paragraph 29, and I submitted a set of draft rules with explanatory remarks. These proposals were referred for opinion to selected officers. During my absence on furlough (April 1890 to December 1891) the replies of the officers consulted were received and my locum tenens, Mr. R. M. Dane, considered the proposals in detail (his letter No. 240, dated 24th December 1890, which will be found in the Proceedings last quoted). The proposals involved inter alia the imposition of a direct import duty at the frontier on all foreign (hemp) drugs; and, on a reference to the Government Advocate, it was pointed out by him that there was no power under the Excise Act to impose such a duty. The orders of the local Government on the proposals are contained in Punjab Government letter No. 8, dated 11th January 1892 (No. 16 of the Proceedings). The Lieutenant-Governor "was of opinion that a tax of Rs. 20 per maund might be imposed upon charas with effect from 1st April 1893. No doubt the retail price of charas will be somewhat raised; but this in itself is an advantage, as the use of the drug is certainly pernicious." Accepting the opinion of the Government Advocate as to the manner in which the tax should be imposed, the letter describes the system to be adopted—the establishment of golahs to which all charas should be taken on entering the Province and which it should be allowed to leave only under a license or pass for which a fee should be levied at the rate of 8 annas a seer. With regard to bhang, "the LieutenantGovernor was not thoroughly satisfied with the proposals made by the Excise Commissioner, and he would prefer to reconsider the question hereafter when the tax upon charas has been actually introduced."
Rules drafted in 1892 and 1893. 5. In accordance with these orders I drafted a set of rules giving effect to them. The draft was circulated to Commissioners and selected District Officers; and on receipt of their opinions the case was submitted to the Financial Commissioner in October 1892 for orders with regard to several points that had arisen in connection with the draft. In April 1893 Government passed orders calling for a copy of the rules in complete form, and pointing out that a tax on charas only and not on intoxicating drugs [section 3 (h), Act XXII of 1881] had been agreed to. Some further correspondence passed, and last month (August 1893) I submitted to the Financial Commissioner a final draft of the rules. In the meantime the Government of India had taken up the question of amending the Excise Act so as to make the imposition of an import duty on intoxicating drugs legal. With the passing of Act X of 1893 the necessity for the system of golahs and passes accepted by the Punjab Government in their letter No. 8, dated 11th January 1892, ceased. It will now be possible to revert to my original proposals of 1890, at least so far as they provide for a direct import duty on charas.
Present state of the proposals for taxation. 6. It is probably unnecessary for the Commission to refer to the correspondence dealt with in the preceding paragraph because it relates to a condition of things which has ceased to exist and represents so much labour lost. The present state of affairs may be described as follows:—(i) an import duty at the rate of Rs. 20 per maund will probably be imposed with effect from 1st April 1894 on all charas entering the province; (ii) rules providing for this duty and also putting the system of licensing vend on a satisfactory footing will be submitted shortly to the Government of India; (iii) with regard to bhang, His Honor the Lieutenant-Governor has recently referred to this question in reviewing the Excise Report for 1892-93 (paragraph 6 of the Review). I quote the paragraph in full because it mentions the subject of an import duty on charas also: "The question of levying an import duty on charas was referred to in the 10th paragraph of the Review of the Report for 1891-92. There were legal difficulties in the way of imposing this tax under Act XXII of 1881, but these will be removed when the amending Bill now before the Legislative Council has been passed, and draft rules will shortly be submitted to the Government of India. The question of the taxation of bhang is a far more difficult one, but it must before long be taken in hand. It must, however, be borne in mind that, as remarked in the 10th paragraph of last year's Review, 'in regard to matters of this sort, which involve an interference with ancient and firmly-rooted habits of large masses of the people, it is desirable to proceed cautiously, doing one thing at time'" I will now proceed to give such detailed information as is available with regard to the supply of these drugs, and will then describe the system under which their supply and vend are controlled.
Trade returns of the import of charas, &c. 7. Dealing first with the import of the drugs, I take the following figures from the Provincial Reports of External Trade. The figures give the amount imported in maunds:—

 These figures do not agree very closely with those given in our Excise Returns, which I will examine presently; but I give them because they are in a way from an independent source. It will be seen that there is actually no import of ganja shown, while the quantity of "other kinds" is exceedingly small. With regard to the large quantity of bhang shown as imported from Kashmir in 1890-91 this may be treated as if it were produced in our own districts (e.g., Gurdaspur). The wild plant grows in the sub-montane parts of Jummoo and comes into our districts just as it does from other areas of supply within the Punjab. It will thus be evident that except charas the import of these drugs from beyond our northern and western frontiers is of very limited quantity. As regards charas, what is shown as coming from Kashmir is from the same source (Yarkand) as that shown from Ladakh. Most of the Yarkand charas takes the ordinary route through Leh to Sultanpur (Kulu); but a certain quantity of it passes westward through Kashmir territory. This was pointed out by Captain Ramsay, Joint-Commissioner, Leh, in his letter which will be found at page 7 of the printed Proceedings quoted at the commencement of paragraph 3. In paragraph 5 Captain Ramsay says "charas will grow, though not well, in Kashmir; but as a matter of fact it is not grown in Kashmir, and in Ladakh it of course could not be grown. The charas shown under the two heads Kashmir and Ladakh consists of Yarkand charas imported (1) viâ Ladakh and Kashmir to the Panjab, (2) viâ Ladakh direct to the Punjab through Kulu." These trade returns are obviously defective in some respects. They show no drug as coming across the western frontier (from Sewestan) or the north-western (from Bajaur), except that from Kabul, while there is undoubtedly a certain amount of import trade into the Derajat and Hazara. This probably appears under other heads in the trade returns. But the figures given are useful as showing that there is a very large import of charas from Yarkand, and that the import of this drug from other quarters and of other drugs from all sources is unimportant in comparison with this. 8. The following figures of imports and consumption of charas are taken from the Excise Returns:—

Excise figures of import and consumption of charas.

 The figures of imports given above are the totals of the district details, and the same consignments have undoubtedly been shown in many cases twice over. No systematic attempt has been made to obtain correct statistics of the quantity brought across the frontier; and it is one of the incidental advantages which we expect to derive from the proposed new arrangements that we shall be able to register the import trade efficiently and acquire a proper control over it. There has been a great development of the trade in charas during the last three years. The quantity coming into Hoshiarpur by the Kulu route rose from 2,201 maunds in 1890-91 to 3,242 maunds in 1891-92 and to 3,932 maunds in 1892-93. In the last of these years the Kangra district returns give the quantity as 3,765 maunds. These figures are taken from the register of excise passes, and may be relied on as fairly accurate. Allowing for what went by the Kashmir and other routes, it seems probable that the imports in 1892-93 (which was an exceptional year) fell little short of 5,000 maunds. In an ordinary year they have averaged between 3,000 and 4,000 maunds, the trade being subject to great fluctuations. The figures of consumption given above show the quantity retailed by the licensees and are fairly accurate. The licensees are required to keep accounts and furnish returns of their dealings. 9. The quantity of bhang shown as sold by retail vendors in each of the last six years is—

Details of the consumption of bhang.
Mds. 1887-88 3,906 1888-89 3,709 1889-90 4,238 1890-91 3,428 1891-92 3,977 1892-93 3,640 There is a certain quantity consumed without passing through the hands of licensed vendors; but this is probably not very great, because the people of the parts in which the plant grows wild are not addicted to its use, while the retail price (three or four annas a seer) is so small that it is not worth while for a consumer to attempt to obtain a supply elsewhere than from the nearest licensed shop.
Price of hemp drugs. 10. The wholesale price of charas varies very much in different localities and from year to year, according to the state of the market. The price at Kulu is said to have been Re. 1-4 a seer in 1892-93 as compared with Rs. 3 to Rs. 4 in the preceding year, the prices at Hoshiarpur for the same periods being reported as Re. 1 and Rs. 2 respectively. As already remarked, last year was an exceptional one, and the price of the drug on entering the province varies usually from Rs. 2 to Rs. 4 a seer, increasing at other places with the cost of carriage. The retail price varies from Rs. 7 to Rs. 10 a seer. The cost of bhang to the licensed vendor is only that of collecting on the spot and conveying to the place of sale. It is usually sold retail at the rate of four annas a seer.
Regulation of import and transport. 11. The rules with reference to the import, transport, and sale of intoxicating hemp-drugs will be found at page 107 of the Punjab Excise Pamphlet. They were framed under Act X of 1871, and are inconvenient in form, besides containing much that is now obsolete. It is sufficient to say that the import into the province of charas and its subsequent transport, and the transport of bhang from the districts of growth to these of consumption, are regulated by a system of passes, no duty or fee of any sort being charged. Importers of charas must take their consignments to the Deputy Commissioner of the frontier district which they enter and obtain from him a pass covering subsequent transport, the packages containing each consignment being closed and sealed. Provision is made for attesting sales en route, changes of destination, and the like. For the transport of' bhang by a licensed vendor a permit from the district of destination and a pass issued on this from the district of production are required. The whole system is rather loose, and the new rules will, it is hoped, give us a much more strict control over the movements of consignments of the drugs.
Licensing of retail vend. 12. The exiting arrangements in regard to taxation and vend are explained in Rule 1: "The excise income from intoxicating drugs in the Punjab is derived from the farm of the monopoly of sale wiihin tahsils or other sub-divisions of districts. In some districts the monopoly of opium and other drugs prepared from the poppy is farmed separately from that of other intoxicating drugs, while in others the same farm includes both." Ordinarily the farm or license is held for the year, the fee payable being determined by auction. The present rules make no provision for the issue of wholesale licenses (section 13, Act XXII of 1881); but licenses have actually been given in the- Amritsar district, although there is no authority for this. The new rules, I may say, will provide for such licenses. As to retail vend, the practice is not quite in keeping with the rules. The hemp-drugs are in fact usually offered for sale at the same shops as opium, though their sale is covered by a separate license. The opium licenses are disposed of by shops, singly, or by groups of shops (by tahsils or smaller areas); and the hemp-drugs licenses go with them as a rule. The combined licenses (except in four districts) are held by the year, fee fee payable for each shop or group of shops being determined by annual auction. As a matter of account the fees paid in each district in respect of the combined opium and hemp-drug licenses, where these are held together, are distributed between the two heads of receipt in a proportion which is supposed to represent the actual value of each set of licenses. This proportion varies from district to district. As a result of the practice described above, the number and locality of the shops are fixed beforehand from year to year (they are as a matter of fact seldom altered). In four districts the combined monopoly of the vend of opium and of hemp-drugs at the authorized shops (of which the number and localities are fixed) have been leased for a term of years (three to five). I may add that in the new rules it is proposed expressly to provide for a system of licensing under which the number of shops and the locality of each shall be fixed, i.e.; each shop will be separately licensed, although the licenses may be disposed of either singly or in groups.
Statistics of consumption. 13. As regards the consumption of charas, the following details may be given. The quantity (in maunds) retailed in each of the past two years was:—

It will be seen from these figures that the consumption of this form of drug is heaviest in the Delhi and Jullundur Divisions, while in the Rawalpindi and frontier Divisions it is comparatively small. I am not prepared to give any explanation of these facts. Within Divisions the consumption is distributed on the whole very evenly. For further details I would refer to Provincial Excise Statement C published with the Annual Excise Administration Reports. For bhang the following details (consumption in maunds) may be given:—.

In none of the remaining districts did the consumption exceed 100 maunds. With regard to these figures of the consumption of bhang one very important fact is established. The Muhammadan population of the south-western districts (Mooltan, Muzaffargarh, and Dera Ghazi Khan), who are prohibited by their religion from the use of spirits, are to a very large extent addicted to drinking an infusion of bhang as an intoxicant. It will be observed that the consumption in the two districts of Mooltan and Dera Ghazi Khan is between one-fourth and one-fifth of that of the whole province. In these districts bhang is undoubtedly a substitute with the Muhammadan population for the spirits which their creed forbids them to take. Another fact that may be noted is that the districts of Ferozepore, Ludhiana, Lahore, and Amritsar, which come after Mooltan and Dera Ghazi Khan in this matter of consumption of bhang, are those in which the Sikh element is strongest. The Sikh population of the province being 1,389,934, these four districts contribute 781,439 towards this total. It seems likely that the prohibition amongst the Sikhs of tobacco-smoking has a good deal to do with their preference for the drug in a liquid state. This question of the distribution of consumption according to locality, religion, caste, &c., is one that will, no doubt, receive a great deal of attention from the Commission, and it seems unnecessary in this memorandum to do more than indicate the general features. Annexed to the memorandum will be found two maps showing the consumption of charas and of bhang separately by districts in the year 1890-91, and these will serve to illustrate the above remarks. It will be seen that, roughly speaking, as regards the use of charas the province divides itself into two parts—the eastern districts, in which the consumption exceeds 5 oz. per 100 of the population, and the western districts, in which the average consumption is less than this. As regards bhang, on the other hand, the districts fall into 3 groups:—(1) the southwestern districts, in which the consumption exceeds 40 oz. per 100 of population; (2) the central districts, in which it averages between 20 and 40 oz.; and (3) the northern and eastern districts, in which it is less than 20 oz.
Points enumerated in Secretary to Commission's letter. 14. I will now take the special points mentioned in the note annexed to the Secretary, Indian Hemp Drugs Commission's letter in detail. (a) The system in the Punjab is uniform. The arrangements are under the control in due gradation of (1) the Financial Commissioner, (2) Divisional Commissioners and the Commissioner of Excise, and (3) Deputy Commissioners, the actual administration in each district being in the hands of the Deputy Commissioners. The Act is the Excise Act (XXII) of 1881, and the rules are those which will be found at page 107 of the Punjab Excise Pamphlet. (b) It is not possible to give any estimate of the extent to which the wild hemp plant grows. It is a mere weed, and cannot be said to cover any particular area, as it is scattered about. So much is taken in the form of bhang as is required for the consumption in our districts (4,000 maunds of dried leaves) and in the Punjab Native States, and the remainder is probably allowed to die down. The dry stalks are sometimes, I believe, used for fuel. No preparation of any sort is extracted from the plant. The manner in which the transport and sale of bhang are controlled has been already described. With regard to possession, section 22 of the Excise Act prevents any one other than a dealer from having in his possession more than ¼ of a seer; but, so far as I am aware, there is now nothing to prevent a person within this limit from collecting and using the leaves of the plant. He could not sell bhang. The Commission might usefully refer to Financial Commissioner's Circular No. 3, dated January 1882, in which the system is explained. (c) With reference to the above, it will be evident that the necessity for cultivating the hemp plant for the production of bhang as a marketable commodity scarcely arises. A few patches of the plant are grown in the Mooltan, Dera Ghazi Khan, Dera Ismail Khan, Shahpur, and Bannu districts, but the total area is probably less than 100 acres. There is no restriction on or regulation of cultivation; and, so far as I can see, there is nothing to prevent a person who grows the crop from using the produce as an intoxicant, provided he is not at any time in possession of more than the quantity allowed by the Act. Where the plant is grown the object is to provide for private consumption. Manufacture of any of the "preparations" is unknown in the Punjab. I may add that I proposed in 1890 either to prohibit the cultivation entirely or to impose an acreage duty that would be prohibitive. No notice has been taken by higher authority of the proposal. It will be easy at the present time to deal with the cultivation and to stamp it out, while there is the danger that, if we adopt measures which will restrict the supply and enhance the price of bhang, the result of these measures may be to encourage the cultivation. It has been suggested that steps should be taken to make persons on whose waste land the wild plant grows responsible for its destruction; but, as already explained, the local Government has not yet agreed to alter the existing arrangements in respect of bhang in any way, and the consideration of the proposal would, therefore, be premature (see Commissioner of Excise, Bengal's Circular No. 6075, dated 26th January 1893). (d) Charas is imported by (1) Yarkandis, Ladakhis, and others who bring it in, dispose of it, principally at Hoshiarpur and Amritsar, and return with piece-goods, &c., and (2) merchants of Amritsar and other places who have established trade relations with Ladakh. I would refer the Commission for further particulars (if they are wanted) to paragraph 40 of the Report on the External Land Trade of the Punjab for the year 1891-92. The traders are not licensed. The only control over the trade is in the way of requiring a pass from the Deputy Commissioner of the frontier station where a consignment enters the Punjab, and the subsequent transport is regulated. Rule 7 is as follows: "Merchants bringing charas into the Punjab must obtain a pass (Appendix III) from the Deputy Commissioner of the frontier station where they enter the Punjab, and take it for countersignature to the Deputy Commissioner or Collector of every district in the Punjab or the NorthWestern Provinces, which they may subsequently enter with the charas. The article, its quantity (both gross weight of the package and net weight of the charas being given), and destination are stated in the pass, and the package is sealed up with the official seal of the Deputy Commissioner. It may be opened at any head-quarters station or tahsil while on the way to its destination, and a portion of its contents may be sold to the farmer of excise for drugs, the fact being recorded on the pass, and the package resealed. The owners must be warned that if the package is found open and any charas is sold from it, except as above stated, they will be proceeded against under the Excise Laws, and the package will be liable to confiscation."
Where a consignment is conveyed by rail, the provision requiring it to be taken to the Deputy Commissioner, &c., of every district through which it passes is dispensed with. Rules 8—13 may also, if necessary, be referred to. [NLS note: poor quality text appears here and has been omitted – see image of page] 

practices of other kinds are, I believe, unknown. It will, I think, be clear from this memorandum that there is really no room for such practices. No special measures of prevention have been found necessary. (k) The modifications of the present system, which are under consideration, have been described in the early part of this memorandum. (l) The sources of supply, the extent of cultivation and trade, as well as the other heads mentioned here, have been examined in the memorandum. T. G. WALKER, Commissioner of Excise Punjab

 
Columns 3—8.—There is no cultivation of the plant for narcotics. Columns 9—16.—Only details with regard to the import and export of charas are available in the Excise Returns. Please see paragraph 7 of the memorandum. What import there is (and it is of trifling amount) of other forms of the manufactured drug has been included under charas. For the year 1892-93 what is shown under the head of imports (column 10) are the quantities coming into each district, whether brought from beyond the frontier or from one of our own districts, and the same remark applies to the entries of exports (14). The Excise Statistics of that year were prepared in this manner, so as to give us reliable figures of the quantity retained in each district for consumption.

 Columns 17—21.—There is no provision for the issue of wholesale licenses (paragraph 12 of the memorandum). Columns 22—31.—There is no separate licensing of the retail sale of different forms of the drugs. The licenses cover the vend of all sorts. Columns 32—36.—There is no fixed duty. Columns 37—41.—The only revenue is that derived from retail licenses which cover the vend of all kinds of hemp-drugs.

Extract paragraph 40 from the Report on the External Land Trade of the Punjab for the year 1891-92.
Kulu and Ladakh. 40. The main portion of the Ladakh trade finds its way into India through Kulu. The Assistant Commissioner in his report makes some interesting observations, pointing out that while the Kulu posts register as Ladakh trade much that is really trade with Thibet and other places, they also fail to include a large portion of genuine Ladakh trade which enters British territory viá Kashmir. He remarks:— "In the Provincial Foreign Trade Report the returns furnished by the Kulu registration post constitute what is known as the 'Ladakh' trade. This general term, however, requires explanation. In so far as Leh is the chief emporium of this trade, it may be convenient to describe as imports and exports of Ladakh all merchandise of Yarkand which is exchanged here for goods from India; but, on the one hand, it is to be remembered that at the Sultanpur post all merchandise is registered which crosses the Rohtang pass, so that imports and exports of Thibet, Baltistan, and the British districts of Lahul and Spiti are included in the 'Ladakh' trade, while, on the other hand, all exports from and imports to Leh which take the Kashmir route are treated in the Provincial Report as trade with Kashmir and not with Ladakh." He makes some further remarks regarding the agency by which this trade is conducted:— "The trade with Ladakh is in the hands of four classes:—(1) The merchants of Hoshiarpur, Amritsar, and Sultanpur.—Many of the latter are Lahulis, who deal chiefly in wool. The Indian merchants send up piece-goods or tea in the spring and bring down Yarkand and Ladakh produce, chiefly charas, in the autumn. They use mules for carriage. Latterly the more wealthy muleteers have commenced to trade on their own account. (2) The Yarkandis.— These men generally dispose of their goods at Leh, but some of them come on to India with charas, carpets, and numdahs. Many also, after selling their goods at Leh, bring on for sale in India the horses upon which these goods were laden. Having disposed of their means of carriage, they generally return empty-handed. (3) The Baltis of Baltistan, who visit Simla in the cold weather in search of employment as road coolies and the like.—They are often erroneously called Ladakhis. They do not visit India for the sake of trade, but they take the opportunity of bringing with them dried apricots, which accounts for the entry 'fruits' under the head of imports, returning to their own country with as much as they can carry of brass, copper, and iron vessels. Some of them also carry back with them China cups and saucers, which are in demand in a tea-drinking country. (4) Bhotis, which term includes the Mongolian races inhabiting Ladakh, Zanskar, Chinese Thibet, and Lahul.—The wool and pashm imported by the Bhotis are laden chiefly on the backs of sheep and goats. These sheep and goats figure in the returns of imports. On being discharged of their burdens at Sultanpur they are sold to butchers from Simla. Beyond the various food-grains which are in demand in their desolate, sparsely cultivated country the Bhotis carry little back with them from India. The amount of grain which they can take with them is not much, as they have disposed of their means of carriage."

CENTRAL PROVINCES MEMORANDUM.

The period for which the Hemp Drugs Commission require statistics begins with the year 1873-74, when the Act in force in the Central Provinces regulating excise matters was No. X of 1871. The only section of that Act which authorized the levy of a duty or tax on hemp drugs (then included with opium in the term "intoxicating drugs") was section 24, which provided as follows: "Whenever a license for the retail sale of * * * * intoxicating drugs is granted under this Act the Collector may demand, in consideration of the privilege granted, such tax or duty, or a tax or duty adjusted on such principles, as may from time to time be fixed by the chief revenue authority."
1871-72. 2. In the first year for which the Act was in force, i.e., 1871-72, the revenue from "drugs" was Rs. 70,713, that from opium being Rs. 1,71,316. "Drugs" included "madak," in spite of the fact that madak was known to be merely a preparation of cpium. The monopoly of vend of "drugs," either for each district as a whole or for small areas, was everywhere put up to auction and knocked down to the highest bidder. The monopoly of the vend of opium was sold separately; but in most cases the same person took both it and the monopoly in respect of " drugs." From paras. 24 and 25 of the Excise Report for the year it appears that the desirability of separating receipts from ganja and those from madak was making itself felt, and also that proposals for restricting cultivation of the hemp plant were under consideration.
1872-73. 3. In this year madak was not classed with ganja, and the revenue from the latter fell from Rs. 59,625 in 1871-72 to Rs. 55,824, or by nearly 7 per cent. The bids for the right to retail madak in 187172 had fetched Rs. 11,087, and that and the opium monopoly were sold together for the first time in 1872-73. In almost every district a few hemp plants were to be found in the gardens of cultivators, and it was only in Raipur and Bilaspur that a license fee was imposed on cultivation. The right of retail vend of ganja was, as before, auctioned by circles, the circle sometimes being as large as a tahsil, sometimes much smaller. The expediency of restricting cultivation was still being considered. The number of shops in the year was 987.
1873-74. 4. For some years past our retail contractors had complained that the extensive cultivation of ganja for home consumption by private individuals seriously interfered with their profits and prevented them from paying to Government as high a revenue as they otherwise might. In December 1873 Deputy Commissioners were accordingly asked to report on the following points:— (1) whether the people would be inconvenienced if the cultivation of ganja was prohibited except under license and in the vicinity of tahsils where existing establishments could check the produce and see it stored; (2) whether the ganja sold under existing arrangements by retail contractors was home-grown or imported. The reports received showed that all retail contractors except those of Bilaspur obtained their ganja from either Nimar or Nagpur, and that in every district, except perhaps Hoshangabad, Narsinghpur, Mandla, Chhindwara, and Bilaspur, the amount privately grown for home consumption was insignificant, while in Sambulpur it was nil, home-growing having been prohibited by executive order of the Deputy Commissioner. The Commissioner of Excise then moved the local Administration to restrict cultivation to the Kotal and Khandwa tahsils and to impose a license fee on each acre cultivated. Meanwhile the Government of India had been enquiring into certain allegations regarding the effects of ganja and other preparations of the hemp plant, and on the 17th December 1873 all local Governments were instructed to discourage the consumption of ganja and bhang as far as possible by placing restrictions on their cultivation, preparation, and retail, and imposing on their use as high a rate of duty as could be levied without inducing illicit practices. Acting on these instructions, and recognizing that section 40, Act X of 1871, only authorized such supervision of cultivation as might be deemed necessary to secure the duty leviable on the manufactured drug, the local Administration directed the Commissioner of Excise to prepare rules limiting cultivation to licensed fields in localities where existing revenue establishments were available for purposes of supervision, and fixing such a rate of license fee as would be a sensible impost on the value of the produce. The financial results of the year were not satisfactory, the revenue falling from Rs. 55,824-2-9 to Rs. 50,707-12-0 in spite of the fact that in Sambulpur the monopoly of retail vend was sold for the first time and brought in Rs. 325. Shops numbered 1,133, but their distribution was palpably faulty.  
1874-75. Ch. VIII of Excise Manual, 1875. 5. In April 1875 rules for controlling cultivation were sanctioned, the main object of which was to put a stop to the practice of growing for homeconsumption. Cultivation, except under license from the Deputy Commissioner, was prohibited, and no license was to be obtainable for plots of less than an acre in extent. Moreover, each cultivator was bound to obtain from the Tahsildar a license to cover the possession of his gathered crop until its sale to a licensed vendor or exporter, and stocks were made liable to inspection by Excise officers of all grades at all times. The rules also provided for the levy of a fee per acre on cultivation, but no fees were fixed till the year 1875-76: in Raipur and Bilaspur the old rate of fees, viz., Rs. 0-8-0 an acre, remained in force. For facility of reference Chapter VIII of the Excise Manual, 1875, has been reprinted and annexed as Appendix B* to this Memorandum. The revenue of the year was derived, as before, by auctioning the monopoly of vend, and competition at the sales resulted in bids rising from Rs. 50,707-12-0 to Rs. 56,263-2-1, or by nearly 11 per cent. Shops numbered 1,261, or 1 to every 6,478 of the population served; in Nagpur City and in the interior of Hoshangabad there were 18 and 141 respectively, allowances which were declared in the Resolution on the Excise Report for the year to be "inordinate." The acreage fees on cultivation in Raipur and Bilaspur amounted to Rs. 819-8-0, and these have been shown as fixed duty in Appendix A.
1875-76. 6. The rules of 1875 were in force throughout the year 1875-76, but they did not influence the revenue of the year which was settled at the auction held before their issue. That revenue was Rs. 54,245-10-11, excluding acreage fees on cultivation, which amounted to Rs. 807-8-5. The acreage fee was fixed tentatively for one year at Re. 1 per acre; the amounts realized are shown as fixed duty in Appendix A. Receipts under this head were very small in Raipur and Bilaspur compared with those for the preceding year, and probably indicate that scattered cultivation had considerably diminished. The statistics of area cultivated and number of licenses granted are not quite complete, but it may be taken as certain that, only in the Khandwa and Katol tahsils was ganja produced in any large quantities; the districts of the Nerbudda Valley with Sangor and Damoh drew their supplies from Khandwa, while the hill districts of Betul, Chhindwara, Seoni, and Mandla and the entire Nagpur and Chhattisgarh Divisions imported from Katol. The terms on which licensed vendors of different districts obtained their supplies appeared to have varied greatly, but a uniform retail price of 1 pice weight for 1 pice prevailed all over the provinces. Retail shops numbered 1,254, or 7 less than in 1874-75; 12 had been closed in Hoshangabad, where the allowance had been condemned by the Chief Commissioner as excessive, but Nagpur City was still left with 18. Looking to the total population, the incidence of revenue from ganja per head fell at the rate of 1¼ pie, or less than would suffice at that time to buy an ordinary smoker one day's supply of the drug.
1876-77. 7. The old system of raising the revenue was adhered to in 1876-77, viz., (1) selling the farms and allowing the contractors to make their own arrangements for obtaining the drug, (2) levying an acreage fee on cultivation. These sources yielded respectively Rs. 58,995-12-5 and Rs. 1,630-4-0. The improvement in bids for the right, of retail vend appears to have been due to rising confidence in the arrangements for the control of cultivation, but the Administration recognized that, no matter what precautions were taken, much ganja must be reaching consumers which had paid little or no duty, and that bidding would not be keen until every crop raised was taken under direct control. In this year a special penal fee on unlicensed cultivation was introduced: the Re. 1 rate was made applicable only to cases in which a license was obtained before sowing, and Rs. 10 was to be levied on every acre or fraction of an acre not so protected. The penal rate was realized in '33 cases in Jubbulpure and in a few cases in some other districts. The effect of the restrictions which had by this time been placed on the right to cultivate freely was most marked in Raipur and Bilaspur, if the increase in the amounts bid for the right of retail vend in those districts was due to it, as appears to be the case; but the decline in the number of licenses applied for and the amount of fees levied was so sudden and rapid as to justify a suspicion that unlicensed cultivation of small plots must have been going on undetected. The table below, bringing together statistics for three years, will make the above remarks clearer:—

The number of permanent retail shops open during the year was 1,226, but of these 123 (in Bilaspur 102, Nursinghpur 4, and Bhandara 17) were open on bazar days only. In Hoshangabad the number had been again reduced till each shop had an average population of over 5,000 persons to serve. The incidence of revenue per head of total population rose from 1¼ to nearly 1½ pie. Of consumption no satisfactory estimate can be made: in the Excise Report of the year 1,000 maunds was stated to be the probable amount.
1877-78. 8. Similar arrangements to those of 1876-77 were in force in the Khalsa. The most important measure taken during the year was the extension of the Khalsa rules regarding the cultivation and possession of ganja to the zamindaris both feudatory and non-feudatory, of the Chhattisgarh Division. Very little, however, was done towards assimilating practice in those zamindaris to that in the Khalsa, the order on the subject having issued only a short time before the cultivating season began. The revenue of the year was raised in the same way as that of 1876-77. Bids for the right of retail vend improved from Rs. 58,995-12-5 to Rs. 62,894-14-10, all districts except Narsinghpur and Sambulpur contributing to this result. The enal rate of acreage fee (Rs. 10 per acre) was in several districts vigorously exacted, and collections under this head amounted to about. Rs. 4,000: including fees at the rate of Re. 1 per acre, the tax on cultivation yielded Rs. 6,368-2-9. Statistics of area cultivated are not available for 2 (Wardha and Balaghat) out of the 15 districts in which fees were levied, but it is safe to say that in none except Nagpur and Nimar was the quantity produced at all considerable. It would appear from the statements for the 2 years that (Appendix A) 82 more retail shops were worked in 1877-78 than in 1876-77; but in the latter year there were 102 bazar shops in Bilaspur, which are not included in the total given in the statement, although they have been taken into account in the remarks in paragraph 7 of this Memorandum, while the number of such shops in 1877-78 is not ascertainable. The total revenue of the year fell at the rate of rather more than 1½ pie per head of population. Statistics of the amounts sold by retail are not available, and no trustworthy estimate of consumption can be made. From figures in statement No. VI appended to the Excise Report for the year it appears that 3,419 maunds of ganja locally raised were exported to different parts of the Central Provinces, while imports from other British territory and foreign territory amounted to 532 maunds, so that in all 3,951 maunds were imported. Adding for the undermentioned non-importing districts the amounts which were probably consumed as well as raised in them respectively, viz.:— Nagpur 1,000 Seoni and Chhindwara 200 Nimar 300
* Paragraph 6, Chapter VIII of Excise Manual, 1875. (Appendix B).* Paragraph 33.
a consumption of nearly 5,500 maunds seems to be accounted for. But much ganja was doubtless consumed in Chanda which had been illicitly brought from the Nizam's Dominions, while in the Chhattisgarh Division a considerable portion of the demand must have been met by the produce of the bordering zamindaris and feudatory States. Raipur and Chanda between them imported under due authority* 374 maunds, but Bilaspur and Sambulpur made no such importations. On the whole it would be safe to put consumption at 6,000 maunds as a minimum: the estimate in the Excise Report for the year is apparently about 5,000 maunds, but from it are excluded imports into districts of the Central Provinces from elsewhere than Nagpur and Nimar. In reviewing the Provincial Excise Report for 1876-77 the Government of India remarked that they were prepared to consider any suggestion that might be made for restricting the use of ganja, and again in March 1878 they approved of the Chief Commissioner carrying out measures for restricting the cultivation of ganja and imposing on the drug gradually, or otherwise, as heavy fiscal burdens as it could be made to bear. Accordingly the subject had a large share of the Chief Commissioner's attention during the next 3 years. 1878-79. 9. In November 1878 a new set of rules under paragraph 2 of section 40, Act X of 1871, was issued. The Judicial Commissioner, to whom a draft for concentrating cultivation of the hemp plant in the Katol and Khandwa tahsils and for the imposition of a prohibitive acreage tax on cultivation elsewhere had been submitted, pointed out that as the Act of 1871 merely authorized supervision of cultivation, cultivation without a license, even if the licenses were granted gratuitously, could not legally be prohibited, nor could any acreage tax be imposed. The rules finally sanctioned provided (1) that cultivators of the hemp plant should give notice of intended cultivation, its locality, extent, &c., (2) that they should give similar notice of their intention to cut, (3) that their crop should be stored in Government godowns or in authorized private store-houses, and that it should only be removed therefrom on payment of the Government duty. The duty fixed by the Chief Commissioner after considerable deliberation was Re. 1 per seer, equal to Rs. 40 per maund. These provisions seemed to be workable enough, especially as in only 2 districts was there anything like systematic cultivation of the hemp plant. Unexpected difficulties, however arose in the disposal of the produce by cultivators to wholesale dealers and licensed vendors. The Commissioner of Excise was present both in Nagpur and Nimar on the occasions when sellers and buyers met for the disposal of the produce. At Nagpur the wholesale dealers held aloof, being uncertain of the effects which the enhanced duty demanded on the drug might have on consumption, while the retail vendors were not prepared to purchase direct or otherwise than in previous years from the wholesale dealers. In Nimar also sellers and buyers failed to come to an understanding. Accordingly it was found necessary, in order to guard the cultivators against loss and to secure to Government the control of the entire crop to purchase on behalf of Government 1,856 maunds of ganja in Nagpur and some 5,000 maunds in Nimar at a total cost of nearly Rs. 50,000. These quantities together represented nearly the entire crop of the year in the Central Provinces, so that practically Government obtained a monopoly of the drug. The small cultivation of ganja in districts other than Nagpur and Nimar was specially dealt with. The Wardha crop was taken over by the Deputy Commissioner and forwarded to the Nagpur Store, to be there dealt with like the produce of the Katol Tahsil. In Betul, Chhindwara, Narsinghpur, and Raipur the whole produce was put up to auction and sold to licensed vendors, the upset price fixed being Rs. 36 per maund: the cultivator's share of the proceeds was fixed at one-seventh. 10. The revenue was Rs. 83,144-0-3, of which Rs. 1,727 was collected on licenses to cultivate, a source of income which had now to be finally abandoned in accordance with the opinion of the Judicial Commissioner on the draft rules as first drawn. Bids for the right of retail vend increased by Rs. 18,522-1-5, Mandla and Chhindwara being the only districts which did not contribute to this improvement. The auctions had been held much earlier than usual in order to give licensed vendors generally a fair opportunity of buying their supplies direct from producers: hitherto the principal ganja crops had been for the most part bought up by a few persons for purposes of wholesale vend. Another probable cause of the improvement was the selling of the monopolies as far as possible in small circles, instead of in lump or by tahsils or large circles, as had previously been the practice in several districts. The incidence of revenue rose to very nearly 2 pies per head of population. The number of retail shops which worked during the year is not ascertainable, but was probably much the same everywhere as in 1877-78. 11. With a view to administrative efficiency as well as economy the district formerly known as "Upper-Godavery" was abolished in this year, a small portion being transferred to the Madras Presidency and the remiander being constituted a sub-division of the Chanda district and styled "Sironcha." For the sake of preserving uniformity throughout Appendix A, the statistics relating to the Upper-Godavery district have all along been included in those of Chanda.
1879-80. 12. The arrangements for raising the revenue in 1879-80 were peculiar, owing to the position in which Government found itself as holder of almost the whole provincial stock of ganja. In five districts the circles of vend were not sold at all, but farms were given to men of capital and position, who engaged to find retail vendors and to keep them supplied with ganja taken as it came in the uncleaned state from the Government stores, paying only duty at certain fixed rates on removal from the Stores: those rates were as under:— Rs. A. P. Jubbulpore tahsil 2 12 0 per seer. Jubbulpore District Sehora and Murwara 3 0 0 " Narsinghpur District 3 6 0 " Hoshangabad " 4 4 0 " Khandwa and Bur- 5 0 0 Nimar District hanpur tahsils 5 0 0 " Mortaka tahsil 4 1 0 " Mandla District 5 0 0 " In the remaining district the monopoly of retail vend was sold in the usual way, at first for 3 months and then for the rest of the year. The plan tried in the 5 districts above named, though not an absolute failure, was soon found in practice to be open to serious objections: the farmers, not being bound to work in earnest in order to be able to pay stipulated instalments to Government, did very little towards ensuring an adequate supply to the public. For the last nine months of the year, therefore, in the remaining 13 districts the retail monopolies were left in the hands of the men who had bought them for the preceding quarter at the old monthly rates of license fees and on the condition that they purchased only at a Government store or from distributing agents appointed by Deputy Commissioners. Wholesale vendors were employed as distributing agents on a commission at rates varying from 9 pies to 1½ anna per rupee on the fixed selling price of Rs. 2-14-0 per seer: this price included both the cost to Government and the fixed duty. 13. The ganja issued for consumption in the year was for the most part raised in the season July to November 1878, and in respect of that season's crop no difficulty in realizing duty under the arrangements just described was experienced. But at the close of the preceding year there were stocks of old ganja, the produce of the autumn of 1877, and on these a duty of Rs. 30 a maund was made leviable under the Chief Commissioner's orders: where these stocks in the hands of any one person exceeded 1 maund, a special rate in excess of Rs. 30 a maund was exacted; but in several districts payment of duty was evaded, licensed vendors having been allowed, in spite of orders to the contrary, to purchase, after the clese of 1878, quantities largely in excess of what was necessary to carry them on to the end of March 1879. 14. " Bhang" (foreign) was taxed this year for the first time, but statistics of receipts under this head are not available till 1882-83. The rate first fixed was Rs. 8 per maund, and any licensed retail vendor was permitted to import what he required on prepayment of duty at that rate. At the same time a rate of Rs. 10 was imposed on charas. The rate on bhang was raised in July to Rs. 8 per maund less than that charged for ganja, i.e., to over Rs. 100 per maund, taking the ordinary ganja rate to be Rs. 2-14-0 per seer. The cost price in Rajputana and other sources of supply was Rs. 10 to Rs. 12 per maund. From records in this office it appears that in the preceding half of the year 1879 about 7 maunds were imported into Nimar, Hoshangabad, and Jubbulpore, and that in those districts and also in Chanda, Seoni, Saugor, and Raipur there were old stocks amounting in all to 22 maunds 24 seers. The only districts in which there was any licitly imported charas was Jubbulpore, and the amount there was 37½ seers only. On "local bhang," or refuse ganja, a duty of 3 annas per seer was, imposed, the article being issued to licensed vendors at this rate from the Government stores. The chief use of this was as medicine for cattle to get them into good condition. 15. In this year Ganja License Forms VII and X, prescribed by Notification No. 4627, dated the 5th November 1878, were cancelled, and licenses published with Notification No. 996 dated the 12th March 1880, substituted therefor. This step was taken at the instance of the Commissioner of Excise with the object of protecting our revenue against smuggling by rail from foreign territory or from British territory beyond the Central Provinces. Ganja was cultivated in particular in the Indore territory south of the Nerbudda, 7 villages in which the plant was raised forming a group round Sanawad on the railway line between Khandwa and Indore and constituting what was almost an island of foreign territory within the Nimar district. The amount of ganja raised annually was about 1,500 maunds, and this could be bought on the spot at from Rs. 2-4 to Rs. 2-8 a maund, no pass or permit being required. The badness of the roads and the insecurity of life and property throughout Central India rendered it practically impossible for traders in this ganja to reach a market otherwise than by rail and therefore by passing through British territory. It was obviously essential to keep a watch on consignments so sent, and rules 7 and 8 of the Notification of November 1878 were meant to be read, with Forms VII and X, as requiring imports from outside the Central Provinces to be taken to a Government store-house under one license (Form VII) and then exported under another (Form X). But Form VII merely required that imported ganja should be delivered at the Central Store, "to be there disposed. of according to the orders in force for the produce of cultivators resident beyond the Central Provinces." It was therefore found necessary to provide specifically for the examination of consignments booked to railway stations within the Central Provinces, and the revised Form VII contained the necessary conditions. At the same time Form X, which in its original shape was practically useless, was altered so as to render all ganja, whether purchased within the Central Provinces or in course of transit through them for sale in other parts, liable to examination by any Provincial Excise officer at any time. 16. The gross receipts under ganja for the year were Rs. 89,937, but the arrangements for securing payment of the newly imposed direct duty cost Rs. 6,636, so that net receipts were only slightly in excess of those for 1878-79. The quantity of ganja sold retail was nearly 600 maunds, representing some 800 maunds of uncleaned hemp, but it would not be safe to conclude that this represents anything like the quantity actually consumed during the year. In Nimar only 6 maunds 24 seers of ganja were sold under the sanctioned arrangements, but there can be no doubt that this amount was quite insufficient for the wants of the district, and smuggling from the Sanawad pargana of Indore is known to have gone on to a great extent. Retail prices everywhere ruled much higher than they had ever done before, the cost price to licensed vendors being nowhere less than Rs. 2-12-0 per seer, or about 2 pice for one pice weight. The total number of retail shops rose to 1,223, but the figures for districts differ greatly in many instances from those of 1877-78 and 1878-79, and no satisfactory explanation of the differences can be given. In Bilaspur and Sambulpur bazar shops appear to have been included in the enumeration: elsewhere there were generally fewer shops, to judge from statement IV appended to the Excise Report for 1880-81. It is difficult to believe that only 252 acres were under ganja in the year in Nimar, but enquiry on the point has failed to bring any other statistics to light. The produce of the Katol Tahsil amounted to 250 maunds, but the area cultivated cannot now be ascertained.
1880-81. 17. The Government of India, in sanctioning disbursement of the money which had been spent in 1878-79 in purchasing the crop of that year and also old stocks left in the hands of certain dealers whose licences expired on the 31st March 1879, and were not renewed, remarked that they were not disposed to favour the permanent creation of a Government monopoly of ganja. Accordingly, for 1880-81 the monopoly of wholesale vend for the whole province was granted to a single contractor (Kaluram Marwari of Kamptee), who agreed to pay a direct duty of Rs. 2 per seer on all ganja sold by him to retail vendors and to issue the drug to retail vendors at Rs. 3 per seer. Under the agreement, the text of which will be found in Appendix D,* hemp drugs other than ganja were to be supplied to retail vendors at certain fixed rates per seer: those rates and the corresponding rates of duty payable to Government were:— Rate of supply. Duty. RS. A. P. Rs. Charas 24 8 0 16 Foreign majum 24 8 0 16 " bhang 2 2 0 1 Local " 0 8 0 Nil. Charas and foreign majum were never actually imported. For local majum, a confection made of sugar, ghi, and local bhang, separate retail licenses at the same rates as those for sale of ganja were required. In the first 8 months of the year local bhang was taxed at the rate of 0-2-0 a seer, the right of selling it by retail being limited to the wholesale vendor of ganja and his agents, but in November 1880 the Chief Commissioner directed that clean ganja only should be issued from the Government stores, all refuse, including local bhang, detached in the process of cleaning being systematically destroyed, and further that at any subsequent cleaning which might be found necessary the additional refuse should be similarly dealt with. 18. Kaluram bought up so much of the Nimar and Katol crops of the season July to November 1879 as was in the hands of cultivators, and also all Government ganja left in the provinces on the 31st March 1880, except a surplus of some 5,000 maunds at Khandwa, which he agreed to sell on behalf of Government in return for a commission on sales. He was bound to apply the ganja he purchased for home consumption in the first instance: if any remained over, it might be exported, one-half of all profits realized in this way being payable to Government. Distribution to retail vendors was provided for by requiring Kaluram to appoint and maintain an efficient and respectable agent at the head-quarters of each district and the headquarters of each tahsil except Sironcha, which was supplied from Cocanada in the Godaveri district of the Madras Presidency and from the Nizam's dominions. The right of retail vend was disposed of in a new way: instead of auctioning the monopoly by circles, monthly licenses were issued at fixed rates varying according to the size of the town or village and without limit as to the number of licenses existing in one place. 19. The gross revenue of the year was Rs. 92,850-12-8, or more by 3.2 per cent. than that of 1879-80. Sales by retail vendors under the sanctioned arrangements rose from nearly 600 maunds to 839 maunds 19 seers, or by 40.1 per cent., and the amount of direct duty realized by Rs. 5,228, or 8.8 per cent. only. License fees for the right of retail vend fell off by Rs. 2,315, or 7.5 per cent. It will be readily understood, however, that the statistics of the two years cannot be satisfactorily compared. In 1879-80 no amounts quâ license fees proper were realized in 5 districts, while in the rest the charge of Rs. 2-14-0 per seer made to licensed vendors included the cost of the ganja supplied as well as direct duty, though the whole has been shown in column 34 of the statement in Appendix A under the latter head: moreover, old stocks which never paid duty and consequently were left out of the account of consumption must have found their way from the hands of the contractors who owned them into those of the smoking public. Accurate information as to the exact number of retail shops worked is not forthcoming. In several districts the returns fail to distinguish sufficiently between licenses issued and shops opened.
1881-82. 20. The arrangements for this year were shaped by the necessity of getting rid of the Government stock of ganja, amounting to 3,000 maunds (uncleaned), which remained in store at Khandwa. Accordingly, the representatives of Kaluram, the wholesale contractor for 1880-81, were given a contract for supplying the whole province on condition of their taking over this stock for Rs. 18,000, besides purchasing the crop raised in 1880 in Nimar only: that crop was estimated at 2,500 maunds. The agreement entered into with the firm will be found in Appendix F.* It will be observed that the wholesale supply of ganja, &c., was left entirely in their hands, and that they were required to maintain an agent at the head-quarters of each district and tahsil (except Sironcha, where the existing arrangements were allowed to stand). With a view to avoiding unnecessary loss to the firm from cost of carriage of refuse stuff, it was arranged that the cleaning of the ganja should ordinarily be done at Khandwa or at Nagpur, but where the journey was likely to produce considerable injury to the drug, Deputy Commissioners were instructed to arrange for its being cleaned at its destination. The stocks maintained by the agents were to be examined by the tahsildar, or in his absence by the naibtahsildar, every fortnight. The examining officer was required to deduct the amount of the closing balance for the fortnight from the total of the opening balance and of any subsequent additions to stock: on the difference so ascertained and verified, which represented the amount sold by the agent, duty had to be paid. Each agent of the firm was provided with a license for the wholesale vend of ganja, foreign bhang, charas, and majum, and also for the retail vend of the last mentioned article. In most districts retail vendors held their shops as in 1880-81, i.e., on monthly licenses at rates which varied in different localities and without restriction as to the number of licenses granted in any one place. In Seoni and Saugor shops were auctioned on the old system, and there was a large increase in receipts from license fees in those districts. 21. The revenue of the year was made up as under— Rs. Direct duty 67,892 License fees 29,344
TOTAL 97,236
Sales to retail vendors increased from 838 to 869 maunds, but the increase was not general, for in seven districts, and particularly in Bilaspur and Seoni, sales declined. Receipts from license fees were larger than in 1880-81 in 8 districts only: the system of monthly licenses, which had by this time been given an extended trial, was found to be unsuitable, accurate information having still to be collected as to the approximate consumption in different localities. 22. Statistics of cultivation in Nagpur for the 3 years 1879-80 to 1881-82 are not forthcoming. It will be remembered that Government bought up the crops of 1878, and Kaluram those of 1879 in both Nimar and Katol. The Nimar crop of 1880 was purchased by the firm which succeeded to Kaluram's business, and that, together with 3,000 maunds purchased from Government, made it quite unnecessary for them to have any dealings with the Katol cultivators. Great difficulty had been experienced in coming to terms with the Katol men in respect to the crop raised in 1879; they had sold the produce of 1878 to Government at rates varying from Rs. 7 to Rs. 10 a maund, but for that of 1879 they held out for Rs. 30 per maund. Eventually, after the Chief Commissioner had been petitioned in the matter, the Commissioner of Excise was requested to settle the price in a manner which would leave the cultivators no ground for complaint, and in the end payment at the rates given in the preceding year was agreed to by all concerned, the cultivators being at the same time distinctly warned that if they chose to grow ganja in the future they would do so at their own risk, as there was no chance of the Government again arranging for its purchase. In spite of this experience, about 1,100 maunds were brought to the Nagpur Store-house at the close of 1880, and this the firm of Jaitram Mahadeo declined to buy, having, as already remarked, obtained a fully adequate supply in Khandwa under the terms of their agreement with Government. The cultivators then demanded that their entire stock should be purchased by Government, but as they had received fair warning that they would have to make their own arrangements for finding buyers their petition was rejected. Many continued to hold out for the purchase of their produce in lump, but some were in the end induced to part with it in lots to different dealers. All appear to have refrained from raising ganja in 1881 in consequence of their failure to obtain the terms they had insisted upon; their energies were directed throughout the year to agitating for reconsideration of the orders passed, and after unsuccessfully moving the Government of India they memorialized the Secretary of State. No certain explanation of the sudden diminution of area under ganja in Nimar can now be given: it is, however, known that the Indore crop of 1879 was unusually large (4,000 maunds against 1,000 in the preceding season), and that exports from Nimar in 1880-81 did not exceed 75 maunds, and the knowledge of these facts and of the existence of a large stock in the hands of the provincial contractors must have made cultivators doubtful whether a local crop, if raised in 1881, would find any purchasers.
No licenses to cultivate were granted in these 3 years, inasmuch as the rules of November 1878 did not provide for this formality: any one might cultivate, provided that he gave written notice of his intention to do so.
Excise Act, 1881. 23. During the early part of the year 1881-82 the Bill which eventually became the Excise Act, 1881, was under consideration. The Act of 1871, so far as it related to hemp-drugs, had been found wanting in three important particulars, viz.:— (1) It only empowered the Chief Commissioner to place cultivation, preparation, and store under supervision—section 40. (2) It did not make the mere importation without a license, irrespective of the quantity of the drug imported, punishable—section 63. (3) The punishments for illicit manufacture, sale, and possession were inadequate—sections 62, 63, 64. The Chief Commissioner proposed to remedy the first and third defects by means of a special clause worded as under:— "In the Central Provinces— (a) the cultivation of hemp, (b) the manufacture of intoxicating drugs, (c) possession of the intoxicating drugs, (d) the import, export, and transport of intoxicating drugs, are prohibited, except as permitted by this Act or by rules framed under this Act by the local Government, which may grant such permission absolutely, or subject to the payment of duty, or to any other condition." The Bill, however, was considered by the Government of India to give all the powers required for controlling cultivation, manufacture, and storage, and the second para. of section 11 of the Act corresponds word for word with that in the Bill; the wording is as follows:— "In the other territories to which this Act extends, the chief revenue authority may, from time to time, make such rules to restrict and regulate the cultivation of hemp and the preparation of intoxicating drugs therefrom as it may deem necessary to secure the duty leviable in respect of those drugs." As for importation, it appears to have been thought that reduction of the quantity which might be sold by retail and possessed by a private person from 20 to 5 tolas in the case of ganja would meet all the requirements of the case. In the Bill as first drawn the limit of quantity in respect of bhang also was reduced from 20 to 5 tolas, but in the Act the old limit of 20 tolas is retained. The law as to import is therefore in the same state as under Act X of 1871, the only difference being that a penalty is now provided (sections 20 and 42) for breach of rules "to regulate the grant of licenses or passes to persons possessing or transporting intoxicating drugs for the supply of licensed vendors," whereas formerly no punishment was provided for breach of such rules. With regard to penalties, the Act of 1871 had made offences in respect of hemp drugs punishable by fine only in the first instance, and imprisonment in default of payment was in the civil, not in the criminal, jail, except in the case of permitting drunkenness, etc., on shop premises. The new Act gave power to sentence in respect of all such offences, except those under sections 40 and 41, to imprisonment of either description extending to three or four months, in lieu of, or in addition to fine, and it contained no provision prescribing imprisonment in the civil jail for default of payment of fine.
1882-83. 24. In February1 882r ules regarding the cultivation, sale, transport and import of ganja were made by the Chief Commissioner under sections 11, 13, 20, and 55 of the Act of 1881. They are printed as Appendix G* to this Memorandum. Cultivation was thus definitely restricted to the tahsils of Katol and Khandwa, and cultivators were required to obtain licenses and to deposit their crops in the Government store-houses at the head-quarters of those tahsils. The arrangements for raising the revenue in 1882-83 were in strict accord with these rules, and, as they have not since been materially altered, it is worth while to give an account of the main principles underlying them. In the first place the interests of cultivators demanded that the monopoly of wholesale vend should no longer be left in the hands of a single firm: accordingly wholesale vendors were appointed for each district separately. Next to protect wholesale vendors, in case cultivators should combine for the purpose of exacting unfair prices for their produce, import under passes from extra-provincial markets was permitted. Thirdly, in order to ensure supply to retail vendors of a good marketable drug for consumption by private persons, the rule introduced in 1881-82, that ganja, before being issued for retail sale, should always be cleaned to the satisfaction of the Deputy Commissioner, and that all resulting "bhang" or refuse should be immediately destroyed, was maintained. Monopolies of retail vend were in most districts auctioned, the locality and number of shops being fixed beforehand, and none being allowed except where a reasonable demand for the drug was proved to exist. It will be remembered in this connection that the system of monthly licenses at fixed rates issued without limit as to the number of shops at any one place had not generally answered, the reason being that sufficient data for deciding what fee might fairly be fixed in each case were not available. The sale of foreign bhang was no longer permitted to retail vendors of ganja: wholesale ganja contractors and their agents were constituted sole vendors of the drug. The bhang imported had to be stored in the same way as ganja, and a direct duty of Rs. 2 was made leviable on each seer sold. No fee was payable for a license for retail vend of foreign bhang. Charas and foreign majum had never been imported, so no provision for their sale was required. The case of local majum appears to have been overlooked when the rules were framed; but the plan started in 1880-81 of licensing separate shops for its sale continued to be followed in practice. (See para. 17.) 25. Advantage was taken of the opportunity afforded by the breaking up of the monopoly of wholesale vend to obtain some revenue from wholesale license fees. The arrangement with the firm of Jaitram Mahadeo had been to levy duty at Rs. 2 per seer on the cleaned ganja issued, and to allow them to sell that ganja at Rs. 3 per seer to retail vendors. The terms of that arrangement were more favourable than the circumstances of most districts justified, and each wholesale vendor had henceforward to pay a certain amount per seer in addition to the direct duty of Rs. 2, the rate varying in different districts and being generally determined by tender. 26. The Sironcha sub-division of the Chanda district had from the first, as already remarked, been excluded from the system of supply prevailing in the rest of the province. Retail vendors had always supplied themselves with ganja from the Hyderabad and Madras country. The rules of February 1882, however, only permitted import by wholesale vendors, and licenses could only be granted by the Deputy Commissioner and with the sanction of the Commissioner of Excise. To meet this special case, a rule was added empowering the Assistant Commissioner of the Sironcha sub-division to grant import licenses to any authorized vendor of ganja. 27. The gross revenue of the year, excluding credits to Government on sales of ganja to certain feudatory States in the Raipur district, was Rs. 1,11,095-6-1, made up as follows:— Rs. A. P. Direct duty on ganja 47,935 7 10 Wholesale license fees—ganja 11,021 12 2 Retail 50,654 9 0 Direct duty on bhang 851 7 9 Retail license fees—majum 632 1 4 The amount of taxed ganja consumed was a few seers short of 600 maunds. Besides this, about 56 maunds were supplied by a wholesale vendor to feudatory States and zamindaris. Retail sales decreased in all districts except Chanda and Damoh, and the fall was very marked in Raipur and Bilaspur, where, however, the statistics given for 1881-82 include sales to feudatories and zamindaris. The pressure of the higher retail rates was now being generally felt by consumers, and smuggling and illicit cultivation had to be contended with in consequence. In some districts, too, the wholesale vendors had supplied old and inferior ganja; to guard against a repetition of this they were required to supply in 1883-84 none but ganja of the crop raised in 1882. In Sambulpur the revenue had always been insignificant, and the rate per seer for issue to retail vendors was reduced from Rs. 3 to Rs. 2 for that district, in order to give our taxed drug a chance against that smuggled from the Tributary Mahals of Orissa and the States of Chutia Nagpur; at the same time the direct duty was lowered to Re. 1 per seer. Similarly, in the case of the Raipur district, the south and south-east portions of which suffered from the illicit introduction of ganja from Bastar, the rate of issue to retail vendors in the Sihawa Pargana was reduced to Rs. 2, on condition that none should be sold for consumption beyond the limits of that pargana. For this year and onwards satisfactory statistics of cultivation in Nagpur and Nimar are available. The total amount of the roughly manufactured drug deposited in the Government stores was 4,021 maunds, nearly 5-6ths of which was raised in Nimar. The number of retail shops was considerably reduced, the most important change being in Balaghat, where the allowance in 1881-82 had been far too large in proportion to population. The average incidence of revenue was a little more than 2 1/4 pies per head. 1883-84. 28. There were no important administrative changes in 1883-84. The total revenue from the Khalsa proper was Rs. 1,29,207-2-6, made up as under:— Rs. A. P. Direct duty on ganja 59,663 11 9 Wholesale license fees—ganja 10,584 6 9 Retail " " " 57,556 14 0 Direct duty on bhang 769 10 0 Retail license fees—majum 632 8 0 In all districts except Hoshangabad and Chhindwara the wholesale ganja contract was given to a single contractor: in the two districts named, the contracts were given by tahsils, as in the preceding year. 29. The amount of ganja sold by wholesale vendors to retail dealers increased by 157 maunds, and there was a consequent rise in the direct duty levied. Wholesale vendors, however, paid on the whole less for their monopolies, the reason being that in some districts a lower rate per seer had been accepted, with the object of leaving the contractor a good margin of profit and so encouraging him to supply good ganja and maintain efficient agents at tahsils. The lowering of the price to retail vendors from Rs. 3 to Rs. 2 in Sambulpur was supplemented by special efforts to repress smuggling from feudatory States, and by enforcement of the agreement with the wholesale vendor that only good, clean ganja should be supplied: the result of these combined forces was that sales went up from nearly 5. maunds in 1882-83 to 21 maunds, the total revenue being at the same time more than doubled. Other districts in which sales improved considerably were Nagpur, Jubbulpur, Seoni, Raipur and Bilaspur. In Nimar sales fell off largely, but the retail license fee demand more than doubled, circumstances which are explained in the Excise Report for the year by the breaking up of gangs of labourers employed in the preceding year on the G. I. P. and Rajputana railways and by reckless bidding at the sales by two rival contractors who had quarrelled. No material change took place in the number of shops anywhere except in Sambulpur, where the larger sales of taxed ganja demanded an increase in the number of licensed places of vend. The incidence of gross revenue per head of population was2 2/3p ies. 30. The amount of ganja taken by feudatories and by zamindars who controlled their own revenue from hemp-drugs was 80 maunds against 56 in 1882-83. The improvement was due to the success in Raipur and Bilaspur of the arrangements made in 1880. The Sambulpur feudatory Chiefs, on the other hand, did not co-operate cordially in the suppression of ganja cultivation, and they took from the district wholesale vendor less than half of the amount taken in the preceding year.
1884-85. 31. In 1884-85 a new form of wholesale license was introduced. The form prescribed in 1882 was not found to be sufficiently complete, and it was supplemented in practice by a separate agreement. The Gazette Notification publishing the substituted form is reproduced as Appendix J* to this Memorandum. 32. The number of licenses for cultivation, the area cultivated, and the quantity of ganja deposited in the Central Stores were all unprecedentedly high in this year. The figures for 3 years are subjoined:— 1882-83. 1883-84. 1884-85. Number of licenses to cultivate 506 590 1,277 Area under cultivation 925 1,144 2,881 Ganja deposited (Mds.) 4,021 6,356 9,450 Most of the increase was in Nimar, where a large export trade was developing yearly. In Nagpur cultivation had apparently been resumed by those who in 1881 refused to come to terms with the provincial wholesale contractors: there was a substantial demand for them to meet, as the locally produced drug was then preferred in the Nagpur country to that imported from Nimar. 33. The revenue of the year was made up as follows:— Rs. A. P. Direct duty on ganja 66,123 5 6 Wholesale license fees—ganja 12,629 3 3 Retail " " 81,861 13 4 Direct duty on bhang 921 14 6 Retail license fees—majum
TOTAL
804 8 0 TOTAL 1,62,340 12 7
The amount of taxed ganja consumed in the Khalsa proper rose by 11 per cent. and the total revenue demand by 25 per cent. This all round improvement was attributed in the Excise Report for the year to the improved quality of the drug supplied, and the case of Sambulpur, where retail license fees had risen by nearly Rs. 1,000, consumption had almost doubled, and supplies to the surrounding feudatory States had gone up from4 1/2t o1 31/2m aunds, was cited as proving the correctness of this explanation. The total number of shops for retail vend increased from 851 to 921. All except 5 of the additional shops were opened in the Nagpur district, where the retail monopolies were auctioned for the whole year instead of being given out from month to month as in 1883-84, when the average number of licenses issued monthly was only 45. 34. In the Excise Report, written by Mr. L. K. Laurie, the year's statistics are remarked upon as follows:— "While in most districts of the province the number of ganja shops remained stationary, the consumption of taxed ganja increased, in despite of an increase of prices which in some districts followed the enhancement of the license fees for retail vend. The probable explanation is that the improved quality of the issues of the drug attracted anew the consumers who had been driven to seek their supplies elsewhere by the poorness of the stuff sold by Government licensees in 1882-83. In 1882-83 the consumption of ganja decreased in all districts except Chanda * * * and Damoh. In 1883-84 the consumption increased in all districts except Nimar. In the year under report the increase continued in all districts except four (Nagpur, Mandla, Damoh, and Saugor). The quantity of taxed ganja consumed in the years 1881-85 was as under. It is not possible to carry back the distinction between the Khalsa supply and supplies to feudatories earlier than 1882-83:—
Mds. Mds. Mds. Mds. 1881-82. 1882-83. 1883-84. 1884-85. Taxed ganja consumed in the Khalsa 870 609 757 835 " in feudatories and zamindaris 56 80 125 "These figures show that in the year under report the rebound from the depression caused by the inferior issues of 1882-83 has carried the Khalsa demand to what it was in 1881-82, and probably beyond. It is worthy of note that the check in consumption which occurred in 1882-83 did not affect the fees for wholesale and retail vend. These have in almost every district steadily increased since 1881-82. "The incidence of the total demand per head of population was 3 pie, as compared with 2 pie in the preceding year. As last year, the incidence was highest in the Jubbulpur, Seoni, and Balaghat districts. The demand in Seoni and Balaghat stands at nearly the same figure as the demand in Raipur, which (following Jubbulpur and Nagpur) is the third highest in the provinces. This position in the list has been maintained by these two districts for several years past." 35. Before passing on it is necessary to note that the powers of police officers under sections 27, 28, and 29 of the Act of 1881 were modified during the year. In February 1884 the Chief Commissioner had authorized Deputy Commissioners to appoint, under section 24 of the Act, any police officer to be an officer for the prevention of excise offences. The Government of India, however, held that Section 20, Act V of 1861, precluded the exercise by the Police of authority as preventive officers, even though they were appointed to perform such duties by the Collector under section 24 of the Excise Act in accordance with rules made by the local Government. The Excise Act was accordingly amended by Act VI of 1885, in order to give local Governments authority to confer preventive powers on the Police. In the Central Provinces the powers exercised are— (a) By all police officers, those conferred on Excise officers by section 27 of the Act. (b) By any police officer in charge of a station or of or above the grade of head constable, those conferred on Excise officers by sections 28 and 29 of the Act.
1885-86. 36. The profits made by cultivators on the crop raised in the autumn of 1884 resulted in a still larger number of licenses to cultivate being taken out in 1885. The quantity (18,971 maunds) of the drug deposited in the Central Stores was also much larger than in any previous year, and, despite the fact that exports to other provinces increased enormously, a considerable percentage of the stock remained unsold. The market having been thus glatted, wholesale prices fell from Rs. 7 to Rs. 2 and Re. 1 per maund, and most of the cultivators suffered in consequence. 37. The wholesale contract for the three districts of the Chhattisgarh Division was given in lump to a single contractor, as in the two preceding years: this arrangement had been necessitated by the fact that men would not tender for the contract of those districts owing to the difficulty of transporting the drug from the Central Stores, the railway line extending at that time only as far as Raj-Nandgaon. The quantity of taxed ganja sold increased by 160 maunds, one-half of which was contributed by the districts of the Chhattisgarh Division and almost a quarter by the Jubbulpur district. Unlicensed cultivation in feudatories and zamindaris had generally diminished, and in the Raipur district over 200 temporary shops had been established at bazars where illicit ganja used to be secretly sold. In Jubbulpur the retail price was lowered to 1 anna per tola, sales being enormously stimulated in consequence. In other districts the average retail price varied from1 1/2t o 2 annas a tola, i.e., from nearly 3 to nearly 4 times the price prevailing in 1875-76. The sums bid for the monopolies of wholesale and retail vend also increased, and the total revenue demand on account of ganja rose by more than Rs. 30,000, the incidence per head of population going up from 3 to 4 pies. The districts in which the demand was greatest were:— Jubbulpur. Balaghat. Raipur. Seoni. Nagpur. Bhandara.
1886-87.
Jubbulpur, as for years past, was far ahead of any other district, and Raipur now took second place in regard to both revenue and amount of ganja taxed. Balaghat and Seoni occupied the fourth and fifth places, as in 1884-85, but in reverse order. 38. The losses incurred by cultivators in 1885-86 caused them in the following year to take out fewer licenses and to reduce the area under ganja; but in spite of this there was the large outturn of 9,290 maunds, which was ten times the quantity needed for provincial consumption and more than 2,000 maunds in excess of the quantity required for export and provincial consumption combined. As much as 6,000 maunds were exported to the North-West Provinces and Oudh, where the Government were considering the advisability of imposing an import duty on the drug. 39. An important executive order was issued in this year. In 1880 (see para. 17) the Chief Commissioner had directed that ganja should be issued from the Central Stores in as clean a state as possible; but in 1881-82 (see para. 20) and subsequent years the place of cleaning ganja had been left an open question, and it was found that this resulted in tahsildars being overburdened with work in supervising the separation and burning of refuse. It was now made obligatory in all cases to effect a partial cleaning at the Government Store-houses before packing for despatch to tahsils. At the same time the use of "hampers" instead of bags was recommended, and the practice which started thereupon was subsequently enjoined by condition 6 of the form of wholesale license as finally modified in 1891. 40. The consumption of taxed ganja in the Khalsa fell off by 141 maunds, and was only slightly in excess of that in 1884-85. The decline was most marked in the cases of Nagpur, Bhandara, Jubbulpur, and Sambulpur, and it appears to have been due partly to the failure of crops and partly to a further advance in license fees for the right of retail vend. In Sambulpur the monopolies of retail vend were auctioned for the first time, so that retail prices must have been specially affected in that district: up to this time the system introduced in 1880-81 of licensing shops at fixed rates and without restriction as to number had been adhered to, the idea being that smuggling from the surrounding feudatory States would best be combated by placing no limit on the number of licenses that might be issued. Retail shops increased by 70. There was a nominal increase of 34 in Sambulpur, where thef iguresf or previous years are really those of average number of licenses issued monthly. 13 new shops were opened in Raipur, where the allowance had always been short, having regard to the growth of population and consumption. Of the 8 additional shops in the Narsingpur district only 3 were actually worked: all were on the Bhopal frontier, and were licensed with the object of checking smuggling from that State. The provincial incidence of revenue per head of population rose from just 4 to nearly 4 1/2 pies.
1887-88. 41. The outturns of ganja in Nimar had been so large in the years 1884-85 and the two which followed it that additional accommodation had to be hired and the market was overstocked. In order to obviate the inconvenience which had thus been found to result from over-production, a storage fee of 6 pies per maund per mensem, payable quarterly in advance, was imposed upon all ganja deposited in a Government store-house. This impost appears to have brought about the desired result, for the area under cultivation and the outturnw eree ach little more than half of what they had been in 1886-87. Storage fees amounting to Rs. 472 were realized in the course of the year. In October 1887 another source of revenue was invented, a permit fee of Re. 1 per maund being made leviable on all purchases of ganja effected by persons who, not being licensed vendors under the Excise Act, resorted to the Government Store-house at Khandwa for their supplies. In proposing the imposition of this fee the Commissioner of Excise wrote as follows:— "The part played by the Khandwa store as an entrepôt for the supply of the ganja demand of those provinces is quite insignificant when compared with its use as a mart for the convenience of foreign purchasers. To it throng traders from Bhopal, Indore, Gwalior, Ratlam, Dhar, Jodhpur, Oodeypur, Rewa, Panna, Baroda, and other States of less note, and licensed vendors from the North-West Provinces compete with contractors from Berar for the purchase of the cultivators' stock. Between 6,000 and 7,000 maunds of ganja have, on the average of the last four years, been annually exported from Khandwa to other provinces and to Native States. For the convenience thus afforded to them all these foreign purchasers pay absolutely nothing." Permit fees amounting to Rs. 1,028 were realized before the close of the year, and this sum alone more than sufficed to cover the cost of the additions to the store-house at Khandwa, which it had been found necessary to make.
42. In June 1887 the Government of India sanctioned a substantial increase in the rates of duty on round and choor ganja in Bengal, and the Chief Commissioner thereupon requested the Commissioner of Excise to report whether the duty should be raised in this province also. In reply the Commissioner reported that the effect of raising the duty of Rs. 2 a seer would be to lower the bids for retail veud monopolies, and that it would be specially inappropriate to raise the duty just when consumption had declined owing to the losses which had followed on the failure of harvests, in whole or in pars, for two successive years. Accordingly, the rate was left unchanged. 43. Two other suggestions for improving the ganja revenue were submitted, though not recommended for adoption, by the Commissioner of Excise, Mr. L. K. Laurie, in this year, viz., (1) to abolish wholesale vendors, Government purchasing and retailing the drug through its own agents, and (2) to economize establishment by closing the store at Nagpur and prohibiting cultivation in the Nagpur district altogether. The Chief Commissioner agreed with Mr. Laurie in thinking that, on the whole, Government agency was unsuited for purchasing and selling the drug to retail vendors, and that it was best to postpone suppression of cultivation in Nagpur, until the effect of imposing a storage fee upon the extent of that in Nimar had been well ascertained. 44. Supervision of harvesting, drying, and storing of the ganja crop was introduced this year, and has been exercised annually ever since. A case had been brought to light of a cultivator having a considerable quantity of the drug in his possession at his village-home, and there was thus reason to believe that many of the complaints of smuggling were due to secret disposal of ganja illicitly kept back by cultivators. The following establishment was accordingly entertained for the Khandwa tahsil:— Rs. 25 peons atR s.5  each for one month 125 5 supervisors at Rs. 20 " 100 Total 225 This precautionary measure was not adopted in the Nagpur district, as the area under cultivation and the number of licenses taken out were comparatively small. 45. The total revenue of the year was Rs. 1,92,028-12-1, made up as follows:— Rs. A. P. Direct duty on ganja 65,244 8 3 Wholesale license fees—ganja 14,716 3 10 Retail " " 1,08,633 8 0 Direct duty on bhang 838 10 0 Retain license fees—majura 1,095 14 0 * Permit and storage fees 1,500 0 0 The amount, of taxed ganja consurmed tell off by nearly 33 maunds, but receipts from wholesale licensa fees remained at almostt hes amef igurea s in. 1886-87, viz.,R s.1 4,700i n round numbers. Under retail license fees there was a total decline of about Rs. 17,500, but nearly Rs. 17,000 of this occurred in the districts of Nagpur, Jubbulpur, and Raipur. This was due in the first two districts to a relapse from the high bidso f1 886,a nd in Raipur, where rice is the staple food, to the partial failure of two successive rice crops. The labouring populati- n, who are the Target class of drug consumers, were placed in exceptionally hard circumstances at the beginning of1 887-88a st he following extract, from the Chief Commissioner's Resolution on the Revenne Administration of the Central Provinces during the year ending the3 0thS eptember1 887s ufficiently indicates:— "The seasons resembled in their character those of the preceding year in which the rice crop was a very poor one and the linseed crop an almost tolal failure. * * * * Owing to the partial failure oft her ice crop and to the inferiority of the crop of the preceding year there was a good deal of hardship in the rice-growing districts. A considerable portion of the labouring population was undoubtedly pinched for food to an extent rare in these provinces, and the pressure extended to the poorer cultivators. * * * * * In the northern districts the continuous high prices have unfavourably affected the condition of the labouring poor.""
The past quinquennium. 46. During the period of 5 years, the statistics of which remain to be discussed, several important administrative changes were made. In thef irstp lace a registration fee at the rate of Re. 1 per maund was made payable on all sales of ganja to purchasers other than licensed vendors of the Central Provinces, the object being to enhance the charge on exports to Native States and Berar which had been introduced in October 1887, and to obtain from licensed vendors of other parts of British India some return for the convehiences afforded them at the Government Store-house, Khandwa. The "permit" fees had not especially affected export to foreign territory, which were about 3,000 maunds in 1887-88 against 3,800 maunds in 1886-87, and buyers from both foreign territory and the North-West Provinces were inconveniencing our wholesale vendors by forestalling them in the market and by raising the price. 47. Next the period of 50 days allowed to cultivators of ganja, under the rale for removal of their crop to the Government Store-house after permission toc uth ad been granted, was found * Not included in statement in Appendix A, as there is no appropriate column in which to exhibit them. excessive and reduced to 30 days on the recommendation of the Deputy Commissioner, Nimar. It was found that cultivators took advantage of the long period allowed to keep their crop in the villages as long as possible, thus entailing increased expense on Government for watch and ward and securing great opportunities for pilfering and illicit transfers. 48. 1889-90 was the last year in which cultivation was permitted in the Katol tahsil. The cultivators there had never been able since the introduction of the system of levying a direct duty in its existing shape to obtain a fair price for their produce, the reason apparently being that it was of inferior quality. Moreover, it was by this time certain that the amount raised in Khandwa was far in excess of provincial requirements, and would suffice to meet them even in a year of bad harvest. Accordingly, in May 1890 notices were issued to the Katol cultivators that they would not be allowed to raise ganja any more. The formal notification restricting cultivation to the Khandwa tahsil of the Nimar district was not issued till July 1891, the opportunity being taken of revising generally the rules of 1882. 49. The revised rules are printed as Appendix O* to this Memorandum: they are for the most part identical with those of 1882 as amended up to date, but include in addition one (3) relating to the practice of conducting harvest operations under Government supervision and two (6 and 7) calculated to ensure payment of registration and storage fees: a rule (10) was also added prescribing payment of storage fees and at the same time exempting cultivators and wholesale vendors of the Central Provinces from liability to such fees for a period of one month from dates of storage and purchase respectively. A minor change was made in respect of the authority to grant through transport passes, which were to be obtainable only from the Commissioner of Excise, instead of from the Deputy Commissioner of either Nagpur or Nimar. 50. In 1891 rules for the management of the Khandwa ganja store-house were drawn up, and were finally approved of by the Chief Commissioner in December of that year. Those rules are printed as Appendix P* to this Memorandum: they are full and explicit, and do not call for any comment here. 51. Lastly, the conduct of retail shops has been sensibly altered in two ways. In August 1890 the Chief Commissioner directed the insertion in all retail licenses to be thereafter granted for the sale of any intoxicating drug of a condition that consumption on the premises should not be permitted: this condition has been enforced throughout the Central Provinces since the 1st April 1891. The other change consisted in recasting the form of license for retail sale of ganja, and including in it a prohibition of sales on credit and by way of barter and a requirement that purchases shall be made direct from the wholesale vendor for each shop separately, shall be entered in the pass-book of the shop for which the ganja is intended, and shall then be taken to that shop and to no other: the amended form is printed as Appendix Q* to this Memorandum. 52. The total revenue from hemp-drugs has risen during the past 5 years from 2 to over 21/2 lakhs, and is now considerably more than double what it was in 1882-83, the year in which the present arrangements for supply of ganja to retail vendors were initiated. The following table shows how the position of districts has altered during this quinquennium in respect of consumption of taxed ganja and receipts on wholesale and retail licenses for the sale of that drug: the revenue from bhang and majum being comparatively insignificant is not taken into account:—

 The most striking feature of the statistics is the rise of the districts of the Chhattisgarh Division to the position which, in view of their population, they would naturally be expected to occupy. These districts account for more than half the increase in consumption of taxed ganja since 1887-88, and the chief causes at work have been (1) improvement in administration in feudatory States and (2) extension of the Bengal-Nagpur Railway, and in Raipur the construction of water-works. Relations with feudatory Chiefs and with zamindars who enjoy the right of making their own arrangements for retail sale in their estates will be discussed when the subject of smuggling is taken up. Nimar and Betul continue to be the districts where the consumption of taxed ganja is most noticeably short: in the former district cultivators can no longer secrete much of their crop, but ganja is still largely grown in Indore, while in Betul much Berar ganja is undoubtedly consumed. Wardha and Nagpur and in a less degree Chhindwara also are, like Betul, exposed to smuggling from Berar, where the average retail price of ganja is only 6 pies per tola. Seoni and Balaghat have always stood high as contributors to our revenue from ganja: in the latter district licit sales have increased enormously. In Bhandara, where also sales have greatly improved, it is said that the habit of ganja-smoking is no longer considered disreputable, and that the chief cultivating class have taken to it. The Chanda district sales do not include those of the Sironcha tahsil, where retail vendors, owing to the remoteness of the tract, were allowed until the current year to supply themselves under import licenses from foreign territory: the consumption in that tahsil is probably about 6 maunds per annum. The steady rise in the provincial consumption of taxed ganja attracted the special attention of the Chief Commissioner in 1892, and in the Resolution on the Excise Report for 1891-92 the Commissioner of Excise was directed to make enquiry as to whether that drug was ousting either country liquor or opium. This enquiry is still in progress, and until the Chief Commissioner has had the results before him and recorded the conclusions to which they lead, further comment on the statistics just dealt with will serve no useful purpose. 53. Sales of foreign bhangd on otf luctuatem uch from year to year: the average of the past quinquennium is about 12 maunds per annum. This drug is not sold at all in the districts of Chanda, Seoni, and Mandla, and very little in Bhandara and Wardha. Most is sold where Marwaris are most numerous, i.e., in Nagpur, Jubbulpur, Narsinghpur, Hoshangabad, Raipur, and Bilaspur. 54. Statistics of area cultivated and quantities stored and exported for each of the past five years are as under for the Nimar district:—

Cultivation. Quantity stored. Quantity sold for export beyond C .P . 1888-89 858 acres 9,450 mds. 5,053 mds. 1889-90 954 " 10,851 " 7,9 3 " 1890-91 521 " 7,224 " 4,1 8 " 1891-92 653 " 6,685 " 3,016 " 1892-93 940 " 6,686 " 4,233 "

The fall in 1890-91 was due to the market being overstocked with the large outturn of the previous year, and to the ryots having unsuccessfully combined to resist dealer's low prices: in 1891-92, the losses which had been sustained in this way and excess rainfall prevented any considerable extension of operations, besides damaging the crop raised on the area worked. In the latter year, however, cultivators realized high prices averaging Rs. 8 per maund, and were encouraged to sow more ganja in 1892-93, but the crop raised was again damaged by excessive rain, and the quality was generally inferior. It may be mentioned here that consumption in the Central Provinces themselves has little, if any, effect on the area cultivated, for the reason that only about one-fifth of the crop is consumed locally: during the past five years local consumption, including that of feudatories and zamindaris, has ranged from 1,123 to1 ,468m aunds, the aunual average being 1,282 maunds. In 1888-89 and 1889-90 there was a little cultivation in the Katol tahsil of the Nagpur district: in the former year 79 acres yielded 377 maunds, the correspondingf iguresf or the latter year being 39 acres and 312 maunds. During the same period fees at the Government Store-house, Khandwa, aggregated Rs. 46,399. The yearly receipts are not included in the statements in Appendix A for the reason already stated in the footnote to para. 45 of this Memorandum. Details of the total revenue under this head are:—

 

55. The average retail price in most districts for small quantities of ganja is 2 annas per tola, but where the full amount of which possession is allowed by law, viz., 5 tolas, is bought, a rate of 0-1-6 per tola is generally taken. In the districts open 'o smuggling from Native States on the north and west, rates on the border are as low as 0-1-3 and sometimes even 1 anna per tola. In rural areas in the Sambulpur district and also in the Drug and Simga Tahsils of Raipur the rate is 1 anua per tola: in the Sheorinarain Tahsil of the Bilaspur district it is 0-1-3 per tola.
Local option. 56. A system of modified local option in respect to the licensing of country liquor shops was introduced into the Central Provinces under the orders of the Government of India in 1889: such shops are more than six times as numerous as those for the sale of ganja, and no orders for consulting the residents in places where ganja shops are to be licensed have yet been issued. The Administration has all along shaped its policy in regard to the licensing of ganja shops on the assumption that the drug is extremely deleterious, and it is a standing order that no more should be licensed than are necessary to meet the demands of consumers who, if a licit supply were not obtainable, would probably supply themselves illicitly. Moreover, the location of drug shops is a matter of comparatively little importance now that consumption on the premises has been prohibited. Upset prices are not fixed, but no shop is licensed unless a reasonable bid is forthcoming.
Wild hemp.
57. It is believed that the hemp plant does not grow wild in any part of these provinces.
Summary of present system of control. 58. An endeavour has been made in the foregoing paragraphs to trace the development of the present excise system in respect to hemp-drugs in the Central Provinces, and to notice the most striking variations from year to year in the area under the ganja-producing plant, the outturn therefrom and the revenue raised by means of taxing consumption of the two preparations in use, viz., ganja and bhang. It remains to give in a brief yet comprehensive form an account of the system as now worked: the necessary information has been embodied in Appendix R, which follows closely Chapter V of the Excise Manual drawn up in 1885 by Mr R. C. Anderson, when Commissioner of Excise, and includes also the instructions given In a few important subsidiary circulars.
Untaxed cousumption.
Section 20.
59. This Memorandum will now be brought to a conclusion with a brief statement of the difficulties in the way of realizing a tax on all ganja consumed within the province and of the chief mesures for combating them which have been taken from time to time. Small quantities of ganja not exceeding 5 tolas may bo legally possessed by any one, and inasmuch as the Excise Act, 1881, only authorizes regulation of import and transport when effected by persons intending to supply licenced veodars, there is nothing to prevent a smoker carrying about, no matter whenc obtannes, as much as will suffice an habitual moderate consumer for 15 or 20 days. A glance at the map which accompanied the Excise Report for 1889-90 will show that the Central Provinces are cut off by Native Males and Chiefships from the rest of British territory except in the extreme south and south-east, in the extreme west and in the northwest, where the herder runs for comparatively short distances with those of the Lalitpur, Khandesh, and Godaveri districts respectively Starting from the extreme south and working along the Western border, we had first the Nizam's Dominions, separated from the Sironcha and Atul tahasils of the Chanda district by a water boundary consisting of the Godaveri and its tributaries, the Pranhita, and Wardha rivers. Until August of the current year the Sironcha tahasils, owing to its inaccessibility and the cheapness of ganja in Hyderabad territory, was, as already remarked (para. 26), exempted from the direct tax on comumption introduced in 1880-81: is has now been experimentally brought under the system prevailing elsewhere in the Khalsa proper, information having been received that in consequence of certain fiscal reforms the price of ganja has risen in Hyderabad. The Resident has been addressed with the object of ascertaining the nature of the alleged reforms, and his reply is still awaited.
60. Proceeding northwards we find the Berars marching with the Mul and Warora tahsils of Chanda, all three tahsils of Wardha, the Katol tahsil of Nagpur, the Saosar tahsil of Chhindwara, both tahsils of Betul, and lastly the Burhanpurtahsil of Nimar. The revenue from ganja, is raised by (1) levying, a license fee of Rs. 10 per acre or part of an acre on cultivation and (2) auctioning the right of retail vend; but the retail price is nowhere higher than 1 anna per tola, while in the Wun district it is only 3 pies, and elsewhere generally 6 pies. In 1888 the Chief Commissioner authorized the Commissioner of Excise to consult the Commissioner of Berar with regard to the cultivation of ganja in that province and the possibility of checking its carriage across the Central Provinces borders: the Commissioner was accordingly asked to consider the possibility of raising the retail rate to that prevailing in these provinces and imposing an import duty. The objection at first raised against taking action in the direction thus indicated was that it would lead to smuggling into Berar from the Bombay Presidency, where ganja was selling at the rate of Rs. 2 per seer, but subsequently, in pursuance of orders received from the Resident at Hyderabad, a set of draft rules for regulating the import, export, and transport of ganja and for prohibiting its cultivation was prepared. These rules are still under consideration.
In 1880-81 two special peons on Rs. 5 per mensem were entertained, one by Government and the other by Kaluram, the wholesale contractor, for the purpose of detecting smuggling on the western frontier of the Betul district, but they proved a failure, and their services were dispensed with after a few months. The fact is that salaried detectives are of little or no use, as they are liable to be bribed by the very men whom they are paid to watch. 61. The Khandesh Collectorate of the Bombay Presidency succeeds the Berars as conterminous territory, and it is the Burhanpur tahsil of the Nimar district which is on the Central Provinces side of the boundary. Reference has already been made to the extremely low price of ganja throughout the Bombay Presidency: cultivation of the ganja-producing hemp plant is not restricted in any way, though manufacture and sale of the intoxicating drug is required to be covered by licenses, and the revenue, which is under1 1/2l akhs, is derived from annual farms of retail monopolies and from permit fees at the rate of Rs. 5 per 10 maunds on imports exports, and transport. Cultivation is largely practised in Khandesh and also in Ahmadnagar and to a less extent in the Broach, Sholapur, Surat, Satara, and Poona Collectorates: ganja is one of the few articles of export of these comparatively poor districts, and it would appear that Government is accordingly unwilling to lay any very heavy tax on trade in the drug. 62. Next to Khandesh comes Indore, in the Sanawad Pargana of which ganja is largely grown. That pargana divides the Kanapur-Beria tract from the rest of the Nimar district, and there is thus a considerable area into which introduction of the untaxed drug is practically inevitable. In 1879 the Commissioner of Excise, with the approval of the Chief Commissioner, suggested to the Agent to the Governor-General in Central India that exports from Holkar territory should be taxed and only permitted under formal pass; a duty of Rs. 7 per maund was accordingly fixed by the Darbar. Other States under the Central India Agency which bound the Central Provinces on the north-west are Bhopal and Gwalior; in both of these local transit duties are levied,b utt hey are not sufficiently high to check transport into the neighbouring British districts, viz., Hoshangabad, Narsinghpur, and Sangor. In Gwalior the export duty is, so far as can be ascertained at present, Rs. 2-12-0 per maund: the Maharaja is said to be bound by special agreement to prevent export into British territory. In the Resolution on the Excise Report for 1889-90, the Chief Commissioner declared his intention of referring for the consideration of the proper authorities theq uestiouno f limiting or taxing production in the Central India States: the result of the action taken has not been communicated to this office. 63. Damoh is probably the district the revenue of which suffers most from consumption of untaxed ganja. There are villages belonging to the Panna State scattered up and down the Hatta tahsil, and in one village belonging to that State and only a few miles from the head-quarters of the district ganja is freely grown; in all thesev illagest he drug is sold at 10 aanas or1 2a nnas per seer. Complaints have been made to the Darbar from time to time, but without much effect. The injury to our revenue from country liquor as well as to that from ganja which is caused by the existence of these facilities for obtaining a cheap supply of the latter, will be better appreciated when it is remembered that, whereas the Provincial percentages of revenue from the two intoxicants to the total excise demand were respectively 60.6 and 8 9 in 1892 93, they were in Damoh 33 and 28.8. There is comparatively little competition for country liquor monopolies,b uta  fair sum is realized from licensing ganja shops, as illicit ganja can be sold under the licenses without much risk of detection. Ganja is grown in Rewa, and some is doubtless introduced into the Murwara tahsil of Jubbulpur and into the Dindori tahsil of Mandla. 64. That portion of the border of the Central Provinces which runs from the north-east corner of Mandla to the extreme east of Sambulpur, and then south-west to the point from which we started, divides them from a series of Tributary States and Mahals in Chutia Nagpur and Orissa and from the Jeypore State in the Madras Presidency. For many years past the absence of restriction on the cultivation and sale of ganja in these territories has very materially affected the sales of taxed ganja in Bilaspur and Sambulpur and in the feudatory States on the east. Most trouble was caused by smuggling from Gangpur and Boad, and in 1883 the Commissioner, Chutia Nagpur, and the Superintendent of the Tributary Mahals in Orissa were addressed on the subject. Thef irstm entioned officer thereupon issued parwanas to the Chiefs of Gangpur, Udaipur, Surguja, and Lakhanpur, informing them that they must not allow ganja to be grown by any one without their permission, that they must keep lists of those who grew ganja, and see that no one either grew more than they needed for home use, or sold to others. The Superintendent of the Tributary Mahals, Orissa, however, was unable to do more than request the zemindar of Boad to warn his people that it was an offence punishable byo urc ourts to carry ganja into the Central Provinces. In Chutia Nagpur the action taken by the Commissioner was for some time effective, but by 1888 the special attention of the Chief Commissioner had been drawn to the matter, and the Commissioner of Excise was directed to consult the Commissioner, Chhattisgarh Division, as to whether a gcod case could be made out for asking the Government of Bengal to prohibit cultivation in those States, as had been done in the similar Chiefships attached to the Central Provinces. The Commissioner of Excise, having complied with the order, reported that it was clearly expedient to have the cultivation of ganja in the said States prohibited, and the Government of Bengal was addressed accordingly by the local Administration. In reply, it was contended that the Garhjat ganja was much less noxious than that raised in the Central Provinces, was prepared and consumed in a different way, and consequently could not really compete with it. Local enquiry made with the object of testing the truth of this contention led to the conclusion that the drug which was smuggled into the Sambulpur district from Boad and from Gangpur was ganja proper; differed little from that grown in Nimar; was, like it, smoked, and so far from being less harmful, actually produced more lasting intoxication. The Bengal Government was informed of this result, and it then suggested the levy of a duty on all Garhjat ganja imported into the Central Provinces. In reporting on the merits of this suggestion, the Commissioner of Excise pointed out that, owing to the wild and unexplored character of the frontier and the portable nature of ganja, smuggling into the Khalsa and feudatory States of the Central Provinces was easy, and could not be checked by the imposition of an import duty, unless the local Administration entertained a preventive establishment, the cost of which would be prohibitive and altogether disproportionate to the results possible of attainment. The Chief Commissioner, after satisfying himself that the cultivation of ganja had been practically suppressed in the local feudatories, referred to the Government of India the question of suppressing such cultivation in the border States of Madras and Bengal, but was informed in reply that the local Governments did not see their way to adopting the course proposed. The only course now open, so far as the local feudatories are concerned, is to reduce the maximum of 5 tolas which may be legally in possession of any person, and this the Chiefs of Bamra, Rairakhol, and Sonpur have already expressed a desire to do. The Chief Commissioner has recently directed that the question of reducing the said maximum should be taken up for all the feudatory States concerned, and that if a reduction is decided on, it should be uniform for all. 65. The injury caused to the Khalsa revenue by unrestricted cultivation in the feudatory States within the Central Provinces and in the zamindaris the proprietors of which enjoy the privilege of administering excise arrangements themselves has already been noticed. Nothing came of the extension to those estates of the rules made in 1875 (see para. 8) and in 1880 special arrangements were made, which will be found set out in Part 2 of Appendix R to this Memorandum. Each Chief and zamindar was required to take the ganja required for consumption by his people from the wholesale vendor of a given Khalsa district, and it was stipulated that they should prohibit cultivation and issue the drug to their retail vendors at a rate at least equal to that at which issues were made to retail vendors in the neighbouring Khalsa. In the case of Bastar alone no attempt was made to arrange for supplying ganja from the Khalsa: the hemp plant was widely cultivated there, and Government did not deem it. expedient to interfere. It was because of their proximity to Bastar that the Ranker state and the Khariar and Bindra-Nawagarh zamindaris were to be supplied at rates more favourable than those fixed for the other States and zamindaris in the Jtaipur district respectively. These arrangements were fairly successful in Kaipur and Bilaspur, but in the Sambulpur States—those under Government- management excepted —and in the Chuikkadan State in Raipur, little or nothing was done towards suppression of cultivation. In 1887, when revision of the tributes paid by the Chiefs and of the settlements with the zunindars was impending, a special enquiry was made as to whether illicit cultivation had been surpressed in the feudatories. In, was found that all the Chiefs, except those of Sonpur, Rairakhol, and Chuikhadan, had carried out their undertaking in this respect; a severe warning was conveyed to the Chiefs of those States, and Rs. 3 per seer was clearly laid down for all feudatories as the minimum rate of issues to contractors or consumers. With regard to Bastar the Commissioner, Chhattisgarh Division, was directed to discuss the question of cultivation there with the Raja himself. The action taken by the Commissioner resulted in unlicensed cultivation being prohibited from 1890 onwards and licenses being granted to a few persons only each year. The object in view was to ascertain precisely who cultivated. Quite recently cultivation was entirely stopped, and ganja is now being supplied by the wholesale vendor of Raipur. 66. It was remarked in para. 52 that more than half of the recent increase in consumption of taxed ganja in the Khalsa proper occurred in the districts of the Chhattisgarh Division, and that it was due in great measure to improved administration in feudatory States. Until the year 1887 each State was under the supervision of a Deputy Commissioner, but in that year a whole-time officer, with the title of Political Agent, Chhattisgarh Feudatories, was appointed. At first. Lis supervision was restricted to six States, viz., Bastar, Kanker, Kalahandi, Patna, Sarangarh and Sonpur; but in 1888 four more, viz., Khairagarh, Nandgaon, Chhuikhadan and Rairakhol, were added. Bamra and Raigarh followed in 1890, and Kawardha and Sakti in 1892, so that all fourteen feudatories are now controlled by the same authority.
The following table shows the amount (in maunds) of ganja issued to feudatory States and zamindaris by wholesale vendors of the Khalsa during each of the past ten years:—

In 1891-92 there was a considerable decrease in the amount of ganja bought by the Makrai State in Hoshangabad; that State was taken under Government management in December 1890, and 8 1/2 maunds were then in stock. Supplies in previous years had been of uncleaned ganja, but for the past two the drug has been supplied in a thoroughly clean state. The Chhindwara statistics do not require any special comment. Those of the Chhattisgarh Division have already formed the subject of some general remarks, and it only remains to note that one reason why more Nimar ganja is now being bought by feudatory Chiefs and zemindars is that greater care is taken to ensure the supply to them of nothing but a good fresh article.
Smuggling. 67. Ganja is not, as a rule, smuggled in large quantities. Unlike opium, it is bulky in proportion to its selling value, and its peculiar and easily recognized odour makes the packing of it difficult, if concealment is desired. Very few cases of large seizures are on record. The most recent one of which this office has information was made in 1892, when 40 seers were found buried in a house in Parseoni, in the Ramtek tahsil of the Nagpur district. Parseoni is said to be a hot-bed of smuggling on a large scale; but, if this is the case, important captures should be more often effected. The quantity (20 tolas) of foreign bhang which any person may lawfully have in his possession is so large that it can hardly be worth while to smuggle that drug; but for the same reason the amount on which duty is paid must be far short of what is actually consumed. The chief consumers are Marwaris and Hindustanis: the former class travel a great deal, and can easily bring back the maximum quantity of 20 tolas, which is sufficient for 40 doses, whenever they return from visiting places where bhang is manufactured, e.g.,  Ujjain, Ajmere, and Bahraich. Considerable quantities are introduced by post also.
H. V. DRAKE-BROCKMAN,
NAGPUR; Offg. Commissioner of Excise,
The 11th November 1893. Central Provinces

 

 

APPENDIX R.
Present system under which revenue is raised from hemp-drugs.
1.—KHALSA.
(1) Sections of the Excise Act, 1881, relating to hemp-drugs.
Sec. 11.—The Chief Commissioner "may from time to time make such rules to restrict and regulate the cultivation of hemp and the preparation of intoxicating drugs therefrom as he may deem necessary to secure the duty leviable in respect of those drugs." Sec. 12.—"No intoxicating drug shall be sold except under and in accordance with the terms of a license granted under the provisions hereinafter contained. Provided as follows: (d) Any cultivator of the hemp plant may sell any intoxicating drug prepared from his plants to any person licensed under this Act to sell the same, or to any person authorized to purchase the same by the Collector's order in writing." Sec. 13.—Subject to rules made by the Chief Commissioner under the Act "the Collector may grant licenses for the retail sale of intoxicating drugs within his district or any part thereof or at any place therein." "Licenses for the sale........ of intoxicating drugs wholesale shall be granted only by such officer as the local Government from time to time appoints in this behalf." Sec. 20.—The Chief Commissioner "may from time to time make rules to regulate the grant of licenses or passes to persons possessing or transporting intoxicaling drugs for the supply of the licensed vendors of such drugs." Sec. 22.— No person shall have in his possession any larger quantity of such drugs than that specified in section 3, clause (k) [bhang, or any preparation or admixture thereof, one-quarter of a seer; ganja or charas, or any preparation or admixture thereof, five tolas] unless he is permitted to manufacture or sell the same.
Sec. 55.—The Chief Commissioner may make rules (a) as to the period for which licenses shall be granted, (b) as to the fees payable for licenses, and the times of payment, (c) as to the security to be given by licensees, (d) as to the forms and conditions of licenses, &c.
(2) Ganja. Cultiration of ganja and disposal of crop.—The cultivation of ganja is restricted to the Khandwa Tahsil of the Nimar district. Harvesting is supervised by a special establishment, and the cultivators are bound to bring the whole of their produce to the Government Storehouse at Khandwa. The drug is purchased at the store-house by the wholesale vendors of the province, the terms of purchase being arranged between the cultivators and the wholesale vendors without interference on the part of Government. Wholesale vendors of other parts of British India and foreign dealers are also freely permited to buy.
No direct tax is imposed on cultivation, but the following fees are payable at the Storehouse.
(1) Storage fees.—Payable at the rate of 6 pies per mensem by cultivators or purchasers of ganja kept in the store-house. Cultivators and wholesale vendors of ganja in the Central Provinces are exempted from the payment of storage fees for a period of 30 days following the date of their storage or purchase for transport to other districts of the Central Provinces (as the case may be). (2) Permit fees.—Payable by all purchasers of ganja other than Government licensed vendors at Re. 1 per maund of the quantity, permission to purchase which is asked for. (3) Registration fees.—Payable by all purchasers of ganja other than Central Provinces licensed vendors, at Re. 1 per maund of the quantity of which the transfer by sale is registered.
Wholesale vend. 2. Disposal of wholesale vend contracts.—Under the rules in force Deputy Commissioners are authorized to grant licenses for wholesale vend, but the practice is for them to report for approval by the Commissioner of Excise the names of the persons to whom and the terms on which they purpose to give the wholesale contracts.  
The sole monopoly of wholesale vend is given either for the whole district in lump or for each tahsil separately. If a single contractor is licensed for an entire district, he must keep an agent at each tahsil to sell on his behalf to retail vendors. Tenders are invited annually in each district by the 1st November: they must state— (1) what fee per seer, in addition to the direct duty, the applicant is prepared to pay for the monopoly of wholesale vend; (2) that the applicant is acquainted with and is prepared to comply with all the conditions of the wholesale license; (3) what security he is prepared to furnish for the due execution of his contract. The right of refusing the highest or any tender is always reserved and the acceptance of a tender by the Deputy Commissioner is, as noted above, subject to the confirmation of the Commissioner of Excise. The direct duty is Rs. 2 per seer, except in Sambalpur and the S.-E. part of the Raipur district, where it is Re. 1. 3. Supply of ganja.—As soon as the acceptance of a tender for the wholesale ganja contract of any district has been confirmed by the Commissioner of Excise, the Deputy Commissioner, Nimar, is informed of the name of the contractor, the district to which his contract relates and the average annual consumption of ganja in that district. The contractor is then permitted to buy his ganja at the Khandwa store. The purchase by any individual vendor of an unnecessarily large stock, especially towards the close of a year, is reported to the Commissioner of Excise. When a registered wholesale vendor applies to the moharrir of the store for leave to take out ganja from his stock, the excise darogha, Nimar, or in his absence, the tahsildar of Khandwa or his naib, is at once informed of the fact. The official who receives the intimation proceeds as soon as possible to the store, and with the assistance of a retail vendor or of another wholesale vendor and in the presence of the person whose ganja is to be issued selects from the latter's stock such ganja as seems fresh and of good quality (as compared with the average of the year's supply) up to the quantity which the owner desires to despatch. The selected ganja is then given out for immediate cleaning. All refuse resulting from the process is destroyed. The moharir and the police guard are responsible that only ganja thus passed for issue by the excise darogha, tahsildar or naib-tahsildar, is cleaned and prepared for despatch. The cleaned ganja is sealed up in hampers, which are weighed and numbered in the presence of the tahsildar or other official appointed by the Deputy Commissioner to supervise weighment and packing: the consignment is then forwarded to its destination under a transport pass, duplicate of which is sent to the tahsildar oft het ahsil for which the ganja is intended. After a consignment of ganja received at the head-quarters of a district or tahsil has been weighed and checked with the invoice, the tahsildar, before placing it in store, examines the quality of the consignment. If any hamper is found to contain ganja which is not fresh or is of bad quality, it is carefully marked and a report of the fact is submitted to the Commissioner of Excise through the Deputy Commissioner. No issues are made from these hampers so long as there is good ganja in stock sufficient for the local demand. Ganjaf inallys et aside is kept until the close of the year, when it is disposed of in accordance with the orders of the Deputy Commissioner, under condition 12 of the wholesale license. Ganja condemned at the Khandwa store-house is disposed of under the orders of the Commissioner of Excise. 4. Realization ofd utya nd check of wholesale vendor's stock.—Under the conditions of the license all ganja brought by the wholesale vendor into the district must be covered by a transport pass or by an import license: the ganja so brought is lodged in a store-house belonging to the licensee, one key of which is kept by the tahsildar, and it is issued from time to time to him or his agent by the tahsildar. His stock of ganja is therefore completely under control, and none of it can escape paying the duty leviable on it, such duty being the fee per seer (including the direct duty) which he has agreed to pay. The wholesale vendor is required to maintain a register of his outside balance and of his sales of ganja. This is examined and compared with a corresponding tahsil register from time to time by the excise darogha, in order to obtain information as to the quantity taken to the several shops. Ganja is issued once a fortnight. It is well cleaned before being given out, and the stalks and other refuse separated in cleaning are at once destroyed. The quantity so issued constitutes the outside balance of the wholesale vendor for current sale to retail vendors. On each occasion on which a fresh supply of ganja is issued it is the duty of the tahsildar (1) to verify the outside balance by actual weighment, and see whether it corresponds with the balance shown in the wholesale vendor's sale register, (2) to verify the balance under double lock by counting the hampers, and (3) to realize the duty on all ganja sold by the wholesale vendor to retail vendors since the issue of the last fortnightly supply. Although ganja is cleaned before issue, them eref ingeringo f it in the process of sale to retail vendors causes a residue of crumbled fragments to form. This residue, or refuse, as it is commonly called, though it is by no means useless, is small in quantity, and is not allowed to accumulate. It can be easily amalgamated with subsequent issues, if not allowed to collect andg rows tale by keeping: when it amounts to a seer or upwards it is treated as consumed ganja, and is destroyed by burning, duty being levied as if it had been sold. At the end of June and December in each year the balance of ganja under double lock is verified by the tahsildar by actual weighment. When ganja is sent by road, it is escorted by one or more police constables, whose pay while on this duty is recovered from the transporter. Each tahsil must be supplied direct from the Khandwa Central Store, and the amount in stock must never be less than will suffice for two months. Transport passes to cover removal of ganja from one tahsil to another are only granted in cases of urgent necessity. The quantity of ganja produced in the Khandwa tahsil is far in excess of what is required for consumption in the Central Provinces, and there has never hitherto been any necessity for granting an import license.
Retail vend. 5. The number of shops to be licensed in each district is fixed by the Deputy Commissioner subject to the control of the Commissioner of Excise. Ordinarily only as many shops are licensed as are necessary to meet the demands of consumers who, if a licit supply were not obtainable, would probably supply themselves with the drug illicitly. None is established in any place merely for the benefit of one or two occasional ganja smokers. In those districts, however, which are specially exposed to smuggling from foreign States shops are licensed more freely. The localities of all shops are definitelyf ixed,s ale at other localities being prohibited. The monopoly of retail vend at each locality is auctioned separately, but in large towns the shops are generally sold in lump: temporary bazar shops are generally attached to the nearest permanent shop and sold with it. The general rule is that retail shops are to be auctioned, but with the sanction of the Chief Commissioner shops can be licensed on payment of a fixed yearly or monthly fee. All retail vendors are entitled to obtain from the wholesale vendor as much good, fresh and well cleaned ganja as they require at Rs. 3 a seer, except in Sambulpur and the south-east part of the Raipur District, where they are supplied at Rs. 2 per seer. In order that the consumption of ganja at the retail shops may be watched, and that the retail vendors or their servants may be secure from molestation when taking their supplies to their shops, they are furnished with a pass-book in which the wholesale vendor enters up every purchase of ganja made from him. (3). Foreign bhang. The consumption of bhang is not general, being chiefly confined to Marwaris. Every wholesale vendor of ganja is given a license for the retail vend of this drug free of charge. Licenses are not granted to any other persons, and no wholesale vendor may import without a written permit from the Deputy Commissioner. A duty of Rs. 2 per seer is payable on all foreign bhang sold, and the rate of sale to the public must not exceed Rs. 3 per seer. Stocks of bhang are kept under control in the same way as ganja.
(4). Majum. Majum is a confection prepared from ganja, ghi, and sugar, and the use of it is for the most part confined to the Holi and Moharam festivals. Shops are sold by auction, and ordinarily the right to make and sell this preparation is restricted to the Holi festival.
(5). Registers and Returns. A register is kept in the district office of monthly sales and duty receipts in respect of ganja and bhang. The tahsildar is required to submit the necessary information at the end of the month, and obtains it from a similar tahsil register. This information is eventually embodied in the monthly and annual returns submitted to the Commissioner of Excise.
2.—FEUDATORY STATES AND ZAMINDARIS. Raipur District.—Ganja is supplied to all the feudatories (a) except Kanker, at Rs. 2 per seer through the wholesale vendor of the district. Of the price paid, Re. 1 is taken by the wholesale vendor, and the remaining Re. 1 is credited to Government. Kanker is supplied at Re. 1 (b) per seer, and the whole of the price paid is taken by the wholesale vendor. The non-feudatory zamindars generally are supplied at Rs. 3 (c) per seer (the rate of supply to licensed vendors in the Khalsa), but Khariar and Bindra Nawagarh are supplied (d)
at Rs. 2 per seer. All the zamindars make their own arrangements for the retail vend of ganja within their respective estates, and enjoy the revenue from this source. Bilaspur District.—The feudatories are supplied through the wholesale vendor of the district at 12 (e) annas per seer, the whole of which goes to the wholesale vendor. The non-feudatory zamindars are supplied at Rs. 3 (f) per seer, and, as in Raipur, make their own arrangements for the retail vend of ganja, and enjoy the revenue from this source. Sambalpur District.—Here, as in Bilaspur, all the feudatories are supplied at 12( g)a nnas per seer, the whole of which is taken by the wholesale vendor of the district. The non-feudatory zamindars do not enjoy the revenue derivable from the retail vend of ganja, all the arrangements for its retail vend in their estates being made by Government, the revenue resulting from these arrangements also going to Government. Hoshangabad District.—The feudatory Chief of Makrai is supplied with ganja through the wholesale vendor of the district, at Rs. 12 (h) per maund, the whole price going to the vendor. The retail vendors in the Chater and Pagara Jagirdaris are supplied at Rs. 3 per seer (the rate of supply to Khalsa licensed vendors), of which Rs. 2( i)a re put to the credit of the jagirdars, the balance of Re. 1 going to the wholesale vendor. The jagirdars are, therefore, practically supplied with ganja at Re. 1 per seer. Chhindwara District.—The arrangement (j) with the jagirdars of this district is similar to that made with the jagirdars of Chater and Pagara in Hoshangabad.
(a) From Secretary to Chief Commissioner, No. 2587/123, dated 13th July 1880. (b) " " " " 3908/204, " 21st October 1880. (c) " " " " 2587/123, " 13th July 1880. (d) " " " " 597/26, " 12th February 1883.
(e) From Secretary to Chief Commissioner, No. 3908/204, dated 21st October 1880. (f) " " " " 2587/123, " 13th July 1880. (g) " " " " 3908/204, " 21st October 1880. (h) " " " " 4046/221, " 3rd November 1881. (i) " " " " 1531/71, " 23rd April 1880. (j) " " " " 2816/245, " 27th July 1882.

MADRAS MEMORANDUM.

Introductory Remarks.—In September 1871 the attention of His Excellency the Governor-General in Council was drawn to the deleterious effects alleged to be produced by the abuse of ganja and other preparations of the hemp plant, and the opinions of the authorities were invited as to the expediency of restricting the use of the drugs or of even suppressing the cultivation of the plant if such a course should be found necessary. On consideration of the opinions collected, local Governments were directed to discourage, if possible, the consumption of the drugs prepared from the plant by placing restrictions on its cultivation and on the preparation and retail of the drugs. The Madras Government was of opinion that the best way of meeting the wishes of the Government of India would be to pass a law prohibiting the retail sale without license of the drugs, as the Madras Abkari Acts then in force contained no provisions for regulating the traffic in them. A Bill was accordingly introduced into the local Legislative Council in 1875, but nothing appears to have been done in the matter until the passing of Act 1 of 1886, in which the provisions and powers in the case of liquor were also made applicable to intoxicating drugs other than opium which had specially been provided for in India Act I of 1878. 2. Even after Act I of 1886 became law, the provisions therein relative to hemp-drugs were not brought into operation, probably because the use of such drugs was then considered not to be particularly prevalent. With a view, however, to bring the traffic under some sort of control, the Commissioner of Salt and Abkari Revenue issued in August 1886 a circular to all Collectors calling for information as to the extent and nature of the trade in these drugs. Amongst other matters inquiry was directed to the following points:— (a) the extent of cultivation of the hemp plant and the purposes for which it was grown; (b) the several descriptions of drugs manufactured therefrom and the processes of such manufacture; (c) the import, export, and transport of such drugs; and (d) the extent of the total consumption of the different preparations from the hemp plant. 3. The general result of the investigation went to show that throughout the greater part of the presidency the traffic in hemp drugs was unimportant, except perhaps in the Northern Circars, where alone they appeared to be used somewhat extensively, the chief consumers of the drug in the presidency being fakirs, byragis, and sojourners from Northern India. The plant was reported to be principally grown in backyards for domestic consumption and not for sale. The areas in which the plant was cultivated on any considerable scale were the Kistna district and the Javadi hills of North Arcot. In South Arcot and Tinnevelly the plant was reared solely for its fibre. Export and import of the drug as defined in the Abkari Act was practically nil, the cases met with being only those of transport between districts. As it was deemed necessary to regulate the traffic in a drug which was admittedly baneful to health, the Board, as a preliminary step, made certain proposals calculated to procure accurate information as to the extent of the trade with the least possible interference with it. They were briefly as follows:— (a) to prohibit cultivation except under license to be granted free; (b) to restrict possession by persons other than licensed wholesale and retail dealers; (c) to grant free licenses to wholesale dealers; (d) to put up to auction licenses for retail sale; and (e) to impose a pass duty. 4. In view, however, of the indefinite and uncertain information obtained regarding the extent of the traffic in the drug and the limited nature of the consumption, the Government came to the conclusion that in most parts of the Presidency no restriction was called for, but remarked that it was prepared to extend the provisions of the Abkari Act relating to intoxicating drugs to limited areas on adequate cause being shown. 5. In reporting on certain alterations necessary in the pamphlet on hemp by Dr. Watt referred to the Board for remarks, the opportunity was taken to suggest to Government that the licensing of shops for the sale of ganja on fixed annual fees of Rs. 50 in Madras and Rs. 25 elsewhere might greatly facilitate the collection of accurate information as to the consumption of, and traffic in, the drugs. The recommendation was approved, the license fees being fixed atR s.3 0 and Rs. 15 in Madras and the mofussil respectively, but the Board's subsequent suggestion to fix 40 tolas as the maximum quantity of the drug that might be possessed without license was negatived by Government, as the extension of the provisions of the Act, contemplated and sanctioned, referred only to the sale and not to the possession and transport of the drug. 6. On a representation from the Collector of North Arcot of the difficulty experienced in choosing among a number of rival applicants, and of the large profits earned by shopkeepers, which, without any risk being incurred of pushing the sale of intoxicating drugs, might be diverted to the public exchequer, the remedial measure of enhancing the license fees from Rs. 30 and 15 to Rs. 45 and 30 in Madras and the mofussil respectively was proposed by the Board and approved by Government to take effect from 1st April 1890. 7. Experience, however, showed that the demand for these drugs was considerably larger than was suspected and that the competition in certain districts for the privilege of vend was, in spite of the enhanced license fees, very keen, in consequence of which the difficulty of deciding between the claims of rival applicants was seriously felt. The Board thereupon considered that the already increased rate of license fees might be further enhanced or that the auction sale system might be adopted for ascertaining the true value of shops. As the balance of opinion among Collectors was against the continuance of the fixed license fee system as being entirely inadequate and unsuited to the object in view and as sale by auction was advocated by most of them, the Board recommended the latter proposal and suggested that a minimum retail selling price of 4 pies per tola of ganja might be prescribed as a check against licensees making undue profits by reduction of prices and stimulation of sales. Both these proposals were sanctioned by Government and effect was given to them from 1st April 1891. 8. The sale of intoxicating drugs prepared from the hemp plant having thus been placed on a satisfactory footing, the next question that engaged the Board's attention was whether, having regard to the reported increase in consumption of ganja, it would not be justifiable to impose restrictions also on the transport and possession of the drug. Closely connected with this is the question of controlling the cultivation of the hemp plant. The majority of the Collectors were for prescribing the limit of 10 or 15 tolas of ganja for possession without license, but the Board, agreeing with small minority that restrictions on the cultivation of the plant should precede those on possession, foresaw that any attempt at controlling hemp cultivation would involve the taking out of a license by every person who had a plant or two in his garden. The large undesirable increase to the existing number of shops which would have had to be sanctioned to meet the legitimate demands of consumers under the altered circumstances, as also the considerable additions which would have had to be made to the preventive force were also in the Board's opinion considerations which far outweighed any advantages which the proposed measure was expected to effect. The Board, therefore, came to the conclusion that such a regulation was neither desirable nor necessary, and the question of extending the provision of the Abkari Act to the cultivation of the plant and possession and transport of drugs prepared therefromw asa ccordingly deferred. The above is ar ésuméo ft he correspondence that has passed between the Board of Revenue and the Madras Government on the subject of ganja administration in the Presidency. 9. Administration.—The ganja administration of the Presidency is under the direct control of the Collectors of Land Revenue, subject to the central controlling authority of the Commissioner of Salt and Abkari Revenue, who is a member of the local Board of Revenue. In addition to Collectors, the Commissioner is assisted in carrying out the provisions of the law relating to ganja by the officers of the Abkari Department. The administration is regulated by the Madras Abkari Act and the rules and notifications framed thereunder. The portion of the Act relating to the sale of intoxicating drugs was extended to the whole of the Madras Presidency except the scheduled districts on 1st April 1889 and subsequently to 122 Agency villages in Ganjam, 4 in Vizagapatam, and2 4i n Godavari. There are no diverse systems of administration in the several districts of the presidency. In those portions of the Agency tracts to which the provisions of the Madras Abkari Act have not been extended, no revenue is raised on hemp-drugs, and the cultivation of the plant and traffic in the drugs are left uncontrolled. 10. The cultivation of the hemp plant (Cannabis sativao rI ndica)—Thep lant is cultivated in most districts only in back yards of houses and gardens for domestic use. In the following districts it is reported to be more extensively grown. In Ganjam, though the plant is not cultivated extensively in the district proper, the Khonds of the malarious tracts of the Goomsur maliahs cultivate it on a large scale for smoking and for barter in the low country in exchange for other commodities. The estimated outturn of ganja in the district in 1889-90 was about 1,720 maunds. In Kistna it is cultivated chiefly in the Bapatla and Bezwada taluks, the total area under hemp being about 342 acres with a yield of about 3,450 maunds in 1889. In North Arcot district the cultivation of the plant, which was very considerable in 1887—100 acres on the Javadi hiils—diminished to about 55 acres with a yield of 1,620 maunds of ganja in 1889. In the Tinnevelly district the Cannabis sativa is grown in a few gardens, but apparently to no appreciable extent, the hemp plant largely cultivated in the district being Crotalaria juncea, noted for its fibre. In Cuddapah and South Arcot the Cannabis sativa is cultivated only to a slight extent, in the latter principally forf ibre,t he area under cultivation being 5 and 30 acres respectively. Nothing is known of the extent to which wild hemp is found in the presidency, nor of its use for preparation of bhang or other narcotics. The average yield of ganja from the best description of plant is 4 1/2 visses or 22 1/2 seers of 24 tolas. The ordinary plant is not, however, so prolific as this, and the average yield may be set down at 2 visses or 10 seers of 24 tolas. As remarked in paragraph8 s upra, the cultivation of the hemp plant is unrestricted throughout the presidency. 11. Intoxicating drugs prepared from the hemp plant.—The drugs usually manufactured in this presidency from the plant are of three main descriptions— (1) Ganja. (2) Bhang. (3) Majum. Other preparations from the hemp plant, such as poornadhi laghium, ramarasam bhoja, sabja, mathai, sakkarai, billai, and alwah are more or less local synonyms of one or other of the,above 3 preparations. Ganja, bhang, and majum are prepared in various ways, the chief only of which will be noticed below:— Ganja is a preparation of the driedf lowerso f the female hemp plant, usually reduced to powder in the palm of the hand by being rubbed with the thumb of the other hand. It is generally mixed with tobacco and smoked in a "chilam" or "hooka." Bhang is prepared from the dried leaves of the male hemp plant and is usually taken as a beverage after being ground into a paste and then dissolved in some liquid, milk or water, with spices, pepper, ginger, &c. Majum is a confection made of ganja boiled in milk and then mixed with ghee and sugar. Charas, the resinous exudation from the stems, leaves, andf lowers,i s used but very rarely in this presidency. 12. Other preparations of intoxicating drugs.—In Ganjam and Bellary, a drink called mathath is prepared by mixing hempf lowersw ith opium. Mathana-kamaswaram, and poonath are medicinal preparations made from the leaves of the plant rendered palatable by the admixture of sugar, spices, ghee, milk, &c. The former is reported to be in use in Ganjam and the latter in Tinnevelly. The manufacture of intoxicating drugs is not forbidden in any part of the presidency, nor is it subject to any rules or restrictions. 13. Import, export, and transport.—Enquiries made since 1886 tend to show that there is very little or no export or import as defined in the Madras Abkari Act. but merely transport between districts. The only provinces or States from which intoxicating drugs are imported are Hyderabad, Bastar, and Banganapalle; exports are made to Ceylon, Mysore, Hyderabad, and Cochin territory. Transport between districts within the presidency is not uncommon. The above information cannot, in the absence of trustworthy statistics, be regarded as reliable. No pass duty is levied on import, export, or transport of these drugs, and without some such check there is no means of obtaining reliable information about the traffic in the drugs. There is no recognized class of importers. 14. Vague complaints of smuggling from the Ganjam district to the adjoining district of Pooree, as also from the feudatory States of the Madras Presidency into the Central Provinces, were received from the Commissioner of Excise, Orissa, and the Chief Commissioner, Central Provinces, respectively. But on inquiry it was found that the smuggling complained of by the Orissa authorities was not from this presidency. As regards the alleged smuggling from the feudatory States its very existence was not seriously asserted in the complaint and special action was not considered necessary, as the smuggling, if any such existed, was considered of too trifling a nature to render any preventive measures with the consequent expense justifiable.
*Rs. 45 in Madras andR s.3 0 elsewhere.
15. Sale.—The sale of intoxicating drugs is, as already pointed out in the introductory remarks, subject to restrictions and placed under control, only those who are licensed vendors being allowed to carry on sales. An exception is, however, made in case of cultivators who are allowed to sell their produce wholesale to persons to whom the privilege of vend has been granted (section 15 of Act I of 1886). Prior to 1st April 1891 and subsequent to 1889 licenses for sale were issued on payment off ixedf ees, but this system having been found to entail considerable difficulty and loss of time on Collectors in the choice of applicants and to be unduly advantageous to licensees, it was superseded by the present system of auction sales with the former license fees* as upset prices. In Madras town shopkeepers have also to take out a license on payment of Re. 1 from the Commissioner of Police under Act III of 1888 merely with a view to ensuring good conduct and orderly behaviour in the shops. 16. Exception of medicated articles.—Under section 71 of the Madras Abkari Act, the provisions of the Act do not apply to the sale inter alia of bond fide medicated articles for medicinal purposes by medical practitioners, in which term are included, native hakims. No abuse of the privilege has us yet been brought to notice. 17. Shops.—Information regarding the number of shops licensed each year from 1889-90 is embodied in the accompanying statement. In fixing the number of shops the Board is chiefly guided by the demand for the drug in the presidency, do more shops being licensed than are absolutely necessary. The question of area and population is considered only as bearing on the probable consumption. No considerations of pushing sales or raising revenue are allowed to operate in fixing the number. The number of shops is first determined by Collectors subject to the Board's approval and no increase to the prescribed number can be sanctioned by them without the special orders of the Board obtained in each case. 18. The sites of shops are as far as possible kept at a distance from market places, bathing ghats, schools, hospitals, places of worship and public resort, and factories. It has also been directed that in cases of alterations in the nuinbar or sites of shops in the municipalities a list of the proposed shops with their sites should be forwarded to the Council in sufficient time to admit of its remarks being received and considered; and though in the rural tracts the location of shops is at the discretion of Revenue officers, representations from District or Taluk Boards or Taluk Unions would invariably be received with attention. 19. In licensing shops care is taken to see that the traffic does not drift into the hands of opium contractors and that the grant does not lead to a monopoly in favour of particular individuals. Persons belonging to the same family were also precluded from holding interests in intoxicating drugs within the same district. But when the fixed license-fee system was replaced by the system of auction sales, the restrictions on the grant of licenses to the members of the same family, or such as would have the effect of creating a monopoly in favour of particular individuals, were done away, free competition rendering them no longer necessary. Arrack and toddy renters are, like opium contractors, disqualified from bidding at auction sales. It may here be observed that in this presidency there is no distinction between wholesale and retail shops, no limit being placed on the quantity that can be sold by licensed vendors of drugs. 20. Consumption.—In July 1889 an attempt was made to ascertain the quantity of each kind of intoxicating drug prepared from the hump plant sold during a period of four months from 1st April 1889, but as the information called for related to a period when the rules regarding the sale of ganja and other intoxicating drugs were but imperfectly known to the people in general, and as it was doubted whether in the majority of shops anything like intell gihle accounts were maintained, it was considered by the Board that no definite conclusions could be drawn from the statistics collected as to the extent of consumption in the presidency. 21. The enclosed statement shows the consumption of ganja, bhang, and other intoxicating drugs prepared from the hemp plant during 1892-93. In the existing state of the law, which restricts sale, but not the manufacture, possession, or transport of these drugs, it is unsafe to draw definite conclusions as to consumption. Moreover, the figures given in the statement are entirely based on information furnished by shopkerpers, which is far from reliable in the absence of a definite form of account, prescribed for their use. Steps have accordingly been taken in the current year for the supply of the necessary account books to licensed vendors, and Collectors have also been requested to furnish separate figures for sales under the different descriptions of drugs during 1892-93. 22. Prices—Accurate information regarding the prevalent retail prices of the different preparations from the hemp plant is not available at present, but has been called for. A minimum retail selling price of 4 pics per tola has, however, been in force since April 1891. 23. Revenue.—No direct duty is imposed on the drug. The only source of revenue is the disposal of the privilege of vend. In 1889-90 and 1890-91 it was collected in the shape of fixed fees from licensed shopkeepers, and from 1st April 1891, when the auction system was introduced, it has been realized by the auction sales of shops. 24. The accompanying statement shows the revenue derived from ganja for the last four years. The increase in 1890-91 was due to the enhancement of license fees in the year, lis. 30 in the mofussil and Rs. 45 in Madras, against Rs. 15 and Rs. 30 respectively in 1889-90. In 1891-92, the first year of the auction sale system, there was an enormous increase, brought about by reckless bids at the sales owing to ignorance of the true value of shops under the former system. The decrease in 1892-93 is but the natural reaction after the unduly high bids of the previous year.

 

BOMBAY MEMORANDUM.

The system of administration in force in the Bombay Presidency in respect of intoxicating drugs is practically uniform in the mofussil and the town and island of Bombay, but as there are some minor points of detail as to management in the hitter, which it is well should be set forth, I append the clear and succinct report of the Collector of Laud Revenue, Customs and Opium to explain those.
2. The chief points on which information is required by the Commission are mentioned— (a) in the Note attached to the letter from the Secretary, Hemp Drugs Commission, No. 29, dated 11th August 1893—vide Government Resolution in the Revenue Department, No. 6123, dated 2:3rd idem; and (b) in the series of questions appended to the letter from the Secretary, No. 34, dated 12th August 1893, furnished with Government Resolution in the Revenue Department, No. 6161, dated 24th idem. The questions in Chapters I, III, and V are in great measure amplifications of the points noted for report under head (a). Those in Chapter VI will presumably be considered and answered by medical and police experts, while those in Chapter VII relate to the administration, taxation, and control of intoxicating drugs.
3. With reference to the points mentioned in the Note, the first thing necessary, as mentioned in Chapter 1, is to distinguish between ganja, bhang, and charas. In the mofussil districts of this presidency thete is so little cultivation of the hemp plant, and, comparatively speaking, so small a consumption of the intoxicating drugs prepared therefrom, that but slight attention has been given to the difference between the three As stated, however, in paragraph 65 of the Abkari Administration Report for 1879-80, "ganja is the Hower of the hemp plant and bhang the dried leaves of the same, plant," while "charas is the juice." Whit is recognized as "bhang" in some of the districts consists of the leaves reduced to powder. Charas is practically unknown and unused in the mofussil, and hut sparsely in Bombay town. As a rule, therefor ganja, bhang, and preparations therefrom have heretofore been treated, so far as revenue licenses for import, export, &c., and consumption are concerned, as one and the same thing for statistical purpuses. One of the fullest and most, interesting reports which I have received is that of Rao Bahadur Rudraganda C. Artal, District Deputy Collector of Bijapur, extracts paragraphs 2—14 of which are appended. It gives a clear account—
(a) of the cultivation of the plant, (b) of the various preparations made from ganja. (c) of the purposes for which they are used and the classes of people who use them;
and it forms a valuable contribution to the literature of a subject concerning which but little has hitherto been ascertained in this presidency. 4. Before further discussing the various matters touched upon, I must express regret that it is impossible to obtain the statistics required by the Commission for a period of twenty years— 1st, because the administration of this particular branch of revenue has been under control for only thirteen years, 2nd, because statistics of the kind required have not heretofore been prescribed, and, 3rd, because many of the papers which would have given information have, under standing orders, not been preserved, and during the term of years from 1880 there have been many different farmers in the various districts whose accounts have passed away with their terms of office. Such statistics as are available are supplied in separate tables, but, for the reasons given above, they are not so full or so accurate as is desirable. The plain fact is that in this presidency ganja and the preparations made therefrom have not attracted very much attention either as a source of revenue, or, owing to the comparatively small consumption, as a cause of crime, or as affecting materially the moral or physical well-being of any but a very small proportion of the community.
5. The system of administration is uniform for the whole presidency, the Commissioner of Abkari is the central controlling authority, while in each district it is administered by the Collector and his subordinates in the Revenue and Abkari Departments under the provisions of the Abkari Act, V of 1878, and the rules published in accordance with sections 27 and 30 thereof under Government Notification in the Revenue Department, No. 4421, dated 23rd August 1880. That notification with the forms attached of which a copy is appended, gives in a complete and intelligible form the wholes ystemo f the administration of revenue from intoxicating drugs. It supplies almost completely answers to points (a) and (c) to (f) in the Note, and such further information as I can give will be supplementary and on matters of detail. 6. Regarding point (b) the information I have received from the various Collectors shows that wild hemp is not found anywhere in the presidency; as a consequence it is not used for the preparation of bhang or other narcotics, and it is therefore unnecessary to control the possession or sale of such drug. 7. Point (c).—The cultivation of hemp is not prohibited by law in any district, though in such districts as produce it there is a certain restriction in that the cultivator has to obtain a permit, for which, however, no fee is required to enable him to dispose of his produce. His cultivation is noted and watched by the village officers, and he cannot dispose of his crop without obtaining the necessary permit. Form B.—The districts in which hemp is grown are Khandesh, Ahmednagar, Satara, Poona, Nasik, and Sholapur in the Deccan, Bijapur in the Southern Maratha Country, and Broach and Surat in Gujarat. The cultivation, however, is on a very limited scale, as will be seen from the following table, which shows the average area under cultivation for past years so far as figures are available:— Khandesh 30 acres. 5 years. Ahmednagar 660 " 10 " Satara 335 " 13 " Poona 16 " 10 " Nasik 20 to 25 " 10 " Sholapur 38 " 10 " Bijapur 3 acres 27 gunthas 5 " Broach 29 " 10 " Surat 16 " 30 " 10 " The information under this head can be regarded only as approximately accurate, as papers relating to cultivation have not been uniformly preserved, and in several instances, e.g., Satara, the term of thirteen years is broken by an interval of five, previous to 1890-91. From ganja being cultivated almost entirely in districts where the rainfall is from moderate to scanty, it may be inferred that in those where the fall is heavy, such as the Konkan and Kanara, conditions for its growth are unfavourable. 8. Point (c).—The only importers of ganja and other hemp drugs are the licensed retail vendors, i.e., the farmers or contractors for each district or in a few cases each taluka or shop; the arrangements for import, transport, and export are stated in paragraph 3 of the notification mentioned above, and this information may be supplemented by stating that a permit has to be obtained from the Collector, Assistant Collector, or Mamlatdar, according as the drug is to be imported from outside the district, taken from one taluka to another, or from one village to another in the same taluka. When the bhang or ganja arrives it is compared with the pass by the Mamlatdar in thef irstt wo cases and by the patil in the third. The retail vendor may store the drug in his own store-room, but the Mamlatdar and Abkari officers go from time to time, and compare the quantities in store with the accounts. 9. Point (e).—The nature of the control exercised over wholesale vendors, i.e., the cultivators of hemp, and retail vendors, i.e., the contractors and their servants, and the system of licensing them have been explained above, and are further shown in the Government notification mentioned in my 5th paragraph. 10. So, too, as regards point (f). The direct tax is the levy of duty on import, transport, and export, the rates of which are specified in the notification aforesaid, viz.,R s.5  for amounts not exceeding 10 Indian maunds; Re. 1 for every additional 2 Indian maunds or fraction thereof. The indirect tax is the sum paid by the contractor for the right to sell the drug, and that of course varies according to the sumsb idi n each district. No tax is levied from the wholesale vendors, the cultivators of the plant, and without legislation prohibiting theg rowtho f the plant, I do not think that any tax could be levied, inasmuch as they pay the revenue assessment on their lands. As regards evasion by the farmers or retail sellers, they cannot possibly evade the indirect tax, because until they pay two instalments of the amounts they have bid, they cannot start their business, and if they were to fail in any of their instalments, their licenses to sell would be withdrawn. As to the direct tax, it is equally difficult for them to evade that, seeing the bulky nature of the article, the necessity for getting passes, and the series of examinations to which the consignments and the passes are subject. They have also to keep accounts, which are examined and compared with their stocks from time to time by various Government officers. 11. With reference to point( g),I  may say that the retail shops are usuallyf ixedb y the Collector of the district with regard to the area and population of the locality and the demand for the drug, and it will be gathered from what has been said above that the farm for the whole district being as a rule disposed of to a single vendor, the single shops are not sold by auction. In a few districts, however, the practice has been to sell single shops by auction, an upset price being fixed, but that practice has been stopped, and for the future the farm for the whole district will be sold to a single contractor. There is no fixed rule as to "local option." In some districts it is attended to carefully, in others the Collector uses his discretion according to the information he possesses as to the demand, but in all, any representation by the inhabitants for or against the establishment of a shop would have full consideration. Such representations, however, have seldom been made. 12. Point (h).—No rate is fixed for the sale of the drug by the wholesale to the retail vendors. That is matter of arrangement between the cultivator who sells his crop and the contractor who buys it. This may perhaps be a suitable place to describe the process of cultivation and manufacture of the plant, and in describing what takes place in Nasik, it will be seen on reading the report of Mr. R. C. Artal, mentioned in paragraph 3 above, that it closely corresponds to the description given thereof in a district so far removed from it as Bijapur. The seed is sown in July or August in black soil land, which is manured. Before sowing the land is ploughed once and harrowed, and during growth the plants are watered and weeded three or four times. Some plants, which apparently are males, seed when they are about a foot high. These have at once to be pulled up, or the whole crop would be rendered useless. Experts are required to distinguish between the male and female plants. The crop is ripe in November-December, and the leaves andf lowersa re then cut and placed by women on clean threshing floors, where, for 4 or 5 days in succession, they are carefully trodden flat by men, women not being strong or heavy enough for the work, after which process they are packed and ready for sale by the cultivator to the retail vendor. It is very difficult to say accurately what is the average retail price for consumers, as it varies considerably in the different districts, and even in talukas of the same district according to the supply of and demand for the drug. But the following statement compiled from the reports I have received gives such information as is available:—

From the above it will be observed that local ganja varies from Re. 0-3-0 to Rs. 2-8-0 per lb., that bhang is considerably cheaper, but that in Khandesh local ganja runs as high as Rs. 2-8-0 per lb., the same price as bhang imported from Ujjain, and that even the locally made bhang is dearer there than ganja in most other districts. 13. Point( i).—Them aximum quantity fixed for retail sale to and possession by one person, consumer, is 40 tolas, throughout the province, and no minimum price is fixed for the drug. That is a matter which is left to the natural law of supply and demand, and few complaints have been made regarding excessive prices. Such complaints have not infrequently been made about the price of country spirit and toddy, and the absence thereof with reference to hemp-drugs indicates not only that there is no dissatisfaction on this score, but that there is, as a rule, so small a demand for these drugs that the general public are indifferent in the matter. 14. Point (j).—The reports I have received from all districts are unanimous in saying that smuggling of these drugs is to all intents and purposes unknown. Illicit cultivation, sale, and possessionm aya lso be said not to exist. There is no reason why there should be illicit cultivation, and the crop itself is not a popular one with the cultivator as is shown by the areas under cultivation. The Collector of Khandesh reports that the area so cropped is declining and the reason is not far to seek. As the Collector of Surat puts it—"now that the sale and transport have been brought under control, only wholesale sale is allowed, and that to the licensed farmers. As ganja and bhang soon deteriorate if kept, the result is that no one grows the plant unless he has a previous contract with a purchaser. The area under the plant is confined to two or three villages, and does not extend to more than 15 to 20 acres. It is said to have been much diminished since the arrangements of 1880." The general measures taken to prevent smuggling and illicit cultivation have been indicated in previous paragraphs, i.e., the growing crops are known and watched; the cultivator cannot sell his crop save under permit and to specified persons; the Revenue, Abkari, and Police officers are entitled to examine consignments and passes for import, transport, and export; the article itself is so comparatively bulky that it could not easily escape detection by one or other of the establishments; and finally there is no such great demand for it, or so heavy duty imposed thereon, as to induce people to run the risk of detection in illicit practices. 15. Point (k).—I am not aware of any modifications of the present system in respect to hemp-drugs being under consideration. I can not see that any are urgently called for. The total revenue iss mall,m ainly because the demand for these drugs is small, and it is easily collected. No hardship is caused either to the wholesale seller, the cultivator of the crop, the retail seller, or the consumer. No hindrance is put in the way of legitimately supplying what is an undoubted want of certain classes, no encouragement is given for excessive production, and no inducement is held out to smugglers or others to indulge in illicit practices to meet the demand for the drug. So far as this presidency is concerned, the system which was devised 13 years ago has been successful in every way as I have endeavoured to show above. As to Point (l) I have in the previous paragraphs shown the extent of cultivation, and in some measure the sources of retail supply. The latter I may recapitulate as (a) the crop grown in the districts mentioned in paragraph 7 so far as it is available, and (b) the imports from the Central Provinces, small quantities from Palanpur and from Amritsar and Hoshiarpur in Northern India. The other details called for, so far as I am able to give them, will be found in the appended statement (5), under which I have entered explanatory remarks to prevent misconception of certain of the figures. 17. Turning now to the list of questions under head (b) of my 2nd paragraph, I may note that I have answered many of them in the course of this paper, and I propose therefore to refer briefly to a few only of those in Chapter V and those in Chapter V.II. Questions 23—28.—I do not gather from the information before me that bhang is smoked either in the mofussil or in Bombay City, and it appears to me, with deference, that the replies to Questions 24, 26, 28 must in the absence of a careful census be conjectural and untrustworthy. This applies also in great measure to Question 25, and although the figures of revenue from intoxicating drugs may show an apparent increase, they have to be taken with caution, as the census of 1891 shows a considerable increase of population from 1881 and the percentage of ganja consumers as ascertained from the revenue is a very doubtful factor on which to base increase or decrease. The answer to Question 31 is also purely a matter of opinion, and personal experience, either of drug consumers themselves or of those closely associated with them is necessary to answer it. Question3 2.—Ani nteresting and curious, religious custom prevails in part of Gujarat Kaira, and probably Ahmedabad, where there are many Nagar Brahmans, which is thus described by Mr. B. E. Modi, the District Deputy Collector of Kaira: "On the Shivaratri day (the last day but one of the month of Maha), sacred to the god Mahadev or Shankar, bhang water is freely poured over the 'lingam.' Mahadev is an ascetic, and is fond of bhang, and on this day it is considered a religious duty to offer him his favourite drink. From this day untilt he1 1thd ay of Ashad, on which day gods go to sleep, water is kept constantly  
dripping upon the 'lingam' of Mahadev from an earthen pot kept over it." Mr. Campbell, in paragraph 9 of his report, also alludes to the special consumption of bhang at the Shivaratri festival. The information that I have received from all districts in the presidency shows that moderate consumption of bhang mixed with water, milk, sugar, and spices into a cooling drink during the hot weather is a common practice amongst the fairly well-to-do classes, both of Hindus and Musalmans, and that (Question 33) it is not regarded as otherwise than respectable, it being a not unusual form of refreshment to offer to guests. Questions 34—36.—I have every reason to believe that it would be a serious privation to consumers to forego the use of the drug to which they are accustomed. Mr. Campbell has referred to this in his report, and he is confirmed by every Collector who has written on the subject. Ascetics, both Hindu and Musalman, are amongst the chief consumers; they have considerable influence amongst large bodies of the lower classes, who on visiting them from time to time themselves partake either of ganja or bhang without, so far as I can gather, suffering injury therefrom. If the ascetics were deprived of what they regard as a solace from many of the ills that flesh is heir to, they would scarcely refrain from expressing their sentiments very freely, and impressing their own opinions on their visitors. It would of course be possible to forbid and prevent in great measure the use of any of the drugs, but I have no doubt whatever that serious discontent, which might easily amount to political danger, would be caused by such prohibition, and by interference with the customs of men who are universally regarded, by the uneducated classes at least as specially holy. It is not improbable that prohibition of the use of these drugs would stimulate the consumption of alcohol and opium, although I do not think there is any cause to believe that alcohol is taking their place at present. There is no reason why it should. 18. With regard to the questions in Chapter VII, I have already said above in paragraph 15 that I consider the present system to be working well, and have given reasons for that opinion. It may be capable of improvement, but I am unable to offer any suggestions in that direction either as regards the cultivation and preparation of the hemp plant, its control of the present system of wholesale and retail vend, export, transport, import, or taxation. Nor does it seem to me necessary that there should be different rates of taxation for different kinds of ganja. The whole trade is too trivial to bear minute detailed taxation, so far as this presidency is concerned. Such taxation would cause harassing interference and vexation, and would result in no corresponding benefit either to the public or to the Government revenues. There are not, so far as I can ascertain, houses or shops licensed in this presidency for the sale of these drugs or their preparations, where they may be consumed on the premises, and in my opinion the grant of such licenses would be most objectionable.
T. D. MACKENZIE, Commissioner of Customs, Salt, Opium,


Extract paragraphs 2 to 14 from the letter No. 562, dated 30th August 1893, from the District Deputy Collector of Bijapur

11. In the town and island of Bombay the right to sell hemp-drugs is put to public auction by the Collector, and with the sanction of the Commissioner of Customs, Salt, Opium, and Abkari, is sold to the highest approved bidder. Notice that the right is to be put to public auction is given by advertisement in the Bombay Government Gazette and in some of the local newspapers. Printed slips are also circulated for the information of the Collectors of most of the districts in the presidency. The right is usually sold for a term of three years. A copy of the conditions under which the farm was last sold is forwarded, marked B.* 12. A.license under the Bombay Abkari Act (Act V of 1878) is granted to the farmer, a copy of which is forwarded, marked C.* The main heads of the license are:— (1) That the farmer shall pay monthly in advance 1 /12th of the annual sum for which he has bought the right. (2) That all risks of loss shall be borne by the farmer, and that he shall pay regularly all sums due.  
(3) That he shall keep shops only at places sanctioned by the Collector; that he will keep his shops open during authorized hours; and that he will open a new shop when required by the Collector.
(4) That he will make his own arrangements for obtaining supplies of drugs, purchasing from licensed persons only, and obtaining the necessary permits for the import or transport of the drugs. That he will keep such minimum stocks of drugs in his shops as the Collector may direct.
(5) That he will not sell drugs of bad quality likely to be obnoxious to the health of consumers. That he will not keep or sell balagolis or children's pills.
(6) That any stocks of drugs remaining on hand on the expiry of the license shall become the property of Government.
(7) That the farmer will keep and sell drugs at sanctioned shops only.
(8) That he will furnish the Collector with the names of his servants, and give them service certificates or nokaruámas (blank form, marked D,* herewith forwarded) countersigned by the Collector, with the clauses of the license relating to the keeping of shops attached, and that he will dismiss any servant when required by the Collector.
(9) That he will not sell more than 40 tolas of drugs to any one person on the same day. (10) That he will not receive any articles in barter for drugs.
(11) That he will not open his shops before sunrise, and that he will close them at 11 P.M. That he will close his shops when ordered to do so by the Collector or Police Commissioner, and of his own accord during a disturbance or riot
(12) That he will prevent gaming and disorderly conduct in his shops, and will not allow notoriously bad characters to frequent them. That he will give information of suspected characters to a Magistrate or to the police.
(13) That he will fix signboards at his shops. (14) That he will keep at his shops accounts of the receipts and sales of drugs, and produce these accounts whenever required; that he will furnish all returns and information required by the Collector. (15) That he shall use such weights and measures as the Collector may prescribe, and have them tested and stamped at his own expense at the Collector's office. (16) That he will not admit partners into his business without the permission of the Collector in writing.
(17) That his license may be recalled for default in the punctual payment of duty, or for infringement by himself or by any of his servants of any of the conditions of the license, or for any breach of the Abkari law. If the license is recalled, the Collector may dispose of it or not as he thinks fit, and that the licensee shall continue to be responsible for the instalments of duty. If the right of vend is transferred, the original licensee shall receive credit for payments by the new licensee up to the amount of duty still payable by the original licensee. He shall have no claim to profits made by the transfer.
13. Except that when purchasing in the Bombay Presidency, he must buy from a licensed seller, the farmer makes his own arrangements for obtaining supplies of the drugs. When he wishes to bring the drug to Bombay, the farmer makes a written application to the Collector, when an import or transport permit (forms forwarded marked respectively E* and F*) is granted on payment of the duty sanctioned, viz.:
If the quantity of the drug does not exceed 10 Indian maunds Rs. 5 For every additional 2 Indian maunds or fraction thereof Re. 1 A copy of the permit granted is sent by post to the Collector of the district from which the drug is to be brought.
14. On the arrival of the drugs in Bombay, a Sub-Inspector of the Abkari Department attends at the railway station, checks the weight of the packages, and if found correct, escorts the packages to the farmer's godown. From the godown the farmer sends the drugs to his shops under permits, a copy of which is forwarded, marked G.
15. The statement marked H* shows the number of hemp-drug shops open in Bombay during each of the last five revenue years. The shops are shown in two classes: (a) those in which drugs are sold but not consumed on the premises, and (b) those in which drugs are sold and consumed on the premises. In the greater number of shops under the (a) or drug-selling class the business of selling drugs is combined with the sale of tobacco and pán-súpari. The (b) or drug-consuming shops are places used solely for the sale and consumption of hemp-drugs. 16. Before a new shop can be opened, or an old shop be transferred from one place to another, the farmer must obtain the Collector's sanction. No opening of a fresh shop is allowed if the residents in the neighbourhood offer reasonable objections. 17. The Police Commissioner grants the police license required under Bombay Act XLVIII of 1860 for (b) or drug-consuming shops on payment of a nominal yearly fee of Re. (1) one. For the opening of a new or the transfer of an old drug-consuming shop the previous approval of the Police Commissioner is also necessary. From the beginning of the current revenue year 72 hemp-drug shops have been open, of which 52 come under class (a) or drug-selling and 20 under class (b) or drug-consuming. 18. As the sole right of sale within the island belongs to the farmer, no wholesale drug shops occur in Bombay. Under a license granted by the Collector the farmer issues to his nominees nokarnamas or service certificates countersigned by the Collector. In these service certificates all the provisions of the license relating to the working of the shops are embodied. 19. The Bombay farmer is not required to sell drugs at any fixed price. The following table shows the present rates at which the farmer sells the different drugs to his nominees and the rates at which his nominees retail them to the public:—

 That is, the retail prices show an increase of 15 to 42 per cent. over the wholesale or farmer's prices. 20. In Bombay no limit is set to the number of drug shops the farmer may open with the sanction of the Collector and Police Commissioner. In practice any increase in the number of shops is discouraged. The farmer would find it difficult to obtain sanction to the opening of a new shop, especially to a shop of the drug-consuming class. The shops are located in parts of the town where the drugs are in demand, that is, as a rule, in the most thicklypeopled parts of the town. 21. Except by such special order as is contemplated under section 17 of the Abkari Act the ninth condition of his license prevents the farmer selling to the same person on the same day more than 40 tolas of any hemp-drug. Applications for such special orders are unknown. No case is on record of any one requiring more than 40 tolas of a drug for his own use during a single day. The possession of more than 40 tolas of a drug by one person, except under the authority of a permit, is also illegal. 22. The statement marked I* shows for each of the past five years the quantities of drugs brought into Bombay by the farmer for local sale. In comparing these figures with those given in statement A* considerable deductions from the I figures must be made for wastage and loss on account of spoiled drugs. From time to time quantities of these drugs are destroyed under the supervision of Abkari officers as unfit for sale. The quantities reported by the farmer to have been consumed in the island during the last two years are believed to be fairly correct. 23. The statement marked J* shows the total revenue derived from hemp-drugs during each of the past five revenue years. A comparison of the figures given in table J* with those in table I* shows for the five years that the incidence of duty on these drugs, excluding those used in the medicinal preparations, extract Cannabis Indica, amounts to Rs. 87.4 the Indian maund, that is, nearly Rs. 2.2 the seer. The largest item of revenue is the license fee. This has steadily increased for each successive term for which the license has been granted. For the present term, starting from 1st August 1893, the annual license fee payable is Rs. 48,000, that is, Rs. 8,500 more than the same fee paid for the previous term of three years. 24. The statement marked K* shows the exports of drugs by sea during the past five years. When drugs arrive by rail for export by sea, the weight of the packages is checked by an Abkari officer at the railway station. If the weight is found correct, the officer escorts the package to the docks or bandar and hands them to the Port Trust or Customs authorities. If the drugs arrive by water for transhipment and export, the Customs authorities supervise and allow the transhipment after the Abkari Department have endorsed on the covering permit that the transhipment is free from objection. The figures under "British Indian Ports" indicate exports to ports in British territory. Those under " Foreign Indian Ports" relate to ports within the limits of Native States. 25. The smuggling of hemp-drugs into Bombay cannot at present be said to prevail to any extent. Bona fide travellers may bring into Bombay 10 tolas of drugs from places without the presidency, and any person may bring 40 tolas of drugs into Bombay from a place within the presidency. The Abkari and Opium Departments have special establishments who watch the railway lines for smugglers. The Customs Department guard the sea front of the island. The present Bombay farmer also holds the hemp-drugs farm in the Thana district, and regulates the prices at Bandra, Kurla, and Thana so as to discourage people running out by rail to these places and bringing back with them less than 40 tolas of a drug.

27. The import, export, transport, manufacture, sale, and possession of intoxicating drugs other than opium are regulated by the Bombay Abkari Act, No. V of 1878, and the rules and notifications published under that Act. Subject to the control and direction of the Commissioner of Customs, Salt, Opium, and Abkari, the Collector of Land Revenue, Customs, and Opium is charged with the collection of abkari revenue, and with the carrying out of the provisions of the Abkari Act in Bombay. In addition to its other abkari duties the Collector's abkari establishment is engaged in preventing the smuggling of hemp-drugs and their illicit sale within the island. Under the orders of the Collector, the Abkari officers also see that the farmer of intoxicating drugs pays punctually the sums due by him and that his shops are conducted in accordance with his license conditions. They check shop accounts, and exercise a general supervision and control over all matters relating to the possession and sale of hemp-drugs. 28. In conclusion I would beg to state that in this report I have endeavoured to include replies to the questions in the note attached to Government Resolution, Revenue Department, No. 6123, dated the 23rd August. Further report will, as early as possible, be submitted in connection with the schedule received with the said Government Resolution.

SIND MEMORANDUM.

(a) There is one uniform system as regards the sale of hemp drugs for the province of Sind. The privilege of retail sale of bhang, ganja, charas, and majum in two or three talukas together, or in a sub-division, or in an entire district, is put up to public auction every year by the Collector in the month of July for the revenue year commencing with the 1st August and ending with 31st July of the following year, and sold generally to the highest bidder. Care is taken that the bidder whose bid is accepted bears a good character, and is able to furnish adequate security for the due performance of the conditions of the farm. Accompaniment A* to this note is the form of license given to the farmer, who is allowed to open a certain number of shops within the limits of his farm. The retailers appointed by him for his shops are first approved by the taluka officials (Mukhtvarkars) and then 'parwanas' (permits to sell) are given to them by the Assistant Collector. The administration of the system is carried on by the Collector and his Assistants and Deputy Collectors, subject to the general control of the Commissioner in Sind. It is based on the Bombay Abkari Act, V of 1878, and the rules framed thereunder by Government and the Commissioner in Sind.

(b) The wild hemp plant is not found in the province except near the hills to the west and on the border of Baluchistan. No attempt has been made to control its possession or sale. It is rarely used as an intoxicant, though it is believed that the intoxicating drugs prepared from it are much more potent than those made from the cultivated plant. (c) The hemp plant is grown only in very small quantities and in very few localities in Sind. The largest continuous area of cultivation is in Sehwan taluka of the Karachi district, and the bhang produced therefrom supplies the wants of the larger part of Sind. There is no restriction whatever on the cultivation of bhang, but certain restrictions are imposed after the crop has been reaped, in so far that the cultivator is not allowed to convert the produce into bhang without the permission of the sub-divisional officer, and may not dispose of it by sale to any other than the licensed farmer for the particular area in which his crop is situated. Neither ganja nor charas are produced in Sind, but are imported, the former from Panwel in the Kolaba district and the latter from Amritsar. Bhang is the only preparation made from the hemp plant in Sind. The area under cultivation in the Karachi, Hyderabad, and Shikarpur districts for some years past is shown in the statement B attached to this report. (d) The bhang farmer also buys the right to import charas and ganja; he imports them under permits from the Collector and stores them in his own warehouses and distributes them among his retail shopkeepers. Supervision is provided for under the Bombay Abkari Act in the same manner as that described by the Honourable Mr. Mackenzie in his Note. On the arrival of any consignment of charas or ganja the quantity is tested and compared with the permit under which it has been imported. (e) The cultivator may be considered to be the wholesale dealer, and, as already said, he requires no license; nor does the contractor or farmer require any license beyond the general license which he buys at auction for the right to sell the different hemp drugs. The retail vendors, who are the contractor's servants, procure licenses from the Assistant Collector on the application of the contractor. The stock in hand as well as the accounts of these retail licensecs are examined by the sub-divisional officers, by the Mukhtyarkars, Abkari Inspectors, and Police officers. (f) No direct tax on bhang, ganja, and other drugs is levied; the only tax being an indirect tax in the shape of the amount for which the right to retail is purchased by auction, the amount is levied in advance by instalments. (g) The number and localities of the shops are fixed by the Collector with due regard to the requirements of each part of the district and with reference also to area and population. No fees are levied for shops, as all the shops situated in any particular district or sub-division are owned by, and are under the control of the farmer of that district or sub-division, and licenses are granted tree to persons named by him. The farmer cannot add to the number of shops when once fixed by the Collector without the sanction of the Collector, nor can he close or alter the locality of any shop without permission. There is nothing in Sind in the nature of 'local option'; but of course any representations for or against the opening of shops in any particular localities by the residents of those localities would influence the Collector's decision. But owing to the very limited consumption in Sind of the hemp products, such representations or interference on the part of the people are practically unknown. (h) No rate is fixed at which bhang, &c., must be supplied by wholesale dealers (i.e., the cultivators) to retail dealers, and the retail price varies in every district.
The following table shows the average retail price of bhang, ganja, and charas in the four districts, Karachi, Hyderabad, Shikarpur, and Thar and Parkar:— Per seer. Per seer. Per seer. Bhang. Ganja. Charas. Rs. A. P. Rs. A. P. Rs. A. P. Karachi 1 0 0 10 0 0 30 0 0 Hyderabad 1 4 0 6 6 6 25 0 0 Shikarpur 1 0 0 9 8 0 15 0 0 Thar and Parkar 1 0 0 10 0 0 30 0 0 (i) The amount fixed for retail sales to, or possession by, the consumer is 40 tolas, under Government Resolution No. 4681, dated 14th July 1888. No minimum price is fixed for retail sales of the drug. (j) A certain limited amount of smuggling of bhang takes place from Khairpur State, which is adjacent to the Hyderabad, Shikarpur, and Thar and Parkar districts, and the reason for this is that the hemp plant is cultivated and bhang manufactured and sold without any restriction in Khairpur. There is no doubt, also, that some small amount of charas and ganja is smuggled into Sind from Jesulmir through the Thar and Parkar district. No special measures are taken to prevent this smuggling, as every kind of abkari supervision is entrusted to the salt and opium preventive establishments. As for smuggling in the form of illicit cultivation of hemp or manufacture of bhang there is little chance of such occurring, because cultivation is inspected and noted by no less than three different officers in turn, viz., the Tapadar, Mukhtyarkar, and Assistant Collector, and it is easy to see that such cultivators as obtain permission to manufacture bhang, dispose of it all to the licensed vendor, and do not keep a portion of their produce for private use or. illicit sale. (k) No modifications of the present excise system in respect to hemp-drugs are under consideration, nor do any appear necessary. The reasons given in his note by the Commissioner of Customs for deprecating any interference with the present system apply even more forcibly to Sind, where the consumption of the hemp drugs is proportionately smaller than in the presidency, and where, on account of the small number of producers and licensed vendors, no hindrances or hardships have ever been experienced. (l) The extent of cultivation of bhang is shown in the statement marked B attached to this report, and it need only be observed here that the growth of the plant is practically confined to the Karachi and Shikarpur districts. From the figures* of revenue, which are at present available only for the Karachi, Hyderabad, and Thar and Parkar districts, it will be seen that during the last 20 years there has been a steady increase of revenue derived, which, seeing that the only item of revenue is the amount paid by the farmers for the right to vend, implies increased competition among bidders, and that again implies an increased demand for the drugs. The amount of revenue derived in the Hyderabad district, after fluctuating and falling considerably, is now very little in excess of what it was 20 years ago. (m) On this point it need only be said that as bhang is used in moderation by Hindus and Mahomedans alike, and as even an excessive use of it is not attended by nearly such serious consequences as an excessive use of alcohol or opium, any measures for modifying the present system, or restricting its free use by the people are likely to cause widespread discontent. Interference, however, with the present system of administration as regards charas and ganja would not be so unpopular on account of the very small extent to which these drugs are used in Sind, and because their use is generally admitted by the people themselves to be harmful.
R. I. CRAWFORD, Colonel, Acting Commissioner in Sind.

BERAR MEMORANDUM.

B.
The administration of hemp drugs in the Hyderabad Assigned Districts is regulated by the Abkari rules, copies of which have been sent to Secretary, Hemp Drugs Commission. Opium and hemp drugs in the Hyderabad Assigned Districts are treated in one farm, and where opium shops exist, hemp drugs are allowed to be sold. This farm is worked uniformly throughout all the districts in the Hyderabad Assigned Districts by the Deputy Commissioners through their tahsildars. There are no separate Excise officers to control the vend of drugs. A monopoly of the right to vend is sold by auction each year by the Deputy Commissioners under the orders of the Commissioner, and the highest bidder usually obtains it and is licensed. The opium and hemp drugs farm being sold together, the proceeds are credited to opium and drugs. No information is, therefore, separately available as to the value of hemp drugs, and hence the columns requiring this information in the appended statement C are left blank. It is, however, supposed that the revenue from hemp drugs is about one anna in the rupee, or1 /16tho f the value of the whole farm auctioned. This statement is based on enquiries made of the farmers, and as nothing certain can be obtained, I have omitted these figures from statement C. The question of separating the sales of hemp drugs from opium has been very recently taken up, and it has been decided to separate them from the 1st April 1894. I now turn to the points mentioned in the note accompanying letter No. 28, dated 11th August 1893, and take them seriatim.
Control of the growth of the hemp plant. *Notification No. 55, dated 5th August 1874.
Up to the year 1875 the cultivation of ganja and bhang was not restricted in Berar. Rules regulating and restricting the cultivation of ganja and bhang in the Hyderabad Assigned Districts weref irsti ssued* in the year 1874 and were brought into force from the 1st of April 1875. Under these rules the cultivation of ganja and bhang was strictly prohibited except under a license. The Deputy Commissioners were authorized to grant such licenses, and they had to be written on a stamp paper of Rs. 8 (to be supplied by the cultivator) without reference to the area cultivated. Under these rules the village officers were bound to make immediate reports of unlicensed cultivation, and the Deputy Commissioners were authorized to cause the destruction of such crops and plants of spontaneous growth. Cultivators of unlicensed ganja and bhang crops were made liable to a fine not exceeding one hundred rupees for each offence, and half the fines realized were made payable to informants as rewards. The effect of these rules was that the cultivation of ganja was confined to a very few villages in the Akola, Buldana and the Amraoti districts, the villages in the first two districts being mostly in the vicinity of the town of Khamgaon and those of the Amraoti district in the Morsi taluk of that district. Table A appended to this will show the extent of ganja cultivation in the Hyderabad Assigned Districts between the years 1877-78 to 189293, inclusive, and from the figures it will be observed that it has been very limited. The above rules remained in force without any change till the year 1884, when they were modified by increasing the fee for cultivation from Rs. 8 per license to Rs. 10 per acre or part of an acre cultivated. This had the effect of further curtailing the cultivation of ganja, videf iguresi n Table A. From the year 1885-86 the cultivation has gone down immensely. At the time these modifications were made the Commissioner made it obligatory on the vendors of ganja and bhang to keep accounts of their receipts and disbursements. These modifications were originally introduced as a tentative measure, but have since been continued. As it is, the amount of land cultivated is very insignificant: on an average of the past seven years it is about 55 acres per year in the whole province. The rules of 1875, therefore, with the modifications of 1884, are the rules at present in force, and so far as is known works satisfactorily.
Manufacture or importation and sale of hemp drugs.
As already stated, the farm for manufacture, etc., of hemp drugs is given out with the opium farm, and consequently these drugs are manufactured, imported, and sold by opium vendors only. The manner of manufacturing these drugs is described in the Memorandum A, which is separately submitted. The local produce is not sufficient for the wants of the province, and therefore ganja is imported usually from Khandwa in the Central Provinces, sometimes from Khandesh in the Bombay Presidency. No duty is levied on importations. On an average it is estimated that about 800 maunds of ganja is annually imported into the Province; this with the ganja locally produced is apparently sufficient for the requirements of the people who indulge in this drug. There is no means of ascertaining what portion of the population indulges in hemp drugs; therefore any calculations require us to deal with the entire census population or the total of the male and female adult population. The Hyderabad Assigned Districts' total population by last census is 2,897,040; the adult population, male and female, is 1,794,174. Now 800 maunds are on the average imported per annum, and about 500 raised locally, which gives a total of 1,300 maunds. If this were all consumed, it would mean on the whole population 14 tolas per head: on adults 23 tolas per head per annum. The 500 maunds estimated as on the average to be locally raised is arrived at by assuming that the 55 acres, the average of the past seven years, under hemp gives 10 maunds per acre. In reality the farmers' returns of consumption (column 42, statement C) are wholly unreliable; therefore I have taken the whole produce raised locally and imported, to calculate the incidence per head of consumption, as a safer guide.
Duties imposed. No duties are imposed on hemp drugs. The only revenue that is derived from these drugs is the price of the farm combined with opium and the license fee on cultivation. No fee is levied on the licenses for importation. They are granted free to the licensed vendors. The above information applies to ganja and bhang. Charas is not used in the province. There is only one kind of ganja in the province, and that is the flat ganja. (a) The system of administration throughout the province is uniform. The central controlling authority is the Deputy Commissioner of the district. The administration is carried on by the tahsildars with the assistance of the village officers. The following are Abkari officers under the rules:Deputy Commissioners, Assistant Commissioners, Tahsildars, Naib-Tahsildars, and Police officers of a rank not below that of Inspectors and chief constables in charge of police stations. (b) Wild hemp is not found in the province. (c) As above stated, the cultivation of the hemp plant for the production of ganja or bhang is prohibited except under a license. It is not restricted to any particular locality. It is evident that as the area locally under hemp is small that it is more paying to import the drug than to cultivate it. (d) The opium and drug farmers are the only importers of ganja and bhang. No charas is imported. All the Abkari officers mentioned above have power to inspect the shops established by the farmers, and to check the actual balance with the entries in the books kept; and if any irregularities are discovered, the farmers are liable to be prosecuted under the Abkari Rules, section 43. All importers of ganja or bhang are required to take out a pass from the Deputy Commissioner. No arrangements are made for controlling the storing or transport of these drugs. (e) The farmers are the wholesale and retail vendors. Those in the retail trade keep books showing their sales, and they are prohibited from selling more than 20 tolas of ganja and bhang to one person and are forbidden to allow the drug to be smoked on the premises. Their shops are occasionally inspected by Abkari officers to enforce these orders. (f) The only direct or indirect tax on ganja in this province is the money paid by the farmer and the fee paid by the cultivator for a license. The latter is recoverable as arrears of land revenue and cannot possibly be evaded. The former, if not paid, is recoverable under rule 15 of the Abkari Rules by attachment and sale of moveable property of the farmer within the jurisdiction of the Deputy Commissioner. At the time of the sales precautions are taken to ascertain that the farmer's securities are men of substance, and that they possess moveable property sufficient to cover the amount tendered by the farmer for which they go security. (g) Up to the present wherever an opium shop was permitted there hemp drugs could be sold. In future, guided mainly by the requirements of the trade, Deputy Commissioners have fixed hemp drug shops in a few localities; in all 229 shops will next year be open. This on an area of over 17,000 square miles means one shop to every 74 square miles of country.
There is nothing in the nature of local option; but if the people of any certain locality object to have a shop in their midst, the Deputy Commissioner, as against the trade, considers their objections.
(h) No rate is fixed at which the drug must be supplied by the wholesale to the retail vendor. This is left to private contract. The average retail price to consumers varies from Rs 2 per seer to Rs. 2.4 in the Amraoti District. The Deputy Commissioner of Akola gives the prices in his district as below:— Ganja 6 pies per tola. Bhang 6 pies per 5 tolas. Majum 6 pies per tola. Gulkand 5 annas per pound. The prices do not vary much in different districts. (i) The maximum amount fixed for retail sales is 20 tolas or quarter of a seer for ganja and bhang and 5 tolas for charas when sold. There is nothing laid down as to the amount of possession, and no minimum price is fixed on the drug. (j) The smuggling of ganja has seldom been detected. There is no illicit cultivation of ganja; the inspection of crops raised is too close to admit of this. (k) The only change in the present system is the separation of the farm of hemp drugs from the opium farm. (l) A statement in the prescribed form, marked C, has been prepared and submitted. From it will be seen that there is very little ganja cultivation in the province, and that no ganja or bhang is exported from Berar. The number of shops and the quantity of ganja and bhang imported and sold retail can be seen from this statement. The figures are taken from those in the printed reports. From these figures it will be seen that on an average about 1,300 maunds of ganja and bhang are annually consumed in the province. The figures in column 9 of statement C are not correct as figures of actual import for the reason given in the column of remarks of that statement. The columns showing the revenue from hemp drugs are left blank, as the information, for reasons already explained, is not obtainable. (m) I can think of nothing further worth mentioning to make the account complete.

 

AJMERE-MERWARA MEMORANDUM.

With reference to your office endorsement No. 3330-R., dated the 26th September 1893, and in continuation of my letter No. 724, dated the 16th October 1893, regarding the collection of certain information required by the Indian Hemp Drugs Commission I have the honour to state as follows. 2. As already reported in my letter quoted above, printed copies of the questions were sent to— (1) the District Superintendent of Police, (2) the Civil Surgeon, Ajmere, (3) the Revd. Dr. J. Husband, and (4) the Abkari Inspector. Answers from Nos. (1), (2), and (4) have been received and are herewith submitted. These answers will, I fear, generally not be of much assistance to the Commission. The fact is that, so far as I can ascertain, there is no one in Ajmere-Merwara who has made a study of the subject or who desires any alteration in the existing system. The Revd. Dr. J. Husband, who laid the questions before the Committee of the Ajmere Total Abstinence Association, informs me that the questions asked do not come within the scope of the operations of the society. 3. The statement called for in paragraph 4 of Mr. McIntosh's circular No. 28 of 11th August 1893 has been filled in as far as possible and is herewith submitted. The only information available, which has been given in the statement in question, is the number of shops and the amounts realized by the sale of the contract of drugs for the past twenty years. I regret that I am unable to furnish the other information required to complete the statement in respect of import, export, and sale of drugs, as no such accounts have hitherto been kept, and the present and the former contractors are unable to furnish the required figures. The hemp plant is cultivated in Ajmere-Merwara to only an exceedingly limited extent, and here and there a few plants grow spontaneously. The total amount of hemp grown in these districts is insignificant. No license fees or fixed duty are levied in these districts: the revenue is derived by selling the monopoly of the sale of drugs. 4. The points mooted in the memorandum referred to in paragraph 3 of Mr. McIntosh's circular of the 11th August 1893 are dealt with below: (1) Care is taken that the hemp plants are sold to the contractor. In the case of wild plants they are either destroyed or sold to the contractor. A copy of the rules regulating the cultivation, &c., of hemp is appended. (2) With the exception of bhang and majam, no hemp drugs are manufactured in these districts. Ganja and charas are imported from other districts, chiefly from the Punjab. (3) No duty is levied on the importation of any drugs—
(a) The controlling authority is the Collector of Ajmere. There is one uniform system in Ajmere-Merwara, which is carried on under the Excise Act, XXII of 1881. (b) A few wild plants are found here and there, but not to any large extent. The possession and sale of these plants are regulated by the rules referred to above. The plants being so few, no difficulty is experienced in controlling their possession and sale. (c) The cultivation of the hemp plant is permitted under the rules already referred to. As a matter of fact, however, but very little hemp is cultivated, and that principally by malis and the Brahmins of Pushkar. (d) The sole importer of the drugs is the contractor, to whom a license for the exclusive right of the sale of the drugs is granted. The import is covered by rawannas from the authorities of the districts whence the drugs are exported. On arrival the consignments are weighed and checked with the rawannas by the Excise officers and the police.
(e) There are no wholesale vendors here, and the contractor is the only person permitted to sell drugs by retail; he has his own shops in the district, which are under the supervision of the preventive staff: all shopkeepers employed by the contractor are supplied with 'nokarnamas' under the countersignature of the Collector. (f) The drugs contract is sold yearly to the highest bidder; no rates or other tax are fixed. In case of failure on the part of the contractor to pay the contract money, the contract is resold and the deficiency, if any, is recovered from the original purchaser. (g) As already stated the drug shops in the district belong to the contractor. Their number and sites are fixed by the Collector on application of the contractor with reference to the requirements of the people. (h) The contractor supplies the drugs to his shops in the district. The average retail prices (to consumers) are as follows:— First quality per rupee. Second quality per rupee. Bhang 1 seer. 2 seers. Ganja 16 tolas. 20 tolas. Charas 4 " 5 " Majum 32 " 40 " The prices do not vary appreciably in the different parts of Ajmere-Merwara. (i) The maximum amount of drugs for sale and possession is bhang or any preparation or admixture thereof, one-quarter of a seer: ganja or charas or any preparation or admixture thereof, 5 tolas. (j) The average number of persons prosecuted during the past three years for smuggling drugs is nine. The preventive establishment patrol the district and check smuggling on any extensive scale satisfactorily. (k) No modifications of the present excise system in respect to hemp drugs are under consideration. (l) The required statement is annexed. Explanations in regard to it have been given in paragraph 3 of this letter. (m) The system in force in Ajmere-Merwara is shortly as follows. The contract for drugs is put up every year to auction, and it is sold to the highest bidder, provided that there is no objection to the man. The contractor maintains shops for the retail sale of drugs at places fixed by the Collector with reference to the requirements of the people. But very little hemp is cultivated in AjmereMerwara, although, subject to certain rules, the cultivation is not prohibited and but a small quantity grows wild. The hemp plants are sold to the contractor. Bhang and majum are the only preparations made locally, ganja and charas being imported from other provinces, usually from the Punjab. The retail shops are supervised by the preventive establishment, who also patrol the district and successfully prevent smuggling on any large scale.

 

COORG MEMORANDUM.

The answers refer to ganja, which is called indifferently in Coorg, ganja or bhang. Charas is unknown. Only one system in the small province of Coorg. The Commissioner of the province is head of the Excise. Two Inspectors of Excise and six other officials under the Commissioner. On Act No. XXII of 1881, an Act to amend the law relating to Excise Revenue in Northern India, British Burma, and Coorg. On the rules framed in conformity with sections 11, 12, 20, and 55 of that Act, sanctioned by the Chief Commissioner of Coorg as the chief revenue authority in the province, having effect from 19th May 1882. I am doubtful whether wild hemp is actually found, but hemp springs up in the coffee near cooly lines and near the huts of the wild tribes and no one owns to its cultivation. A cooly in weeding the coffee will try to avoid pulling up the plant unless his master happens to be looking. Impossible to say with any degree of accuracy, but as the contractor has not complained, and I have had no complaints from planters as to their coolies being stupefied by the drug, probably to a very limited extent indeed. No attempt has been made to control the possession of such drug. If its sale was attempted to any extent, it would come to the ears of the licensed vendor, and the seller would be prosecuted, but I have heard of no such cases. Cultivation not prohibited, but a license must be taken out first. As a matter of a fact, however, hemp is not cultivated in the province. To none, if a license is asked and given, but, as already stated, the plant is not cultivated in Coorg. No ryot or other person is allowed to cultivate hemp without a license from the Parpattegar; the Excise and village officers would report any such case. There have been a few prosecutions of people for growing a few plants of hemp near their huts in the last two or three years. This has checked the practice somewhat. Only one-the contractor. If a ryot did cultivate for export, he would have to obtain a special pass under rule 33, but no such case has occurred. The contractor, being the sole importer, makes his own arrangements for the import, storing, and transport of the drug. For the import a license is required. Licenses are granted by the farmer, who is the wholesale vendor and has to keep accounts: the retail vendors are selected by the farmer, but must be approved by the Commissioner, who countersigns the licenses. They are visiied by the Excise officers, accounts inspected, and fortnightly returns of results reported. License holders can sell for ready money only and not more than 1/4 of a seer of ganja and 5 tolas of majum. There is no tax on ganja and other hemp drugs. The right to procure and sell ganja is leased out for 3 years to the farmer whose tender has been approved of. If the contractor fails to pay on the appointed dates the instalments due, the contract is liable to be cancelled. Besides the contract amount a fee of one rupee per mensem for each shop at Mercara and Virajendrapett, and of annas 8 in other places is paid. No special precautions against evasions are taken; the vendors who have licensed shops, even if any unlicensed shops escaped the notice of the officials, would at once bring the matter to the notice of the Excise Department. One shop has been allowed to each of the 6 taluks or sub-divisions of Coorg except to the Nanjarajpatana Taluk, in which there are two, one at head-quarters and one in the municipal town of Somvarpett. No local option is recognized. At the same time the Commissioner would never sanction the opening of a shop unless the inhabitants either petitioned for it or were willing to have it. No, the contractor makes his own arrangements. He sells at from 10 to 12 annas a seer to the retail vendors, and they sell at from 14 annas to one rupee to the public.  
Yes, a vendor must not sell to any individual in one day more than 1/4 seer 1/4 ganja and 5 tolas of majum except to the holder of a pass from a Magistrate. No minimum price is fixed for the drug. No smuggling from other provinces or from the Native State of Mysore has been brought to notice. There have been 8 prosecutions in the last two years for illicit cultivation, but they have been only small cases of a few plants found in compounds by the Excise officers. No special measures have had to be taken to prevent it. None. Is practically nil. (Extent of cultivation). Confined to the Government farmer. 41 1/2 maunds in 1891-92. Amount of probable consumption. 56 maundsin 1892-93. Rupees 798 per annum-Revenue. The Excise officers send in to the Commissioner a diary fortnightly as regards the ganja shops. The vice of ganja-smoking to excess is comparatively rare in the province. Kurumbaars, the wild tribe most addicted to it, are a peculiarly inoffensive non-criminal tribe: the Yerwars and Kapilas, who also smoke ganja, are more troublesome, though not by any means habitual criminals.

 

BALUCHISTAN (QUETTA-PISHIN) MEMORANDUM.

No. 7432, dated the 30th December 1893. From—The Political Agent and Deputy Commissioner, Quetta-Pishin, To—The Agent to the Governor-General and Chief Commissioner in Baluchistan. I have the honour to acknowledge the receipt of your office endorsement No. 6286, dated the 17th ultimo, forwarding a copy of the correspondence from the Secretary, Indian Hemp Drugs Commission. 2. In reply I beg to report that the only social body which seemed likely to take an interest in the matter appeared to me the " Band of Hope, Baluchistan," Quetta. It is comprised of men of almost all religious denominations, and the object is the total abstinence from all intoxicating drugs and drinks. A copy of the questions set forth by the Commission, together with a copy of the correspondence, was sent to the Secretary, who has written to say that "the society is not in a position to answer the questions." 3. The questions were sent to the Assistant Political Agent, Quetta, the Extra Assistant Commissioner, Pishin, and the Native Assistant, Chaman. The replies furnished by the Extra Assistant Commissioner, Pishin, is marked A. The other two officers have not answered any of the questions. 4. The questions set forth for "medical evidence" were forwarded to the following officers:— (1) Principal Medical Officer, Quetta 1 copy. (2) Agency Surgeon, for Civil Surgeon, Quetta, Hospital Assistant, Quetta, Pishin, and Chaman 4 copies. They were requested to furnish the replies by the 15th instant, but no answer has yet been received. Their replies will be submitted to you immediately they are received in this office. 5. I have recorded my own replies to the questions, which are marked B. 6. A statement was attached to the Secretary's letter No. 28, dated the 11th August 1893, which requires information from 1873-74 to 1892-93. The Quetta-Pishin district was formed only in 1883, but I regret that the figures are not available for more than three years. These, too, as far as the number of retail licenses goes, are not very accurate, the information having been obtained from the contractors. The contractors cannot furnish the quantities imported each year, nor the amount of each drug sold. One contract is given for intoxicating drugs, and the revenue derived from bhang, ganja, and charas respectively cannot be ascertained. From the statistics obtained for the first six months, April to September, of the current financial year, it appears that proportion of sales of the three articles is approximately as under:— Bhang 1 Charas 12 Ganja 1 14
7. The sale of these drugs is now regulated by the rules framed by the Revenue Commissioner on the 14th July 1893, which are embodied (vide pages 21, 22, 25, and 26) in a memorandum on the excise system of this district, a copy of which is enclosed, marked D. 8. In the third paragraph of his letter No. 28, dated the 11th August 1893, the Secretary has asked that a memorandum should be prepared setting forth clearly and fully the system of administration at present in force in respect to these drugs. To this letter a note is added containing the points in regard to which the Commission specially desire information. I beg to record below the information as far as this district is concerned:— (a) The system is uniform in the district. The general control rests with the Deputy Commissioner. The administration of the system, which is based on Act XXII of 1881 and the rules made thereunder by the Revenue Commissioner, is carried out by the Assistant Political Agent at Quetta, the Extra Assistant Commissioner at Pishin, and the Native Assistant at Chaman. (b) Wild hemp is not found in this district.(c) Hemp is cultivated to a very small extent in one or two villages of the Quetta subdivision. The produce is sold to the Government contractor. The hemp produced during the last year, 1892-93, did not amount to more than some twelve seers. (d) The contractors who obtain annually the right to sell the drugs by retail import the drugs. Permits are issued to them to enable them to import drugs from Sindh and the Punjab. No special measures are adopted to supervise the storing and transport of these drugs. (e) The system of licensing the retail vend is given in the rules referred to in the 6th paragraph of this letter. (f) The right to sell the drugs is sold annually by public auction. The amount thus fixed is recovered by monthly instalments. (g) There is no "local option." The number of shops is fixed by the Deputy Commissioner. Shops are generally allowed in thickly populated parts of the town. (h) No rate is fixed at which the drugs must be sold. The contractor fixes his own prices. The present retail prices of the drugs are the following:— Bhang Re. 1 per seer. Charas Rs. 20 per seer or 4 annas a tola. Ganja " 7.8 per seer or Re. 0-1.6 a tola. (i) The maximum amount fixed for retail sale of each drug is the following:— Bhang 1/4 seer. Charas 5 tolas. Ganja 5 " (j) No cases of smuggling from other provinces or Native States have come to my notice. (k) No modifications of the present excise system in respect to hemp drugs are under consideration.

 

 

KASHMIR STATE MEMORANDUM.

1. Cultivation of hemp does not prevail in Kashmir. 2. The hemp plant, however, grows spontaneously throughout Kashmir proper. 3. It is abundant in Wantipora, Haripore, and Anantnag tahsils of the Anantnag district, and in the Nagam tahsil of the Srinagar District, growing on both banks of the river Jhelum and Arveni and Kaimu nallahs. 4. The growth of wild hemp is ordinarily dense. Almost all wild hemp which is called Talia in the Punjab, and is generally female plant in the above-mentioned tahsils, is used for the preparation of ganja locally known by name gard bhang (chura charas). 5. The total quantity of gard bhang annually manufactured in ordinary years is about 70 maunds, but in the year Sambat 1950 the total production of ganja amounted to about 35 maunds, the hemp plant having been considerably damaged by the recent flood. 6. Four hundred maunds of fibre are annually produced, but, for reasons stated above, the total quantity of fibre in Sambat 1950 amounted to 160 maunds only. 7. Down the city on both banks of the river Jhelam wild hemp known as Kathiya bhang does not produce gard bhang (chura charas), and it is only used for its fibre and twigs for burning. 8. About 600 maunds of fibre is annually produced down the river and in the Utarmachipura and Sri Pratap Singhpura tahsils and ilaqa Magan of the Pattan Tahsil and Khinhama. 9. Zamindars pay to the lessee fixed amount as duty which varies according to the extent of the growth for the fibre and twigs of the hemp plant growing down the city and in the tahsils mentioned in paragraph 8. 10. The leaves of the hemp plant are trodden under foot, and cleaned by sieve to prepare gard bhang, and this process is continued until the leaves are reduced to powder and seeds separated. This is always done by lessee in Srinagar, where the leaves are brought to undergo this process of manufacture. 11. Manufacture and sale of gard bhang (chura charas) and fibre are auctioned, and the highest bid in the current year, Sambat 1950, amounted to Rs. 3,240.
12. The monopoly of sale is practically given to the lessee, who appoints his own men for retail sale and makes his own arrangements for control of the growth of the wild hemp plant, the production of the ganja, and for its fibre. 13. The number and sites of retail shops are not fixed, and it is optional for the lessee to open retail shops at suitable places not objected to by the people according to the requirements of the consumers. 14. The maximum quantity for retail sale to, or possession by, the ordinary consumers of gard bhang is 5 tolas. 15. No minimum price is fixed for " gard bhang," but it is usually sold at 3 pice per tola. 16. Illicit sale to, and possession of gard bhang by, consumers in excess of the maximum amount are now generally dealt with on the criminal side under the State Penal Code for disobedience of rules duly promulgated. The rules are, however, defective and make no provision for prosecuting a man manufacturing ganja without a license or destroying the wild hemp plant, or for other similar cases, or binding the lessee to keep up register of produce of the drugs and sale. Framing of the new rules as more effective preventive measures for such purposes is under consideration. 17. The illicit sale of the Yarkand charas apparently prevails, but to a very small extent, as the Yarkand charas is not liked by the Kashmiris, which is the only drug passing through Kashmir for British India. 18. The drug being usually leased, lessee makes his own arrangements for prevention of the illicit sale, as he does for the control of the growth of the plant. The contractor of duty on custom and octroi also in his own interest has supervision on the Yarkand charas to see that it passes the country sealed intact, as, if sold in the city, he is entitled to duty on the same. 19. The annual consumption of the ganja or locally known gard bhang (chura charas) is about 63 maunds, or, in other words, the entire quautity thus manufactured is locally consumed. 20. The gard bhang as produced in this province is of inferior quality, and being not liked by the people in British India its smuggling is of rare occurrence, or in fact I cannot quote a single case of this nature. 21. In the present year lessee, on account of damage done to the hemp plant by the recent flood, could not produce more than 35 maunds, and he had therefore purchased the Yarkand charas passing through Kashmir to meet the local requirements by mixing the Yarkand charas with the local produce, foreign produce being not liked by the consumers, generally. 36. The area under the wild bhang being not measured and the lessees being not required under the rules to keep up registers, I cannot furnish information by years as asked for in the statement. I, however, give revenue on account of hemp drugs for the last twenty years. I could not get any further information for compilation of the statement, and it is impossible to prepare statement without such information as far as figures by years are concerned.

NEPAL DARBAR MEMORANDUM.

There is no one in this country who cultivates only ganja, and it is not the custom to cultivate it here, because it grows wild in different places. Therefore it cannot be stated in what kind of soil it grows. There being no cultivators of it, there is no prohibition against its cultivation. A small duty is levied simply to keep down consumption.

HYDERABAD MEMORANDUM

ON THE SYSTEM OF ADMINISTRATION IN HIS HIGHNESS THE NIZAM'S DOMINION IN RESPECT TO THE HEMP DRUGS.
I.—The control of the growth of the Hemp plant. 1. The use of the drugs in question in this dominion being very limited, and having never prevailed in any considerable extent, have drawn no particular attention of the administrators to attach any special rules or regulations in the shape of law in respect of the same However, it is not allowed that any one may grow the hemp if he likes to. Though there is no particular staff to take care of growing the hemp, yet the contractors of the ganja sale monopoly watch this very keenly, and at their complaints and bringing the cases to the notice of the local Revenue authorities due action is taken to destroy the crop grown by any person for his private use. No order or any kind of license is required for growing the hemp: any one if he knows the secrets of growing and curing it can cultivate the same, but it is an understood law that he must sell the produce to the authorized contractors. There not being any strict supervision or control over this, it cannot be said that this rule is invariably and strictly observed. But at the same time it may be noticed here that there are very limited number of cultivators in a very few places in the whole terrritory who know the art of growing and curing ganja, and it is grown not more than enough for the local wants. 2. As no wild hemp has been found to grow in this country, therefore no notice about it is taken. 3. The export and import of the drugs to and from the British territories are very systematically and strictly controlled by the Custom Department, and a duty of Rs. 10 per maund is levied on the import as well as on the export of ganja and of Rs. 3-5-0 on bhang. N.B.-Only one kind of ganja, flat, is manufactured here; the broken leaves of the plant go as bhang, which is of very inferior kind. Charas is almost unknown in the whole dominion.

II.-The sale of hemp drugs. 4. The sale of ganja is controlled and restricted by giving the monopoly of it to one person or company for a limited jurisdiction. The system of giving the monopoly as a rule is uniform for the State. It is auctioned at the end of a financial year by the Revenue officers in their districts, in part and parcel for one or more years. In small districts the contract of the sale is given together with other poisons three or four [ 1. Arsenic. 2. Stryehnia. 3. Buchnag.] in number, and even with the opium, because, owing to the small sale of the drugs in question, people do not venture to take them separately. The contract for Hyderabad City is given by the Excise Department. The contract given by the Revenue officers also remain subject to the administration and orders of the Commissioners of the Department. 5. The said contractors are authorized to purchase ganja from the growers—they keep a store of it and sell it to the retail vendors, or keep their own shops in their jurisdiction. These contractors generally sublet the retail vending, and supply the drugs at some fixed or the market rates. The contractors purchase their stock from the places within the State which have reputation for growing ganja. Only in very bad years, when the ganja crop totally fails here, it is imported from the British territory, and the same cause makes it export. The custom duty on the frontier of the State is against the trade. 6. There is no restriction of any other kind in the sale of the drugs-it can be sold at any place, to any person, and up to any quantity. No site for shops is fixed by the Government authorities, i.e., the Excise or Revenue officers. In the districts no license for the shop is required and no shops are auctioned. The stock kept by the wholesale contractors and the shops of the retail vendors are under no inspection and supervision. The sale being so. small, and there being no fear or chance of any kind of smuggling, no supervision is necessary. 7. No rate of the whole or retail sales of the drugs is fixed. The average price of the who lesale of ganja has been about Rs. 25 per maund, and to the retail vendors it is sold from Re. 1 to 1 1/2 per seer, who sell it to the consumers at the rate of one tola from about 1/4 to 1/2 an oz. for a quarter of an anna, the bhang from 1 to 2 ozs. for the same money, and the majum about one ounce for one anna. As far as my inquiries go, about the same prices seem to prevail in all parts of the dominion in an ordinary year; but in a bad year, and when ganja is imported from outside of the State and for which the custom duty at the rate of Rs. 10 per maund is paid, the price rises. In some part it has been double last year, as owing to the excess of rain the ganja crop had failed. 8. No maximum or minimum price or amount is fixed by the Government for any kind of sale, or possession by ordinary consumers, or for retail sale of the drugs. 9. As enough of the hemp is grown in this country, as it is quite a cheap thing, as stated before, and as the customs duty is a great check upon its trade, consequently there is no temptation for any kind of smuggling from other provinces or any other Native State, the illicit cultivation, possession, or the sale of the drugs; hence no special measures to prevent this are necessary. 10. As the Government revenue from this source is very limited and the consumption of the drugs is not great, therefore the modifications of the present excise system have not attracted any particular attention. However, at any want of the kind being felt, due actions certainly will be taken by the Excise Commissioner.
III.—The Government revenue and the duties imposed on the drugs. Till some five years ago, the drugs in question were sold in Hyderabad City by a few shopkeepers who had enjoyed the monopoly of it for years at the payment of certain sum called "nazrana." In the districts the monopoly of the sale of them together with other poisons was also enjoyed by certain banyas uninterruptedly. The Government circular, No. 52, dated 1294 Hijri, provides that a duty from annas 2 to Rs. 3 per month will be levied on the ganja and bhang shops in the town of Hyderabad, and accordingly the nazrana or mashul was paid. From the year 1298 F=1889 A.D., this system was changed with giving the monopoly to the highest bidder. As the drugs under the standing arrangements are generally included with the contract of opium or the contract of other poisons, as stated before, therefore their separate account and statistics are not available; but the following figures and the appended statements will give a fair idea of the financial aspects of the matter under report. The statements A and B* will show the export and import for last five years of ganja and bhang respectively from and to British territory, as well as the places in His Highness's dominions subject to octroi. They prove that the trade of the drugs is not much. When the crop in this country fails, a little of it is imported, and the same case is vice versâ. The custom duty, which is Rs. 10 per maund on ganja and Rs. 3-5 per maund on bhang, is perhaps against this trade. Statement C* will show the rail-borne traffic for last five years of the drug from the tract in which the hemp is sown for the use of about two-thirds of the population of this country. Of course the statistics for the quantity carried by other means are not available. However, the figures and other facts prove that the production of the drug is very limited. For instance, in Hyderabad City and cantonment there are no more than 46 shops, and in the whole dominions only 270 shops of ganja and bhang; 28 shops of majum are at present in Hyderabad, and about 50 shops of the same are in all districts. Some of the majum shops in the districts are temporary; they make and sell majum only in Moharrum, Holi, and such other festivals. The revenue derived in the city of Hyderabad for last five years stand thus:— Rs. A. P. For the year 1298 F. 986 15 7 " 1299 F. 1,600 0 0 " 1300 F. 1,600 0 0 " 1301 F. 1,600 0 0 " 1302 F. 1,100 0 0 The monopoly of the districts has been sold for the amount as follows. This includes the sale of other poisonous drugs too:— Rs. A. P. For the year 1298 F. 10,900 9 0 " 1299 F. 9,762 3 0 " 1300 F. 10,227 7 7
The above statement is exclusive of the monopoly given by the Sarfkhas, Paigha, and Jagirs, for which no statistics are available. The Government revenue from the custom duties on the import and export of ganja and bhang for the last five years has been as follows:—

M. HOSSAIN, Director of Agriculture and Commerce, Nizam's Dominions

MEMORANDUM ON GANJA IN MYSORE 

BY MR. L. RICKETTS, EXCISE COMMISSIONER.
What variety of Indian hemp is utilized for ganja in Mysore? 1. The species of Indian hemp which is in use in the Mysore Province, under the appellation of "ganja" in Hindustani, or "Bangi-soppu" in Kanarese, is what is generally known as the Cannabis saliva of Linn. The plant is cut during inflorescence with the resin carefully preserved on the leaves, dried and made into bundles.
Cultivation of Indian hemp restricted. 2. The cultivation of the above hemp in Mysore is forbidden except under a free license granted by the Deputy Commissioner of the district on condition that, within one month after the preparation of ganja, the latter shall be sold to the licensed ganja contractor at a fair valuation, or exported under the Deputy Commissioner's pass, and that the licensee may, if he so desires, retain for his own private consumption ganja not exceeding 14 lbs., provided that the area of the land cultivated with hemp is not less than one acre. Except in three or four small plots of land in which the licensed cultivators failed from inexperience to make proper ganja, no attempt has been made by any one to grow the hemp in this province, evidently owing to the cultivators of land being ignorant as to the stage of growth when the plants should be cut so as to be fit for ganja. Therefore the ganja required for consumption in this province is imported from the Madras Presidency. Wild hemp is nowhere found in this province. Self-sown hemp is occasionally to be met with in gardens and backyards of native houses; but when found they are immediately uprooted and destroyed.
4. The system under which the revenue from ganja is derived by the Darbar is the minimum guarantee system, under which the sole monopoly of the wholesale vend of ganja for the whole province, exclusive of the Civil and Military Station of Bangalore, is given out on contract for fixed periods, on condition that the contractor of the wholesale vend shall guarantee to the Darbar that the duty payable by him on the wholesale vend of ganja and majum at the prescribed rates shall not be less than the amount guaranteed by him per annum; that he shall sell drugs only to licensed vendors; that the drugs sold shall be of good quality; that he shall always keep on hand not less than one month's supply at each wholesale shop and two months' stock at the provincial head-quarters depôt at Bangalore; that he shall carefully account for all receipts and expenditure of the drugs; and that disorderly conduct and irregular transactions at wholesale shops shall be strictly prohibited. As the hemp is practically not cultivated in this province, as explained in paragraph 2 above, the contractor is permitted to import the supplies of ganja from the Madras Presidency. The bulk of ganja consumed in this province is obtained by him from the North Arcot district of the Madras Presidency at an average cost of 2 annas per seer. No modifications in the present system are under contemplation.
Rates of duty. 5. The rates of duty payable to the Darbar on the wholesale vend of ganja and majum are as follows:— As. Ganja per seer of 24 tolas 6 Majum or any other preparation of ganja except halva per seer of 24 tolas 2 No duty is levied on halva.  
Wholesale rates.
6. The prescribed wholesale prices at which the contractor is bound to sell the drugs to licensed retail vendors are— As. Ganja per seer of 24 tolas 10 Majum or any other preparation except halva per seer of 24 tolas 4 It will be seen from the above figures that the rates of gross profit allowed to the contractor by the Darbar are 4 annas per seer of ganja and 2 annas per seer of majum. It has been ascertained that the contractor's costs per seer of ganja are 8 annas and 11 pies, so that he gains 1 anna and 1 pie on every seer of ganja sold by him.
Minimum guaranteed amounts for the current contract. 7. The minimum annual amounts guaranteed by the contractor for the current contract of four years from 1st July 1893 to 30th June 1897 are as per particulars below:— Rs. For 1893-94 12,500 " 1894-95 13,000 " 1895-96 13,500 " 1896-97 14,000
4) 53,000 13,250
Limit of wholesale vend.
average per annum. The wholesale vendor shall not sell the drugs in any less quantity than as specified below:—
GANJA. Seers.
MAJUM. Seers. In Bangalore and Mysore towns 10 5 At all other places 5 2
Wholesale shops. 9. The wholesale shops licensed free by the Deputy Commissioners of districts for the convenience of retail vendors number as follows:— Districts. No. 1. Bangalore 14 2. Kolar 9 3. Tumkur 5 4. Mysore 9 5. Hassan 5 6. Kadur 5 7. Shimoga 7 8. Chitaldrug 3 TOTAL 57
Retail shops. 10. The number of retail shops is limited to meet the wants of the consuming public. The existing retail shops are as per particulars below:— No. 1. Bangalore city 3 Rest of the Bangalore district 21 2. Kolar 18 3. Tumkur 8 4. Mysore town 6 Rest of the Mysore district 14 5. Hassan 5 6. Kadur 9 7. Shimoga 22 8. Chitaldrug 3
TOTAL 109
Rates of retail shops to population. 11. In principal towns the rates of retail shops to population are as follows:— Bangalore city, 1 to 26,762 inhabitants. Mysore town, 1 to 12,341 inhabitants. In the mofussil, excluding the above towns 1 to 46,892 inhabitants.
Retail rates. 12. The prescribed retail prices at which licensed retail vendors are bound to sell the drugs to the public are:— As. Ganja per seer of 24 tolas 13 Majum or any other preparation, except halva, per seer of 24 tolas 6 The rates of profit allowed to them by the Darbar are therefore 3 annas per seer of ganja and 2 annas per seer of majum.
License fees. 13. No license fees are levied for the retail vend of the drugs except in the cities of Bangalore and Mysore, where a fee of Rs. 3 per mensem is charged for each license.
Restrictions to retail vend.
14. The licensed retail vendor shall not sell more than 4 tolas weight of the drugs to any person during any one day. He shall not permit disorderly behaviour in his shop or premises, suffer any gambling whatever therein, knowingly permit prostitutes or persons of bad character to meet therein, or permit any person to take the drugs in any such quantity as to produce stupefaction or to consume the same in the shop or premises, or knowingly sell the same to persons keeping ganja-khanas, where people resort to smoke or partake of the drugs. He shall be bound to give information of suspicious characters to the Magistrate or Police officer.
Direction and control of the administration of ganja revenue. 15. The direction and control of the administration of ganja revenue, as well as other items of excise revenue, vest in the Excise Commissioner, the principal executive authorities being the Deputy Commissioners of districts.
The Act and Rules in force. 16. The Excise laws under which the ganja revenue is administered throughout the province under one uniform system described in paragraph 4 above are the Imperial Excise Act XXII of 1881 as amended by Act VI of 1885, and as extended to this State by Regulation III of 1885 and the rules framed thereunder.
Storing of drug, transport, and supervision. 17. The drug is imported by the contractor on duly signed passes, and, on its arrival at Bangalore, it is duly weighed and checked with the entries in the passes by the Government supervisor in charge of the provincial depôt. The drug is then stored in the provincial depôt. The requisite supplies of the drug are on written application issued to the wholesale shops under the contractor with transport passes duly signed and sealed by the supervisor in charge of the provincial depôt. On arrival of the consignments at the places of destination, the local taluk officials duly check them and make them over to the wholesale vendors concerned, who at once duly book the consignments in the prescribed registers furnished by the Darbar. The wholesale shops are from time to time inspected and the sales therein checked and verified by the inspecting officers of the department. The sales in retail shops are likewise checked and verified by the said officers. Mode of collection of duty and precautions against evasion. 18. The duty is collected in the following manner:— (1) The minimum amount guaranteed by the contractor is payable to the Darbar in 12 equal monthly instalments on or before the 20th of each month. (2) The contractor shall pay into the local treasuries of the State duty on wholesale sales of the drugs at the prescribed rates. If the total amount of the duty accruing on the wholesale sales be not sufficient in any month to make up the instalment of the guaranteed amount for that month, the contractor shall pay such further amount as may be required to make up the deficiency. On the other hand, if the said duty exceed the said instalment, the excess shall be available to make up the deficiency in any other month of the same official year, this deficiency being adjusted by short payments into the treasury when the instalment for the month is tendered to the extent of such net excess sales as may be available when such instalment fell due. If the total amount of duty due on the wholesale sales for any year of the contract period exceed the guaranteed amount for that year, the contractor shall not be entitled to the benefit of such excess. (3) To secure the duty leviable on the drugs imported and consumed the following precautions are adopted:— (a) No one shall be permitted to import or sell the drugs by wholesale except the licensed contractor. (b) Any person found in possession of more than 5 tolas of the drugs shall be liable to prosecution. (c) No person except licensed vendors shall sell the drugs in any form whatever. (d) No one except the licensed contractor shall purchase the drugs from any one permitted to cultivate the hemp. Mode of disposal of retail vend. 19. The right of retail vend is not disposed of generally by public auction. But when more than one application is received for one and the same shop, the Deputy Commissioner of the district concerned sometimes puts it up to auction. When an application for a license to sell the drugs is received, the local residents and officials are consulted; and if the want for a shop is really felt, the license is granted by the Deputy Commissioner with the previous sanction of the Excise Commissioner, the site for the shop being fixed by the Deputy Commissioner.
Preventive measures. 20. In addition to the establishment of a separate excise state for the prevention and detection of clandestine cultivation and import of ganja, the members of the Police Revenue Sayer, Octroi, and Municipal Departments have been appointed as Excise officers under sections 24 and 34A. of the Excise Act. Illicit cultivation and smuggling are not carried on to any appreciable extent. 22. The revenue from ganja for the past 20 years is as per particulars below:—

In the year 1878-79 the privilege of selling ganja in the province was partly rented out and partly worked under a system of license fees. The gradual fall of the revenue from 187980 was due to the contract system having been replaced by the amani management. In consequence of efficient preventive measures adopted since June 1889 to put down illicit cultivation of the hemp and smuggling of the drug, the revenue increased from Rs. 9,400 in the year 1889-90 to Rs. 14,197 in the year 1892-93. In 1891-92 the official year was ordered to be reckoned from 1st July to 30th June instead of from 1st April to 31st March, and therefore that year consisted of 15 months, during which period the revenue amounted to Rs. 15,517, the average for 12 months being Rs. 12,414. As the ganja contract of the Civil and Military Station of Bangalore has been given out separately by the Resident since the year 1886-87, the ganja revenue thereof is not included in the abovementioned figures from 1886-87. Consumption of ganja. The total consumption of the drugs in 1892-93 was 41,326 seers. Incidence of consumption per head of population. The incidence of consumption per head of population in 1892-93 was one-fifth of a tola. Incidence of ganja revenue. The incidence of ganja revenue per head of population in 1892-93 was ½ pie.
Comparison with arrack and toddy revenue. The arrack and toddy revenue for 1892-93 being Rs. 15,92,475-5-6 and Rs. 13,89,054-8-8, respectively, the ganja revenue for the same year is inconsiderable when compared with the arrack and toddy revenue and also with the total population of the province, excluding the Civil and Military Station of Bangalore, namely, 4,843,523 inhabitants.

L. RICKETTS, Excise Commissioner.

EXTRACT FROM MEMORANDUM REGARDING GANJA AND ITS PREPARATIONS IN MYSORE BY MR. J. G. MCDONNELL, SPECIAL ASSISTANT EXCISE COMMISSIONER IN MYSORE.

(b) Costs, profits, Government duty, hints to trader.—A maund of kulli ganja is sold for Rs. 75 or 89, while the drug imported and offered by the Government contractor sells at 331/2 per maund (25 lbs). The former is all profit as the labour is but casual tending, while in the other Rs.3 1/2t o 4 a maund go to cover the original cost, including carriage (Re 1 per maund) to Bangalore when purchased from the Government cultivator in Her Majesty's territory. If purchased from the monopoly farmer it is double that price and more. The former price, plus Government duty, Rs. 15—Rs.1 81/2t o1 91/2p er maund, or, say, roughly, Rs. 20 per maund of 25 lbs. The Mysore Government contractor's profits are thus Rs. 121/2 per maund. But this will all depend on how he sets about making his purchases, whether from the cultivator or Government monopoly farmer and in season. He should make his arrangements ere the crop is picked if he wants to purchase from the producer, while if from the monopolist he should time it, so as to secure his stock just as the new supply comes into market. If he delays, prices rise rapidly, and stocks are exported and he has naturally to pay more therefor than if secured in season. He thus loses a large slice of his profits per maund.
(c) Clandestine cultivation—cause of.—Clandestine cultivation pays well. There is no doubt that it is cultivated in backyards of many dwelling houses, hitlus (gardens attached to backyards), and in other gardens also. This is particularly the case in large towns and villages, where such privacy affords great facilities to do so. The heavy dus imposed by Government, Rs. 15 per maund of 25 lbs., and the abnormally low price across the frontier offer strong inducements to commit this fraud on the Mysore revenue.
(d) Spontaneous growth—not wild—Government patta.—It has been and is still often found in all the eight districts of this province growing spontaneously but not wild anywhere in Mysore, as in some parts of India. This spontaneous growth is most marked in towns and large villages. It is found in backyards and in dry fields and gardens. This is due mainly to the seed when thrown away on dust heaps finding its way with the manure utilized in the fields and gardens, and germinating there after the first rains set in. It is not more abundant in one district than another now. The cultivation is not restricted to any locality. It can be raised anywhere under the conditions imposed in the Government patta. The fibre can be utilized by the cultivator. The drug must be disposed of to the Government contractor less two seers, if so required, for the private consumption of the producer, but not for sale, provided one acre has been cultivated. The drug should be weighed by the village officers and disposed of in one month or it will be confiscated.
(e) Mysore suited for growth—Results in two taluks noted.—The climate and soil of the Mysore Province are well adapted for the production of the ganja plant. It has been found growing even in the Malnad after the heavy S.W. rains are over. Some first class ganja was raised 15 years ago and later in Chickballapur taluk of the Kolar district of this province. This was evidently due to the cultivator knowing when to put down the seed and how to deal with the picking and curing of the spikes properly after being harvested. A trial at Dodballapur in the Bangalore district on the other hand failed as it was harvested prematurely and the immature stuff, about 14 maunds, was destroyed. The cultivator was ignorant of the value of the plant as a fibre producer and failed to utilize even this part of the produce.
(f) Results of Ganja Rules as indicated by statistics of consumption.—The enforcement of the gania rules has removed the open cultivation of the drug and to some extent also to its growing spontaneously. The keeping of accounts has been rendered compulsory and the rules as to their retention and production " true and correct" are rigidly enforced. These returns show the consumption to be on the increase, for it was 26,554 seers seven years ago, while in 1892-93 it was 57,045 seers for Ganja and majum.
(g) Causes of rise indicated and improvements suggested.—The rise is not wholly due to either the increase in population or to more persons taking to the consumption of the drug, but partially to these two causes combined with the enforcement of the rules generally for the whole province. In the City and Station of Bangalore, however, this increase is not so marked as in the outlying districts, but the reverse. The Government returns, however, do not at all represent the actual consumption, as both the clandestine production of the drug in the Province and the import thereof prevail to a very considerable extent. This is mainly due to the superior qualify and freshness of the contraband "kulli" or " mulki" stuff over the stale and very inferior article offered by the Government contractor. The lack of encouragement afforded to informers and the very light sentences passed by the Magistracy for this offence greatly conduce to the rules being infringed as also to the existence of clandestine culrivation which is hard to detect and the import of the contraband drug which can be readily done with impunity. The Excise staff is too weak to cope with this evil, and but little encouragement is given to the men to stimulate their zeal. 1 proposed that the price of opium be raised to that at which it is sold in Her Majesty's territory, and that the price of ganja in the latter be raised to that sold in Mysore. This would remove the inducement of opium, the property of the Mysore State, after being sold to the shop-keeper, being smuggled into Her Majesty's territory; while ganja raised in Her Majesty's territory will not then find its way into Mysore. Both Governments would be benefited and each would be restricted to its own legitimate wants, and know its own consumption more accurately. To ensure both Governments realizing a fair and just revenue from this source the production of ganja must be worked on the same lines as opium is with special concession to those who want to raise the plants for fibre only. In that case the village Revenue officers should see that Government revenue does not suffer by the disposal of the drug to the consumer or retail dealer, but only to the Government farmer. The surplus crop of drugs should be destroyed after 6 months if not sold to the farmer or exported. Preserved as it is in bulk and so carelessly secured from atmospheric air it rapidly deteriorates and becomes stale and unfit for use as the resin is dissipated. The drug turns black and mouldy and becomes noxions. The matter of equalizing the prices of I the two drugs was referred to the Resident by the Durbar, but I am not aware of result. In large towns I suggested that the Municipal and Octroi owners be invested with powers of "Excise othcers." They might be paid by results in the shape of rewards. Government approved of the step, but local action does not appear to have been taken. Considering that Government have made over several items of revenue to local bodies and in some places also the license fees on spirits, while mohatarfa as a separate cess is levied on drug-shops, the casual aid of such Municipal officials might, with propriety be legitimately claimed by Government from such local bodies, especially as this will not interferc with their legitimate duties as the aid thus given will only be occasional.
(h) Preparation of fiber and its market value.—All that is required to prepare the fibre is to strip the leaves off and sever the branches, leaving clear switches or canes. These are tied into sheaves and cast, into the first convenient pit of water and allowed to soak there. When the rind slips off readily between the fore-linger and the thumb pressed against the branch it is ready to be removed. This rind is beaten or trampled with the foot in the water to remove the outer coming. The result is a clean soft fibre which makes excellent cordage, cloth for packing, and bags for grain, &c. The following extract from Dr. Balfour's Cyelopodia (pages 43 and 44) will prove interesting and gives the market price of the fibre in England and Lahore:—
Agricultural and Commercial. "The hemp plants grow in Persia, Syria, Arabia, and throughout India. In some places for its fibre; in others, and generally, for its intoxicating products. In Kangra and the Punjab it grows spontaneously and in abundance everywhere in the submontane tracts in the Sutlej Valley, between Rampur and Sanganam, at an elevation of 3,000 to 7,000 feet, hut is cultivated for the fibre only in the eastern portions of Kangra and Simla Hills. In 1859 an experimental consignment of two tons of Himalayan hemp was valued in the English market at from £30 to £32 perton. The price at Lahore is about £15 to £16 per ton."
IV.—Ganja Statistics.—The following tables I and II give the consumption of drugs in the province and the Civil and Military Station of Bangalore for the past 7 years and Government revenue for the same period respectively. The contractor is bound to pay a fixed guaranteed amount yearly which is obtained on tenders. This is realized in twelve monthly instalments. Fees of six and two annas per seer of ganja and majum respectively sold to licensed retail dealers are levied. If a larger amount is obtained by the rates prescribed than that guaranteed yearly, it is retained by Government, and booked as "excess sales" for that year. This additional precaution was adopted from the 1st April 1889 with advantage to Government:—

MEMORANDUM BY COLONEL MAGRATH, DISTRICT MAGISTRATE AND COLLECTOR, CIVIL AND MILITARY STATION OF BANGALORE.

The system which controls the sale of the drugs commonly known as ganja and majum in the Civil and Military Station is almost the same as that prevailing in the Mysore State. Up to 31st March1 886t he contract of the Civil and Military Station for raising Government revenue was joint with that of the Mysore Darbar, the assigned tract receiving its share proportionately on the population. Since 1886-87 the contract is distinct, but the Darbar's subordinate executive staff for city also exercise supervision over the wholesale and retail drug shops in the Civil and Military Station under the orders of the Collector, the cost of establishment being also proportionately adjusted annually between the two tracts. The rules framed (copy enclosed) by the Resident under the Excise Act provide for the control of the growth of the Indian hemp plant from which ganja is prepared; there was no occasion to issue a license for its cultivation. The drug is easily imported by the licensed contractor from Vellore and Cocanada in the Madras Presidency. The Cocanada drug is much appreciated by the consumers in this province; better sales and greater revenue are effected by such drug. The bulk of the drug imported lately has been that of Vellore. Appendix N of the ganja rules gives a full description of the drugs known in this country as ganja, majum, and bhang used by consumers in Civil and Military Station. Charas is little known in this country. (a) The system obtaining in the Civil and Military Station is briefly stated above. The chief executive officer is the Collector; the Resident is the chief controlling authority. Act XXII of 1881, as amended by subsequent enactments and the rules framed thereunder by the Resident, is the law on which the system is based. (b) Wild hemp is scarcely grown in Civil and Military Station. Any plant found growing spontaneously is uprooted by the Excise officers and destroyed under the Collector's orders. (c) The cultivation of the hemp plant in Civil and Military Station is interdicted, but there were two or three instances within the last seven years in which persons, in spite of Government order to stop the growth, allowed the growth of one or two plants in each case in the backyards of their houses and in the fence of their gardens. They were prosecuted and punished. (d) The importer of the ganja drug is the contractor for Civil and Military Station. He is also the wholesale vendor. Whenever the contractor wants to lay in a stock according to the terms of his agreement, an import pass is issued by the Collector for the required quantity. This pass is produced by him before the executive revenue officer of the district from whence the drug is imported. He is thereafter allowed to purchase the drug to the extent permitted in the import pass. On the arrival of the consignment of the drugs in Civil and Military Station, the Government Head Supervisor verifies the quantity with the Collector's pass and then it is booked and stored in the Government warehouse. The daily issues by the wholesale to retail vendor are checked by the Excise officers. (e) The wholesale and retail vendors are under the control of the officers of the Excise department. They are licensed; full details of the conditions and restrictions will be found in Appendices B, H, and I of the Ganja Rules. (f) The tax or duty on ganja is levied through the licensed contractor. The contract generally extends for a period of three years at a time. Government duty is fixed at the rate of 6 annas for ganja and 2 annas for majum on a seer of 24 tolas. The contractor guarantees a fixed minimum annual revenue to Government which he is allowed to pay into Government treasury by twelve equal monthly instalments. If the sales in any month are found to realize more than the guaranteed revenue for that month, then an excess fee at the above rate is levied from the contractor; if deficient, the contractor will make good. He is, however, allowed credit for this deficiency in excess sales (if any) in any subsequent month within the same official year. Illicit smuggling of ganja tending to evasion of payment of duty is made punishable. All officers of police and municipality take precautions against smuggling; persons detected are prosecuted by the Excise executive officers before the magistracy. (g) The sites for retail shops aref ixedb y the Collector in consultation with the District Superintendent of Police, who makes a local inquiry as to the complaints of general public and other objections to the opening of the shop in a particular locality; the Collector's sanction will be based on the result of such inquiry. They are not auctioned. No upset prices are fixed. The number is determined with reference to the area and population. The present number in the Civil and Military Station is 6. Nothing in the nature of "local option." (h) The rates at which ganja is sold in Civil and Military Station to retail vendors by the Government contractor (wholesale vendor) are— As. Ganja 10 per seer of 24 tolas. Majum 4 The rates at which the vendors sell to consumers are— As. Ganja 13 per seer of 24 tolas. Majum 6 per seer of 24 tolas. (i) The maximum amount sold to a consumer is limited to 5 tolas in one day; any quantity over this required for special purposes must be purchased under the Magistrate's pass. The prices are those fixed by Government (vide h). Sales over and below the fixed price are made punishable. (i) The careful check placed by the officers of the Excise, Police, and Municipality prevents illicit cultivation, smuggling, and illicit sale. Such instances are rare in Civil and Military Station. (k) No modification of the present system is under consideration. (l) The following table shows the quantity of imports of drugs from the Madras districts, the sales, and the amount of revenue from 1886-87 (the year from which contract was separated from that of the Darbar) to 1892-93:— Import. Sales. Government Mds- of Seers of Mds. Seers. revenue. 40 seers. 24 tolas. RS. 1886-87 200 8 *2,200 1887-88 194 28 2,200 1888-89 206 14 2,200 1889-90 189 35 2,800 1890-91 198 30 2,800 1891-92 192 8 2,800 1892-93 168 35 3,000
* To these must be added the amount of revenue on excess sales up to 1801-02.
21st September 1893.

BARODA STATE MEMORANDUM

38. It is said that this plant was sown largely in various places. But the restriction placed by the British Government on exportation obliged the cultivator to give up cultivation. It is now cultivated in one village, Bhadran, where bhang is made for home consumption. No narcotic hemp is cultivated either for the production of charas or its flowers and seeds. The cultivators are an ordinary class of Kunbis. 39. The following is the extent of the cultivation of bhang and its annual yield for the last six years:—

Years. Extent in bighas. Yield in maunds.
1888 6 15 9 60mds 1889 12 11 13 125 1890 12 17 3 130 1891 1892 0 17 1 10 1893 9 14 6 68

40. Two pounds of the home-bred bhang is herewith sent as a specimen for favour of being forwarded to the Secretary, Indian Hemp Drugs Commission.
Preparation and manufacture. 41. Bhang is the only product prepared in this State. Various other preparations are made from ganja, garda, and bhang. They were formerly made by the Tambolis and the Gandhis, but at present prepared by the license holder.
55. Before February 1892 there were no restrictions placed either on the importation or exportation of bhang and ganja, the importer had but to pay the customs duty.
56. The number of shops was not fixed nor was the sale or export regulated. Everybody on payment of import duty was free to deal in the drug as he pleased. Hence the quantity disposed of in home consumption and quantity exported cannot be ascertained.
57. Ganja and bhang were then sold in every shop of the Gandhi and Tamboli, except in places where the bhang and ganja were much used. In such places the right of selling these drugs was leased out to the highest bidder and large consumption was thus brought partly under control and excessive use restricted.
58. A large quantity of bhang and ganja was then exported from His Highness' territory by traders to the surrounding Native States and much profit was made by them.
59. The export trade has now become extinct since the publication of the Notification No. 10, dated 10th December 1891, which put a stop to importation or exportation by any person other than licensed vendor for each division.
60. Bhang and ganja which appeared in every shop of the Gandhi and Tamboli are now only sold in the shops licensed for the purpose.
61. The number of shops in each division is fixed and the sale of bhaug and ganja is regulated.
62. The following translation of the agreement will give a better idea of the restrictions placed upon the sale and manufacture of bhang and ganja by the Government farmer:— "I pass this agreement in writing that my tender for the exclusive right of selling bhang, ganja, and the preparations thereof at the appointed shops, a list of which is herewith annexed in all the talukas of the Prant, for a period of three years from 1st August 1893 to 31st July 1896, is accepted on condition of my paying into the Government treasury an annual sum of Rs. British currency, I bind myself to act according to the terms of the agreement mentioned below.
2. The following are the instalments by which the amount of the izara, namely, the sum of Rs. British is to be paid to Government:— I shall pay to Government the sum of Rs. British annually, being the amount of the instalments aforesaid within the 15th of next month of the instalments falling due. If I shall fail to pay within the said dates, I shall pay interest at the rate of 6 1/4 per cent. per annum on the amount of the instalment from the day next after the one on which it falls due. If the interest and the amount due be not paid in due time, Government are at liberty to recover them according to the rules for the recovery of arrears of land revenue and annul the contract.
3. I shall not be entitled to compensation if any loss is incurred by the failure of season or any other causes. The responsibility of the loss rests on my head, nor shall I claim any remission from the amount of the izara on account of such loss. 4. I shall open shops at such places as are mentioned in the list or at places which shall be fixed by the Subha of the district. I shall keep such shops open from sunrise till 9 o'clock P.M. I shall open and maintain new shops and close existing shops as may be required. I shall not complain of any loss that may accrue by such proceedings. 5. As I have farmed the right of selling bhang, ganja, and the preparations thereof, I shall make my own arrangements for procuring them. I shall not purchase these articles from persons who do not possess a license from this Government for selling them other than the cultivators of bhang and ganja in this State. In case I have occasion to import or export these articles into or from foreign territory, I shall import or export them in accordance with the rules laid down in Notification No. 10, dated 10th December 1891. I shall keep in store such quantity of the articles as shall be directed by the Subha of the district.
6. If it shall be found necessary to store bhang, ganja, and the preparations thereof in one place, I shall store them in such a place ofo fd epôta s shall be fixed by the Subha of the district. Articles issued from such a place of depôt for retail sale shall be removed and transported under a permit from the Subha or such other officer as authorized by the Subha to grant such permits. I shall keep accounts of them for each sale in accordance with the annexed form A shown to me. 7. The Government are at liberty to destroy such bhang, ganja, and other articles as are in the opinion of the Subha of the district injurious to the health of the consumers.  
8. I shall not be entitled to claim the remaining stock of bhang, ganja, and the preparations thereof which shall remain at the expiration of the term of the farm or when it is annulled. Such balance shall be considered to be the property of Government, and the Subha of the district shall take it in his possession, and such portion of the bhang, ganja, and the preparations thereof thus taken in possession by the Subha, as is injurious to the health of the consumers shall be disposed of in accordance with the preceding clause 7, while the rest of the articles shall be made over to the new farmer at a price fixed by the Subha and the price thus adjusted shall be accepted by me.
9. I shall not sell bhang, ganja, and the preparations thereof at other shops or places than those already appointed. 10. I shall not sublet any shop or shops reserved for the sale of bhang, ganja, and the preparations thereof without permission of the Subha of the district. I shall not employ for the retail sale of bhang, ganja, and the preparations thereof any person, for whose employment I may not have previously received written sanction. I shall receive this sanction from the Subha of the district or from some other officer authorized by the Subha to grant such sanction before employing any person for retail sale. 11. I shall not, without permission of the Subha of the district, sell more than a seer of 40 tolas of ganja or the preparations thereof, or more than 2 seers of 40 tolas each of bhang or the preparations thereof, to any person in one day. 12. I shall not receive any articles other than cash, or keep anything in pledge in barter for bhang, ganja, or the preparations thereof. I shall sell bhang, ganja, and the preparations thereof for the money that is current in each place. 13. I shall not open any shops for the sale of bhang, ganja, or the preparations thereof, or make sale therein after 9P .M.a nd before sunrise; nor shall I harbour any person of bad repute in the shops. 14. I shall not permit persons of notoriously bad character to resort to my shops, nor shall I permit gambling or disorderly conduct, or indecent behaviour therein. I shall forthwith give information to the nearest Magistrate or Police officer of any suspected persons resorting to my shops. 15. I shall have always fixed up in a prominent place at the entrance of my shops a signboard bearing the following inscription in legible characters in the vernacular language:— 'Licensed shop for the sale of bhang, ganja, and the preparations thereof.' 16. I shall keep daily accounts printed in form B bearing the seal and signature of the Subha of the district or the Vahivatdar of the taluka, and shall daily enter the amount of articles sold in it. Besides this I shall furnish on demand by the Subha of the district such other accounts, returns, and information respecting the dealings as the Subha may require. 17. I shall, on being asked by any officer authorized to do so, produce for inspection the license I have received as well as the bhang, ganja, and the preparations thereof in the shops or in the depôt, and the accounts kept in accordance with the rules in force. 18. I shall keep in possession the proper weights for selling bhang, ganja, and the preparations thereof, and get them stamped at my own expense and shall produce them for inspection on demand by any officer authorized to do so. 19. I shall receive the balance of bhang, ganja, and the preparations thereof in the possession of the previous farmer for the prices fixed by the Vahivatdars of the talukas and shall pay the prices to the Vahivatdars. 20. I shall pay the customs duty or any tax on bhang, ganja, and the preparations thereof that may have been or may hereafter be levied. 21. If I or my servants or agents shall violate the conditions of the agreement, I shall be liable to a fine which may extend to Rs. 200; if the fine be not paid, Government is at liberty to recover it as an arrear of land revenue. And if I or my servants or agents act in contravention of, or omit to act in accordance with, the conditions of the license, or the terms of the notification issued in this connection, I shall, in addition to our liability to criminal prosecution, be held responsible for any acts or omission unless and until I prove that due precautionary measures to prevent such commission or omission were adopted. 22. If I or my servants or agents shall violate any conditions of the license or the terms of the notification issued in this connection or be convicted of an offence under any law, the license shall be liable to be withdrawn. 23. If my farm is cancelled or if I fail to fulfil the conditions before its term expires, Government shall make such arrangements as it thinks best; I shall make good any loss which Government may incur by such proceedings without being entitled to any compensation. 24. When the farm is thus annulled, all the bhang, ganja, and the preparations thereof remaining unsold shall be made over to the Subha, and shall be duly disposed of by him, and the vessels, packages, and conveyances which may have been seized shall be returned to me within two months after I shall have made good the whole loss. 25. If I fail to carry out the farm before its term expires according to the conditions of the agreement, I shall pay from my own property any sum that may be found to be due from me; and if this sum cannot be recovered from me, Government are at liberty to recover it from the amount deposited by me. 26. I shall deposit in the Government treasury a sum of 15 per cent. on the amount of the izara. 27. In case of any dispute which cannot be settled by a reference to these terms, I agree to any settlement that may be arrived at by a reference to the rules of auction sales in force." 63. The following statement will show the number of shops fixed and the number of shops opened by the farmers:— Number of shops fixed. Number of shops opened Baroda 124 51 Kadi 95 18 Navsari 27 20 Amreli 13 12
69. The use of bhang and ganja is on the decrease in the State as will be clear from the quantity imported for sale during the last five years in each division, the reason for the decrease being increase in the price of these drugs. 70. The following is the quantity imported in all the divisions for the last five years:—

 
71. Since the introduction of the new system, the sale has very much fallen off on account of the rise in the price of bhang and ganja. Before introduction of the present measure, ganja was sold 4 tolas per pice, and now it is below one tola. Bhang was sold then 8 tolas per pice and it is now sold two tolas per pice. 72. Several persons have deposed in the course of the inquiry that the bhang and ganja have become dearer than what they were before, and that they are therefore consuming less than before, a fact not to be lost sight of that heavy duty on intoxicants lessens the consumption—a safer course to be adopted than total prohibition.
165. There is no cultivation of hemp drugs in the Baroda State except in one place to a very small extent. 166. No restrictions are placed on cultivation, nor are they necessary, as cultivation has died out of itself for causes beyond the control of His Highnesse's Government. 167. However, there is a safeguard provided that in case of any cultivation, the produce should be sold to none but the Government farmer. 168. The administration in regard to the import, export, and sale of bhang and ganja is based on the Notification No. 10, dated 10th December 1891. A translation in English is given below for easy reference, and for fully understanding the rules in force—
NOTIFICATION NO. 10. "By order of His Highness the Maharaja Saheb it is hereby notified that, whereas there is no restriction at present in the State as regards the places in which and the prices at which bhang, ganja, and the preparations thereof should be sold, and there is consequently a likelihood of these articles being misused, and whereas Government is anxious to prevent such misuse, it is hereby enacted as follows:— "2. That except those persons who cultivate bhang or ganja in this State, no person shall without permission of the Subha, have in his possession, or in any place, more than a seer of 40 tolas of ganja or the preparations thereof, or more than 4 seers of 40 tolas of bhang or the preparations thereof.
"3. That except those who cultivate bhang or ganja in this State, and those persons or their agents who may have been licensed by the Subha to sell bhang, ganja, or the preparations thereof, no person shall sell the aforesaid articles. "4. Cultivators of bhang and ganja in this State are permitted by the last preceding clause to sell bhang, ganja, or the preparations thereof. But these articles shall be sold only to those persons who shall have been licensed by the Subha to sell them, and to no other persons. "5. Any person desirous of having in his possession, or of transporting from one place to another in this State, a larger amount of bhang, ganja, or the preparations thereof than what is permitted by the preceding clause shall obtain a license from the Subha for so doing. "6. Any person cultivating bhang or ganja, who sells bhang, ganja, or the preparations thereof to persons other than the licensees, or any person who possesses without a license from the Subha more than a seer of ganja or the preparations thereof, or more than 4 seers of bhang or the preparations thereof, or who sells without a license from the Subha, bhang or ganja, or the preparations thereof, or transports them from one place to another in this State without a license from the Subha, shall on conviction before a Magistrate be liable to be punished with fine which may extend to Rs. 200 or with simple imprisonment for a term which may extend to three months; and the articles seized (that is bhang, ganja, or the preparations thereof) shall also be liable to confiscation. "7. Inamdars, jaghirdars, and other hakdars, who may be in the enjoyment of the rights of possessing, selling, or causing to be sold, bhang, ganja, or the preparations thereof, and who may suffer loss by the withholding of those rights, shall lay their claims for compensation before the Subha within one year from the date of this notification. "8. Any officer of the departments of Police, Revenue, Customs, Abkari, Opium, and Forest may detain and search, in any open place or on the public roads any person whom he has reason to believe to be guilty of an offence under the preceding clause 6. When the search is to be made by entering a building, it may be done by a police officer not inferior in rank to a Naib Fouzdar, or by an officer of Revenue, Customs, Abkari, Opium, and Forest departments, superior in rank to a Karkoon, or by any other person authorized by the Subha in this behalf. "9. Any offence committed under the preceding clause 6 by any person shall be inquired into by any police officer not inferior in rank to a Naib Fouzdar, or any officer of the Departments of Revenue, Customs, Abkari, Opium, and Forest, superior in rank to a Karkoon. "10. Any Magistrate convicting an offender under the terms of this notification may grant to any person who has contributed to the arrest and conviction of the offender a reward not exceeding one-fourth of the realized amount of the fine imposed, or the value of the articles confiscated in the case. "11. Nothing contained in this notification shall be deemed to affect the right of medical practitioners, chemists, or druggists or vendors of medical preparations, to prepare, sell, or supply bhang, ganja, or the preparations thereof for bonaf idem edical purposes. "12. This notification shall come into force on the 1st of February 1892." 169. Importation and sale of this drug is, I can say, a State monopoly since February 1892. 170. Previous to the introduction of the monopoly system, everybody was at liberty to import bhang and ganja on payment of customs duty, except at large places, which were leased out to the highest bidder. Exportation of bhang and ganja was not restricted, nor was home consumption regulated. Every street had its own shop and anybody could sell it with impunity. 171. With a view to introduce better reforms and to bring the sale of the drug under the Government control in order to restrict importation and sale, the State monopoly was introduced. 172. The chief control in regard to these drugs now rests with the divisional Subha assisted by the Abkari Superintendent, who has a number of Inspectors under him, to supervise the licensed shops, and to prevent commission of offences connected with the illicit importation or sale of the drug. 173. The Sir Subha is the chief central authority who leases out the right of vending and examines annually the divisional administration carried on by the Subha. 174. The farm for sale of the drug is either given for a year or three years. The following are thef iguresf or the four divisions:— (British.) Prants. Rs. A. P. Baroda 6,051 0 0 Kadi 3,580 10 4 Navsari 2,026 0 0 Amreli 1,501 0 0
175. Government farmer alone now imports the drug on payment of customs duty besides the amount shown above.
176. He sells the drug at the fixed number of shops by his agency, approved of by the Subha, and makes preparation from the drug at licensed places.
177. The imported drug is stored at depôts appointed by the Subha, and the drug in transit by the farmer through His Highness's territory has to be covered by a permit signed by officer authorized in that behalf.
178. Neither shops nor depôts can be increased without the permission of the Subha. Such permission is not granted until indispensable necessity is made out for opening a new shop or depôt.
179. The number of retail shops is fixed by the Huzur. The guiding principle in fixing the number is the requirements of these drugs at places rather than area or population. Though there is no local option ascertained before opening shops, yet they are not forced upon the people.
180. The terms of the above notification will clearly show that there is a constant supervision over the importation and sale, whether licit or illicit, by all the departments of the State, and there is a cordon of Nakas on the frontier which minimize the evils of illicit ingress or egress of these drugs.
181. With all these excellent arrangements of control, the object in view of checking the excessive use of these drugs is nullified by the clause in the said notification, rendering possession of one seer of ganja or preparations thereof, or four seers of bhang or preparations thereof, lawful. The object was a laudable one, inasmuch as it was studiously inserted to soften the severity of the measure, having had bitter experience of hardship entailed by the Opium Rules. But the object was frustrated by the cheap sales of the drug in the surrounding Native States, flooding His Highness's territory with their narcotic articles and allowing opportunities for excessive indulgence. 182. The first modification that is necessary is to make the possession of ganja over ten tolas or preparation thereof, or half a seer of bhang or preparation thereof, unlawful. This modification will not much go to prevent illicit importation of the drug as long as surrounding Native States will continue to sell cheap ganja and bhang.
183. With all these hindrances in the way placed by the cheap sale of the drug in the surrounding Native States, the new measure has been productive of anxiously looked for results. The consumption of the drug has begun to fall off (side statement B*), giving figures of importation with the amount of revenue realized therefrom. The rise in the price has induced people to reduce their allowance, and though the number of consumers is, as it is said, not reduced, yet the quantity consumed is very much decreased. 184. The present measure is too young to give any decided opinion or suggest any modifications. The object of all such modifications are more or less defeated by the want of cooperation of the surrounding Native States. 185. The system of taxation on these drugs can be summed up in a few words, viz., customs duty plus the amount realized from the sale of sole right to vend. 186. This taxation has in certain places increased the price four-fold and in others sixfold than what was sold before the introduction of the new measure, and the consumption has fallen off wonderfully. All this may not be due to the new measure, and although excessive indulgence in the drug be still a constant factor, yet the past result gives a promise of a future happy angury.
187. It is said that a sudden rise in the price of liquor has driven people to consume ganja in certain places. How much truth there is in this allegation, cannot be determined, but granting it to be true, the Government has no reason to deplore as the havocs committed by alcohol are more fearful than those of narcotics. I, therefore, suggest no modification in the mode of taxation or its incidence on any of the intoxicants. 188. There is only one shop in Baroda where bhang in liquid form is drunk on the premises. There are no such shops anywhere else. I see no objection to the opening of such shops as exposure to public view, and the heavy price of the drug particularly charged at such places check excessive consumption much better than when done in solitude. 189. In conclusion, I beg most respectfully to state that I have done what I could do during the short time that was allotted to me. The magnitude of the task of collecting information from those who are particularly sensitive when questioned about their mode of life and their habits, and the hot haste with which the work was to be gone through, will, I am sure, induce you to look with a great indulgence on any defects that may have crept in. The humble effort made by me in this connection, if only meet with your approval, will be the ample reward for the pains that I have taken during the last month and a half.

MEMORANDUM BY MR. R. H. GUNION ON HEMP DRUGS IN CENTRAL INDIA.

26. In none of the States in Central India do there appear to be any restrictions on the manufacture or on the import and export of hemp drugs. Duties are charged on importation as on the other articles of merchandize. In some States the sale of the drugs is to some extent restricted. In Indore, as the Minister states, the wholesale dealer requires no license; there is no maximum limit to the quantity he may sell at a time, but there is a minimum limit, viz., 60 seers. The right to sell the drugs in retail is farmed out by public auction, and the retail sale is confined to the farmer and his agents. At present the retail farmer has one shop of his own in the city, and fifteen tobacconists in the city and twenty-five more in the mofussil, sell the drugs as his agents, there being as a rule a shop at the head-quarters of every mahal. The only other state in which there appears to be any restriction on the sale of the drugs is Rewah, where the "contractors" (meaning apparently the wholesale importers) are said to pay a fixed duty and license fees to the State. Shops in which there is consumption on the premises are not mentioned as existing anywhere. In the State of Bhopal there is a licensed contractor for each pargana, who makes retail sales in his own shop and authorizes others to do so as his agents. For Cantonments and Agency head-quarters very little information about the sale of hemp drugs is available. In M how there is one "sanctioned" shop, and the Cantonment Magistrate reports that the daily sale is only about four seers. In Nowgong cantonment the Abkari contractor holds a license to sell hemp drugs, for which he pays specially. In Nimach there is one licensed vendor, who is said to sell the drugs at 50 per cent. over the price in adjoining native territory. In Sehore bazaar there is one licensed shop. In the Indore Residency Bazaar the right to sell hemp drugs retail is a part of the abkari contract, supposed to be worth Rs. 20 a month.

INDORE STATE MEMORANDUM.

The cultivation of the hemp plant for the purpose of producing bhang, ganja and charas is so extremely limited in this State that there is no scope whatever for putting it under administrative control. The whole area under narcotic hemp plant cultivation is given in the appendix.* The figures given there show that the maximum area during the last twenty years was 354 bighas, minimum 66 bighas, and the average 181 bighas. The cultivation is confined to a few mahals in the Nimar district, bordering on the Narbada, and in Sanwer a few miles to the north of Indore. Thus it will be seen that although the State puts no restriction on the cultivation, or controls it in any way whatever, the ryot has not found it to his advantage to grow it largely, although the plant is capable of thriving almost everywhere in the State. There is no special rate of assessment charged on land under hemp cultivation; but is determined solely by the quality of the soil, and is usually Rs. 7 to Rs. 8 a bigha. No wild hemp is found in the State. Here or there a plant may be seen by road or river side or near the huts of fakirs, etc., due to the dropping of the hemp seed by consumers. The growth being thus limited the manufacture of ganja Manufacture. and bhang is necessarily so. Under the excise system prevalent in Indore, the import and export of the hemp drugs are not shown under a separate head denoting the hemp drugs, Importation and exportation. but are included under the general head of ' kirana ' (i. e., drugs, spices, etc.), and cannot therefore be accurately given. There is no doubt that the drugs are both imported into the State and exported from it, but not to that extent which would make it desirable to assign special heads in the State accounts to their traffic. As in the case of cultivation, so here there are no restrictions on either the importation or exportation of any of the hemp drugs. They can be imported or exported by any body to any extent without a license on the payment merely of the fixed duty. Practically the trade is so limited as not to require its regulation by the State. The importers of ganja and other drugs are generally the banias and there is no limit fixed to the storing and transport of these drugs, by them. Sale. The sale is either (1) wholesale or (2) retail.
No license is required for wholesale, and there is no maximum limit to the quantity a wholesale dealer may sell at a time. There is, however, a minimum limit, namely, 60 seers, prescribed by a regulation of the State below which the wholesale dealer may not sell on pain of liability to confiscation of his commodity and a fine up to Rs. 50 by the customs officer and to unlimited amount by the Darbar. The occasions on which the darbar have exercised its powers in this respect are very rare indeed, and have done so extremely moderately. The State prescribes no minimum or maximum price of sale, and the wholesale dealer may dispose of his ware at any price it may fetch. The right to sell in retail is farmed out by public auction, and none but the leaseholder or his agents can make retail sales. The ijardar or leaseholder is at liberty to open any number of shops at any place which may be convenient to him, In practice, however, it is understood that he follows the advice of the customs officers of the State. As a matter of fact at present the retail farmer has only one shop of his own in the city of Indore, and has commissioned fifteen tobacco-sellers, to whom he sells a quantity not exceeding half a seer at an interval of two or three days, to sell for him. In the mofussil the contractor usually has one shop at the head-quarters of every mahal, making about forty shops in all in the districts. Although it cannot be said that the number of shops is determined deliberately with a view to area and population, it naturally adjusts itself to the demand, and therefore indirectly to area and population. There is no such thing in the State as "local option" firstly, because the matter is so small as not to require any such measure being adopted by the State; and, secondly, because the people themselves have never asked and have no need for it. The thing does not amount to an evil giving rise to complaints requiring a remedy. The average amount of the retail contract for the last eleven years is Rs. 5,140 per year. The law prescribes no limit, maximum or minimum, in point of quantity to the retail sales to, or possession by, a consumer. But it has fixed the rates of the retail sale of each of these drugs, which are as follows: ganja, at half a seer a rupee in Indore city and one seer a rupee in the mofussil, bhang at four seers a rupee throughout the State, and charas at five tolas a rupee throughout. The probable yearly consumption of these drugs in the State may be about 200 maunds of ganja and an equal quantity of bhang, leaving charas quite out of account as being inappreciable. These figures are the result of a very rough calculation, and not based upon reliable statistics. Having regard, however, to the probable number of consumers and the quantity consumed by an average consumer, they appear to be approximately correct.
Duties. Besides the amount realised from the ijara or monopoly of retail sale, which is Rs. 5,140 yearly on an average as stated before, there are two duties levied on these drugs known as "katati" or inward, and "bharati" or "nikasu" or outward. These terms include the import and the export duty proper, that is, the duty levied on goods brought into the State from, or sent out of the State to, foreign territory as well as the duty levied on goods transmitted from one mahal to another within the State itself at each mahal. The "katati" and "bharati" are levied at the same rate at the place itself. But the rate varies in different districts, being maximum Rs. 3-12-0 per rás of 3 maunds or 120 seers and minimum annas 12 for ganja; maximum annas 15 for one rás and minimum annas 8 for bhang; and maximum Rs. 7-11-0 and minimum Rs. 5-8 per rás for charas. The duties are levied at the Sayar nakas by which every merchandize must pass. Evasion to pay the duty is punishable with confiscation of the goods smuggled and a fine up to Rs. 50 by the customs officer, or to an unlimited amount by the Darbar. The temptation to smuggle is greatly checked by the smallness of the duty and by the comparatively heavy liability to punishment. An enormously excessive tax like that of Rs. 335 per maund levied in Bengal (see page 324, volume V of Dr. Watt's Dictionary) would, in the very nature of things, invite smuggling, whereas the small rates levied by Indore cannot be expected to operate in that direction. There is still a reason to believe that these drugs are smuggled into the State from Ujjain; and from Sanowad they are possibly smuggled into the adjoining British territory or other Native States. Excepting at these two points, smuggling is seldom heard of.
Administration. The central administrative power rests with the Darbar. The executive head of customs and excise for the Indore city and Indore zillah is the Muntazim Sayar and for the other zillahs the Subha of each zillah. The present excise system in respect to hemp drugs in the State, so far as it may be so called, is based upon a few standing circular orders promulgated by the Darbar in the State Gazette from time to time. Some of these have already been noticed in their proper places in this memorandum. The system is on the whole working fairly relatively to the importance of the interests involved and no modification of it is contemplated.

JEYPORE STATE MEMORANDUM.

(1) The hemp plant is grown here only for use as bhang. Its cultivation is not in any way controlled by the Raj. (2) Ganja and charas are not manufactured here from the products of the hemp (bhang) plants. Both these drugs are imported from Hoshiarpur and the Punjab. Bhang of a quality superior to what is locally produced is also imported here to some extent. The sale of bhang, charas, and ganja is not in any way controlled by the Raj. Anybody can, at any place, open shops for the sale of these drugs. (3) Customs duty only is levied by the Raj on bhang, charas, and ganja. The customs duty on the export and import of bhang as well as on its import into the capital city from the districts is Re. 1 per maund. The "mapa" or inland customs duty on bhang is 4 annas per maund. The customs duty on the import of charas is at Rs. 20 per maund and on that of ganja is at the rate of Rs. 4 per maund. (a) No particular system is in existence here regarding the growth of the hemp plant or the sale of its products. (b) Wild hemp is not found in abundance anywhere in the Jeypore territory. The hemp plant, whether wild or cultivated, is only used as bhang and not made to yield either charas or ganja. About 10,000 maunds of bhang is produced in the Jeypore territory. No attempt is made here to control the possession or sale of this drug. (c) The hemp plant is not at all cultivated here for the production of ganja or charas, but only for use as bhang. The cultivation of bhang plants in this part of the country is neither prohibited nor restricted to any particular locality. (d) Charas is imported here by the Afghans and the Kabulis and ganja and bhang by native traders. All imports into and exports from the British territory of bhang, charas, and ganja are covered under Government license, and when exported from other Native States, under the customs pass (rawana) of that State. All goods allowed to pass into the territory after being examined by the customs chaukies, which are located at places where traffic is generally carried on. Bhang is exported from here to other neighbouring Native States, but before allowing it to pass in any quantity, the Customs Department requires the intending exporter to give security that the drug will not be smuggled into any other place. (e) The wholesale and retail vendors of bhang, charas, and ganja are not under any control, nor are they required to obtain license from the Raj. (f) Besides the customs duty as mentioned in paragraph No. 3, no other tax is levied by the Raj on bhang, charas, or ganja. (g) The number and sites of the retail shops of any of these drugs are neither fixed here by the Raj nor put to auction sale. The vendors are quite free to open shops anywhere they like in the territory. (h) The Raj does not fix any rate at which the drug must be supplied by wholesale to retail vendors. The average retail price (to consumers) of bhang is Rs. 13 per maund, of ganja Rs. 25 per maund, and of charas of the first quality Rs. 160 per maund and of the second quality Rs. 100 per maund. These prices of the drugs do not differ much in different districts. (i) Neither any maximum amount is fixed for retail sales to, or possession by, the ordinary consumer, nor any minimum price is fixed for the drugs. (j) There is no reason to believe that smuggling of bhang, charas or ganja from other provinces or other Native States prevails here to any extent; and to prevent smuggling of all articles on which customs duty is due to the Raj, it is provided in the rules of the Customs Department that the smuggler, when detected, forfeits the goods smuggled. The cultivation, possession, or sale of these drugs, however, is not in any way restricted by the Raj. (k)No excise system in respect to hemp drugs exists in the Jeypore territory. (l) It has been already stated that the hemp plant is grown here only for use as bhang; and as it is not cultivated here as a separate crop, but grown along with other crops, the extent of its cultivation cannot therefore be ascertained. About 27 maunds of bhang is exported from the Jeypore territory and about 50 maunds of bhang is carried from one district to another within the Jeypore territory, and about 300 maunds are imported into the city from the districts and about 64 maunds are imported from abroad. Thus about 364 maunds of bhang is consumed in the city. The amount of consumption in the districts and the holdings of jagirdars and others cannot be ascertained. About 54 maunds of ganja and about 129 maunds of charas are imported into this place; but as no further duty is levied on any of these drugs, if they are taken from one district to another, it cannot be said how much of the quantity imported is consumed in the city and how much of it is taken into the districts. Besides the Customs duty, no land revenue is derived by the Raj from the cultivation of the hemp (bhang) plant. (m) There are no other points to be added to make the system complete and intelligible.

JODHPUR STATE MEMORANDUM

The cultivation of the plant is neither permitted nor prohibited; the cultivators cultivate as they have been doing since long; but there are no separate fields of bhang or ganja, and they do not grow abundantly, and consequently there is neither any system of administration with regard to these drugs nor any system of restriction and control. Charas is not at all prepared in this country. As the local produce of bhang is hardly sufficient to meet the wants of the consumers this drug, as well as ganja and charas, are imported from other countries. For the importation of ganja and charas a license is obtained from the Residency office, but a parwana from the Darbar is sufficient to import bhang. The Darbar levies custom duties on the import, export, and transit of these drugs, and they are as given below:— Import duty Export duty Transit duty per maund. per maund. per maund. Bhang 2 annas. 2 annas. 2 annas. Ganja
Charas
Rs. 4-8-0. Rs. 4-8-0. Rs. 3.
It may be mentioned that from the customs point of view, both ganja and charas are regarded as one and charged at the same rates. The Government duty for the importation of ganja is said to be Rs. 2 per maund. The bhang goes duty free and is chiefly imported from Bhurtpur. Charas is brought from the contractors of Ajmere, who probably get it from Yarkand and Afghanistan. Ganja is mostly brought from Indore, and consequently it goes by the name of Indore ganja. The required figures for the period preceding 1883-84 could not be available, as then there was no Customs Department, and a contract for the whole custom dues was given. A separate statement* gives the statistics for the period intervening between 1883-84 and 1892-93, so far as could be obtained from the Customs Department. The appended memorandum shows the total income derived thereby.

 The total duty realized from bhang is Rs. 72-0-3 and that from ganja and charas together Rs. 7,785-3-7, thus giving on the aggregate a sum of Rs. 7,857-3-10. With regard to the sale of these drugs, it is to be noted that in the towns of Jodhpur and Pali, where these drugs are consumed in a comparatively greater degree than in other towns of Marwar, probably on account of there being a greater population, a contract for the sale of bhang, ganja, and charas has since 1880 been given, which has brought an income of Rs. 14,047 to the Darbar. A parwana instead of a license is issued by the city Kotwal in Jodhpur and by the Hakim in Pali by auction to the highest bidder. It covers a period of nearly one year. Both the aforesaid authorities supervise and control the sale and punish the infringers of the contract. In places other than Jodhpur and Pali, where there is a less demand and supply of these drugs, their possession and sale are not controlled, and no necessity has ever been felt for such control. There are no retail vendors in Pali, but there are fourteen in Jodhpur, all of whom are under the control of the contractor, who himself has two shops within the town. The retail sellers are ordinary shopkeepers vending these drugs along with other articles. With reference to area and population, when and where they see any necessity for the same, they sell these drugs purchasing at a lump sum from the contractor. The rates at which the drug is supplied by the contractor to the retail vendors and ordinary consumers are the following:—
Marwari—
Supplied to retail vendors.
Supplied to ordinary consumers.
Bhang 4 seers per rupee. 3 seers per rupee. Ganja 31/4 rupees per seer. 31/2 rupees per seer. Charas 7 rupees per seer. 8 rupees per seer. No tax is imposed in this country except the duties alluded to above. The average retail price to the consumers of bhang varies from two pies to nine pies, to those of ganja from one anna to three annas, and to those of charas from one anna to two annas. It does not differ much in the different parganas. There is no maximum amount fixed for retail sales to, or possession by the ordinary consumers; but as the consumers are not, generally speaking, well-to-do persons they do not keep more than two or three doses. There is no minimum price, the current rates having already been quoted. No complaint of smuggling or of an illicit sale of these drugs has yet been brought to the notice of the Darbar. The kotwal of this city in Jodhpur and the hakim in Pali are, however, empowered to punish the smugglers and unauthorized vendors of the drugs. Bhang, ganja, and charas are not under the control of the local Excise Department, and there are no modifications under the consideration of the ijlas. As has already been stated, the appended statement gives the required statistics about these drugs, as far as the figures could be available from the records of the Darbar. The explanation of variations from year to year seems to be that these drugs are generally imported when either the stock is exhausted or when their rates are cheaper in the countries from where the contractors import them.

(i) According to section 23 of the excise law the maximum amount fixed for retail sales to, or possession by, an ordinary consumer is bhang 120 tolas and charas 40 tolas, and the fixing of the minimum prices rests with the nazims. (j) Since the introduction of the excise rules this year, no case of smuggling has come to notice. At the time when the excise rules came into force, all the drugs were taken away from those who possessed them and were either confiscated or sold to wholesale vendors. As mentioned in (f) defaulters of customs duty are punished by fine and confiscation of the drug. Illicit sales and possession are punished according to section 34. (k) None. (l) As no records of past years exist, no explanation can be given of any differences and variations that have taken place in the cultivation, trade, etc., of the drugs. There was neither permission nor prohibition on the part of the raj, and everyone who chose used publicly to sell and buy. The customs duty only was taken in the raj. The present rules have come into force this year only and have not been fully carried out yet, and contracts have not yet been given everywhere, but illicit sales have been stopped. The statement cannot therefore be filled in. Statistics regarding the consumption and revenue cannot be prepared at present. The quantity imported can be ascertained from the Customs Department. Mention of cultivation has been made in (b), and regarding the importation of the drugs information is supplied in 2. (m) Full details are contained in the excise law. Translated. CHAS. S. BAYLEY, Political Agent, Bikanir.
Translation of a communication from the head of the Customs Department, Bikanir, dated 27th October 1893. The Council's Order, dated the 17th October 1893, enclosing papers regarding the hemp drugs was received on the 21st idem. With reference to paragraphs 3 and 4 of the letter from the Secretary to the Indian Hemp Drugs Commission and the note mentioned in paragraph 3,I beg to state that the bhang, charas, and ganja plants do not grow either wild or by cultivation in this State, but the drugs are imported from foreign territory. No other preparations from bhang, ganja, or charas are made in this State for trading purposes, nor are they imported from other territory. On the Holi and other festivals majum is prepared from bhang and is sometimes sold retail. Bhang is pounded, mixed with milk and sugar and drunk. It is also eaten dry, in which case almonds, pistachios, etc., etc., are mixed with it. The charas imported into the State is of two kinds, viz., (1) garwa, which is smoked with tobacco; its effect is immediate and strong; and (2) charas. This latter is also smoked in the same way, but its effect is less strong. The ganja is of one kind only. Prior to Sambat 1942 customs duty was levied at different rates on bhang, charas, and ganja. The system of levying the duty was also different at head-quarters and in the districts, i.e., in the districts duty was realized by the tahsils, and at head-quarters by the Customs Department. The statistics for the past twenty years cannot be supplied in the prescribed form because no records exist from which the different rates of duty prevalent in different places, the amount of revenue, the quantity of the drugs imported, etc., could be ascertained. The Customs Department was reorganized in Sambat 1942, since which time bhang has been taxed at Rs. 5 per maundand ganja and charas at Rs. 20 per maund, and one system of realization of duty has been introduced for the whole State. The customs officials are under the control of the head of the department. The customs rules have been in force. Girdawars and Naib Girdawars have been appointed for inspection work. The rawanas of Sambat 1942 have been destroyed, but those from Sambat 1943 to 1949 are in existence, from which a statement showing the quantity of the drugs imported and the amount of revenue realized during the eight years has been prepared. It is submitted with this report. For Sambat 1942 the quantity imported has been shown in a lump. The tax on charas and ganja is levied at one rate; therefore in. some rawanas the words "charas and ganja" have been used together, and hence information regarding the two drugs cannot be supplied separately. There was formerly no prohibition in this State, and no licenses for wholesale or retail vend were given; therefore the drugs were imported and sold without restriction. According to article 5 of the Agreement with the British Government the export from this State into British territory of intoxicating drugs was prohibited. Exporters were punished with confiscation of the drugs and fine and imprisonment according to rules framed in 1878. The punishment for the export of opium was different. But sincethe beginning of 1893 the excise law of the Darbar has been put in force under the supervision of the nazims and tahsildars, and the whole arrangement has been put under the control of the Revenue Department, from which information regarding the granting of licenses for wholesale and retail vend, the import and export of the drugs, and the opening of the shops, etc., can be obtained. The answers to the Secretary's questions can also be obtained through the Revenue Department, and the form of statement may be filled up there also. It has been ascertained that some bhang is grown at the village of Chani in the Bahaderan tahsil by canal irrigatwn, and the Revenue Department can supply information regarding its cultivation and supervision. Translated. CHAS. S. BAYLEY, Political Agent, Bikanir.
Statement showing the quantity of charas, ganja, and bhang imported into the State and the amount of duty realized from Sambat 1942 to 1949

 

 

ALWAR STATE MEMORANDUM.

There is no special arrangement in force in regard to the control of the growth of the hemp plant in this State. Ganja and charas are not produced here. The zemindars in some of the villages grow bhang either close to their wells or on the borders of their fields on a very limited scale. Here and there may be found wild plants of bhang, but it does not grow to any appreciable extent. The system obtaining in this State for the management of the excise administration of the hemp drugs is that the State grants the monopoly of the import and sale of drugs, including poppy and opium, to a contractor for a fixed period under certain stated terms. In September last the contract for drugs, including poppy and opium, was given for three years for Rs. 10,550. This sum has been ascertained from enquiry to include Rs. 9,000 on account of poppy and opium and the balance, Rs. 1,550, represents the income on account of excise duty on bhang, ganja, and charas. In addition to the excise duty, bhang is liable to pay octroi duty at ten annas per maund, while ganja and charas are exempt from octroi taxation. Ganja, it will be observed, is neither produced nor imported here. Charas is imported for consumption into the State to the extent of 61/2 maunds annually, while the production of bhang in the State is almost sufficient for the requirements of the people. If at any time any small quantity is required over and above the local produce, it is obtained from elsewhere by the contractor under restrictions imposed on it in British territory or other Native States from which it is imported. 2. With these preliminary remarks, we proceed to discuss seriatim the points alluded to in the note which accompanied the letter from the Secretary to the Indian Hemp Drugs Commission on the subject:— (a) There is a uniform system for the State. It is this: The contract for all the drugs, including poppy and opium, is given for a fixed sum and for a stated period to a contractor under certain terms agreed upon at the time of the contract. The State merely receives the contract money in fixed instalments, and makes no interference in the management which is left entirely in the hands of the contractor. The principal revenue officer of the State is supposed to be the central controlling authority, but the administration of the system is virtually carried on by the contractor for the time being. There is no Act or Regulation in force in regard to excise administration. The whole system is based on the few conditions agreed to by the contractor at the time of the contract. (b) Wild hemp is not produced to an appreciable extent in this State and is not much used. No attempt has been made to control the possession or sale thereof. (c) The hemp plant for the production of ganja and charas is not cultivated. Bhang, as already explained, is cultivated close to the wells and on the borders of the fields by a few zemindars, but its cultivation is not prohibited, nor is there any restriction as to the localities of cultivation. (d) Ganja is not imported here, but bhang and charas are imported by the contractor according to requirements. He makes his own arrangements for their supervision and for controlling the storing and transport of these drugs. (e) The State has granted the monopoly of the import and sale of these drugs to a contractor, who sublets the farm and issues licenses at his pleasure to the different shopkeepers in the several tahsils or other localities for the sale of drugs. (f) No answer is needed. This system is explained elsewhere. (g) The number and sites of retail shops are fixed by the contractor according to requirements without reference to the authorities. The licenses are granted by him to the retail shopkeepers on payment of a fee to be agreed upon between the parties. The number of shops is not determined with reference to area and population nor is there anything in the nature of "local option." (h) There is no rate fixed at which the drug must be supplied by the wholesale to retail vendors. The rates differ according to the demand and supply at different times. The present rates are given below:— Bhang. Charas. Rs. Rs. Wholesale price 5 per maund. 200 per maund. Retail prices 8 " 280 " The retail price does not differ much in different districts. It is almost the same everywhere. (i) There is no maximum amount fixed for retail sales to, or possession by the ordinary consumer, who can buy and possess drugs sufficient for one month's consumption from a licensed vendor. He cannot, however, import them, nor can he buy them from any other but the licensed vendor. There is no minimum price fixed for the drugs. (j) No estimate can be made of the extent smuggling from other provinces or other Native States prevails here. It is the business of the contractor to check smuggling, and when any cases are reported, the smugglers are arrested and, if found guilty, are punished and the illicit drug is confiscated. Bhang cultivated or grown in fields is either sold to the contractor, or the proprietor obtains a license from the former for its sale. (k) No modifications of the present excise system in respect to hemp drugs are under consideration. (l) The appended statement * will show as far as possible the extent of cultivation and trade, the sources of retail supply, the amount of consumption and the revenue of this State in respect to the hemp drugs.
MANGAL SINGH, RAO GOPAL SINGH, M. WAJID ALI, BALMOKAND DAS, Members of Council

KOTAH STATE MEMORANDUM.

Letter No. 3772, dated 25th September 1893, of the Agent to the Governor-General in Rajputana, together with its enclosure, reached me. In reply to paragraph 2 it is stated that very little ganja and bhang are cultivated in this State and their consumption is very little, hence it would not be necessary to send anybody from here to appear before the Commission as witness. The questions of the Commission are answered as below:— There is no supervision of the State on the production of ganja and bhang. No ganja or bhang is made in this State; a very small quantity of bhang grows here, which is consumed locally. It is imported from other parts of the country. Ganja is imported from Jhallawar, Gwalior, and Tonk. No duty is levied on bhang which grows in this State; but when it is imported into the Kotah city a duty of Re. 1 per maund is levied like the articles imported from foreign country and the transit duty is charged 8 annas per maund. A duty of Re. 1 per maund, like bhang, is levied on ganja when imported from other country. The transit duty is the same as for bhang. If charas is imported the duty is charged at the rate of one anna per rupee on its price. No charas grows here, nor is it made. Ten years before charas used to be imported here, but since then no import is made. There are two kinds of bhang, viz., "Deshi" and "Ujjaini." The colour of deshi bhang is green and that of Ujjaini yellow and grey. It is more intoxicating than deshi bhang. There are two kinds of ganja, viz., "deshi" and "baluchar." As far as it has been ascertained the baluchar ganja is known here only by name. It is neither imported nor consumed here. These are the following answers to the questions asked for:— A very small quantity of ganja and bhang is consumed in this State, and on account of their less demand the State has only ordinary supervision in the district by nazims and in the city by the Revenue Superintendent. There is a ruling of 1881 about buying, selling, and possessing intoxicating drugs, but on account of the above reasons it is not in force. As far as it has been ascertained, no wild bhang grows here, nor is it used in medicines; consequently there is no supervision. There is no regular cultivation of ganja and bhang in this State on any piece of land. Some seeds only are thrown in the cultivation of poppy, where they grow up. Some "majum" is made out of that bhang, and there is no restriction about keeping this, because people here give preference to opium, which grows so freely and abundantly. Neither is there any permission nor prohibition to the cultivation of ganja and bhang: the cultivation is not made on any special piece of land, nor is there any special body who import these drugs; for this reason there is no rule to grant licenses for the same. Everybody can import and export ganja and bhang, but no one can sell them with the exception of the contractors. There is no necessity for wholesale seller in this State: the work is carried on by retail seller, who gets contract from the State annually on the highest bid. In the district nazims sanction these contracts on those places which have been authorized by the Revenue Superintendent. No tax other than the contract money is levied on these articles, No condition or terms are settled on the sale between the wholesale and retail sellers. In the district bhang is sold from 2 annas to 3 annas per seer and in the Kotah city at 4 annas per seer. There is no ruling up to what quantity of bhang the retail seller or consumer can keep with him. As when there is no ruling for any fixed quantity of bhang, the people do not therefore try to smuggle the drug but openly export and import the same. Until some new restrictions be put on its cultivation or possession, no amendment in the present state of affairs is necessary.
KOTAH; CHOBE RAGHUNATH DASS, The 25th November 1893. Revenue Superintendent, Kotah State.

JHALLAWAR STATE MEMORANDUM.

(1) There is no control over the growth of the hemp plant, or (2) over the manufacture, importation and sale of any of its products. (3) There is an import duty of 8 annas per maund of 35 seers on all sorts of ganja and bhang and of one anna per ditto on charas. There are also local dues of 2 annas per maund on bhang and ganja, while 1 per cent is levied on all sales of either drug, weighment dues also being levied when they are sold by weight. There is no system in this State whatever for the control of hemp drugs. Wild hemp is found in very small quantities; a few stalks here and there probably spring from cultivated seed accidentally deposited. Anybody can import any hemp drug, except into the cantonment, where there is a licensed farmer; once the latter has paid for his license he is free from all control. The extent of cultivation is about 30 acres and the produce about 165 maunds of ganja and 30 of bhang. The trade returns of the last four years do not distinguish between ganja and bhang; they show an average import of 105 maunds of both drugs and an average export of 120 maunds, while 10 maunds 25 seers paid local internal dues. The average receipts have been Rs. 65-8-6 per annum.
JHALRAPATAN; G. R. IRWIN,
The 2nd January 1894. Political Agent.

TONK STATE MEMORANDUM.

The hemp plant is not grown anywhere in the State, hence no supervision exists as to its cultivation. Bhang is manufactured by drying the leaves of the hemp plant. It is imported together with ganja and charas by foreign traders and sold by them to the shopkeepers of the State by whom the drugs are disposed of in small quantities. The duties imposed on the drugs are as follows:—
GANJA, CHARAS, BHANG.
Per cent of value. Per maund.
Rs. Rs.
Tonk and Aligarh 20 Nimbahera Pirawa Chabra 6 Sironj 5
As the hemp plant is not largely used in the State, no system of control is in force beyond that necessary for the levying of customs duties. Wild hemp is not found anywhere in the State. Bhang is cultivated on lands irrigated by wells, and its leaves are used when dry. There is no system for controlling the possession and sale of the drug. No prohibition exists as to the cultivation of the hemp plants, nor is it regularly grown in the State. A few bhang plants are grown in vegetable fields irrigated by wells. Ganja and charas are not grown in the State. Ganja and bhang are imported by "mahajans" and "tambolis" and charas by the Villayatis. None of these hold license, nor is there any arrangement for supervising or controlling the transport of the drugs. Neither the wholesale nor the retail vendors are licensed. They purchase and sell the drugs as they like without restriction of any kind. Duties are levied from the importers at the time of their entry in towns or villages, and in order to guard against evasion the same precautions are taken as exist for other dutiable articles, viz., the inspection of persons at the customs post. Regular retail shops do not exist anywhere in the State. The importers sell the drugs wherever they like. No rate is fixed at which the drugs must be supplied by wholesale to retail vendors. The price to consumers as obtaining in the Tonk city is as follows:Charas at Rs. 3-12-0 per seer. Ganja " " 0-10-0 " Bhang " " 0-2-0 " As the system of granting licenses or giving the drugs on contract is not in force, the consumers buy up to any quantity they like, paying as much as the traders demand of them. There being no prohibition of any kind, smuggling and illicit cultivation are not resorted to. A proposal to draw up a set of rules is under consideration.
The extent of cultivation is already given in replies to questions (1) and (c). The average annual trade is as follows:

Ganja and bhang are imported into Tonk and Aligarh from Jeypur and into the other parganas from important neighbouring villages, whilst charas comes from Kabul. The extent of trade represents the average annual consumption. In Pirawa and Nimbahera the drugs are not taxed, hence the extent of trade in them has not been given.
A. P. THORNTON, Lieut.-Col., Political Agent.

BUNDI STATE MEMORANDUM.

No control of any kind is exercised on the growth of the plant. Hemp drugs are not manufactured in the State. They are imported for sale from foreign States both by wholesale dealers and petty shopkeepers. Land rent is not separately levied and custom duty is charged at 8 annas a maund. There are two kinds of ganja known as "Indori" and "Shahbadi." Besides these the State knows nothing of any other kind. There is one uniform system throughout the State. No officer is appointed for its administration, nor is it in any way supervised or based on any Act or rules. Wild hemp is not found in the State. The drug is imported for sale both by foreign and home traders. The quantity grown in the State is disposed of by traders of the State. Cultivators grow the hemp plant on land irrigated by wells as other crops. No prohibition or restriction exists as to its cultivation, nor is any sort of control exercised. Ganja and other drugs are imported for sale by traders of foreign States and by mahajans, " pansaris," and " tambolis" of the State. The system of issuing license is not in force, nor is there any arrangement for controlling the transport of the drugs. The wholesale and retail vendors are not under any control. They are at liberty to dispose of the drugs in any way they like. Import and transit duties on ganja, bhang, and charas when brought into the State or passing through it are charged at the uniform rate of 8 annas per maund. Persons found evading the raj duty are charged double the amount, viz., Re. 1 per maund. Regular or special shops for the sale of the drugs do not exist anywhere in the State, nor are the latter given on contract. Traders and shopkeepers are at liberty to sell the same anywhere they choose without let or hindrance. No rate is fixed at which the drug must be supplied by wholesale to retail vendors. The average price per maund is given below, and varies according to the state of the market:

No limit is fixed as to the amount, whether maximum or minimum, which should be sold to, or be in the possession of ordinary consumers. The minimum price of the drugs is given in the preceding answer. There being no prohibition for the importation of the drugs smuggling is not resorted to. Similarly, there being no prevention for their growth, illicit cultivation is not carried on. Proposals for modifying the present excise system are under consideration. Bhang only is cultivated on a few pieces of land watered by wells, but the outturn cannot be estimated. The extent of trade for the past eleven years is as follows:—
Mds. Bhang 9,385 Ganja 100 Charas 25
TOTAL 9,510
The above are imported from Indore and Ujjain and are sold together with the quantity locally produced. The average revenue of the past 11 years is as follows:—
Rs. A. P. Import duty 4,440 0 0 Transit duty 610 0 0 TOTAL 5,050 0 0

SHAHPURA STATE MEMORANDUM.

Bhang is the only drug produced in the Phulia pargana of Shahpura. Ganja is not grown, neither is charas manufactured. There is no control on bhang of any kind on the part of the Chiefship, except that the land used for its cultivation is charged rent at the usual rate. Bhang is manufactured by drying the leaves of the plant, and both ganja and bhang are imported from Bhilwara by the shop keepers of Shahpura and sold both in Shahpura territory and to traders and others of foreign States. For the cultivation of bhang along with the "ranjka" grass land rent is charged at Rs. 6 per bigah, or Rs. 10-6 per acre. Import and export duties on both bhang and ganja are levied at the same rate, viz., one pice per seer. The ganja imported into the Chiefship is of the kind known as "Indori." There is no system whatever for the sale, etc., of bhang, nor is it controlled by any officer or Acts or rules of any kind. The drug is imported and sold by the shopkeepers at their will and pleasure. Wild hemp is not found in the Chiefship. No prohibition exists for the cultivation of the hemp plant, but, as already stated, ganja is not grown anywhere in the Chiefship. Bhang is invariably cultivated with the "ranjka" grass in localities with plenty of moisture. Ganja and other hemp drugs are imported by mahajans, "tambolis," and by a few "halvais." The system of granting license is not in force, nor is there any arrangement for controlling the transport of the drugs. They are not under any control, nor are they licensed. Shahpura is a fortified town with gates, at each of which customs officials are posted, who register all goods imported into or exported from the town and levy duties thereon. In villages "mapadars" are appointed for the collection of duties on all goods, including drugs, etc. On all bhang taken from Shahpura territory to foreign States transit duty is charged at three pies per seer in addition to the export duty. "Mapa" and weighment duties are not levied on ganja as it is not produced in the Chiefship, but import, export, and transit duties are charged at 3 pies per seer. There being no prohibition for the sale of ganja and bhang, it is not necessary to fix sites of retail shops or grant licenses for the sale of drugs. No rate is fixed at which the drug must be sold by wholesale to retail vendors. The average wholesale price of ganja, which is imported from Bhilwara, is Rs. 9 per maund and of bhang Rs. 5 per maund, and the retail price Rs. 25 and Rs. 8 per maund respectively. No maximum amount is fixed for retail sales to, or possession by the ordinary consumers, whilst the minimum prices fixed for the sale of the drugs are given in the preceding answer. The duties on the drugs being light, and there being no prohibition for their importation or growth, smuggling and illicit cultivation are not carried on. For the future it is proposed to issue licenses to a limited number of persons at few selected places. Bhang is not separately grown anywhere in the Phulia pargana of Shahpura. It is cultivated with the "ranjka" grass. The area under bhang cultivation, if separately calculated is estimated at 25 bighas, yielding 125 maunds, at 5 maunds per bigah. In addition to this 25 maunds are imported from Bhilwara, making a total of 150 maunds. Of this, about 125 maunds are consumed annually and the rest exported to territories of foreign states. About 4 maunds of ganja are imported annually and consumed in the Chiefship. A statement showing the revenue derived from the hemp drugs for the past twenty years cannot besubmitted owing to the customs duties of the Chiefship having been farmed for a considerable number of years to various persons, who kept no regular account of the income realized by them. The average annual income derived from import, export, and transit duties on the hempplants is, however, roughly estimated at Rs. 200.
Translated. A. P. THORNTON, Lieut.-Colonel, Political Agent

DHOLPUR STATE MEMORANDUM.

1. The hemp plant, i.e., ganja, charas, and bhang, are not produced in this State. They are under the control of the Customs Department. 2. Hemp drugs are not manufactured here. Bhang is generally imported from the British districts and the Bhurtpur State, ganja from the Gwalior State, and charas from Patiala. 8. The duties levied upon bhang and ganja are Rs. 4-4-0 per maund and on charas Re. 1-1-0 per seer. The rates of duty imposed on these drugs in the Sir Muthra Estate are given in the statement* attached. (a) Uniformity of system prevails throughout the State. There is only one contractor for these intoxicating drugs in the State, while in the parganas he has his sub-contractors. This contract is in the charge of the customs officer. (b) Wild hemp, i.e., ganja, charas, and bhang, is not found in the State, nor is any drug manufactured from it. (c) The cultivation of intoxicating drugs is prohibited throughout the State without permission of the Darbar. There is no particular locality in which cultivation is restricted. It is generally the custom throughout the whole territory to obtain permission before they are cultivated. The cultivation is under the control of the customs officer. Persons cultivating without permission are punished. (d) The contractors import these drugs by rail and road from the British districts and Gwalior and Patiala States under passes granted by the Political Agent and the Collectors concerned. (e) In this State contract is given for the sale of intoxicating drugs for a certain period. It is under control of the Customs Department. (f) Ganja, charas, and bhang are not produced in the State, and hence the rates of land revenue cannot be given. The rates of duty levied on these drugs, when imported into the State by a trader or contractor, are given in answer (3). The sellers of these drugs, if found to have evaded payment of the duties, are punished. (g) There is only one contractor for the State. He has his own sub-contractors in the parganas. The number of shops is not determined with reference to area and population. There are in all twelve shops in the parganas besides the general contractor. The retail sale vendors do not purchase these drugs from the wholesale vendors, but import them from outside, i.e., bhang from British districts, ganja from Gwalior territory, and charas from Agra and Patiala. These drugs are sold at one price throughout the State, viz.:— Ganja, at1 /2s eer per rupee. Bhang, at1 1/2t o 2 seers per rupee. Charas, at 2 chitaks per rupee. (h) The retail vendors do not purchase these drugs from the wholesale vendors, but bring them from foreign districts. The price of these drugs does not differ in any place in the State. They are sold at one and the same price throughout the State. (i) No maximum amount is fixed. These drugs are sold at one price. (j) As far as possible, smuggling from or to other places does not take place, nor is illicit cultivation carried on, nor is illicit possession allowed. No one except the contractor is allowed to sell these drugs. (k) None. (l) Ganja, charas, and bhang are not cultivated in the State. The yearly trade in ganja, charas and bhang is as follows:— Mds. Srs. Ganja 38 36 6/16 Charas 0 25 7/16 Bhang 33 36 12/16
Ganja is imported from Antri (Gwalior, bhang from Kanauj, Chupra, Mhow, and Kerowli state, and charas from Agra and Patiala.

 

KARAULI STATE MEMORANDUM.

Ganja and charas are not produced in the State. Bhang grows spontaneously. Malis generally cultivate it on grounds near the boundary walls of their fields. When leaves come out, they are collected and dried and are then brought into use. Sometimes they are sold also. There is no special control from the side of the State. Ganja and charas are not produced here. Ganja is generally imported from the Gwalior territory and charas from the town of Bhurtpur. Bhang grows spontaneously, sometimes cultivated by the malis and sometimes imported from the territory of Jeypur. The duties levied upon ganja are Rs. 2-8-0 per maund and on charas Rs. 10 per maund, and on bhang Re. 1 per maund. Uniformity of system prevails throughout the State. There is one officer at the head of the Department of Customs who resides at the capital. The levying of duties and other matters connected with the Department of Customs are in charge of this officer, and according to the customs tariff drawn up in 1882, the duties on different articles are levied by the Department of Customs. Hemp is neither cultivated here nor grows in a wild state. Hemp plant for the production of ganja or charas is neither cultivated nor grows spontaneously. No restriction is put upon bhang, the production of which is very limited. It is not particularly known who imports these drugs. Bhang is generally imported by the malis and cultivators for sale. An annual fair, called the Sivaratri fair, is held here in the month of February. In this fair local and foreign traders generally bring these drugs for sale. During this fair no customs duties are levied, nor any license issued for their importation. Certainly after the fair is over, duties are levied upon these drugs. Hence there is no necessity for the State to supervise the storing or transport of these drugs. Of course, strict supervision should be maintained for the levying of duties. As for the sale of these drugs, contract is given to the vendors in three places, viz., Kerowli town, Mandrel and Machilpur. The contractors have the right to sell these drugs in retail. Excepting the contractors others are not allowed to sell it in retail. Everybody has the right to sell these drugs to the contractors. There is no restriction on this. But if these drugs are imported either by the contractors or somebody else, they are not exempted from paying duties. The vendors of these drugs are not under control here. But they are licensed vendors. These licenses are given to them after they had paid fees for the licenses. No rent is collected if any of these drugs are cultivated.
Customs duties are surely taken. The following is the scale of duties levied upon these drugs if they are exported or imported:Rs. A. P. Ganja 2 8 0 per maund. Charas 10 0 0 " Bhang 1 0 0 " The officers of the Customs Department supervise over the collection of customs duties. Smugglers, etc., are punished according to the customs regulations. The sites of retail shops are not fixed by the State. The contract for the sale of these drugs is given by auction. The contractor opens his own shop for the sale of these drugs. The number of shops is not fixed with reference to area, or population, and the setting up of a new shop depends upon the sale of these drugs. In the town of Kerowli the total number of shops is six, and there is one at Maudrel and one at Machilpur.
The sales of these drugs are given on contract. The contractors are called both wholesale and retail vendors. No rate is fixed for retail vendors from the state, so no average price could be recorded, nor could the contractors of this place say this, for no record is kept of these things.
No modification regarding the existing excise system is under consideration. Ganja and charas are not produced here. Bhang grows spontaneously to some extent. Mali cultivates it to some extent. Hence no trade is here regularly carried on, since the production is very limited. On the other hand, these are imported from the neighbouring States. No rent is collected from those lands in which bhang is cultivated.

KISHENGARH STATE MEMORANDUM.

(1) The hemp plant is cultivated in irrigated lands along with green vegetables by cultivators of the mali or gardener class exclusively. These cultivators are professional greengrocers and, as such, live in larger villages or towns only, where there can possibly be room for a market for green vegetable; and consequently the cultivation of the hemp plant is generally met with in towns and larger villages.
The hemp plant is never cultivated as a principal crop, and is, as a rule, locally sold and consumed. There is practically no control of the growth of this plant. (2) The plant is cut and dried in the sun or shade and then beaten with sticks, and the leaves are then collected and sold as bhang. Thef lowering-topso f female plants are plucked and pressed under slabs of stones and taken out in a compressed state, which is called ganja. This is used for smoking. Bhang is imported from Shekhawati in Jeypur. Ganja is imported from Malwa. Charas is not made in Kishengarh. It is brought from Afghanistan by the Vilayatis (Kabulis) and by them sold to the local vendors. (3) The duties imposed on these drugs are as follows:Bhang, four annas per maund. Ganja, one rupee and eight annas per maund. Charas, do. do. do. (a) A uniform rate of duty is charged all over the State, and anybody can sell any of these drugs. The administration of the system is carried on by the "Mapa" (Customs) Department. (b) Wild hemp is not found to any considerable extent in this State. It is regarded as an inferior kind of drug compared to cultivated hemp, and is consumed as bhang. Wild hemp is found in such small quantities that it has not been considered worth the while of the "Mapa" Department to control the possession and sale of such drug. (c) The cultivation of the hemp plant for the production of ganja or other drugs is not prohibited. The cultivation is found scattered all over the State in small patches or mixed with vegetable crops in the lands of larger villages and towns. (d) The baniyas and specially the Tambolis (betel-leaf sellers) are the importers of bhang and ganja. They are not licensed. No special arrangements are in force for their supervision and for controlling the storing and transport of these drugs. In larger towns, the duty is collected by the "Mapa" officers on the drugs entering the gateways. In the mofussil towns and in villages the "Mapa" officers go round in their circles every two months or so, and make collections of the duty on the imports of these drugs that may have been made during the interval.
(e) There has been no system of licensing vendors in force for the last twelve years, or thereabouts. Formerly the sale of the hemp drugs used to be annually farmed out to the highest bidders for the larger towns only. (f) The only tax at present levied is the customs import duty mentioned above in (3) and the "Mapa" officers take precautions against evasion; there is, however, no special precaution considered necessary. (g) There is no restriction as to the number and site of shops for the vend of these drugs. (h) No rate is fixed at which the drug must be supplied by wholesale to retail vendors. The average retail price is as follows:— AT THE CAPITAL. IN THE MOFUSSIL. Bhang Rs. 6 per maund. Rs. 4-8-0 per maund. Ganja Two seers per rupee. Two seers per rupee. Charas Not available. Not available. (i) None. (j) Hardly any smuggling from other provinces or States; No special preventive measures are taken or are considered necessary. (k) It is under contemplation to institute a system of excise for decreasing the consumption and controlling the sale of the hemp drugs, by restricting the privilege of the selling of the drugs to licensed vendors alone, without any limit being placed on the number of licenses for some time, and by increasing the duty chargeable on these drugs. It is not contemplated to fix any maximum or minimum retail prices, as in the absence of any limit to the number of licenses, the competition between the various licensed vendors and the increased duty would conduce to bring about a fair regulation of the prices.

JAISALMERE STATE MEMORANDUM.

In the Jaisalmere State the hemp plant does not grow spontaneously. There are only three parganas where it is cultivated. In about 3 hals( 61/5a cres) in Jaisalmere itself and about 1/3 of a hal each in Deva and Fatehgarh the cultivation is carried on every year. Thus, in the whole State, only about 8 acres of land is being cultivated; the average production is estimated to be 33 maunds of "bhang" and "ganja." The cause of its not being cultivated in other parganas is the want of water required for its irrigation. In some parganas there being salt water, its cultivation cannot be carried on at all. The cultivation not being prohibited by the Darbar, the plant is left altogether uncontrolled. It is generally cultivated with vegetables and irrigated with well water. It is never cultivated in a separate area preserved for its own cultivation, as in other provinces. 2. The hemp plant is called by two names, male and female (cultivated). "Bhang" is the name applied to the dry leaves of the hemp plant, whether male or female. But the female plant, having little intoxication as well as not giving flowers (used as ganja) is not cultivated in the country. "Ganja" is the name applied to the dry flowering-tops of cultivated male plant (not female as explained by Dr. Prain) which have become coated with resin in consequence of their inability to set seeds freely. "Charas" is not produced in this country, nor does any one consume it. The varieties of "ganja" explained by Dr. Prain in the introductory of the Commission's questions regarding hemp drugs are neither known nor sold in this country. It is never trodden nor rolled under foot here. The leaves and the seeds having been separated, the driedf lowersa re selected and sprinkled over with water. They are then broken by hands and smoked. But as the flower-tops of "ganja" are detached from the twigs, whether the detachment has been accidental or deliberate, it may not be improper to call it "chur" or "broken ganja." 3. The hemp drugs are not manufactured and sold in the State. The plants are purchased by the consumers from the malis who cultivate them, and the preparations are made by them in their own houses. Sometimes the shop-keepers purchase these plants, and prepare and sell them to the consumers. 4. Owing to the want of good administration of the Customs Department, no statistics are available from year 1872-73, but as the new reforms were introduced in 1884 in this department, the customs statistics have been obtained from that year. From the statistics, however, it appears that these drugs were never imported or exported even in a small quantity during the past ten years (from 1884 to 1893). This shows that only the amount produced in this country was consumed by the people, and they had no need of either importing or exporting the drug, either for personal consumption or for trade. 5. There are no special acts or rules in respect to the control of these drugs, nor is there any controlling officer. They are, however, controlled by the customs officer as far as import and export is concerned. 6. The Customs Department levies an import duty of Rs. 3 per maund and a transit duty of Re. 1-8-0 per maund on these drugs; the export duty being exempted by the Darbar. 7. Besides the customs duty there is no direct or indirect tax imposed on the preparation or cultivation of ganja and bhang. The malis pay the usual tax for the land they cultivate, but no special tax for the cultivation of hemp plant is levied. 8. No case of smuggling "bhang" and "ganja" has come to notice up to this time, but the customs officer is authorised to fine the persons smuggling drugs. 9. As a very small quantity of these drugs is produced, no modifications of the present system are under consideration.

MEMORANDUM BY MR. R. G. CULLODEN, ASSISTANT COLLECTOR OP CUSTOMS AND SUPERINTENDENT OF THE PREVENTIVE SERVICE, RANGOON, ON THE SMUGGLING OF GANJA INTO RANGOON.

 Ganja has always been considered a prohibited drug in Burma. The prohibition of its importation hass of ar been successful that the drug has been kept out of the local market to a considerable extent; this is proved by the fact that whenever traced to any one possessing it, only very small quantities of the drug have been found on them. That there exists a demand for the article and that high prices are paid for it no one can deny; this is testified to by the many attempts that are made to smuggle it into the country, and on which even the heavy penalties inflicted on detected cases do not appear to have any deterrent effect. From the statement of seizures of ganja during the past five years, it will be seen that the illicit traffic is kept up with more or less regularity, the largest quantities coming from the Madras Coast. Advantage has also been taken of smuggling the drug by post. There are many amongst the consumers who cannot do without the drug, the want being felt by them as much as the want of alcohol is by persons addicted to its use. The following will illustrate this. A Madrassi sepoy was once brought up for being in possession of 3 tolas weight of ganja, he cried as though his very existence was at stake when told that the drug would be confiscated. He said that if it was taken from him, he would be unable to perform his duities, and as he was ordered to a station in Upper Burma, where it was impossible to obtain it he would die. He declared that he only indulged in very small quantities at a time and that it did him no harm. I have seen several similar instances of a craving for the drug, the accused in such cases being more willing to submit to a fine than be deprived of the ganja. From my experience I am inclined to believe that the moderate consumption of the drug has not the demoralising effect imputed to it, though I would not venture to assert that there would not be a tendency to the abuse of the drug, if the prohibition was removed. Punjabis, Pathans, natives of Upper India and Madrassi sepoys are those addicted to the use of ganja. The attempts at smuggling have been more frequent since the introduction of the Punjabi element in the police force; this is no doubt owing to a greater demand for the article. Judging from the physique of the latter race of men it would appear that the moderate indulgence in the use of the drug is attended with no ill effects. No case of Burmans making use of ganja has even been brought to my notice. Hemp is grown in Upper Burma, and Burmans, if they choose, could use it as a narcotic without let or hindrance. The Burma ganja is said to be inferior in quality to that obtained in India, hence it is not valued so much by the natives of India and smuggling is, therefore, likely to be always resorted to as a means of getting the latter article into Rangoon. The following recent cases of seizure indicate how ganja is smuggled. On the 6th July 1893 the customs preventive officers, acting on information, searched the S.S. Camorta from Madras, and found 5,481 tolas of ganja packed in tin cases concealed inside the paint lockers in the forecastle of the steamer. As this part of the ship is occupied by the crew, they were charged with having brought it on board, but they disclaimed liability and consequently penalty of 500 rupees was inflicted on the vessel, in accordance with the orders of the Government of India as per letter No. 5205, dated Simla, 10th October 1889, the amount being recoverable rateably from the wages of the crew. On the 21st of the same month, or 15 days later, another large seizure was made, the ganja weighing 6,613 tolas and packed in tins was found concealed partly in the lazarette and partly inside the linen locker of the S.S. Scindia from Madras. The captain handed over the butler of the first-class saloon as the guilty one, the key of the locker having been in his possession. The accused was convicted and sentenced by the Magistrate to pay a fine of 500 rupees, and this not being paid, he was sent to prison for three months and 20 days. On the 21st August last as much as 11,760 tolas of ganja were found in two cases landed as passengers luggage ex S.S. Nowshera from Madras. The gunner of Brooking Street wharf was implicated, as on landing those boxes he declared that they belonged to him. He was sentenced by the Magistrate to three months' imprisonment and to pay a fine of Rs. 500. His accomplice, a native, who brought the ganja by the steamer as his luggage was awarded two months' imprisonment. On the 18th of last month 2,420 tolas of ganja were found in a case declared to contain a sewing machine. The case was in transit from Madras to Mandalay and was consigned to a native at the latter place. It was allowed to go on to its destination and intimation having been sent by telegram to the Deputy Commissioner there, two natives who came and took delivery of the case were arrested. There has since been another seizure of 3,360 tolas of ganja, the drug being found in a box declared to contain shoes intended for Mandalay. The case was dealt with in a similar manner to the foregoing one, but the result is not yet known. In 1888-89 the number of seizures was abnormally high, the aggregate quantity of ganja weighing as much as 17,753 tolas, and may be accounted for by the influx of a large body of native (Punjabi and Madrassi) troops consequent on the annexation of Upper Burma. The following statement shows the seizures of ganja during the last five years, also during thef irste ight months of 1893-94:— Year. Quantity. Tolas. 1888-89 17,7533/4 1889-90 626 1890-91 1,218 1891-92 2,430 1892-93 5,856 1893-94 (from 1st April to 30th November) 30,353
REPORT BY ASST. SECY. TO FINANCIAL COMMR., BURMA. 257
LETTER No. 133—11-E., DATED 5TH MARCH 1894, FROM THE ASSISTANT SECRETARY TO THE FINANCIAL COMMISSIONER, BURMA, TO THE REVENUE SECRETARY TO THE CHIEF COMMISSIONER, BURMA.
*1. No. 859—11-E., dated the 27th January 1894. 2. No. 55—11-E., dated the 3rd February 1894. †1. Letter No. 11—34, dated the 1st December 1893, from the Deputy Commissioner, Bassein. 2. Letter No. 3124—14-29, dated the 13th December 1893, from the Deputy Commissioner, Amherst, with enclosures. 3. Letter No.502—14-R./14-93, dated the 1st December 1893, from the Deputy Commissioner, Akyab. 4. Letter No. 6—62-R., dated the 13th December 1893, from the Deputy Commissioner, Rangoon Town District, with enclosures. 5. Letter No. 315—56-E., dated the 20th November 1893, from Commissioner, Pegu, with copy of answer to question 35. 6. Letter No. 494—20, dated the 2nd December 1893, from Chief Collector of Customs. (Copy of enclosures forwarded with Secretary to Financial Commissioner's letter No. 55—11-E., dated 3rd February 1894.) 7. Letter No. 1322—37-93, dated the 19th December 1893, from the Officiating Commissioner, Arakan, with enclosures. 8. Letter No. 9—1397, dated 12th January 1894, from the Deputy Commissioner, Toungoo. 9. Letter No. 232—14-E., dated the 16th January 1894, from the Commissioner, Southern Division. 10. Letter No. 18—20/30, dated the 24th January 1894, from the Deputy Commissioner, Mergui. 11. Letter No. 464—136, dated 30th January 1894, from Commissioner, Tenasserim Division.
With reference to paragraph 3 of your letter No. 16—2-E.-19, dated the 2nd November 1893, and in continuation of this office letters cited in the margin, * I am directed to forward, for the Chief Commissioner's information, copies of the replies† received from the officers who were consulted concerning— (I) the smuggling of ganja; and (II) the success of the system of prohibition which has been adopted in Burma. On the first point the information supplied by the Deputy Commissioners of the four seaport towns shows that the smuggling of ganja is steadily increasing, as will be seen by the following summary of cases of smuggling detected, viz.:— 1890-91. 1891-92. 1892-93. Tolas. Tolas. Tolas. (I) Rangoon 8,423 9,771 13,115 (II) Moulmein 932 213 92 (III) Akyab 245 567 1,018 (IV) Bassein Nil Nil Nil TOTAL 9,600 10,551 14,225 The increase is most marked in Rangoon and Akyab, where Indians form a considerable portion of the population. In Mouhnein there has been a large falling off. No reason has been given by the Deputy Commissioner for this decline. 2. Colonel Butler, Deputy Commissioner, Henzada, who was also consulted on the two points, is unable to furnish any information, and no report of any kind has been furnished by Lieutenant-Colonel Adamson, Commissioner, Central Division, although, as previously stated an urgent reminder was sent to him on the 20th January 1894.
No. 11—34, dated the 1st December 1893. From—The Deputy Commissioner, Bassein, To—The Secretary to the Financial Commissioner, Burma. With reference to your letter No. 337—116-E., dated 11th November 1893, I have the honour to state that there has been no case of smuggling of ganja into this district for the years 1890-91, 1891-92, and 1892-93.
No. 3124-14-29, dated the 13th December 1893. From—The Deputy Commissioner, Amherst District, To—The Secretary to the Financial Commissioner, Burma. With reference to your letter No. 337—116-E., dated 11th ultimo, I have the honour to submit herewith statement showing the quantity of ganja smuggled into Moulmein in 1890-91, 1891-92, and 1892-93. There has been no case of smuggling of ganja in the Amherst sub-division. No reports have been received from the sub-divisional officers of Thaton and Gyaing: they have been reminded to submit the same at once.  
Statement showing the quantity of ganja smuggled into Moulmein.
1890-91. 1891-92. 1892-93.
Tolas. Tolas. Tolas. Quantity of ganja smuggled into Moulmein 9321/4 2125/8 9233/8
No.5 02—4.R./14-93,d ated the1 stD ecember 1893. From—The Deputy Commissioner, Akyab, To—The Secretary to the Financial Commissioner, Burma. I have the honour to acknowledge the receipt of your letter (Financial Department), No. 335—116-E., dated the 11th November 1893. giving cover to two printed copies of "Instructions to witnesses (Burma only)" framed by the Indian Hemp Drugs Commission, and to forward my answers to some of the nine queries framed by the Commission. 2. As regards point (1) I am inclined to think that after a three years' experience as Deputy Commissioner of Rangoon Town from May 1890 to June 1893 smuggling has increased, and that it is due to the influx of natives of India from the Madras Presidency, also to the increase of native troops since the events of 1885. The records of cases tried and the experience of the Rangoon excise and cutsoms officers will, I think, prove that I am in all probability right. It is now brought in to some extent by post, but principally in Rangoon by the crew of the British India Steam Navigation Company's steamers, who put it in floating tins, and as they come up the river, somewhere about Elephant Point, throw it overboard to accomplices who are on the look-out in small boats or sampans.
1890-91. 1891-92. 1892-93. Tolas. Tolas. Tolas. 1 30 427 0 211 95 39 227 364 205 99 132 245 567 1,018
3. As regards point (2), I should think, considering the fact that ganja is not used by indigenous races of Burma, or, if it is, only in very solitary instances, that the system of prohibition has on the whole been successful. But it is by no means certain whether the success may not be due to the fact that the use of opium has taken its place. I cannot give any other facts to support my view. The marginal statement shows approximately the quantity smuggled during 1890-91, 1891-92, and 1892-93. 4. One copy of the answers to these questions has been sent to the Commissioner direct as desired by you.
No. 6—62-R., dated the 13th December 1893. From—The Deputy Commissioner, Rangoon Town District, To—The Secretary to the Financial Commissioner, Burma. With reference to your letter, Financial Department, No. 337—116-E., dated 11th instant, I have the honour to submit a statement showing the quantity of ganja smuggled into Rangoon in each of the years 1890-91, 1891-92, and 1892-93, together with a copy of Excise Officer Mr. Lewis' report on the subject. It is quite possible that in some cases some ganja has been shown twice over, and the quantities entered by the Chief Collector of Customs as smuggled are also contained in the amounts shown by the District Superintendent of Police and the Magistrate, but I find this cannot now be accurately ascertained.
Statement showing the quantity of ganja smuggled into Rangoon.
Received in 1890-91. 1891-92. 1892-93. Remarks.
Tolas. Tolas. Tolas. Custom House 1,218 2,430 5,856 Police Office 1,767 386 1,113 Assistant Magistrate's Court 125 1,299 384 Junior Assistant Magistrate's Court 4,603 4,591 60 Treasury 710 1,065 5,702 TOTAL 8,423 9,771 13,115
Report regarding ganja (Financial Department No. 357—116-E). Ganja was prohibited in Burma in 1873. At that time I was in Thayetmyo, where there was a ganja-shop. Burmans who smoked ganja then were afraid of being punished for being in possession of it and took to using kunbon, which is prepared from opium, betel, and other leaves cut fine, dried, and fried with opium; then they smoke it. Natives—especially those belonging to the Commissariat Department, elephant and cattle drivers and lascars—did not give up the use of ganja, but they smoked it secretly, as ganja grew round about there, especially at Allanmyo. The natives also use ganja for medicinal purposes for their cattle. At that time the native troops in the station for two or three days found it very difficult to get ganja; they soon got their supply cheaper than the license-holder sold it to them, as some men started on illicit traffic. In 1875 I came to Rangoon; then I found ganja, although prohibited, was used, and men were pointed out to me as ganja-smokers. They did not smoke in public, and how they got their ganja was very difficult to find out. After some time it was discovered that large quantities of ganja were imported through banghy post direct from Madras, addressed to butlers of different gentlemen in cantonment, and to the native regiment. This matter was represented to the Local Government, and at that time large quantities of ganja were seized in post. Since the annexation of Upper Burma in 1885, large numbers of native troops and followers and cattle-drivers have come to Burma, and the demand for ganja has increased. I have heard that there is no difficulty in getting ganja in up-country. Rangoon is now becoming thickly populated with natives of India who are in the habit of using ganja. As it is not sold in Burma they get it from elsewhere. In the last two or three years large seizures of ganja have been made by the different departments, which plainly shows that smuggling of ganja is on the increase. There is a great demand for ganja by natives of India in Rangoon at present. The abolishing of the sale of ganja in Burma has not, I think, reduced the use of it with the natives. It has increased illicit traffic, and has let people in other places know what the value of ganja in Burma is. As the native population is so largely increasing in the town of Rangoon, and the demand for ganja so great, I would beg to suggest that, so long as ganja is allowed to be used and sold in India, that the same privilege be granted in Burma, with this restriction, that it be only sold to the natives. The license-holder should be allowed to sell at one time one tola to a person, except on an order from the Deputy Commissioner granted to a person or persons who require a larger quantity of ganja for medicinal purposes.
No. 315—56-E., dated the 20th November 1893. From—The Commissioner, Pegu Division, To—The Secretary to the Financial Commissioner, Burma. With reference to your letter No. 335—116-E., dated 11th November 1893, I have the honour to report that, in compliance with your instructions, one copy of the questions, with my replies to the few questions that I am able to answer, has been this day (20th November) posted to the address of the Indian Hemp Drugs Commission, and a second copy is enclosed herewith. With regard to paragraph 2, I have the honour to say that my views on this point are given in my answer to question 35. Question 35. Would it be feasible to prohibit the use of any or all of these drugs? Would the drug be consumed illicitly? How could the prohibition be enforced? Would the prohibition occasion serious discontent among the consumers? Would such discontent amount to a political danger? Would the prohibition be followed by recourse to (a) alcoholic stimulants or (b) other drugs? Colonel C. B. Cooke's answer. The use of the drug is prohibited in this province. The prohibition is intended to protect the indigenous population from acquiring a habit which is by some persons held to be a cause of insanity. The alien population of Burma at the time that the prohibition was ordered was insignificant in number: in the twenty years that population has probably increased five hundred-fold, and the difficulties of enforcing the prohibition have also increased. But still I think the prohibition should not be omitted.
No. 494-20, dated the 2nd December 1893. From—The Officiating Chief Collector of Customs, Rangoon, To—The Secretary to the Financial Commissioner, Burma. In reply to your letter No. 336—116-E., dated the 11th November 1893, I have the honour to submit a memorandum by Mr. R. G. Culloden, Assistant Collector of Customs and Superintendent of the Preventive Service, Rangoon, an officer of long experience in the department, on the results, from a customs point of view, on the prohibition of ganja in this province. The note appears to me to prove that there is a large demand in Burma for ganja; the people will try to obtain it, and that the statistics of seizures by custom-house officers indicate that determined efforts are made by smugglers to import ganja.
No. 1322—37-93 (Excise), dated 19th December 1893. From—The Commissioner, Arrakan Division, To—The Financial Commissioner, Burma. I have the honour to submit a copy of my replies to the questions asked by the Hemp Commission. With reference to paragraph 2 of your No. 335—116-E., dated 11th November, I do not think there is any necessity for altering the system of prohibition in force in Burma: except in the Akyab district, which borders on Chittagong, the drug is not much used. I append a statement showing the number of ganja cases reported and brought to trial with the total amount of ganja seized, since the special excise establishment sanctioned in your No. 282—23-E., dated 10th February 1891, was introduced. These figures have been supplied by the Inspector of Excise.
Statement showing the number of ganja cases reported and brought to trial and quantity of ganja seized by the special Excise Department, Akyab, since April 24th, 1891.
Year.
Number Number Quantity of Year. of cases of cases ganja Remarks. Year. reported. convicted. confiscated.
Tolas. 1891-92 31 26 2671/3 1892-93 27 18 2605/16 1893-94 17 11 171 From 1st April to 30th November 1893.
TOTAL 75 55 69818/16
No. 97—120, dated the 12th January 1894. From—The Deputy Commissioner, Toungoo, To—The Assistant Secretary to the Financial Commissioner, Burma. With reference to your No. 318—11-E., dated 11th instant, and annexures, I have the honour to forward one copy of the questions of the Hemp Drugs Commission, together with my answers to some of the same. 2. With reference to the last paragraph of your letter No. 335—116-E., dated 11th November 1893, I have the honour to state that in my opinion the system of prohibiting ganja in Burma has been to a very large extent, though not entirely, successful. I base this opinion on my experience as a Magistrate. I regret that I cannot give the actual number of cases brought before me in which the possession of ganja was involved, but they were not sufficiently numerous to accuse the prohibitory system of failure, though quite enough to prove that a demand for the drug does exist, which has to be met by smuggling.
No. 232—14-E., dated the 16th January 1894. From—The Commissioner, Southern Division, To—The Financial Commissioner, Burma. With reference to paragraph 2 of your letter, Financial Department, No. 335—116-E., dated 11th November 1893, I have the honour to report that, as far as my experience goes, the system of prohibition of ganja has worked well. This is based on my experience in different places. It is very possible, however, that the large influx of natives in the Military Police, etc., within the past few years may cause an increase in the consumption, but I think the existing Excise and Police Departments can cope with it.
No.1 82 0/26,d ated the 24th January 1894 From—The Deputy Commissioner, Mergui, To—The Secretary to the Financial Commissioner, Burma. In reply to your reminder No. 145—116-E., dated the 5th January 1893, directing attention to paragraph 2 of letter No. 335—116-E., dated the 11th November 1893, calling for an opinion as to the success of the system of prohibition of ganja which has been adopted in Burma, I have the honour to state that, as far as the general public are concerned, the use of ganja is practically extinct. A few of the natives of India still manage to smuggle it in for their own use, and detection is difficult. 2. Owing to my absence on tour, the reply to your reminder has been somewhat delayed.
No. 464—136, dated 30th January 1894. From—The Commissioner, Tenasserim Division, To—The Financial Commissioner, Burma. I have the honour to state in reply to the 2nd paragraph of your Secretary's letter No. 335—116-E., Financial Department, dated 11th November last, that I have never, as far as my recollection serves me, come across a single instance of a Burman using or possessing ganja. In every case with which I have had to deal in my 31 years' experience in this province the offender was a native of India. The effect of the prohibitory system has undoubtedly been to render it somewhat difficult and dangerous for any one to possess the drug, and this must have very largely tended to keep it out of the hands of Burmans. In my opinion, if this system had not been adopted, the results would have been disastrous. Burmans would very certainly have taken to use ganja, for which they have now no desire, and from their national character those who took to it would have used it to excess, as is the case with opium, which, taken in moderation, does no harm.

Individual witness responses.

Following are the witness responses (not exhaustive) to the questions 58, 59, 60, 61, 62, 63 and 64 posed by the Indian Hemp Drugs Commission of 1894-95.


58 and 59. On the whole it works well, but is capable of improvement. Ganja.—I think the cultivation is sufficiently controlled, but the preparation and storage arrangements can be improved. The rules contemplate a public gola; but as a fact, there is no public gola for storage, nor, under existing circumstances, would it be possible without enormous expenditure to have a public gola. In the first place ganja as it is now prepared, the great bulk of it being "flat," takes much room, and in the next place the damage from rats and mice would be very great. As a fact, at present each raiyat's house is a gola for his crop until it is sold, and this is fair, as the crop is the raiyat's property. At present the raiyat sells to a middleman or goladar, and it is only when the sale is complete and the drug is to be removed that the crop comes to the Government gola to be weighed and packed. This goladar is the middleman between the producing raiyat and the retail vendor, and these men make large profits. They are generally also retail vendors, and they are able to exact very high prices from the other retail vendors. These profits, I hold, ought to come into the pockets of Government; and if the experiments made by Dr. Prain turn out successful, it will be very easy for Government to deal with the raiyats and the retail vendors direct. In dealing with the raiyats I would have Government purchase the crop at once from the raiyats and undertake the preparation in the manner proposed by Dr. Prain (square cakes). The amount of crop varies from 3,768 maunds in 1878-79 and 3,888 in 1885-86 to 9,448 in 1877-78 and 8,982 in 1883-84. I would buy this just as it is cut, and would fix the price yearly according to the harvest, paying higher rates in bad, and lower in good years, with a fixed minimum and maximum, which can be settled from the prices now obtained by the raiyats. The weak point in our opium system is that all the loss of a bad year falls on the raiyats, while Government pays them just as much in the bad year as in a good. If this be done, I take it the area of cultivation could be much reduced. The statistics show that from one to three thousand maunds a year more are grown than are consumed. This is partly destroyed as damaged (about 4 or 5 hundred maunds) and partly never passes out of the raiyat's hands, the demand not being sufficient. This last element of uncertainty to the raiyat would go if Government bought all the crop, and if Dr. Prain's proposals succeed, Government will be able to keep the drug longer without deterioration. After the drug has been bought and pressed, and, if necessary, put up in tins, it should be made over to Collectors on indents, just as opium is now made over, and retail vendors should buy from Collectors direct. The great bulk of the crop is at present at once removed from the producing district, and Collectors' indents could be arranged so as to continue this custom and secure the immediate removal to the districts of the bulk of the crop, and thus economise gola space at Naogaon. The pressing sheds need not be substantial, as the weather is always fine at the time of the ganja harvest. What I propose would be liked by the cultivators, and by the retail dealers, and Government would at once secure 2 or 3 lakhs of revenue, and would also have a much stronger hold on the distribution and regulation of the sale of the drug. The only men likely to object to it (besides the goladars) are those who hold that Government should have nothing to do with excise and similar matters; but the public gain would in other respects be so great as to justify Government in disregarding their views. So far as I am aware, there is absolutely no desire on the part of any section of the native community to put down the use of ganja and bhang, and even those who generally support Mr. Caine and the views put forward in Abkari do not join in this respect. 60. The cultivation is sufficiently controlled. 61. Not produced, but might be. Charas.—No charas produced in this province is sold or goes into the market; but Chapter VII, pages 16 and 17 of Dr. Prain's report, shows that some is produced but not used, and if the proposals made above are accepted, the 10 per cent. of resin now lost and thrown away will be saved and so much less hemp need be grown. Ganja and charas are really one, and in time, if the question be scientifically followed up, possibly charas will be the only form used. 62. I think it could to some extent. Bhang.—The rules require that a license should be taken out for the cultivation of the plant for bhang just as much as for ganja; but, as a fact, no such license has ever been taken out, and all that is used is said to grow wild. The fact is that most of the hemp used for bhang is imported from the North-Western Provinces, and only a small amount is grown in the districts of Purnea, Monghyr, and Bhagalpur. The orders issued in Circular No. 6075 of 26th January 1893 were, in my opinion, in accordance with the law, and would by degrees have operated so as to give some control over the cultivation of hemp for bhang; but the Lieutenant-Governor, Sir C. Elliott, did not approve of them, and they were withdrawn. The fact remains that there is hardly a well-to-do native gentleman who has not a few plants of hemp growing somewhere handy, and that if the cultivation or the existence of these was checked, bhang would be purchased in much greater quantities by licensed vendors. I would also press the Collectors of exporting districts to get cultivators to take license. I am opposed to any sudden drastic action, but think gradual systematic pressure would do much. 63. Vend of drugs.—I have already said I would knock out the wholesale vendor entirely and make the wholesale business a Government monopoly. I have nothing to say regarding the retail vend, which seems to me to be sufficiently under regulation. 64. I have no objection to raise. 65. Taxation of the drugs.—This is a very difficult question to answer as a whole. As regards (a), I should say that charas and chur ganja should pay about the same tax as they now do, but that charas might bear a little higher tax than chur ganja as it is purer; but then again it is brought from a great distance. On the whole an equal rate is not unfair, but consumption should be watched. I do not think bhang can be taxed higher than it is, as the result would simply be more illicit cultivation. As compared with alcohol the taxation is low; but alcohol is at present too highly taxed, and the result is large illicit distillation. I do not think the rate on flat ganja can safely be much raised without danger of illicit cultivation, and it is this that should guide taxation rather than a comparison with alcohol. As stimulants they can hardly be compared. 66. Yes. Dr. Prain has gone into this in Chapter X of his report, and the Board have since recommended that the rates from 1st January next shall be Rs. 6 for flat (large twigs), Rs. 7 and annas 4 for flat (small twigs), Rs. 7 and annas 8 for round, and Rs. 9 for chur. 67. Incidence of tax on consumer.—The tax is undoubtedly light, and it is the cheapest form of stimulant; but, looking at it in all lights, I am not disposed to recommend much of a rise,— vide what has been said under question 65. 68. There is no bar to consumption on the premises, and I see no reason why there should be. A ganja shop has no repulsive surroundings, nor do men get drunk and disorderly as a rule from its use. I know no objections to the present system. 69. Sites of shops are determined under the rules contained in section II, page 101, and sequel of the Manual. Rule 9 is the most important and should be consulted, also Rule 12. Any objection is considered, but no attempt at a plebiscite or anything of that kind is made. 70. The importation from Gurjat into Orissa is provided for in the rules. There is also smuggling, but this is a question of prevention. Question 62.[oral evidence]—I should have preferred that the circular No. 6075 of 26th January had stood. It never had a fair trial. I do not think there would have been any considerable oppression, because the people would very soon give up cultivating if they knew it would lead to prosecution. In some few cases, no doubt, prosecutions would have had to be instituted. But, as far as I know, none were instituted as long as the circular was in force, and should have been prepared to repress any undue activity of this kind. The quantity of bhang that is now exported from the Bhagalpur Division shows that there must be cultivation to a considerable extent, though there is no licensed cultivation. The theory is that the whole of this is wild hemp. Question 68.[oral evidence]—Consumption on the premises is not general though it is not illegal. I know of no evil arising from the practice, and see no reason why it should be prohibited. Nothing has come to my notice to lead me to suppose that any harm arises from it. Question 69.[oral evidence]—The number of shops has been greatly reduced of late years, as statistics will show. Further reduction would cause great discomfort to consumers, and I think they have a right to be considered. I am not prepared to say whether an appeal to public opinion would result in the closing of many more shops. The smoking of ganja is not unpopular. The people of Bengal are distinctly a sober people, and I do not see any need to interfere further with their habits in regard to the consumption of the hemp drug. I do not think the monopoly I have advocated would be such interference. - Evidence of the HON'BLE MR. D. R. LYALL, C.S.I., Member, Board of Revenue, Calcutta


58. I think it works well. I have thought of substituting a system of buying up ganja by Government on the principle of the Opium Department; but I do not think it would be a success. 59. I think it works fairly well. 60. I think we do fairly well; but I should like to know what Dr. Prain suggests. No improvement in the system has occurred to me. 61. Not produced. 62. Certainly. I am not sure if it would be feasible. I have done a little towards extirpation of the wild plant, but am very doubtful of success. It grows everywhere, and we have no preventive agency to speak of. Police and Excise Officers are told to destroy the plant when they see it and warn the cultivator, and if a man so warned were found with the plant on his land again, I should presume an intention of cultivating and not an accident. 63. I think we do fairly well. 64. No, we do pretty well. All I want is more men, and those honest! 65. The taxation is high enough, but that on alcohol is excessive. Ganja is now the cheaper of the two, but I would not raise the taxation. I would rather lower the absurd taxation on alcohol. 66. There is only one locality. I am inclined to think that all ganja might pay the maximum tax. I do nots eew hy flat ganja should go into the market with a quantity of wood, and even that in gol ganja is unnecessarily large. 67. No, I think it works well. 68. I do not remember any consumption on licensed premises, and do not think any such accommodation is required. 69. I think it is rubbish consulting local public opinion. It generally means only consulting a number of Babus, who are out of all sympathy with other classes, and utterly ignorant and careless of their requirements. 70. The smuggling of Gurjat ganja into Orissa and elsewhere is very great. You should look up the papers in the Excise Office: otherwise I think most of the ganja consumed really does pay duty. If it were easy to evade the tax, the astute traders would not pay it to the extent they do now. Question 58.[oral evidence]—My views on this question are contained in a letter from myself as Commissioner of Excise, No. 6601, dated 23rd March 1891, and I adhere to those views. With reference to these representations and my answer to question 66, I desire to say that Dr. Prain's experiments in preparing caked ganja seem to have to a great extent met the difficulty of obtaining uniformity in the quality of ganja. I certainly think it would be a good thing to get rid of the wood portion of ganja. I can see no difficulty in it, and do not know why this defect has been tolerated. I remember dismissing an excise clerk who allowed the dealers to remove the wood of flat ganja and pay duty for flat ganja, thereby defrauding the revenue. Question 59.[oral evidence]—By management on the lines of the Opium Department, Government might acquire the profit which is now made by the wholesale dealers. I have not considered the bonded warehouse system, and am not prepared to say whether under that system the same profit could be secured to Government. Theoretically our present system is the bonded warehouse system. Mr. Price, the Commissioner of Rajshahi, will be able to explain why this system has not been provided in practice, and the cultivator has been allowed in every case to store his own ganja. The principal reason is that he is able to look after his produce under the present system. The cultivator has to take out a license to cultivate and a license to store, but there is no weighment before the produce goes into the store. A rough crop estimate only is made. My impression is that the ganja remains in the cultivator's possession from February to May, but there is nothing in the system to prevent its remaining as long as the cultivator pleases. I do not remember how the cultivator is called to account for the amount estimated to have been stored in his gola. Mr. Price can give this information. The system does afford facilities for smuggling, but I do not think smuggling can be very extensive, for, as I have stated in answer to question 70, the dealers would not in that case submit to the heavy taxation. One dealer would inform against another. Smuggling or illicit use by the cultivators themselves would not be checked by this consideration. Question 62.[oral evidence]—I i ssued the Circular No. 6075, dated 26th January 1893 (attached) with the object of extirpating the self-sown plant, and to bring bhang under taxation. Ganja was not contemplated in the measure. I still think that order might be carried out without any greater amount of oppression than generally accompanies Government interference. I think it would be more common to find the self-sown plant growing on unoccupied lands than upon occupied lands. There are many cases in which the raiyats could not be held responsible for its growth, as when it grows on unoccupied spaces between houses and the river frontage, or on the sites of deserted habitations. The plant could undoubtedly be extirpated from occupied lands. Question 68.[oral evidence]—I see no advantage in licensing consumption on the premises. I do not see why a man should not smoke his ganja where he likes. There might be objection to Government licensing places where people get intoxicated. I object to the prohibition of smoking chandu and madak on licensed premises, because the chandu and madak which is smoked in unlicensed premises pays no tax beyond the opium duty, and some does not pay that. We lose the tax on the license for selling. I should not think that it had resulted in an increase of the practice. Question 69.[oral evidence]—By Babus I mean those known in Bengal as the bhadralok, comprising pleaders and school-masters in great part. My remarks do not apply to zamindars, who would not come forward and give an opinion in the matter of local option, but I should undoubtedly go to them if anxious to find out what the local public opinion was. There would be no difficulty in getting public opinion in the villages, for it would be ascertained from the "pradhans" or principal raiyats; but in towns the division between classes is such that there is no homogeneous public opinion, if I may use the phrase. As far as I have seen the effects of the use of the hemp drugs in Bengal, I certainly see no reason to advocate prohibition nor any restriction beyond that exercised at present. In imposing any enhancement of the present taxation I should have regard simply to the revenue, I should not, however, wish to see the cultivation increased, unless it were a means of counteracting any smuggling which is going on: but I do not think smuggling is carried on to such an extent as to justify such extension. Since making a closer study of the matter, I have modified the opinions which led me to describe the hemp drugs as "this most pernicious article" in my excise report for the year ending 31st March 1891. I used it at the time as being in accordance with the popular opinion that this drug is the most harmful of intoxicants. Since then I have given more attention to the question, and have come to the conclusion that the habitual moderate use of the drug is not open to objection.
Appendix to MR. WESTMACOTT'S Evidence.
Circular No. 6075, dated Calcutta, the 26th January, 1893. From—E. V. WESTMACOTT, Esq., Commissioner of Excise, Bengal, To The Collector of Deputy Commissioner The variety of the hemp drug plant (Cannabis sativa), from which the drug variously known as subji, siddhi, or bhang, is prepared, grows wild in many districts in Bengal, and it is not always possible to prove the fact of a person cultivating it, or allowing it to grow on his land, for his own use or for sale. It is desired, therefore, to extirpate the plant as much as possible, so that persons desirous of cultivating it, may take out licenses for doing so. Where the plant is really growing wild on unoccupied land it may not be easy to eradicate it, but where it is found growing upon any part of a raiyat's holding, as is generally the case, any excise or police officer who sees the plant should cause it to be immediately destroyed, and should warn the raiyat of the penalty incurred under section 54, Act VII (B.C.) of 1878, for promoting the cultivation in any way. The fact of such warning should be regularly recorded, and if the plant is found again on the land of a man who has been warned, it may fairly be presumed that he has allowed it to grow, and he may be prosecuted. I have the honour to request that you will instruct excise and police officers accordingly, and direct your Excise Deputy Collector to keep a register of all the persons on whose land the plant has been found, and who have been warned of the penalty for growing it.
Circular No. 1566, dated Calcutta, the 14th June, 1893. From—K. G. GUPTA, Esq., Commissioner of Excise, Bengal, To The Collector of Deputy Commissioner
I have the honour to say that the attempt to extirpate wild ganja or bhang seems to the Lieutenant-Governor to be impracticable, and likely to have no result except petty oppression. Sir Charles Elliott accordingly desires that it may be abandoned. I beg, therefore, to request that you will consider my predecessor's Circular No. 6075, dated the 26th January 1893, as cancelled.  - Evidence of MR. E. V. WESTMACOTT, Commissioner, Presidency Division; late Commissioner of Excise, Bengal


For revenue purposes there are three recognized varieties of ganja, namely, chapta or chipta (pressed or flat), gol (round), and chur (broken), which are liable to a duty of R6, R7-4, and R8 per seer, respectively. Flat ganja is trampled down by the feet in the process of preparation, while round ganja is carefully rolled and has a less quantity of the twig than flat; chur consists of the broken particles of resinous matter that fall off in the manipulation. The hemp plant is said to grow spontaneously in Bhagalpur and Monghyr, and also in the Bettiah sub-division of the district of Champaran. Occasionally a few plants are to be found on the Burway plateau, a distant portion of the Lohardaga district, bordering on the Native States of Jashpur and Sirguja. It grows sparsely in some of the Native States under me, and is also to be found in the south of the Manbhum district, in Singhbhum, and in the Mohurbhanj State. It is grown best on light, rich alluvial soils with a moderate amount of moisture. The sandy banks of rivers are favourable to its growth, and it thrives well on the "sithi," or refuse of indigo vats. There is no regular cultivation. In some of the Tributary States people smoking ganja grow the plant at their doors according to their requirements for smoking and drinking, but this is done only on a small scale. In the districts of this division the products of the hemp plant are obtained from Rajshahi. There is no special treatment. The plants are allowed to grow according to nature. There are no regular cultivators. There are nine Native States under me— Sirguja, Udaipur, Gangpur, Jashpur, Bonai, Koria, Changbhakal (which are tributary), Seraikela and Khasawan (which are political). The growth, where it exists, is found near the houses of the people, a plant looked after for a man's own consumption. Whether there are plants in the jungle I cannot say. I have never looked for them. I do not know the growing plant. I believe that what the people produce is all consumed in the Native States. I had one complaint from Sambalpur—but only one in five years— as to smuggling ganja into British territory. It was on a small scale. But, on the other hand, the Raja of this very State (Gangpur) applied for permission to import ganja, about five or six months ago. I gave the vendor (through the Raja) permission to import from Sambalpur on the line of rail. I do not think the Raja knew anything about the difference between Bengal and Central Provinces ganja. These States manage their own excise. The inhabitants generally do not take ganja, as they do not manufacture it to any extent. They have no surplus to export. The present system of excise administration is working well. There is no cultivation in this division. The system in force for controlling the cultivation and preparation in Rajshahi, where the hemp plant is cultivated, is, in my opinion, working well and requires no modification. Already different rates for taxation exist. Taxation should be, as it is now, regulated according to the quantity of the drug from which intoxication is produced in a given quantity of each kind of the drug. This is, I believe, the principle now followed in imposing duty on the different kinds of ganja used. I have heard it contended that because it costs more to get intoxicated from country spirits than hemp drugs, the duty on the latter should be levelled up, but this would be a mistaken policy, as many of the regular consumers of ganja are too poor to purchase country liquor. A recent report of the Protector of Immigrants in Trinidad attributes the increase of crime there to ganja and drink, and refers to the fact that in 1885 an ordinance was passed requiring the payment of as much as £100 per acre of a license to grow ganja. This prohibitive rate, I observe, led to the smuggling of ganja from Venezuela, seven miles off on the mainland, and there can be no doubt that any prohibitive fees and duties introduced in India would have a like result. The wishes of the people are consulted before a shop is opened. Inspecting officers hold local enquiries and submit reports before proposals for the opening of new shops are made. Local public opinion is always considered, and should be considered. Smuggling from Native States on a small scale occasionally takes place and may escape detection, though no complaints on the subject have reached me. Duty is paid in respect of the ganja and other hemp drugs used. The use of untaxed drugs is extremely rare in this division. In saying I have bad no complaints, I except the complaint from Sambalpur already referred to This complaint did not come to me direct for me to take up and deal with. It was to the best of my belief a representation made by the Central Provinces to the Bengal Government, which came to met hrought heB oard for report. 14 The memorandum submitted with my letter No. 404-P., dated 13th January 1894, contains one possible inaccuracy to which I wish to draw attention. It states that there is now nowhere in the Tributary States any shop for the sale of hemp drugs. A license was given by me a few months ago, as I have said, to a vendor in the Gangpur State to import ganja. Of course I cannot definitely say that the shop has been opened yet. The statement that there are no shops is based on reports received from the States. As to Mr. Hewitt's order I am not prepared to say that the Rajas keep the lists he 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. - Evidence* of MR. W. H. GRIMLEY, Commissioner of Chota Nagpur


The fact that the plant is found near the houses, and not found in the jungles, points to its being either cultivated or sprung from seed thrown aside by consumers. It is not grown in fields, but five or six plants may be found in almost every village. This amount of growth is more than would be required for the alleged medicinal use, and I doubt if all the drug is used medicinally. I believe it is collected in centres and sold into British territory, most probably by the Rajas or their underlings, certainly not without the Rajas' consent. I do not think it is much used by the people themselves. About three years ago we tried to get the Rajas to agree to allow the drug to be exported under regular supervision, and a set of rules was drawn up for the purpose. These rules must have been subsequent to the Bengal Government Resolution No. E.1 —G./24  of 6th September 1889. Some of the Rajas did adopt the rules, which were an amicable arrangement between the Rajas and the Superintendent of the Tributary States, and some temporized. These did not say "no," but did not adopt the rules. These rules were framed in pursuance of a policy which Government have no doubt approved, but, as far as I know, they were not sanctioned by Government. The origin of this action was, as I remember, that after the abolition of prohibition under the orders of September 1889, the Excise Commissioner complained of the flagrant smuggling which was being carried on from the States into the British territory. The Excise officers were constantly complaining of the smuggling, but I could not say the extent to which it was carried on. The complaints were never-ceasing. Regarding the orders issued by the Bengal Government in September 1889, it was no doubt a mistake in fact to suppose that the Gurjat ganja was used entirely or mainly as a drink; but I do not think there was any mistake in the policy of that Resolution, because, though the Superintendent reported that the prohibition had been enforced in eleven of the States, I do not believe that the enforcement was more than nominal. Even if a Raja agreed to prohibit, I do not believe he would carry out the arrangement. Therefore, believing this, though I have no personal knowledge of what had occurred before 1890, I think that no real progress had been made. If I heard that greater success had attended similar prohibition in States of the Central Provinces, I should attribute it to the better supervision exercised in the Central Provinces, owing to the fact that they have a Political Agent who is much more in touch with the Rajas than the Superintendent of the Tributary Mahals can possibly be. I believe also that the Central Provinces Government exercises stricter supervision and more severe control over the proceedings of the Rajas than the Bengal Government allows the Superintendent to do. I understand that the Commissioner in the Central Provinces has authority to send for a Raja and reprimand and warn him regarding the misgovernment of his State; whereas on our side this is not allowed, except in cases of open revolt. In my opinion, if the Government is to secure the Rajas against revolt as the consequence of misgovernment, there ought to be greater powers of supervision and control than there are at present. With these greater powers in the hands of the Superintendent the Rajas would be more amenable to advice. And any advice which the Chiefs affected to accept, and any orders issued in accordance therewith, would also be much more easily given effect to and carried out if there were a political officer appointed to visit the States and be in constant touch with them as the Superintendent, Tributary Mahals, cannot possibly be.
In excise matters the Rajas would become more amenable if such an arrangement were made. And as regards ganja, all that would be necessary would be to get the Rajas to order all the ganja intended for export to British territory to be brought together into a central depôt and to be sent only under pass. Such ganja would be subjected to an adequate duty on entering British territory. I should not interfere with internal consumption at all. The Raja would then be responsible that ganja was not exported from his territory without pass, that is to say, he would issue orders against any export except through the gola, and he would punish any attempt to evade such order. A smuggler would render himself liable to punishment by his own Raja and the co-operation of the Raja would be secured. If this were effectually carried out, it would be sufficient. If the Rajas would agree to prohibit cultivation and accept our ganja, receiving the duty themselves, as in the Central Provinces, that would be a better and simpler solution of the matter. The effect of the decision of the High Court and the Secretary of State declaring the Gurjat States to be foreign territory has been followed by the repeal of the Regulations which were previously in force. On the matters provided for by Regulation, e.g., succession and settlement of boundary disputes, executive orders have been substituted, and no practical change in the relations between the Rajas and the Superintendent has taken place, except that the Superintendent's authority has been weakened owing to the necessity for referring everything to Government. With regard to excise, there was no law or regulation in force in the States. The position of the Government in excise matters in relation to the States is affected by the Secretary of State's decision, inasmuch as the authority of the Superintendent has been weakened, and inasmuch as the Rajas are more independent in their tone. I cannot say whether it has actually been altered: that will depend on the terms of the sanads which are under consideration. So far as I remember, there is no special reference to excise matter in the proposed sanads, but they define generally the relatious between Government and the Rajas. I see no objection to the introduction of Rajshahi ganja into the States if the Gurjat ganja is prohibited. I am not prepared to say that 1 approve the opening of shops where none now exist. I have not formed any opinion as to the comparative strength and effects of the Rajshahi and Gurjat drugs. The introduction of a system of ganja excise involving the establishment of shops would tend to the reduction of consumption if the native drug were prohibited. There is no limit to the amount of their own ganja which the people of the Gurjats can obtain at present. I doubt if the opening of shops would increase consumption even if the drug supplied were of superior quality, because the inhabitants of the Gurjats are satisfied with the commonest kinds of drugs and other articles. - E videnceo fM R.G .T OYNBE, Commissioner,B hagalpurD ivision.


I came out in December 1867, and have served in Bengal, Behar and Assam. I was only a year in Behar, and have chiefly experience of Assam and Bengal. Sylhet and Cachar are much the same as Eastern Bengal, though part of Assam. The Brahmaputra Valley practically constitutes Assam as contrasted with Bengal. I have been Secretary to the Chief Commissioner when he managed excise direct, and have also been Commissioner of the Brahmaputra Valley; so I have considerable experience of the Assam side of the question. The problem may be viewed for Eastern Bengal and Sylhet and Cachar together on the one hand, and for the Assam Valley on the other hand. I have seen the hemp plant wild in Sylhet, Cachar, and Mymensingh, and all the districts of the Assam Valley and the Khasia hills; and I know it grows wild in the Naga Hills and Bhutan, because it is smuggled down. I should say that the wild growth is from seed accidentally sown. I judge this from its situation. I have seen it near villages in bunches and so on, but not actually in the jungles of Cachar or Assam. I have seen it rather in connection with habitations than in jungles; and I judge, therefore, that it grows from seed of imported ganja. I find that this view is stated in the last Excise Report for Assam. I have noticed it most in the waste spaces, especially near villages on the Grand Trunk Road through Assam in the Nowgong district, in tobacco fields in a village near Korabandar Ghat in the Kamrup district, and last cold weather, when out shooting in Mymensingh, I found twenty or thirty acres of it (more or less thick) in Thana Durgapur. These instances occur to me at present. But I have seen many other instances. In these cases I did not think it had been intentionally sown. I asked about it. The people said it was jungly, grown up of itself, and that they did not use it for anything. I have known of illicit cultivation in Assam. There were a good many cases discovered in the Golaghat sub-division and also in the Dibrugarh country. The cultivation was, as a rule, only of a few plants. In the Dibrugarh case there was not ganja by the acre, but there were many plants. All the people of the village seemed to be cultivating. I have not known any systematic cultivation on a large scale; but agricultural cultivation generally is much scattered in Assam; and I have known cases of cultivation of ganja on a small scale being discovered in remote places. I fancy the reason I do not remember many cases in Sylhet and Cachar is because we did not make any great effort to stop it or pay much attention to it. It is since I left that greater efforts have been made to stop unlicensed cultivation. In my opinion the prohibition of cultivation of ganja is effective both in Bengal and Assam. I think it has been effective without much harassing of the people. But you have only to stir up the police with a circular and hope of reward to give trouble. The cultivation which exists is trifling; but, on the other hand, a little ganja goes a long way. Cases of illicit growth are not very common; the cases that do occur often turn out not to be cases of cultivation, but merely accidental growth. Complaints by licensed vendors are very rare. The wild plant is not used for ganja, but the leaf is used for bhang. The ganja from the cultivation of the wild plant would be very inferior. I must have seen ganja produced from this wild growth; but I cannot recall a case. I know no case of ganja prepared from the wild plant without cultivation. But I have seen it smoked. We experimented with it; it was not anything like excise ganja, but poor stuff. My general conclusion is that it is not feasible—not possible without giving the chance of oppression— nor necessary to prohibit bhang. It is specially difficult in Bengal, where the want of Revenue establishment makes us so dependent on the police in such matters. In Assam it would be possible, thougheven there there would be great difficulty. My experience in regard to the effects of ganja on the health of the people is too limited to enable me to give any information. The number of people who take it in any quantity must be very small as compared with the people who take a decoction of bhang. I have never had opportunity of observing cases. I think the people, if asked, would say that smoking ganja to any great extent was bad, but that taking bhang was much better. They would regard alcohol as worse. That is generally my view, as I must base my view on what I hear. I cannot, from personal observation, say anything definite. I cannot, I fear, give instances of connection between hemp drugs and insanity; but I think that if I had the records of the Courts of the Brahmaputra valley before me I should be able to show cases of violence traced to ganja. It has to be borne in mind, however, that ganja is often used as a false plea to get men off capital punishment. I have for the last fifteen months in this Dacca division (which of course I remember better than the more remote Assam experience) had all the special police reports showing all serious crime; and I do not remember any case of the connection of crime and hemp drugs. I do not think there is any possibility of total prohibition in the case of bhang. But I think that ganja cultivation might be prohibited so that the people might take to bhang, as I believe they would. I do not think there is a case for prohibiting ganja owing to the limited number of consumers, and bhang does little harm. Ganja is reputed to do so much harm that if it were widely used it should perhaps be prohibited if possible. One is, however, brought so little among the people that I have little chance of any personal knowledge of the subject. But the opinion of the people is against ganja; the tradition has come down against it; I even learned before I came out to this country that hashish was a terrible thing, and I have seen nothing to show me the contrary. Opium consumers come to see us, and we can talk to them about the drug. It is not so with ganja. Your syce may take the drug, but you could not tell about its effect on him. So one has nothing on which to base any judgment of one's own in the matter. I am not in favour of prohibition, because so few use ganja; and my opinion regarding its effects can only be based on hearsay and reading and not on personal experience. I cannot say whether ganja or alcohol is more connected with crime. But my experience leads me to say that in the Assam Valley districts it will be found that both these intoxicants are sometimes associated with crime, especially in tea gardens. There has been considerable increase in the taxation of ganja both here and in Assam. I do not think the limit has been reached. I cannot say precisely how the taxation of ganja compares with that of other intoxicants. But I think it could still be increased. I have, however, no definite proposals to make. I do not think there is much smuggling of excise ganja. Government keeps careful watch over stuff kept in the local golas, of which Government keeps one of the keys. - Evidence of MR. H. LUTTMAN-JOHNSON, Commissioner of Dacca


It would probably be possible to put a stop to the supply of ganja, as the crop cannot easily be grown without observation. But the use of bhang cannot be prevented, because the plant grows wild everywhere. There are many forms of selfindulgence open to abuse; and it is a question for investigation whether men inclined to intemperance, when stopped from using a particular drug, will not take to some other evil practice. I should like to draw attention to one detail of the present system of levying the duty on ganja. It is a sound fiscal principle that duties should be levied at as late a stage as possible. The duty on ganja exported to the North-Western Provinces is paid at Naogaon. It ought to be levied at bonded ware-houses in the North-Western Provinces, as is done in Bengal. Further, originally in this province there used to be several centres of production These were all concentrated at Naogaon. This has been found to be an excellent measure, of which the advantages are— (1) economy of establishment; (2) diminution in smuggling: wherever there is cultivation there is smuggling; (3) improvement in quality of the produce by one cultivator learning from another; (4) uniformity of taxation. The question arises, should this system not be extended by having one single centre for all India, as in the case of opium, or at least for all Upper India, including the Central Provinces. Cost of carriage is a main objection to concentration, but this does not enter very largely into the matter of ganja from its high value in proportion to weight. The duty alone on round ganja is R290 a maund, to which has to be added the intrinsic value of the drug. The Commission of course would have to select a suitable centre. But there is no doubt that the area for production could easily be supplied. The. area under cultivation in Bengal is trifling, viz., 800 acres yielding 8,000 maunds of ganja. Experience shows that this amount could easily be doubled, and I have no doubt that the wants of all India could thus be supplied from Naogaon without any great increase in cost of establishment. I have not studied the question of production or cultivation in other provinces. Nor have I considered the question of prohibiting production elsewhere than at the centre. But the experience of Bengal shows this to be feasible. I do not express any opinion at present as to total prohibition. That is the question now under trial before the Commission. I have observed a proposal in the replies to the Commission's questions by the officer in charge of the Rajshahi tract, that Government should purchase the ganja from the cultivator, store it, and distribute it to the distant districts where it is consumed. If this proposal is under the serious consideration of the Commission, I desire to record an opinion against it. It would be impossible for Government to purchase from the cultivators as private dealers do. The experience gained by the State in regard to opium, and by planters in regard to indigo shows that when there is only one purchaser in the field, he must make his arrangements before the crop is grown on a system of contract and advances. I do not think it desirable to undertake such a business in regard to a commodity for which there is so little demand, merely for the object of intercepting the moderate profits now made by the wholesale dealers. The system by which the right of wholesale vend is put up to auction with the condition that the wholesale dealer shall sell to the retail dealer at a fixed price is new to me, and I am not prepared to give an opinion on it at such short notice.  - Evidence of MR. P. NOLAN, Commissioner,R ajshahiD ivision


58. It is working well, but for the smuggling from the Gurjat States. 59. I do not think that the above defect can be removed, except by greatly strengthening the preventive force. 60 and 61. I have no experience of the details of the Government control over the production of the excisable article. I do not believe it possible to prevent the production of the hemp plant either wild or otherwise. 62. It is already controlled, as far as possible, in Bengal, Behar and Orissa, though I doubt whether the control is effectual. In the Gurjats it is uncontrolled, and could not be controlled. 63. I have no objection. 64. None. 65. I believe it to be reasonable. 66. Undoubtedly each class of ganja contains a different proportion of intoxicating properties as compared with its bulk. Whether Gurjat ganja should be taxed as at present less than Rajshahi appears questionable; but the evidence on the subject is conflicting. 67. None. 68. None in Orissa so far as I am aware. 69. Such are the orders of Government, and I believe that they are obeyed. Excise Officers make local inquiries. I think local opinion should be considered in these matters. 70. The smuggling of ganja from the Tributary Mahals is now under consideration of Government. I believe that it is impracticable to prevent its cultivation owing to the nature of the country, and there are political obstacles to this being done. All that the British Government can do is to prevent its import. Should any policy of suppressing the use of the hemp drug be adopted, the Tributary States of Orissa will always afford facilities for smuggling, which will, I think, be beyond the power of the British Government to check. Question 62.[oral evidence]—In the first part of this answer I mean that there is control over cultivation. Cultivation is prohibited. I have, I remember, acquitted men on the ground that the plant was wild, and I believe that the law is simply that cultivation alone is prohibited. I do not think the prohibition can be effective in view of the enormous area under control. I have (I am quite certain) convicted men for cultivating the plant, though I have never myself seen it cultivated in Bengal. It was always a question as to whether the plant was wild. I could not distinguish between the wild and cultivated plant. I would take evidence as to the circumstances and also the evidence of experienced persons. I am unaware of any Circular having been issued by the Excise Commissioner regarding the extirpation of the wild plant. I may have been at home at the time. In my answer No. 9, I have said that I have no experience of cultivation in the Tributary States. This was written in October last. I started on tour in November. I have since seen fourteen out of the seventeen States. I think that the plant does not exist except in the baris. It certainly is not cultivated in fields. I feel sure that it does not exist except in baris (enclosures). I should have seen it if it did. My view is confirmed by that of men like Mr. Wylly who spent years in the States not touring through them, but residing in them. He says: "There may be some wild growth of ganja; but it must be of a very limited nature, as in all my wanderings I have seen none such, though I have looked for it and asked to be shown it." The Raja of Boad says: "It is rarely found in a wild state." The Manager of Barambha says: "It is never found in a wild state." This is quite in accordance with my experience and opinion. As to the extent of the bari cultivation, I cannot give accurate information as to the amount of supply available. The ganja I saw in the market (answers 15 and 16) was undoubtedly grown in baris. I do not think it is often sold in the markets, because it is grown in the baris, and the people use their own stuff. There is clearly a margin over and above what the people who grow it use themselves. I have seen it once exposed for sale in Dhenkanal, and it is probably exposed for sale elsewhere. This surplus is available for smuggling. It is smuggled, though I believe more is made of this sometimes than the facts warrant. I have shewn in my answer No. 25 that Gurjat ganja accounts for falling-off in consumption of excise ganja. I have before me the following paragraphs from my predecessor, Mr. Metcalfe's letter No. 204E., dated 9th June 1887:— "It is perhaps useless to attempt to estimate the amount of ganja actually smuggled, as the data for such estimate are inadequate; yet I may note that the activity of the police and excise staff has caused an increase in consumption of 11 maunds of licit ganja within the past six months; and as this increase has been obtained by simply checking the casual smuggling by pilgrims, it may safely be assumed that, were all smuggling put a stop to, at least 50 maunds of licit ganja would be required to take the place of the ganja now smuggled. "From the last Excise Administration Report I find that the average consumption of ganja in this district for 1880-1885 was 122 maunds, of which 25 maunds were Gurjati. The stoppage of sale of Gurjati ganja led to a falling off coresponding to this 25 maunds as in 1885-86; only 105 maunds of licit ganja was consumed, and it may safely be said that the result of the stoppage of the sale was simply to cause an increase in smuggling of 25 maunds a year, and the smuggling trade must be an extensive one if it could increase so as to meet one-fourth of the annual consumption in the course of one year." I cannot say that Mr. Metcalfe's is an exaggerated estimate; but I cannot see now where so much illicit ganja comes from. I am not able to say how much ganja is grown in the States. I have myself not seen much of it. I should be inclined to accept the opinion of Narayan Chandra Naik as to the extent of the cultivation there at present. He has much experience of these States. He was examined before the Commission yesterday (witness No. 73). Cultivation of ganja within three miles of our border was prohibited in 1878, and importation of Gurjat ganja in 1882. The former order was withdrawn in 1889, and the latter in 1892. In 1882 there was a jump of thirty maunds in the Cuttack District in the consumption of excise ganja, and there was a marked decrease in 189192. The alterations in duty, which occurred meantime (especially in 1887-88 and 1889-90), have to be borne in mind; but the figures undoubtedly point to the extensive use of Gurjat ganja. The districts of Puri and Balasore are said not to be affected by the Gurjat ganja so much as Cuttack. Balasore people are said to prefer Rajshahi ganja. I cannot explain the figures for Puri, which seem to indicate that it is also not affected by Gurjat ganja. I know nothing personally regarding the smuggling into Puri from Madras; but I know there has been much correspondence regarding it. The smuggling of Gurjat ganja, which is known to exist, certainly requires a remedy. I have considered the matter carefully. I do not think we can expect the States to provide a preventive service. We must do it on our side; nor do I think the Rajas have the establishment or energy to prevent smuggling. I therefore said in my answer No. 59 that the only remedy was to strengthen greatly the preventive force. But, as I have shown in my answer No. 70, this does not appear to me to be a perfectly efficient method. You may do something, but I do not see how over such a border you can hope to succeed I see no efficient method, except as was done before, going to the fountain-head and getting the Rajas enlisted in our system. There was a proposal to have a licensing of cultivation in the States by the Rajas and admission of the ganja into British territory as excise ganja under regulations similar to those regarding Rajshahi ganja. I do not think this would succeed. For the success of the plan would depend on the efficiency of the Raja's arrangements. The third method is to call on the Rajas to prohibit growth, and get them to take their ganja supplies from Government. I was not aware that this has been done in the Feudatory States of the Central Provinces, and that these States are now carrying out this system. I see no difficulty in this proposal except the difficulty of preventing the order of the Raja, or his promise to issue the order, remaining a dead-letter. If the Rajas themselves agree, there is, of course, no objection whatever to the consumer in their States being taxed as consumers are in our territory. But it would have to be considered how far it would be wise politically to tax the excitable tribes, such as Khonds, Bhunyas, and Santhals. I cannot say how far these tribes use the drug. I have not had opportunity of inquiring. In Mohurbhunj, where the prohibition was carried out and excise ganja used, there are many Santhals. This would indicate that there was no difficulty with them. None of the other States that agreed are remarkable for these aboriginal tribes; but they all have them to some degree.
*Vide his letter No. 1196, dated 22nd July 1886.
†Vide his letter No. 414, dated the 1st April 1889.
At present the Rajas derive no income from ganja, and there would be no difficulty in this respect. I am prepared to say that I hope "they would be guided very much by our advice;" but I am bound to say that Mr. Metcalfe's* position was stronger than ours is now, since the formal ruling that these States are not British India. I think they would be guided by our advice, but the character of one Chief differs much from another's. I observe, also, that the history of the matter, as shown in Mr. Hopkins'† letter, shows the complete willingness of seven chiefs to meet the wishes of Government. There were also four minors at the time. Of the remaining four I am of opinion that the objections (except, perhaps, in the case of Keonjhar) are not boná fide. They amounted to a polite evasion of dictation. I think that if the measure were adopted for the majority of States, dissentients might give way in time. In regard to securing the co-operation of the Chiefs, I see no necessity whatever for any compensation in a lump sum. There is nothing for which we have to compensate them, and we should get nothing in return. But I am strongly in favour of giving the Rajas the ganja at cost price, and letting them receive all the duty. This would make their interest in the matter coincident with ours. I am aware that the Government of Bengal, in Sir Steuart Bayley's time, abandoned this scheme on the ground that the Gurjat ganja was less deleterious than the Rajshahi drug. This has apparently been admitted to be a mistake of fact. And the action taken is undoubtedly to be regretted. The States had for the most part agreed, and the system had been practically introduced. I am in favour of the system. I am in favour of it mainly from the point of view of our excise. I see no cogent argument in favour of it from the interests of the Gurjat States, as they do not seem to have suffered from their drugs so far as I know. But from the point of view of our excise, and from the point of view of the evils attending the illicit traffic, I am clearly in favour of the system proposed. I think that the system would tend also to reduce and restrict the consumption of the drug in the Tributary Mahals. There would be difficulty in carrying out the measure. The Rajas might have difficulty in enforcing it. In a paternal Government an order goes a long way. We have seen this in the effect of the three-mile order. I believe, therefore, that there would be great effect, but not a rigid system at once. 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. - Evidence of MR. H. G. COOKE, Officiating Commissioner, Orissa Division


58. I think the present system of administration of ganja in Bengal is working extremely well, especially when the moderate dimensions of the entire cost of the establishment are taken into consideration. I believe there is very little smuggling—not 50 maunds—while over 8,000 maunds represent the annual outturn. I doubt that there would be much appreciable reduction in smuggling if ganja was made a monopoly like opium, and the expense of the system of monopoly would be considerably greater. Larger establishments would have to be entertained and store-houses constructed all over the ganja tract. 59. All the material improvements in the system that could have been introduced have already from time to time been applied. Perhaps there is not sufficient pressure put upon cultivators to build proper store-houses, and the duty of chur ganja might be raised, so as to be proportionally equal to that of flat and round. But it should be remembered that the duty has been increased from Re. 1 both for flat and for round in 1854 till it has now reached Rs. 6 for flat, Rs. 71 /4f or round, and Rs. 8 for chur. Originally only flat and round ganja were recognised, and the same duty was levied for both. A different rate of duty in Orissa Division was of later introduction, and it is now as follows: Rs. 4 1/2 for flat, Rs. 6 for round, and Rs. 61 /2f or chur. Compelling cultivators to build secure store-houses would check pilferage and consequent smuggling, and raising the duty on chur would have the effect of limiting the manufacture of chur ganja, which acts detrimentally to the Government revenue owing to the abstraction of the woody portion. 60. I am quite satisfied that the present method of cultivation of the ganja-bearing plant and the process of its manufacture are sufficiently controlled. At the same time I am quite prepared to admit that improved systems of manufacture could be introduced. It is possible that the manufactured ganja could be made up into cakes, like tobacco; but I can give no advice in this matter, not having the necessary information or knowledge. 61. No charas is produced in Bengal. 62. No; the plant is not cultivated, but grows wild. 63. I have no objections, and I cannot indicate any improvements. 64. I have no objections. 65. I think the taxation of ganja is reasonable with reference to siddhi and charas, and with reference to alcoholic and other intoxicants. 66. It is proper that there should be different rates of taxation, as at present, for the different kinds of ganja. The chur has not any or very little admixture of the woody portion of the twigs; while round has a large admixture and flat a larger still. Only the flowery portion, which contains the resinous stimulating matter, is used in smoking, and this alone should be taxed. Ganja is grown in one place only in Bengal, in and around Naogaon of the Rajshahi district. 67. No. 68. There are no such houses or licensed shops. I do not think that I would allow them, because I think the consumption would be stimulated. But at the same time there is no doubt that many a ganja smoker, especially a traveller or way-farer, takes his smoke in the shop where he buys the ganja. Very often the shopman invites a smoke from the shop chillum to show the good quality of his ganja. 69. Yes, especially in municipalities, where the Commissioners are consulted. There is no public opinion outside municipalities; but I never open a new shop in the interior without consulting the residents. 70. I have nothing to say. Question 65.[oral evidence]—I think that the limit of taxation in regard to ganja has been reached; for while the consumption of alcohol has a tendency to rise, that of ganja has been steadily decreasing. The consumption of ganja has fallen from an estimated production of 26,677 maunds in 1854 and a total of 8,125 maunds of retail sale in Bengal in 1873-74, to 5,451 maunds of retail sale in 1892-93. This shows a marked decrease owing to the growing taxation. It might be possible to go a little further without extinguishing ganja; but my opinion is that if Government went much further in taxation it would extinguish the industry altogether. That is, if pushed far enough, and not very far either, an increase in the price of the drug from increased taxation would tend to extinguish the demand. Question 59.[oral evidence]—The actual procedure in regard to the cultivation and distribution of ganja is as follows:—A man wants to grow. He applies on a prescribed form for permission to cultivate. He has to give the survey number of the field and the area. He may apply for what area he wants. License, which is free of any fee, is never refused except in case of misconduct during the previous year. I myself have refused on this ground. After the cultivator gets his license there is no active interference with him except to see that the land cultivated corresponds with the register, so as to check the production. No pressure, of course, would be brought to bear on a man to cultivate. If he did not, the entry would be altered. But a man cultivating more than his license covered would be liable to prosecution. There is no active interference with the man beyond this inspection of the fields until the man has manufactured his crop. Then he has to apply for a storage license. In his application he specifies the kind of ganja, the estimated quantity, and the number of bundles. The bundles are of prescribed size. No weighments are made. The statement of quantity is an estimate. The cultivator makes the estimate. It is checked by the supervisor. The cultivator cannot wait for the supervisor; so he has to check it either in the place of manufacture at the field or in the cultivator's store, according to the pressure of work on him. In many cases there is no need to apply for storage license when a purchaser is found before manufacture is complete. The ganja is then taken direct to the weighing shed. A supervisor should then be present; but there are only three. The stuff cannot be removed to the weighing shed without the supervisor's permission. In the store the stuff is entirely in the cultivator's charge; but it is inspected periodically. The whole of the stocks are, I believe, as a fact, inspected once a month, and weighed if there is any suspicion of fraud, i.e., of clandestine disposal of any of the stuff. The goladar is unrestricted in his dealings with the cultivator; but the supervisor's permission is required for the removal of the stuff, and it can only be moved to the Government weighing shed. Stocks not sold remain in the cultivator's private stores, but are destroyed after two years if not sold. There is no special standard of wastage, but a man is expected to explain any serious variation; and this is one of the reasons why cultivators will not apply punctually for storage license. I should have said that the permission of the supervisor is necessary before cutting the crop. But the supervisor need not be present. All the time the crop is growing, estimates of the crop are being entered in the diaries; and any important discrepancy would lead to enquiries being made. The opportunities for fraud or clandestine disposal of the crop are few— (1) There is always a chance of pilferage from the field, generally speaking, by an outsider. Mendicants have been detected and punished for this. Pilfering of a trifling character by the owner would be more difficult of detection. Extensive pilfering must be seldom indulged in, (a) because he has in all probability entered into negotiations for disposal of the produce of his whole field at a better price than he would get locally, and (b) because it is the interest of all persons to give information to the police, and the consequence of detection would be most serious. (2) In the above there is an opportunity for fraud owing to the fact that absolute accuracy of figures is not and cannot be secured in regard to the quantity in store. It begins with an estimate, and allowance has to be made for dryage, damage, and waste. The only real test is at the weighing shed. I think the most favourable opportunity for fraud is at the time of manufacture. For ten to one the supervisor has not been able to make the final estimate; and there the drug is in the hands of the cultivator and purchaser. Fraud, when the stuff is in the store of the cultivator, is much less likely, because the estimate has been made At present the great uncertainty regarding the amount of damage makes it impossible to insist on accuracy. Therefore I am trying to enforce the rule that the stores must be "secure." Apart from this there is no cheek on pilfering in having even secure store houses so long as they are in the hands of the cultivators. Therefore the most complete system would be to have a public gola. There are none provided. I do not recommend them, because the custody of the stuff would be in the hands of Government officers and subordinates. They would not take care of the stuff as the owners would. No doubt a well-built Government gola would be safer both from vermin and from abstraction than the houses of the cultivators. I do not think there would be any great difficulty if there were several Government golas situated in central places; but I do not think the cultivators would view the change with favour. They would require to have access to the stuff from time to time. If the stuff were weighed and registered and put in a secure place, the cultivator would not want to see it often. He would want to see it two or three times a week in wet weather. I see no great objection to the plan. The concentration of the market would also be a great advantage. The initial expense is a great objection, unless it is believed that much is abstracted. I do not think there is much pilfering; but I have no data of course. I do not think the expenditure on buildings and establishment would be recouped by the prevention of such pilfering as takes place. At the same time you cannot have a perfect system without Government golas. At present some believe that wholesale vendors make high profits, and that retail vendors are in the dark when bidding at auction owing to the ignorance of what they will have to pay for the stuff. I do not think myself that the wholesale vendor has too much profit in view of his expenses and the risks of the trade, because I have estimated that his net profits are only from Rs. 10. to Rs. 15 a maund on a average throughout the province. His expenses are in transport, buildings and establishments, and the risk of expenditure on the duty on waste above the allowed percentage is great. As to the retail vendor, of course he does not know what price he has to pay for the stuff, but it is a speculation, and I see no reason why Government should interfere. He knows his own business. There is nothing to prevent a retail vendor going to Naogaon to buy ganja if he has a wholesale gola in the importing district. He must have this, or where can he take the ganja ? A retail vendor, to deal direct with the cultivator, must become also a wholesale vendor. And I have no doubt that there are cases where the wholesale dealer has the monopoly of the retail trade as well, i.e., where the whole ganja trade is in the hands of a syndicate. I have my attention drawn to Rule 27 of Section XX of the Manual. But it contemplates a warehouse. I have no doubt this means a wholesale storehouse in the importing district. Therefore the retail vendor must be a wholesale vendor before he can purchase direct. The retail dealer can go to any wholesale dealer. At the head-quarters of my district there are three wholesale dealers. There would thus be competition. This is, of course, liable to combination. I think the retail vendor can go to the wholesale dealer of any district. This is contemplated by Rule 60 of Section XX of the Manual. The income from retail licenses has increased steadily. This indicates that the retail licensee makes a profit. I do not think that they are at the mercy of the wholesale dealers, because combination would be difficult among the wholesale vendors of a district. And in any case I see no reason for interference. The rise in retail license fees is due, no doubt, really in large measure to the rise in the price charged for the drug to consumers. At the same time the retail vendors are in the dark as to the price of the drug when they bid; and the wholesale vendors have better opportunities of knowing what the price will be than the retail vendors can have. For it is the wholesale vendors who go to the ganja-producing tracts and do business there. The present system affords no criterion of the profits received by the wholesale vendor, except by particular enquiry in each case as to prices and expenses. At present wholesale goladars are appointed on application. I do not think any one would be refused who made satisfactory arrangements. I know in my district there are eight; and I should say that was a very small number as compared with other districts. All the work could be done by one man if he had a monopoly. Explanatory statement submitted by MR. PRICE. I said in my evidence that the cultivators would view the introduction of the system of public golas into the ganja tract with disfavour; they would want to inspect and exhibit their stocks three or four times a week. They would want this for some time at first, in their desire to dispose of their stocks. Intending purchasers would not buy without inspection, and it is quite possible that on many days the ganja would be required to be exhibited several times a day to intending purchasers. In any case I am quite sure that a cultivator would wish to view his stock very much oftener than twice or thrice a week when it is stored in a public gola. I omitted to mention this cause of constant inspection when I was being examined. - Evidence of MR. J. C. PRICE, Magistrate and Collector, Rajshahi


58. The present system of excise administration in respect of hemp drugs seems working well, and no change is necessary. 60. Ganja is not produced in this district. 61. Charas is not produced in this district. 62. In this district hemp plant for the production of bhang grows wild in a very few places and to a very limited extent. It is not feasible to control the growth of such plants. Any attempt to restrict the growth would give rise to discontent without producing any beneficial effect. 63. There is no objection to the present system of a wholesale/b retail vend of ganja/2 charas./3 bhang. 64. No objection. 65. The taxation of1 g anja/2c haras/3b hangi s reasonable with reference to each other and to alcohol or other intoxicants. 66. Yes. It is necessary that there should be different rates of taxation for different kinds of ganja, and such different rates for different kinds of ganja produced in Bengal prevail here. Ganja grown in any other province is not imported into this district. 67. No; there is no objection to the present method of taxing1 g anja./2c haras./3b hang. 68. There are licensed shops in this district for the sale of ganja and bhang, but not for their preparations. There is no shop in this district for the vend of charas. There is in this district an adequate number of shops, and no increase is called for. 69. The wishes of the people are generally consulted and considered before a shop is opened in any locality, the enquiry being generally made either by the Excise Deputy Collector or by local police. 70. Hemp drugs are neither imported nor smuggled into this district from Native States, Duty is really paid in respect to the ganja and other hemp drugs used in this district. Untaxed drugs are not used. - Evidence of MR. F. H. BARROW, Magistrate and Collector of Bankura.


58. It works well on the whole; but, like all institutions, it is capable of improvement. 59. If the use of ganja is to be tolerated, I should prefer it issued from governmental warehouses to retailers, the price being periodically raised or lowered with the demand. The present system of levying duty and transit expenses is cumbrous and open to fraud. 60. Not produced. 61. No charas produced. 62. The cultivation of bhang cannot be controlled. 63. See above, answer 59. 64. Exports to other provinces should be certainly allowed. 65. I do not see any substantial difference between taxation on ganja and taxation on spirits and tobacco. Civilised governments have all agreed that intoxicants are proper subjects for taxation; and prohibition is opposed to the modern spirit as well as to racial progress. It is only the human weeds whose decay is a gain to the race who succumb. I am at one with Bishop Magee, who said that he would rather see his countrymen drunk and free; and I abhor the principles and tactics of the so-called temperance fanatics. 66. No. 67. See answer 59. 68. Yes; consumption on the premises should not be allowed. Men smoking there are nuisances. 69. Neighbours are generally consulted, and I think this is sufficient. 70. Yes; Nepal ganja is smuggled into this district, and affects the sale of the drug here. This practice should be stopped. The border shops suffer much from smuggling. Question 59.[oral evidence]—I should prefer that Government should keep the storage of ganja in its own hands. There would then be less difficulty in enhancing the duties. I advocate the abolition of the middleman and the substitution of a system by which Government should purchase and store the whole crop of ganja in its own warehouses, thus reaping the profits of the middleman, regulating the price to the retail vendor, and ensuring proper custody of the drug. Government will of course suffer all the losses from damage to the stored drugs by rats, damp, and dryage, but the loss will be much more than recouped. There would be no sentimental objection in this country to Government undertaking directly the wholesale disposal of the drug, and as regards English objections we should be able to meet them by showing that the system enabled us effectually to control the consumption. There would be no need for passes under this system, because the drug would be carried to the headquarters of districts by Government under escort, and the fraud which results from the system of passes would be obviated. It was this species of fraud that I had in mind in the last sentence of my answer. This is the system which I should prefer, but there is a good deal to be said for the system which I understand prevails in the Central Provinces, which fixes the price at which the wholesale vendor must sell to the retail vendor, and renders the wholesale licenses subject to sale by auction. I wish to lay stress on the desirability of reducing the loss to Government which now results from wastage, dryage, and damage.- Evidence of MR. F. H. B. SKRINE, Magistrate and Collector of Bhagalpur.


58. Yes; I consider it to be capable of improvement. 59. I would wish to see the goladari system abolished. The ganja should be sold in the way the opium is being sold now. This would return a heavy profit to Government. 60. I think that a smuggling to a large extent takes place. I should like to see a large staff of detective officers appointed. 61. None. 62. Not at all. 63. Wholesale vend of ganja leads to much wastage. I would like to see it abolished. The Government itself should be the vendor as in the case of opium. 65. Except where it could be shown to be to the interests of the revenue, such as by making a change in the goladari system, I would not interfere with the consumption of ganja amongst those who habitually use it. 66. Yes. The proportion of taxation on each kind of ganja as exists now should be retained. I do not advocate different taxation on ganja grown in different localities (see 65). 67. See 65. 68. Yes. It is better that ganja should be consumed as we do tobacco, not in shops. Ganja shops are apt to develop into places for the concoction of crime. 69. No. A shop is opened where Collector thinks that it would be paying. I do not think it is necessary to consult local opinion in this matter, for I don't believe there is any public opinion on the subject. 70. None.  - Evidence of MR. A. C. TUTE, Magistrate and Collector of Dinajpur.


Question 62.—In view of agitation about the cadastral survey and cow protection, I think it would be inexpedient at present to start any measures of special interference with the growth of bhang in Behar. If these farmers had the exclusive right to gather the wild bhang, there would be interference. Wherever the stuff grows wild near the villages or compounds, there people sell it to vendors or pluck it and use it. This would be all interfered with. At present the stuff is simply gathered and sent off by rail: that is in accordance with law. There is no interference. I think that if an order were issued against the growth or existence of the plant in occupied land, it could be carried out. I think it could be outrooted. But whether it is advisable or necessary, I cannot say. I do not know what harm results from such growth. Practically all land is occupied here. I think the order could be carried out; and I do not think it would cause inconvenience. In ordinary times I think it would lead to little or no opposition. At present you would have objectors. I have heard that the drug is used for cattle. I heard that the wild hemp exported by rail was used for cattle. The police and others told me people did not consume it themselves, but that it was used for cattle. At the same time you find people coming in from Nepal smoking what appears to be the wild ganja. Question 65.—I should be inclined to assimilate the ganja system as far as possible to that of opium. I think that would be well. I see no objection to that. If a Government monopoly were objected to on sentimental grounds, I should go as near to it as possible. The reason why I should be lenient about wild bhang is that I understand it is used for cattle, and hardly at all for drinking by human beings. As to ganja, I have no reason to think that the limit of taxation has been reached; for the price to the consumer is less in Bengal than in the Assam Valley notwithstanding recent increase of taxation in Bengal. *  - Evidence of MR. H. C. WILLIAMS,* Magistrate and Collector of Darbhanga.


I know the manufactured Gurjat ganja. It is simply the plant dried. It is grown everywhere in the Gurjat States for consumption. I believe it is more grown near the border to supply our territory. It is also grown in detached Gurjat villages surrounded by our territory. This has also been waved in the face of our excise officers since the three-mile prohibition was withdrawn by the Board. I think the limit of three miles from the border was taken from the old three-mile rule for excise shops. Of course the difficulty is in enforcing the prohibition. The arrangement was political. The Rajas have neither the will nor the power to enforce prohibition in their wild tracts. I believe the three-mile limit was chosen that we might have our eye on the matter and enforce the prohibition; but this had to be by reference to the Superintendent and the Raja. I have never had to do with any Tributary State myself; but I make this statement regarding their will and power to enforce prohibition from what I know of this part of the country.
* Vide No. 165-T., dated 19th October 1878. † No. E. 1 G/2 4, dated 6th September 1889, para. 10. I think the three-mile rule was imposed in 1878* and abolished† in 1889. So far as I remember, the rule was abolished (1) because of the difficulty of enforcing it, and (2) because it was believed by the Government that Gurjat ganja was drunk, not smoked, and was less deleterious than the Rajshahi ganja. It was thought to be better not to discourage the Gurjat ganja. It was a mistake to suppose that Gurjat ganja was not smoked. It is smoked. I believe the Government have admitted this. So far as I hear, there is no systematic cultivation of ganja across the border. I have heard that the male plants are not exterminated, nor are the flowering tops separately collected. The part of the plant used is only the upper part of the plant. I should say that the statement made in answer 9 by Kanti Bhusan Sen is quite correct. This upper part of the plant is the Gurjat ganja that is smoked. This is distinct from the siddhi or bhang, which is licitly imported from Gurjat. As to the comparative effects of Gurjat and Rajshahi ganja, I am not in a position to give an opinion. I believe, however, that the Government of Bengal has reconsidered its view that the Gurjat is less deleterious than the Rajshahi. I have not sufficient ground for any opinion of my own. Mr. Kanti Bhusan Sen's statement regarding the licit use of Gurjat ganja in this district is no doubt correct. He has the figures. But it may be noted that the 8 maunds minimum referred to by him was only in force from 1891 to August 1893. Importation of Gurjat ganja was entirely prohibited by Government order at page 546 of Calcutta Gazette, dated 21st June 1882. It was again allowed (1) in the case of siddhi by order at page 756 of Calcutta Gazette, dated 23rd July 1890; (2) in the case of Gurjat ganja by order at page 1200 of Calcutta Gazette, dated 17th December 1890. From this time to 1892 the maximum amount that could legally be possessed without license was 20 tolas. By Board's orders of 13th April 1892, this was reduced to 5 tolas. As to illicit use, it is impossible to give accurate information. Nothing is known, except from the cases that come to light. There are no data on which we can estimate the illicit consumption, except that the consumption of licit ganja is on the decrease. Unless ganja is being given up for any reason, that would indicate that illicit consumption was on the increase, I know of no reason why people should give up ganja. The price of liquor is higher, and caste prejudices are against liquor. Although the price of ganja has recently been considerably raised by taxation, it is still much cheaper as an intoxicant than liquor, i. e., having regard to its intoxicating quality. Unless we are to encourage smuggling, I think that in this district the rate for Rajshahi ganja, though lower than in other divisions of the province, is as high as can be. It has reached the limit, unless pressure can be put on Native States to control their own ganja effectively, or we can do it for them. If they could do this, there would be no reason for differential rates. These States constitute the difficulty. I have recently, in my report above referred to, made proposals on this matter, to which, I understand, the Commissioner has taken objection on political grounds. We have been trying in vain to ascertain the cause of the falling off in the consumption of excise ganja. We have failed to find out the reason of this or what the people have taken to instead. The consumption of liquor was falling off too. We have re-established outstills along the frontier, because we found Gurjat liquor was competing successfully with ours.  - Evidence of MR. G. STEVENSON, Magistrate and Collector of Cuttack.


58. The excise administration in respect of hemp drugs is working well, and I am not prepared to suggest any improvement. 60 and 61. I think that there is sufficient control, and have no suggestion to make for the modification of the system. 62. I would not suggest any changes in this respect. 63. No. 64. No. 65. (a) Yes. (b) Yes. 66. Yes; for flat and round have twigs which the chur has not. Each kind of ganja should be taxed in proportion to the narcotic matter that each is found to contain. 67. Yes, as remarked above. 68. There are licensed shops for the sale of these drugs; but ordinarily they are not smoked or drunk on the premises. The shops are not disreputable. Generally mudi shopkeepers are the licensed holders of these shops. 69. Ordinarily the wishes of the people are not consulted or considered when a shop is opened in any locality. On the application of vendors and local inhabitants, licenses are granted after due enquiry at the auction settlement, held with the sanction of the Board. I do not think it is necessary to consult or consider public opinion, as these shops are not a nuisance. 70. (a) No. (b) Yes; in respect of ganja and charas but not of siddhi. The latter is used to some extent illicitly, but the use is not general. - Evidence of the HON'BLE F. R. S. COLLIER, Magistrate and Collector, 24-Parganas.


58. I think it is capable of improvement in the direction of restriction. At present there are too many ganja shops. The numbers should be largely reduced. They should only be established in towns and really large villages. I would discourage the use of ganja by these means as much as possible among the rural population, and only keep sufficient shops to supply the large floating population of the province, especially the mendicant class, whose addiction to the use of the drugs we cannot hope to restrain. Question 58.—I have no reason to suppose that use by the rural population is more injurious than use by town dwellers. What I have in view is to leave the habitual consumers who cannot do without the drug the means of obtaining it, and to limit the number of shops so far as to remove temptation from occasional consumers. Towns and large villages should be selected for shops, because there are more likely to be a large number of habitual consumers in such places, and the people of the surrounding villages go there for market. There are a good many ganja shops in small villages at present. I have seen them in villages of 50 or 60 houses. I have not noticed any evil effects on the population of those villages, but I advocate the change on general principles. I do not propose that the location of shops should follow a hard-and-fast rule. The circumstances of districts or tracts might require relaxation of the general rule. I think we could do with fewer shops, and I have indicated the principle on which they might be reduced. To carry the principle too far and ignore the necessity which exists among the agricultural classes for the drug would occasion considerable discontent and would also be likely to lead to illicit consumption. This is more likely to happen where the spontaneous growth is common. It has also occurred to me that bhang is less deleterious than ganja, and that the reduction of the ganja shops might be compensated by an increase of the bhang shops. In Arrah there are, I think, 37 bhang shops distinct from ganja shops. There is no spontaneous growth to speak of in that district. The illicit consumption of ganja would probably be supplied by illicit cultivation of the plant and also by importation probably from Nepal. I have not enquired into the difficulties that lie in the way of such cultivation and importation. I also think that the existence of necessity for the drug among the labouring and agricultural classes would justify the supply of the legitimate demand apart altogether from the question of danger to the revenue from illicit consumption. I think there is a legitimate demand among the Hindus in connection with their religious festivals as well as among the labouring and agricultural classes. The view I formed with reference to the circular which was issued by Mr. Westmacott with the object of exterminating the wild growth in village lands was that such extermination was not practicable, at all events in a district like Bhagalpur, and that the attempt to carry it out would cause a great deal of harassment and annoyance to the villagers. The people are glad to have the plants removed from their lands it is true, where it is growing in very large quantities, but they have no special desire to have one or two plants removed from their "baris," where they do no harm. As the plant grows in great abundance in Bhagalpur, I do not think the prohibition could be carried out without harassment and interference by the police, because, although the existence of the plant is evidence against the person in whose lands it grows, a large amount of labour would be required to exterminate it, and therefore the people would not be likely to undertake the labour of doing it themselves. - Evidence of MR, C. R. MARINDIN, Magistrate and Collector of Shahabad


58 to 64. See my official note. 65. The duty on charas is the same as on chur ganja, viz., R8 a seer; but the proportion of narcotic matter is evidently larger in charas, and the duty on it should be raised. The duty on all the three varieties of ganja has undergone considerable enhancement since the present duty on charas was fixed in 1880. The question of raising the duty on chur is under consideration. It is difficult to compare the taxation of hemp drugs with reference to alcoholic or other stimulants; but having regard to the cost of daily average allowance (3 to 6 pies) of ganja, I should say that the amount of taxation on it is capable of increase, which can be done by gradually raising the duty. 66. Yes, taxation is based on the amount of narcotic substance present in each kind. 67. No. 68. There is no prohibition against consumption on the premises of licensed shops; but, as a matter of fact, the drugs are always bought and taken away. 69 and 70. See official note. Question 62.[oral evidence]—It hink that the chief objection to the prohibition of the growth of bhang in cultivated lands is that it leads to so much harassment of the people, and it would require so large an establishment. As regards the unoccupied land (i.e., the untenanted land) it would be in my opinion hopeless. I do not think it would be very difficult to stop its growth in the absolutely occupied lands. But I am not sure how far that would avail to stop illicit practices. I am told that cultivators and planters would be glad to get rid of the weed as troublesome. But how far the extermination there would be of much value for excise purposes, I am not sure. In Bengal, too, the stuff is used largely as a medicine for cattle and human beings, and I do not know how far it would be wise to stop the use. Even if we brought the bhang under the same regulation as ganja, I do not think we should get much revenue from it in Lower Bengal. I am not aware of any bhang being prepared from the cultivated plant in Rajshahi district. It is never brought into the golas; and I know nothing of its being made for private use. In Lower Bengal bhang is not much used as a stimulant or intoxicant. In Behar it is a very favourite drink. The consumption of bhang in Calcutta in 1892-93 was 460 maunds. There is there a large up-country population. The statistics will show that in Lower Bengal the consumption is not great. Of course in Calcutta there is control, and the bhang is not grown in the neighbourhood. So that consumption is more accurately known there. But the presence of the up-country population in Calcutta vitiates any deduction as to Bengal generally from the figures for that city. I remember myself as a boy partaking in the use of bhang at festivals such as the Durga Puja; but (as said in my answer No. 24) this habit is going out. I have said in paragraph 60 of my memorandum that the consumption of bhang is general. That is, however, more in Behar and also occasionally and not habitually. It is true (as there said) that what has paid duty is only a small fraction of what is used. I think an attempt at control might be made by prohibiting growth in occupied land, i.e., by making occupiers responsible for the presence of the plant on their lands. I would do this experimentally. If this succeeded, however, there would be this loss that the people would be deprived of it altogether in some places where there are not unoccupied lands for the plant to grow on and not a sufficient demand to lead to a shop being established. Of course, I should like to see the Calcutta system of having the stuff taxed extended, if it were feasible. Question 65.[oral evidence]—In paragraph 64 of my memorandum I have shown that primâ facie it would be best in my judgment to reduce all ganja to chur. I think that the main objection at present is that the people sometimes seem to prefer the stuff with the stick. Perhaps the flat ganja is preserved better on the stick; but I doubt this. Chur is becoming very popular. I see no objection myself to having one tax fixed for all, i.e .,t o taking what is regarded as a proper tax on chur and making people pay the same for flat or round ganja if they prefer it. I have often had to destroy ganja in warehouses. I cannot, without looking at statistics, tell of which kind most had to be destroyed. Question 59.[oral evidence]—But for the probability of Government being attacked, as indicated in paragraph 63 of my memorandum, I should certainly recommend the adoption for ganja of the monopoly system at present in force for opium. I do not see the possibility of working a public gola system without such a monopoly. The difficulties in the way of having a central godown without Government monopoly are (1) the turning of the ganja every now and again; this would be a great difficulty in letting the cultivators have access to it; and (2) having separate parcels. If this were got over by the cultivators having to part with the stuff to purchasers at an early date, it would place the cultivators at the mercy of purchasers, and make the cultivation unpopular. If such sales take place, as a fact, early in Rajshahi, at present, this objection loses much of its force. But even if the other system could be worked without Government monopoly, I prefer the monopoly. All risk would be compensated by the profits. I do not consider the present system at all satisfactory in respect to want of control over storage and manufacture; therefore I recommend the monopoly system or (failing that) the public gola system. There is another great objection to the present system, that the price of supply to retail vendors varies so much. In some districts, owing to the action of wholesale vendors, the prices vary immensely in neighbouring districts. Thus in Rangpur the wholesale vendors charge the retail vendors Rs. 2-8. In the adjoining district of Dinajpur it is Re. 1 or even less. This is not because Dinajpur is a producing district, because similarly in the sudder sub-division of Balasore it is Rs. 3 to Rs. 4. In the Bhadrak subdivision, which is further off, it is only Rs. 2. This is due to monopoly and our want of control. I could give other instances of this. The Bhadrak subdivision is not more exposed to smuggling than the other subdivision. The Bhadrak subdivision is south of the sudder. As a rule, the price paid by retail vendors at head-quarters is, I find, less than in the interior; because, as a rule, there is more competition among goladars. Some wholesale vendors also reap undue profits. The Balasore man reaps a profit of about Rs 2 a seer, which is more than two hundred per cent. I think the Central Provinces system is a good one to meet both these difficulties; that is, to fix the price of supply to retail vendors. I do not see how the evils of monopoly can be met otherwise. Of course, the Central Provinces system would reduce the number of wholesale vendors. This would not be an evil. The system is really one of auctioning the right of wholesale vend over certain areas. In my table appended to my memorandum, column 41 does not include brokers' fees, which are paid in court-fee stamps. There are no storage fees in our system at present, as there is no Government store. Nor does column 41 include "import pass fees" and "Gola rent," which are shown under "Excise—Miscellaneous." Column 42 shows the amount of ganja on which duty is realised. It therefore includes the ganja sent to the North-Western Provinces and Nepal (470 maunds in 1892-93). It does not include what is sent to Assam, for duty on it is not realised here. It does include that sent to Kuch Behar, for which there is, I understand, no special arrangement. Therefore columns 32, 87 and 42 include figures relating to consumption in the North-Western Provinces, Nepal and Kuch Behar. The column about wholesale vendors is blank; because there is no payment made by them, except the fee on passes and (in certain cases) gola rent. They receive licenses without fee on application to the Collector. In some districts the number of goladars is more than is required. In some there are fewer than is required; and we have to break up monopolies. The subject receives departmental attention from this point of view.   - Evidence of MR. K. G. GUPTA, Commissioner of Excise, Bengal.

 

58. Yes. 59. The system in force is working well and does not seem to be capable of any considerable improvement. I would like to see a maximum and minimum price fixed for the retail sale of the drug, as I think violent fluctuations such as sometimes occur are mischievous both to revenue and to consumers. It is this. The trade is naturally worked for profit. A ring of one or two or a few dealers is formed which outbids all the small men. If there is difficulty in this, they buy a few shops and sell very cheaply, so as to take away the custom of the small men and reduce their profit by this means, and because they, too, must sell cheap to get any custom at all. Then having got them all out, the retail price is run up and large profits secured. When the small men cease to compete, the big men reduce their bids and the revenue is at once reduced enormously, and it takes a long time to get back the small men to come and compete. By fixing a yearly maximum and minimum you, to a great extent, prevent this intershop competition and each shop is sold on its special average merits. 60. Ganja is not produced in this district. It is grown at Rajshahi, where it is sufficiently well controlled by Government officers specially employed for the purpose. 61. It is not produced here. 62. Attempts were made from time to time to extirpate the growth of wild bhang; but, far from securing the desired end, it proved a source of trouble and oppression upon the people on whose holdings the wild plant grew in profusion. The scheme has since been given up, as it was found almost impossible to check the growth of this wild plant. 63. No. 64. No. 65. Yes. 66. Different rates of taxation prevail with regard to the three different kinds of ganja (flat, round, and chur), and rightly too. For in chur nothing is lost, inf lato ne-fourth, and in round oneeighth are to be deducted for twigs, etc. 68. Yes. These shops are necessary, as they supply people with the drugs which they require. People generally carry away their ganja, but sometimes smoke at the shop. 69. Yes. When any new shop is opened, the opinion of the municipality as well as of the people inhabiting the locality is consulted. Yes, local public opinion should be consulted, as is the case at present, before opening any shop in the locality; but a ganja shop is not objectionable to the general public, as liquor shops may be, if it is unsuitably located. 70. No such case. It is almost impossible to detect the smuggling of ganja in small quantities. I believe that any attempt to stamp out ganja smoking or an undue raising of the tax would lead to extensive smuggling, which we should be utterly helpless to prevent. Again, it would induce recourse to other similar drugs. In Eastern Bengal a decoction is made of the leaves of the jute plant.  - Evidence of MR. L. HARE, Magistrate and Collector of Muzaffarpur.


58 and 59. I think the Excise Administration in respect of hemp drugs has been working fairly well. The recent increase of duty on ganja has to a certain extent reduced the consumption of the drug in this district. 60. Ganja is not produced in the Saran district. 61. No charas is produced here. 62. Bhang is not cultivated in this district. The wild plant grows spontaneously in out-of-theway and unfrequented places. These can be controlled through the chowkidars if desired. 63. No. 64. No. 65. It is practically reasonable. 66. Yes, according as more or less of twigs and branches contained in each. 67. No objection. 68. Generally not consumed at the shops. 69. Yes. In towns the Municipal Commissioners, and in mufassal public bodies are consulted through Excise Officers. 70. No. Generally consumed duty-free by all classes of people.  - Evidence of MR. G. E. MANISTY, Magistrate and Collector of Saran


58. The price of spirits has been raised far too high, and the recent orders forbidding the private manufacture of madak are most objectionable. 59. I would reduce the retail price of a quart of country spirits to from six to eight annas, adhering to the present central distillery system. The interests of the distillers would ensure the chief liquor being cheap. I would also allow private manufacture of madak. 63. I have no objections to present system. 64. I have no objections as they work smoothly, and I am not aware of any smuggling. 65. I would make no change in the taxation of ganja. 66. I am aware of no reasons for different rates in different localities. 67. No. 68. I have never had such shops in any district where I have been employed. 69. Local enquiries are made as to the wishes of the feelings. The present official tendency is rather to close old shops to opening new ones. 70. I know of no smuggling. - Evidence of MR. J. KENNEDY, Magistrate and Collector of Murshidabad


58. The present system of excise administration in respect of hemp drugs is working fairly well, but not quite satisfactorily. Various experiments were made in this district for regulating the taxation of ganja, chiefly by means of license fees. With a view to obtain the highest amount of revenue, the farming or monopoly system was gradually introduced till nearly threefourths of the total number of shops passed into the hands of the monopolists, who offered very large increase of fees. This tended to force up the selling price toa na bnormally high rate, and to restrict seriously the consumption, to the great hardship of the consumers, who formed the bulk of the poorer classes. Illicit sales sprang up. The practice of storing up wild bhang became prevalent, and there were many convictions for illicit possession of bhang. Thus, what was gained in license fee was lost in duty. To remedy the abuse, the monopoly was broken up and the licenses were settled with independent purchasers at less fees. The prices went down to the level of the adjoining district, and the sales received an expansion. The consumers felt great relief, and illicit sales gradually disappeared. The decrease in license fees was more than counterbalanced by the increase in duty. From last year, however, the upset prices have been fixed at very high rates, without regard to local conditions. This has been aggravated by the steady enhancement of duty. The independent vendors being unable to pay increased fees have been driven out by a body of monopolists. The old state of things has again been revived. Ganja is being sold at prohibitive prices in the town—R32 to 40 a seer. The consumption has again been greatly reduced.
I would break up the monopoly again by reducing the license fees, which should be fixed according to the circumstances peculiar to each locality. The upset prices fixed by the Collector should not be raised by the higher authorities without adequate reasons and without consulting him. The checking of consumption should be secured by the raising of duty and not by increasing the license fees. The present mode of fixing the fees by auction may be continued. People can never be made sober by compulsion. Ganja is taken by a large number of poor people as a palliative for pain induced by hard physical labour. It is also taken for the power it gives to the consumers to bear hardship, privation, and exposure in all sorts of weather. Some also take the drug for its medicinal properties. The number of excessive consumers is certainly not large. To deprive a large body of consumers who do not misuse the drug is not a sound and good policy. 59. Except on the lines indicated above, the present system does not, in my opinion, admit of improvement. 60. I am told that ganja is frequently smuggled from the producing tracts, This is possible, because the stock of the cultivators is not properly taken. It should be actually weighed. Mere numbering the bundles is not sufficient, as a dishonest cultivator can pick out sticks of ganja from several packets and make them into a separate bundle for sale. Ganja is also, I believe, picked out in thef ieldsa nd sold by travellers. It should be placed on the same footing as opium and declared contraband when duty on it has not been paid. 61. Charas is not produced, I think, in Bengal. 62. I do not think any such control feasible. The plant grows wild all over the province, more or less, and to make the owners of land on which it grows destroy it on pain of penalty might be oppressive. Recently such a measure was taken; but it was given up as being almost impracticable. 63. None. 64. No. 65. Yes. 66. Yes; according to the proportion of flowers each variety of ganja contains. 67. None; except to some minor points noticed in answer to question 58 above. 68. Yes; the practice of smoking ganja on the premises of the shop is not very common; but I think it is least objectionable, as it does not lead to any social or moral vice. 69. This is being done in recent years. The excise officers inspecting shops always listen to complaints whenever made. As a matter of fact, the people have not the same prejudice against these shops as they have against the liquor shops, unless they are roused by interested persons. Any complaint or objection on the part of the public is always considered. 70. Not in this district. I believe untaxed siddhi obtained from the wild bhang plants is in use at some places. No case of smuggling in ganja has yet come to notice.  - Evidence of MR. T. L. JENKINS, Magistrate and Collector of Dacca

 

It will be seen from this statement that only to a nominal extent is Darjeeling a ganja-consuming district. The average quantity per year consumed during the last ten years has been 16 1/2 maunds, yielding an average yearly revenue of R 8,259. The population of the district being 2,23,314, the incidence of the tax per head of population comes to (R0-0-7) seven pies and consumption to quarter of a tola per annum.  - Evidence of MR. R. T. GREER, Deputy Commissioner of Darjeeling


58. I have always had to carry out orders in reference to Excise Administration. I cannot at present suggest any improvement. 62. I am not sure if this question intends 'bhang' as I have used the word. If so, I think that bhang is very harmless, and that no control is necessary. 63 and 64. No. 65. Intoxication by ganja is the cheapest intoxication of all. 66. The difference is due to the fact that flat ganja contains a large amount of sticks which are of no use. At the same time, as already stated, I am told that round ganja is more intoxicating, and I believe this to be due to greater fermentation. Then chur or broken ganja contains no sticks at all. 67. No: bhang meaning what I call 'siddhi.' 68. If this means where they may be consumed on the premises in the sense that liquors may be so consumed in English public houses, I think not. Ganja is not generally consumed in the shop where it is bought. I do not understand the latter half of the question. 69. Yes. Some enquiry is made, if I am in charge of a district, by the Excise Deputy Collector or myself if I happen to be in the neighbourhood. Sometimes enquiries are made by Excise subordinates. Certainly local public opinion should be considered on every question. 70. I think there was some smuggling from Native States into Cuttack when I was there, but I am not sure. Duty is generally paid, I think.  - Evidence of MR. H. F. T. MAGUIRE, Magistrate and Collector of Khulna


58. I think the system is as good a one as could be devised. 62. It would not be feasible I think as the plant grows wild in profusion in some districts. 63. As long as ganja and bhang are consumed I have no objection to the present system of wholesale and retail vend. 64. No. 65. I would like to see ganja certainly more heavily taxed. For two pice a man can get intoxicated on ganja, when it will cost him even in this district one-and-a half to two annas to get intoxicated on alcohol. I regard intoxication from ganja as infinitely more deleterious than intoxication from alcohol, and would certainly like to see ganja more heavily taxed. Bhang is a more difficult question, as it is so easily prepared from the wild plant. 66. There should be different rates of taxation, as a great part of the weight of chipta consists of the weight of the stalk, and this is also the case with gol, though to a much smaller extent. 67. No; except that the taxation of ganja is not high enough. 68. Yes. There are several shops licensed for the sale of both ganja and bhang in this district. 69. Shops are not opened in places to which the people object, and if any objection were raised, I should certainly change the site. But as the shops are only for the sale and not for the consumption of the article, they would not be objectionable to neighbours. New shops are opened only where there is a real necessity. 70. Some small amount of ganja used to be smuggled across from Nepal into Bettiah subdivision. I know nothing of the Nepalese excise system. - Evidence of MR. W. R. BRIGHT, Deputy Commissioner of Palámau


58. Is capable of improvement. 59. The shops are now settled by competition, and owing to a paucity of bidders some shops are settled at a very low fee. The result is the retail selling prices of ganja are different in different shops. If the system of issuing ganja to licensees only in proportion to the amount of license fees paid by them be introduced, not only would it reduce the quantity of ganja sold, but would also bring the retail selling prices to one and the same level, prevent unhealthy competition, and check illicit sales. 60 and 61. Nil. 62. No control is necessary or practicable. 63 and 64. No. 65. Seems unreasonable. 66. Yes; on the principle of their different intoxicating power. 67. No. 68. There are none in the district. 69. Yes; as far as practicable. 70. I have made enquiries into the question of hill ganja. I have questioned several people of the locality, and also some "Tipperahs" who had come down to Amlighata from the hills. There is a consensus of opinion that no hill ganja is grown within a day's journey from the British frontier. I find that in 1870 a specimen of hill ganja was procured for examination, and the Civil Medical Officer reported that hill ganja is much inferior to the Rajshahi ganja in respect of its power of intoxication. The Minister of the Maharaja of Tipperah also stated that ganja was not grown in the Maharaja's territory, except in a very small quantity, which is far from sufficient to meet the local demand - Evidence of MR. N. K. BOSE, Officiating Magistrate and Collector of Noakhali.


58 to 60. If it is proved that ganja is more hurtful than other stimulants, it should, I think, be abolished, otherwise I have no fault to find with the system. Personally, I cannot say whether it is worse or not. I am inclined to think that it is, but I do not feel at all certain. 65. In Bengal it is only recently that ganja has been so highly taxed, and it is still, as far as I can learn, the cheapest intoxicant. In the Central Provinces the tax used to be very light indeed (I think only Rs. 1-4-0). I do not know what it is now. 66. Yes, because the plant contains more leaves and twigs and the others more blossom. 67. No.  - Evidence of MR. L. P. SHIRRES, Magistrate and Collector of Midnapur


58. The present system is working well. The consumption of ganja might be to some extent curtailed by raising its price. 59. If the duty on ganja werer aised,a nd consequently its price, only to such a point as to induce consumers to reducet heira verage consumption, and not to deprive them entirely of it, the habit might be somewhat checked. 60.G anja is not cultivated in Orissa. In the Tributary Mahals its cultivation is practically uncontrolled by the Rajas. 61. Charas not in use in Orissa. 62. Hemp is not grown in Orissa. I would not consider the restriction of its cultivation for the production of bhang in the Tributary States at present necessary, except that if the Rajas took its cultivation under State supervision, it would lead to less smuggling into British territory. 63. A law might be passed rendering the sale of any hemp drug to persons under a specified age penal; but, as stated before, the drugs are not much consumed by the young. 64. The present regulations for the importation of Rajshahi ganja are adequate, but the bales should be more securely packed and in stronger gunny to prevent any removal on the way. The rule for the importation of Gurjat ganja is that not less than eight maunds be imported at a time. This might be somewhat reduced to five maunds as importers are not always ready to buy eight maunds, and in this way the sale of Gurjat ganja would be encouraged, as compared with Rajshahi; and, as it is stated to be less harmful, this would be an advantage. 65. Ganja is for its price much more intoxicating than alcoholic liquor, and hence is the intoxi¬ cant of the poor. To make liquor so cheap that it would be able to take the place of ganja or siddhi in this respect would not be, in my opinion, desirable. 66. The present proportion between the rates appears good, as by them the more intoxicating form of the drug is the more highly taxed. 67 and 68. No. 69. Yes. 70. There is smuggling from the Tributary States on the borders of Orissa into the districts of Orissa. The only way to prevent this is to have a strong preventive or detective force. In the two districts of Orissa, with which I am acquainted, viz., Puri and Cuttack, such cases have been much better detected in recent years owing to the inducement given to the police and others to detect them, by the liberal distribution of rewards on conviction - Evidence of MR. E. H. C. WALSH,* Officiating Magistrate and Collector of Cuttack


I have been over nine years in the service. I have been Collector of Puri only since the begin¬ ning of last December. I have been on tour for two months, about a fortnight of which was spent in Gurjat States, and the rest in the interior of this district. I was, while in the States, occupied specially with work connected with a recent rising and had no opportunity to investigate questions of general information. The only way in which ganja came to my notice then was that in the Rampur State, where I had grievances to investi¬ gate, one of the grievances alleged was that the Raja levied taxation on ganja. The people put up their grievances at great length, and mentioned everything that they possibly could against the administration. In respect to ganja they stated that they should have perfectly free trade in ganja and no taxation. My belief is that this was not a grievance that affected the people generally at all and that there was little of weight in it. But it was mentioned. The Raja taxes the vend; but I am not certain whether he interferes with cultiva¬ tion. In comparison with other matters contained in the representation of the raiyats this was quite unimportant. I made no inquiries as to the ex¬ tent of cultivation nor as to the traffic in the drug. I think there is no part oft hed istrict in which ganja is not used. By "used" I mean smoked. Ganja is generally smoked, though it is also occa¬ sionally drunk. My impression is that the use of the drug is common all over the district. At the same time I think it is commoner along the roads. That is, I think, it is commoner with pilgrims than among the real inhabitants of the district. My impression is that Gurjat ganja is at least as popular as the Rajshahi ganja, perhaps more so. This impression is not based on careful inquiry, but it is based on what I have heard here as to the popular view of the drug throughout the district. Besides the Gurjat ganja is cheaper than the other. Yet it is of the Rajshahi that the most is issued. Thus, taking the last quarter's returns, we find that the issues of Rajshahi ganja amounted to 17 maunds and 32 seers and of Gurjat 6 maunds 13 seers. The consumption of licit Gurjat ganja has been steadilyr isingf or the last three years as com¬ pared with the consumption of Rajshahi. But still it falls very far short. This leads me to have a strong impression that there has been much smuggling of Gurjat ganja. It is popular, yet it isn oti ssued from the legal sources of supply, and the fact that the legitimate consumption is rising so rapidly would seem to show that the people have long used it, butt hatw e are now only begin¬ ning to get the consumption of it under our control. This seems a logical conclusion. I have before me also the settlement of the shops for next year. There are forty-three shops. Of this, only fourteen shops have taken Gurjat ganja at all during the current year. Of these, all but one or two are in the Sudder sub-divi¬ sion. The Khorda Sub-division has two thanas, viz., Khorda and Bhanpur. Half of Khorda is surrounded by Native States, and Bhanpur is quite imbedded in the Native States. At the head-quarters of Khorda there is one shop, which takes on an average one seer and three chittacks a month. No other shop does. In Bhan¬ pur there is only one shop, which takes two chittacks. All the rest of the Gurjat ganja goes to the Sudder sub-division. Most of it goes to Puri town and the shops on the high road. But the interior shops of the Sudder sub-division also take it. My conclusion is that the Khorda sub-division gets a very large portion of its supply by smuggl¬ ing. It is obviously natural that the Khorda people would prefer Gurjat ganja, being of the same race as a large portion of the people of the Native States and being accustomed to it. The figures seem, to bear this out. The average issues per mensem are:— M. S. C. Gurjat Khorda 0 1 5 Gurjat Sudder 1 28 1 Rajshahi Khorda 0 27 1 Rajshahi Sudder 6 4 8 I am convinced that the total of twenty-eight seers cannot represent anything like the monthly consumption in Khorda. 71 There are seizures of illieit ganja both in Khorda and in the Sudder sub-division. I cannot say at present how many cases come from each sub-divi¬ sion. The total number of prosecutions for posses¬ sion of Gurjat ganja in the district for the nine months ending 31st December last was sixty-six. All of the Sudder cases come to me for sanction¬ ing of the distribution of rewards, and I see many of the Khorda cases. My general impression is that the cases as a rule are boná fide cases. If this is so there must be a great deal of smuggling, because our detective agency is no stronger than anywhere else. All the cases I have seen are petty. The people most concerned in the Sudder sub-division are low class people, either consumers or servants carrying it for others. In Khorda it is generally the people themselves. Of course the drug is also found with pilgrims; but I think the prosecutions of pilgrims are less frequent. There is no search of pilgrims whether coming by sea or land. It would be monstrous to search pilgrims, to search the carts or bundles of pilgrims for Gurjat ganja. We do not search them either for excessive possession of ganja or for illicit Gurjat ganja when coming by routes through the States. Pilgrims by sea are very few. The seizures of ganja being petty would indicate that as a rule it is local consumers who bring it in, but I came across a case the other day in which the man was a professional smuggler. I cannot of course say how large a proportion of smugglers are prose¬ cuted. I cannot say whether Mr. Taylor's estimate of one-twentieth is correct. But I am certain that sixty per cent., the estimate of the Deputy Collector, is preposterous. Ten or twenty per cent. would, I think, be a high estimate. As I have said, I am convinced that the consumption in Khorda is far in excess of the issues from legiti¬ mate sources of supply. Gurjat ganja is sometimes used in drink; but so also is the Rajshahi ganja. I have been told by some natives elsewhere that they used Rajshahi ganja thus and been asked to partake. But the principal use of both, so far as I know, is smoking. I do not know which kind of ganja is stronger nor whether the one is more deleterious than the other. I have no experience here to enable me to say whether a man who has acquired the habit of using the one will take easily to the other, or prefer what he is accustomed to. I know nothing of the extent of the use of ganja in the Native States. I do not know about the use of liquor in Native States. The use of liquor there will, no doubt, be much the same among the Uriya raiyats as it is in Khorda. There the raiyats drink hardly at all. But perhaps the Khonds may be great drinkers. I have not had any opportunity of ascertaining their habits. As our relations at present stand with the Native States it would be difficult to introduce any system into any part of their administration. For our present position in regard to them is to stand aloof and practically wash our hands of them. But if we were to enter into closer rela¬ tions with them, I think there would be no diffi¬ culty in introducing any ganja system that might be necessary in prohibiting cultivation and other¬ wise restricting the drug. I think it would be easy, in respect to the three States connected with this district, viz., Ranpur, Naiagarh, and Kandapara. My attention has not been drawn to smuggling from Madras. We border for a very short dis¬ tance on Gumsur; but my attention has been directed chiefly to smuggling from our own Tri¬ butary States. I have no knowledge of the facts about any smuggling from that presidency. The Madras border is comparatively very small. I cannot give any satisfactory explanation of the slight increase in ganja consumption shown in the figures for 1892-93 as against the average for the precedingf ivey ears. I think that the withdrawal of the prohibition of cultivation in Native States within three miles of the border would not affect the matter. For the distance of three miles would be nothing in respect to the smuggling of ganja. Nor do I think the prohibition could be expected to be effectively enforced in our present relations with the States. As to the increase in duty I believe that increase in duty is not invariably accompanied with decrease in consumption, and I have shown that the increase in the use of licit Gurjat ganja has increased steadily since 1891-92 - Evidence of MR. H. R. H. COXE, Offg. Magistrate and Collector, Puri


58. It is working well and capable of no improvement, as far as I am aware except great watchfulness. 60 and 61. It is not produced in this district, and I cannot give an opinion. 62 to 64. No. 65. Yes. 66. There are different rates of taxation for different kinds of ganja, as to which I have no criticism to offer. 67. No. 68. No such houses. They should not be licensed because it may tend to increased consump¬ tion. 69. No, it is not necessary. 70. No. There is no general use of untaxed drugs. In rare instances the Bairagis use the wild hemp for drink.  - Evidence of MR. J. H. BERNARD, Offg. Magistrate and Collector, Nadia


58. I consider that the present system works fairly well. 59. I do not advocate any radical change. 60. The defect of the existing system is that by a no means inconsiderable quantity of ganja escapes payment of duty. It is very difficult to form any estimate of the amount so smuggled, but the fact that, in spite of all difficulties in the way of detection, cases are from time to time detected in almost all parts of the province shows that the amount must be considerable. I believe that this smuggling could be reduced within very small limits if ganja were made a Government monopoly. The cultivators would then have the certainty of selling their whole crop promptly and at reasonable rates, and this would remove the principal temptation which they have at present to dispose of their ganja to illicit dealers. I doubt whether any measure short of this would effectually check smuggling. 61. Charas is not produced here. 62. In no district in which I have served is the hemp plant cultivated to any appreciable extent for the production of bhang. The plant often grows spontaneously on high land in the neigh¬ bourhood of houses, and no doubt householders sometimes protect such plants and encourage their growth for their own use; but there is no profit to be made by cultivating the plant on a large scale for the simple reason that the wild plant is so abundant. Any attempt to prevent cultivation such as I have described would do more harm than good. It would be ineffectual, and would expose innocent men on whose homesteads a few plants might be found to tyranny and extortion. Under the existing law the cultivation of the plant for the production of bhang without a license is for¬ bidden under section 5 of the Excise Act. I would keep this provision in order to retain the power of preventing cultivation on any consider¬ able scale should such be attempted, but I would make no attempt to enforce the provision in cases of the casual cultivation of a few plants such as I have described above. 63. I have no objection to the present system. 64. No. 65. I have no alteration to suggest. 66. It is necessary that there should be different rates for the different kinds of ganja for the reason that the different kinds as sold wholesale contain different proportions of the drug actually con¬ sumed. Flat ganja contains a considerable proportion of useless wood. Round ganja contains less wood, and chur less still. 67. No. 68. There are in this district licensed shops for the sale of ganja. There is no prohibition of con¬ sumption on the premises, but the drug is not as a matter of fact usually consumed on the premises. The consumers merely purchase what they require, and take it away with them. 69. No special measures are taken to ascertain the wishes of the people, nor is there any necessity for such measures, as the consumers are the only people who have any wishes about the matter. I have never heard of a ganja shop becoming in any way a nuisance to any neighbourhood. 70. I have no information regarding smuggling from Native States. In the case of ganja, there is no doubt that an appreciable quantity of the drug does escape duty. I doubt whether this smuggling could be materially diminished by any measure short of establishing a Government monopoly. In the case of bhang the greater part of the consumption is untaxed, and I see no practicable means of enforcing the payment of duty on this drug - Evidence of MR. A. E. HARWARD, Offg. Magistrate and Collector, Bogra


58. The present system is working well in this district and weh aven o suggestion to offer for its improvement. 63 and 64. No. 65. Yes. 66. Yes, because of the difference in the quan¬ tity of toxic materials in each kind. 67 and 68. No. 69. Not in this district. The number of shops necessary for this district and the quantity of con¬ sumption are so small that public opinion in the present backward conditions of the district need not be taken into consideration. 70. There is no importation of any of the drugs from Native States into this district. So far as this district is concerned duty is really paid in re¬ spect to the drugs used, and there is no general use of untaxed drugs at all.  - Evidence of COLONEL C. H. GARBETT, Deputy Commissioner of Hazaribagh


58. The system under which ganja and bhang are supplied to the consumers has been known to cause no inconvenience to the public, and is believed to be working well. In view, however, of the increasing consumption of ganja, there ought to be further check in the shape of enhanced duty. 59. See above. 60. No cultivation in Manbhum. 63 and6 4.N o objection. 65. There is no great disparity in the rates of taxation upon ganja and bhang. But supposing that one pice worth of ganja gives as much intoxi¬ cation as four pice worth of country liquor and two pice wortho fo pium, I should say that there is ample room for improvement in the taxation of ganja. 66. There should be different rates of taxation for different kinds of ganja, according to the amount of intoxication that a particular kind of ganja is supposed to induce. 67. None: only this, that with a view to check further increase of ganja consumption, rates of duty should be further enhanced. 68. None in this district. 69. Yes - Evidence of Mr. C. A. S. BEDFORD,* Deputy Commissionero fManbhum


58. Yes, I am acquainted with the system of excise administration. I consider the system capa¬ ble of improvement. 59. As regards cultivation, storage and trans¬ port, I would like to see it put in the same foot¬ ing as opium. Its cultivation should be supervised by a superior agency, as is done in the case of opium: there should be a factory for its storage and packing, and indents for supplies to districts should be made in a similar way as is done in the case of opium. 60 and 61. I cannot say. I have no experi¬ ence. 62. I consider that it should be treated in the way proposed in my answer to question 59.
63. I have objections. I would like to see the golas abolished and sales made to retail vendors from the Government treasury, exactly in a similar manner as is done in the case of opium. One good result of the proposed system would be that we could exercise control over the price at which the drug is sold to the consumers and could prevent its being sold too cheap. 64. See answers to questions 59 and 63. 65. In this district the taxation is fair with reference to alcoholic and other intoxicants; but the taxation is, generally speaking, low in all cases. Year by year, however, it is being raised slowly and gradually. 66. In this district only round ganja is import¬ ed, so I am unable to offer an opinion. 67. The taxation is very low at present; the consumer can afford to pay much more. The lowness of the taxation is mainly due to the present defective method of taxing. See answer to ques¬ tions 59 and 63. 68. There are houses or shops licensed for the sale of these drugs or their preparations, and there is no prohibition to there being consumers in the premises. As no inconvenience has been brought to light as resulting from the present method, I would not interfere. 69. Up to date the wishes of the people have not been consulted; and as no complaints have been preferred, I suppose no cause for any exists. If the public did object, their objection should undoubtedly receive full consideration. 70. I have good reason to believe, in regard to this district, that a good deal of hemp drugs, but in very small quantities only, are smuggled into it from the Native States, which hem it in on all sides. All these drugs, so smuggled, are untaxed. - Evidence of Mr. R. H. RENNY, Deputy Commissioner of Singbhum


58 to 60. There is at present no control over local manufacture or consumption of ganja or bhang. 61. Not produced. 62. So far as the Tributary Mahals are con¬ cerned, I do not think any interference is neces¬ sary. 63. There is no such system here. 64. There is no import. As to export, officers of the districts into which Gurjat ganja and bhang is imported are in better position to answer the question. 65. There is no taxation. 66 and 67. There is onlyf latg anja here, and it is not used. 68. None. 69. No shops. 70. No.  - Evidence of RAI NANDAKISORE DAS, BAHADUR,* District Officer of Angul, Cuttack


58. It is working satisfactorily here. 59. The duty should be sufficiently great to prevent the consumption of these drugs increasing. The duty has been increased on ganja since 1st January 1894. 69. Enquiry is held by the Sub-Divisional Officer as to the wishes of the inhabitants of any place before opening a shop there - Evidence of MR. W. MAXWELL, Sub-Divisional Officer, Jhenidah, District Jessore


58 and 59. I have not had any acquaintance with excise administration since 1889. 60. There is, so far as I am aware, no restric¬ tion on the cultivation of the hemp plant either in the Tributary States of Orissa or in the ad¬ joining district of Ganjam in Madras. The manu¬ facture of ganja and the preparation of bhang are entirely uncontrolled. I am not prepared to make any remarks on the system. 61. Charas is not produced. 62. One or two plants of hemp in a raiyat's garden would produce leaves sufficient to supply him with bhang, and it would not, I think, be pos¬ sible to control this.
63. I have no recent experience. 64. I do not know sufficient of the subject to enable me to answer this question. 65. I have no recent knowledge of the subject excepting that the present rates in this part of the country are— Rs. A. P. Charas ganja 6 8 0 For the imRound 6 0 0 ported or RajFlat 4 8 0 shahi ganja. Gurjat (flat) 3 8 0 Grown loSiddhi or patti 0 8 0 cally. Even at the low rate of Rs. 3-8-0 very little Gurjat ganja pays duty, although a great deal must be consumed. 66. I do not think that there is any need for different rates of duty on round or flat Bengal ganja. Charas should pay a higher rate, as presum¬ ably a stronger and more elegant preparation. The rates on Gurjat ganja must at first be lower, but they can be raised gradually as the cultivation and smuggling is controlled. 67. I have not. 68. The licenses are for sale of the drugs only and not for consumption on the premises. 69. Not that I am aware of. Local opinion should, I think, be taken and considered. 70. A considerable amount of flat ganja and "patti" is smuggled into Orissa from the neigh¬ bouring States and Madras, chiefly in small parcels. When brought in on passes granted by the Excise Officers, Gurjat ganja has to pay about half the tax levied on Rajshahi ganja. Details of the amount of Gurjat and Rajshahi ganja imported and of the duty paid respectively can be obtained from the Collector. It is notorious, however, that large quantities of untaxed ganja and bhang are used in all the regulation districts of Orissa, but no figures are available. Question 70.[oral evidence]—I am persuaded of the prevalence of smuggling of ganja by the facts that many cases were brought to my notice, and that the frontier of Orissa marches for hundreds of miles with the Gurjat States and the Madras Presi¬ dency, where the drug is grown. Large quanti¬ ties used to be imported under the name of patti, and I pointed out to the authorities that the stuff was really ganja, but no notice was taken of my representation. I have read what Mr. Metcalfe said regarding the smuggling of Gurjat ganja in his No. 204-E., dated 9th June 1887. I thoroughly believe that the smuggling of ganja is very extensive, much more so even than is stated in this letter. The Commissioner would find it useful to get returns of the quantity of Gurjat ganja seized and destroyed, though the number of cases detected is not one-twentieth of the whole. The smuggling takes place from the Madras Presidency as well as the Gurjat States, about equally from both sources, in proportion to the length of boundary. I include the ganja from Madras in all I have said about Gurjat ganja. I fancy there is much more ganja produced in the Gurjat states than they have use for. I have seen small patches as big as a quarter bigha of homestead cultivation myself. I believe the cultivation is unrestricted in Gumsar over the border in the Madras Presi¬ dency, though I have never seen it there myself. The whole frontier against the Gurjats and Madras, except a very small opening on the latter border, is forest. I saw the patches of cultivation between 1876 and 1880. I could not have mistaken anything else for the hemp plant. - Evidence of MR. W.C. TAYLOR, Special Deputy Collector, Land Acquisition, East Coast Railway, and Pensioned Deputy Magistrate and Deputy Collector, Khurda, Orissa


58. I have been so long out of the department that I am not in a position to offer any useful opinion on this point. 59. I have been so long out of the department that I am not in a position to offer any useful opinion on this point. 60. Ganja is not produced in any district in which I have served. I cannot, therefore, answer this question. 61. Unanswered for the same reason. 62. Bhang grows so wild that I think it would not be feasible. 63 and 64. None. 65. In my opinion taxation of ganja was heavy with reference to outstill liquor at the time I was in charge of the Excise Department, but I cannot give any definite opinion with reference to the present state of things, of which I possess no detailed knowledge. 66. I think there should be different rates of taxation for different kinds of ganja. The flat and round ganja contain twigs which have no intoxicating power, whereas the chur or broken ganja is devoid of twigs. It is therefore natural that the last variety should pay higher rate of duty than the two first. 67. Left unanswered, as I don't know the present method exactly. 68. Not that I am aware of. There used to be none such when I was in charge of the Excise. 69. This used to be done when I was in charge. 70. I am not in a position to answer this question.  - Evidence of CHUNDER NARAIN SINGH, Kayasth, Deputy Collector, at present employed as Personal Assistant to the Commissioner of the Bhagalpur Division.


58. I cannot speak much of it. I think the system is working well. 59, 60, and 61. Nothing to say. 62. Hemp is not cultivated here. 63 and 64. Nothing to say. 65. Nothing to suggest. 66. I consider the round should be taxed more, considering its comparatively greater intoxicating property. I can suggest no rates. 67. None. 68. There are shops for the vend of ganja and bhang, but I have no suggestions to offer. 69. Yes, to some extent. Enquiries are generally made by the police in regard to the advisability of opening shops in particular localities. It would be better if local public opinion is more consulted. As a rule I have invariably seen some opposition or other raised by residents of the locality in the mufassal when such sites for shops are selected.  - Evidence of BABU RAM CHARAN BOSE, Kayasth, Deputy Magistrate and Deputy Collector, Alipur, 24-Parganas.


58. It is not capable of improvement in this sub-division. 59. No. 60 and 61. Not produced here. 62. Yes, if feasible. 63. If the cultivation and sale of the drugs are not to be discontinued, I have no objection to the present system of vend, except that shops at low rent should on no account be opened, and no shops on the borders of a sub-division or district should be opened. 64. No. 65 and 66. Yes. 67. No. 68. Four shops exist in this sub-division for the sale of ganja, but the drug cannot be consumed on the premises. On no account should shops where these drugs can be consumed be opened, as people would assemble there, at first for gossip, but eventually for smoking the drug. They would give greater facilities to vendors to encourage poople to smoke. 69. The wishes of the local people are considered before a shop is opened. Local opinion should be considered. 70. There are no facts regarding importation or smuggling of hemp drugs from Native States. Duty is paid in respect to ganja used. There is no reason to believe that untaxed drug is used. Question 63.—By shops at "low rents" I mean shops held at low license fees. Shops are sold by auction, and the amount bid at auction is the license fee. I see no reason for changing this system, if prohibition is not to be carried out. Shops go at low rates, because they are too close together or are not required. I think no shop should be opened unless it pays a license fee of Rs. 50 a month, and that there should be not less than six miles between any two shops. I recommend that no shops should be opened on the borders of a subdivision or district, so that there should not be competition between shops on both sides of the border. I think also that the limit of legal possession should be reduced from twenty tolas to ten tolas. My object in these recommendations is to restrict consumption. Out of four shops in my subdivision, three pay more than Rs. 50 a month and one pays less, because it is exposed to competition by one of the shops on the border. The Sonthals are not consumers of the hemp drugs. They take rice-beer for the most part, called in Bengali "pachwai." I consider that hemp drugs are doing more harm than rice-beer. Rice-beer is somewhat stronger than toddy. - Evidence of MR. E. MCL. SMITH, Deputy Magistrate and Deputy Collector, Sonthal Parganas.


58 and 59. By raising the duty immoderate use may be checked. 63 and 64. No objection. 68. There are shops, but no houses or premises. The present system is working well. 69. Yes. 70. There are no facts regarding the importation or smuggling of hemp drugs from Native States. Duty is paid. There is no general use of untaxed drugs.  - Evidence of BABU GOPAL CHUNDER MOOKERJEE, Deputy Magistrate and Deputy Collector, Diamond Harbour


58. The duty on ganja is being gradually in¬ creased. It has already become hard for the poor labouring classes who take it as an alleviation against hard work, and a protective against exposure, to meet their wants, The duty should not be raised higher than what it is now. 62. No. 66. Yes, according to intoxicating power, or rather on the quantity of the actual flowers exist¬ ing in several sorts of the ganjas. 67. In marshy, jungly, terai and pestilential places the taxation ought to be smaller than in towns and healthy places. 69. I cannot say whether the wishes of the people are considered, but they ought to be.  - Evidence of BABU NAVIN KRISHNA BANERJI, Brahman, Deputy Magistrate and Deputy Collector, Purulia, District Manbhum


58. It is generally working, well, with careful supervision and management, and by raising the duty and license fee and thus regulating the retail price its consumption may be reduced. 62. It would not be feasible to control or restrict the cultivation of bhang. It grows wild everywhere. It is generally considered almost innocuous and beneficial in some respects. I do not think it necessary to do any more than levy a small duty on bhang stored and to enforce pay¬ ment of license fee for its sale. 63. No. Once it was suggested that Government should take the wholesale vend monopoly in its own hands, as is done in the case of opium. I consulted several officers and discussed the pro¬ posal with many. I think the present system is better. There is no reason for Government to take the wholesale trade in its hands. All that is necessary is to exercise strict control and super¬ vision over the work of the wholesale vendors both in the producing and importing districts. 65. The duty on ganja for the last twelve years has been more than doubled. It was Rs. 4 on chur ganja per seer in 1878, and this year it is Rs. 9. The license fee for its retail sale by the auction system has been very considerably raised. In 1878 the vendor paid Government Rs. 4 1/4 for each seer of ganja sold. Last year it paid Rs. 10 3/4. This year, with the increase made in the rate of duty,—vide Board's Circular Order No. 95-B., dated 23rd November 1893,—it is still more heavily taxed. Whenever the rate of duty of any parti¬ cular article is increased, I think it should also be considered whether the duty on other exciseable articles should not be increased. Of late years duty on all articles has been raised. It should be different for different parts of the country accord¬ ing to its special circumstances. 66. Yes; according to the resinous agglutinated intoxicating matter contained in each kind. The rates of duty, as fixed by Board's Circular No. 95-B., dated 23rd November 1893, I fully approve. 67. No, 68. Yes. If smoking at shops be prevented it would not be considered a great hardship. As a rule, people buy ganja at the shops and go home and smoke. 69. No. The Excise officers make their own estimates of requirements and propose shops at places where there is demand. I have, however, never heard of any complaint as regards the sites selected by Government officers for ganja shops. 70. I have no information on the point. Dhatura is the only drug not taxed. It grows wild largely. It is, however, little used. It is taken generally for medicinal purposes, and at times with ganja or bhang to intensify intoxication, and it is also used for drugging purposes. It may be included among exciseable articles and its use restricted. [RRT64] - Evidence of BABU PRAN KUMAR DAS, Deputy Magistrate and Deputy Collector and Personal Assistant to the Commissioner of Burdwan.


58. I am well acquainted with the present system of excise administration. It is capable of improvement. 59. The consumption may be decreased if the duty on ganja is raised and the license fee lowered. This will improve the finances as well. No duty is levied on bhang. Some sort of duty ought to be levied on bhang, which would be very low at first, say, 1/16 of the average duty on flat ganja. This will make the system more regular and analogous to the system of selling ganja. 60 and 61. None produced here. 62. I think the cultivation of the hemp plant for bhang ought to be controlled. It will be feasible, though not all at once. Licenses on payment of fees may be granted for the cul¬ tivation of bhang plant within certain areas. Persons on whose lands bhang plants yielding more than four chataks of bhang will be found may be prosecuted. This will bring the system gradually within the scope of our detective officers. Bhang plants will then have to be destroyed by Excise officers. To levy duty on bhang will be the next step. The goladars of ganja receive a good profit. Twenty-five per cent. of the same ought to be paid as license fee. 63. For bhang see question No. 62. For retail vend of ganja see question No. 59. For retail sale of bhang see question No. 62. 64. None. 65. Taxation of ganja is reasonable. No duty on bhang is levied, vide question No. 62. There is no duty on liquor here. 66. There should be different rates of taxation on different kinds of ganja, as at present; for flat ganja has twigs, which chur ganja has not, and it will not be expedient to levy the same rate for both. I do not know about ganja cultivation elsewhere. 67. Objections about ganja and bhang mention¬ ed before. 68. There are no houses where they may be con¬ sumed on the premises, nor would any be suitable, for most of the drug is consumed at the houses of the consumers— very little is consumed in the shops. 69. Yes, they are considered, as well as the requirements of a locality. The influential men of the locality are consulted, and the public opinion of the locality ought to be regarded. 70. Very little ganja—say, a few seers—is grown in the Tippera hills. This ganja is very inferior in quality and not much is imported by consumers from the hills. The quantity is very small, for the hill authorities now import ganja under a pass from the Sudder (Tippera) golas. This ganja is very inferior in quality, and I believe no duty is paid for these drugs in the hills. There is no general use of this untaxed ganja. - Evidence of BABU GOBIND CHANDRA BASAK, Deputy Magistrate and Deputy Collector, Brahmanbaria, Tippera
District


58. The Excise administration is working well, and is not capable of improvement. 60, 61, 62, 63 and 64, No. 65. Yes. 66. Yes; there should be different rates for different kinds of ganja. Chur pays a duty of Rs. 8, while flat or round pays less. This is reason¬ able, because there are no stalks in the former. 67. No, 68. Yes. In my opinion smoking in the shop should be discouraged, because it may tempt other people to smoke it. 69. No. It is not necessary. 70. There are no facts regarding the importa¬ tion or smuggling of hemp drugs from Native States. Yes, duty is paid,  - Evidence of BABU DINA NATH DÉ, Deputy Magistrate and Deputy Collector, Nadia.


58. In my opinion the excise administration of Bengal in respect of ganja is working very well. Every system is more or less capable of improvement and some improvement may be suggested. 59. The following are some of the suggestions indicating the direction in which improvement is possible:— 1. To strengthen the present staff of officers and men engaged in the supervision and control of the cultivation of ganja. 2. To reduce the quantity of ganja which a person is allowed to possess from twenty to five tolas. This will minimise smuggling, and at the same time will act as prohibition to the consumer who has a tendency to go to excess. 3. To provide for punishment for possession of ganja of any quantity for which duty has not been paid. This will check consumption of ganja on which duty has not been paid, and at the same time will benefit the revenue. 4. To authorise all the excise officers, spe¬ cially those employed for the super¬ vision of cultivation, to make search for ganja without the assistance of police, as they are, under the present law, required. This will check illicit cultivation and thus tend to decrease the consumption, 5. To weigh ganja manufactured by the cultivators of Naogaon and not to depend upon the guess weight which must necessarily be incorrect. This is necessary both from administrative and moral point of view. Ganja passing out from the hands of culti¬ vator without payment of duty must necessarily be cheaper. Therefore it will increase consumption. 6. To store ganja in public warehouses. At present ganja is stored in the house of the cultivator, who can smuggle a portion of it without being detected. 7. To provide punishment for taking away ganja plants from the field by other persons than the cultivators. 8. To provide the Subdivisional Magistrate of Naogaon to exercise criminal jurisdiction in all ganja cases arising within the ganja tract, which at pre¬ sent is locally situated in the districts of Bogra and Dinajpur where the ganja cases are now tried. 9. To reduce by half the rate of duty on different sorts of ganja in the ganjaproducing districts, Rajshahi, Bogra and Dinajpur. On general principle, the price of an article should be cheaper at the place where it is pro¬ duced. On this pinciple the duty of opium is nearly half of what it is in most other districts of Bengal. This will tend to entirely check or eradi¬ cate the petty smuggling which at present exists and which it is impos¬ sible to check under the present law and rules. 10. To increase the duty of all sorts of ganja, specially chur. In my opinion we have not raised the duty to such an amount where we should stop, so that overtaxing might not induce illicit cultivation. Chur ganja, it is admit¬ ted, even at present, pays less duty in proportion. Proposal for its increase has been submitted and it is anticipated that the increase will be sanctioned. 11. There should be only one sort of ganja manufactured. I would propose to turn all ganja into chur, to pack it in uniform bundles and distribute like opium to all the treasuries and suotreasuries of Bengal for sale. 12. To buy up the whole produce from the cultivator as soon as it is manufactured, and to distribute it to the several dis¬ tricts according to their requirements, keeping a reserve stock at Naogaon. 60. The cultivation of Naogaon ganja and its manufacture are sufficiently controlled. I would, however, recommend the appointment of two addi¬ tional supervisors during the manufacturing season with a staff of peons. 61. I have no experience. 62. I am not aware that the cultivation of hemp plants for production of bhang is controlled in any way. No control, I think, is feasible, since these plants grow wild all over the country. 63. The present system of wholesale and retail sale of ganja, charas and bhang is the best. No one would have any objection to it. 64. There would be no objection to the existing regulations governing the export and import of ganja. 65. In my opinion the taxation of ganja, charas and bhang is reasonable with reference to each other, but not quite reasonable with reference to alcoholic or other intoxicants. I have already proposed the increase of taxation of ganja in my reply to question No. 59. Four pice worth of liquor or tari could not make any impression in the consumer, but a pice worth of ganja is sufficient to intoxicate a habitual smoker and sure to kill a man who never smoked before. Charas is very little consumed, and any increase in duty on this article will not matter much. Bhang, as I have said before, is grown wild all over the country and could be had for collecting. Bhang pays a very small duty of eight annas per seer. If the taxation is raised, the consumer would not come to our shop but would collect it from the wild plants. Had it been possible to eradicate the wild growth of bhang, I would have recommended an increase in the taxation of this article. 66. In my opinion it is necessary that different rates of taxation should be for different kinds of ganja, flat, round and chur. In Bengal, ganja is only grown in Naogaon. In Gurjat in Orissa some sort of so-called ganja is collected from wild plants. Each kind of ganja should be taxed in proportion to the narcotic matter that each is supposed to contain. On this principle, the present rate of taxation was fixed. 67. Excepting the remarks made by me in the foregoing replies, I have no objection to the present method of taxing. 68. There is no objection to the consumers smoking ganja in the licensed shop. But ordi¬ narily the smokers take away the ganja from the shop and smoke in their own houses. The shops are by no means disreputable. 69. Ordinarily the wishes of the people are not consulted or considered when a shop is opened in any locality. I don't think it is necessary to consult or consider public opinion, as a ganja shop is not a nuisance. 70. I am not aware of the importation or smuggling of hemp drug from Native States into Bengal. In the ganja-producing tract of Naogaon, small quantity of ganja is used surreptitiously; cousequently no duty is paid on it. This cannot be prevented in a place where the drug is grown, and it is difficult to bring the consumers within the provision of law. There is no general use of untaxed drugs, so far as I am aware of.  - Evidence of BABU GANENDRA NATH PAL, Kayasth, Deputy Magistrate and Deputy Collector, Naogaon.


58 and 59. The present system of excise administration is working well. 60. Ganja is produced in the province; but having never been in the ganja-producing tract, I am not in a position from personal experience to answer this question. 61. Charas is not produced in this district, and I know nothing about it. 63 and 64. I have no objection. 65. I have no knowledge of charas; but I think the taxation of ganja and bhang with reference to each other and to alcoholic or other intoxicants is reasonable. 66. There should be, and in fact there exist at present, different rates of taxation for different kinds of ganja produced in Bengal. The rates are as follows:— Rs. A. Duty levied per seer of flat ganja 6 0 Ditto round do. 7 4 Ditto chur do. 8 0 The above rates of duty with reference to each are fair, seeing that one seer of flat ganja yields about twelve chittacks of ganja when separated from the woody portion, and one seer of round ganja produces about fourteen chittacks of ganja when separated from the woody portion, while one seer of chur or broken ganja yields one seer of ganja having no woody portion to be separated therefrom. It will thus be seen that the duty levied on ganja, whether in the shape of flat, round, or chur, really comes up to Rs. 8 per seer only; in the case of round ganja, annas 4 is charged in excess. 67. I have no objection as to ganja and bhang. 68. In this district there are shops licensed for the sale of ganja and bhang, but not for their preparations; neither are the drugs consumed on the premises. The shops are so situated that they very well meet the requirements of the consumers and have no objectionable features about them. 69. The wishes of the people are consulted before a shop is opened in any locality. Excise inspecting officer visits the locality, ascertains the fact whether the shop is needed, and whether the people of the locality have any objection to urge against its being opened. Local public opinion should be always considered before issuing a license for a shop. 70. There has been no case of importation or smuggling of hemp drugs from Native States into this district. I have no facts regarding the importation or smuggling of such drugs from such States into the province to which I wish to draw attention. In this district duty is really paid in respect to the ganja and bhang used. As far as I know, there is no use of untaxed drugs in this district. - Evidence of BABU GANGANATH ROY, Kayasth, Deputy Magistrate and Deputy Collector, Chittagong.


58. The present system of excise administration requires, in my opinion, some improvements in its working. 59. I would suggest that the improvements may be made— (a) by increasing taxation. I agree. A. AHMAD, Offg. Collector. (b) by modifications in the act of transport of these drugs from the producing districts. (c) by having sufficient establishments to watch and regulate its consumption. (d) by reducing the quantity for possession of these drugs, at present authorized by law. This should be controlled in the same way as opium, and certainly supervised by the same Department. 60 to 62. I have no suggestion to make regarding the improvements by which cultivation or production of these drugs should be controlled. 63. I have no objection to the present system of retail vend of these drugs, except with regard to the quantity at present the retailers are authorized to sell. But I object to the present system of wholesale vend of these drugs, since it not only affords to the wholesale dealers all facilities to import bad drugs at low prices, but also induces them on many occasions to sell those drugs to retailers even when they are unfit for use. More¬ over, it facilitates the wholesale dealers who hold retail shops to sell these drugs at cheap rates. The introduction of the proposed system will also sufficiently control the exorbitant charges obtained by wholesale dealers from retailers. 64. As I have stated above, I do not approve of the present system of export and import and transport of these drugs. I think in order to have a better control over the consumption of these drugs, the first thing will be to do away with the present system of the wholesale vend. 65. In my opinion the present taxation of these drugs is not sufficient in proportion to that of spirituous liquors and opium. The amount of taxa¬ tion of these drugs should be raised to the follow¬ ing rates, viz.:Ganja, Rs. 4, exceeding the present rate on average. Charas, Rs. 8, exceeding the present rate on average. Siddhi, Re. 1, exceeding the present rate on average. 66. The rates therefore should be for flat with small twigs, and round Rs. 11 Chur " 12 (Flat with large twigs should be done away with.) 67. If the above measures be adopted to enhance the taxation of ganja, charas and bhang, I think there will be no necessity to interfere with the present system of taxing these drugs. 68. In this district there are no such licensed houses or shops for the sale of these drugs where they are consumed on the premises, and it is not practicable to have any hold over the consumers in respect of inducing them to consume these drugs in the sale-rooms. 69. As a rule, the practice of consulting the wishes of people before a shop is granted in any locality is not now in vogue. When any such shop is in requisition in any locality, reports regarding the necessity, and the area, population, etc., are called for from the local Excise Officers, and they are considered by Excise Deputy Collector before proposing the same for settlement. 70. There has occurred no case of illicit importation of these drugs from Native States.  - Evidence of BABU BHAIRAB NATH PALIT, Deputy Magistrate and Deputy Collector, Birbhum


58. An increase in the license fees may reduce consumption of the hemp drugs, 66. It is necessary that there should be different rates of taxation for different kinds of ganja as chur is better in quality than round or flat, and round is better than flat. 68. No. 69. In the case of an opening of a shop for sell¬ ing these drugs, the wishes of the people are not consulted or considered at present. But in my opinion, local public opinion should be consulted and considered before a shop is opened. 70. There are no cases of importation or smug¬ gling of hemp drugs from Native States into our Division. Duty is really paid in respect to the ganja and other hemp drugs used, but by the sel¬ lers directly and by the consumers indirectly. Untaxed drugs are not generally used.  - Evidence of BABU JOGENDRO NATH BANDYOPADHYA, Brahmin, Deputy Magistrate and Deputy Collector, Jalpaiguri.


58. Yes; it is working well. 60 and 61. I do not know much about the prac¬ tical working of the rules controlling its culti¬ vation. 62. The cultivation of bhang could only be controlled if the wild plant could be entirely suppressed. But this is not feasible. 63 and 64. None. 65. Yes. 66. Yes, because the quantity of ganja in the three kinds varies. There is a large quantity of sticks in the flat, less in the round, and it is entirely absent from chur. 67. No. 68. Yes. But ganja, unlike chandu and madak, is not generally smoked on the premises and there is nothing objectionable about the shops. 69. Ganja shops are never considered a nuisance and no one even objects to the site. Public opinion is never hostile to these shops, and therefore it is never consulted. 70. There are no facts regarding the importation or smuggling of ganja from Native States. Yes, duty is paid. There is no general use of untaxed drugs. (I have made close enquiry about this. We have no reason whatever for thinking that untaxed ganja is used: nor in Darjeeling, where the wild cannabis is so abundant, was a case ever detected. —W. O.) - Evidence of BABU JAGA MOHAN BHATTACHARJYA, Deputy Magistrate and Deputy Collector and Personal Assistant to Commissioner, Chittagong


58. The policy of "minimum of consumption and maximum of revenue" adopted by the Excise Department of Bengal is working well. The ar¬ rangements are not, however, so perfect as to be incapable of further improvement. 59. For my suggestions, see appendix paper (B). Appendix paper. (B) CHAPTER VII, QUESTION 59, et seq. I begin with the premise that no people or class of people can be made virtuous by law or orders of the authorities. An evil habit once come into vogue cannot be easily eradicated. By judicious repression and punishment, it may cease to be prevalent: but this requires time, and the gradual education of the bulk of the people. Even then no evil habit can be altogether extirpated—wit¬ ness thefts, dacoities, murders and arson. In spite of the stringency of the Penal Code, of the strong horror of the public opinion, and of the vigilance of police, they have not ceased in any
country. Similarly with the habits of ganjasmoking and bhang drinking. 2. My next premise is that ganja-smoking is far worse than bhang-drinking. Patti is not unlike tobacco leaves, and may be placed nearly in the same category. Bhang-drinking is also enjoined by custom and the shastras in various ceremonies. Consequently the sale of patti is permissible like tobacco. On the other hand ganja-smoking, even in small quantities, is injurions, and if habitually used, permanently injures the constitution, and affects the moral conduct. The sale of ganja should therefore be more and more restricted with an eye eventually to its total prohibition, except for medicinal purposes. 3. The sale of ganja may be restricted in three ways:— 1st, by restricting the cultivation to a small area. In Orissa, ganja cultivation is not allowed, so I need not speak anything. In the Tributary States, ganja cultivation is free; this I will deal with later on. 2nd, by raising the duty per seer of the ganja. At present the duty is R6-8 on round ganja, and R3-8 on Gurjat gauja. In comparison with opium, which has a duty of R32 in Orissa, the above duty is less. It can be gradually raised to R20 and R10, respectively. For patti the present duty is annas 8 per seer. It can be raised to R1, but not more, as patti cannot be kept long. 3rd, by increasing gradually the license fees of the shops, and by locating the shops in retired places. The increase in the license fees will chiefly depend on the consumption of the drug, and the distance from the frontier, etc. I am in favour of putting a maximum consumption for each shop, beyond which the shopkeeper will not be allowed to sell in every month. Except near the frontier, I do not see why it shall not be practicable. The shops for ganja, at least, should not be placed in prominent sites, such as hâts, bazars, public places, temples, fairs, etc., where the people may be tempted. The principle of local option is not bad, but in Orissa there is hardly any public opinion. In Municipalities the opi¬ nion of the Municipal Commissioners might be taken before opening any shop on a new site. 4. All the above suggestions, if adopted, will increase the retail price of the drugs. Patti and ganja will become more and more valuable, and smuggling will be attempted. The Tributary States in Orissa are too close, and smuggling will not be difficult. This can be checked in the following manner:— 1st, the ordinary detective staff of the district should be strengthened. The easiest way of doing this is to amalgamate the present detective staff of the Salt Department with the present staff of the Excise Department. The same area is often inspected by Salt Officers and by Excise Officers, but this work can be readily done by one officer. 2nd, at least one officer on a competent pay should be placed along the frontier of each district. He will have to move along the border making rapid marches, and inspecting the adjo ining shops, and detecting smuggled drugs. 3rd, the Chiefs of the Tributary States are to be induced to reorganise their Excise Establishment (at present miserably kept), to restrict the indiscriminate cultivation of the plant, and to prohibit sales except under certain conditions. I am generally unwilling to make any suggestions about interfering with the liberty of action allowed to the Gurjat chiefs. But on moral grounds, for the benefit of their own people at least they might do so. Failing that, they may be persuaded to make over the Excise Administration in their territories to British Government, in consideration of annual grants. In Bombay Presidency this has been done and with apparent success. 5. I have no doubt that these arrangements, modified according to circumstances, will, in the long run, prove successful in Orissa. The changes, however, should be gradual; and the illsuccess of a year or two's experiments should not discourage. Question 70.[oral evidence]—The Gurjat ganja was largely smuggled both from the Tributary States and the Madras frontier. I have recollection of a case in which the drug was smuggled between the two coverings of a native umbrella. The contrivances for smuggling are various. Smuggled ganja is not sold openly in the town, but distributed secretly among the consumers. The license fees for vend of gunja have nevertheless been increas¬ ing in the town of Puri. - Evidence of BABU MANMOHAN CHAKRAVARTI, Deputy Magistrate and Deputy Collector, Jajpur, Cuttack, Orissa.


62. It is impracticable to exercise any control effectually in respect of the production of bhang, as the plants cannot be eradicated. Any pressure brought to bear on the possessor of the soil spon¬ taneously growing bhang plants would prove to be an oppression and harassment. 63. It would be well if the three classes of ganja could be reduced to one while in course of preparation in Naogaon. My reasons for this are as follows:— (a) Since 1885 I believe there have been too many fluctuations in the rate of duty on each class of ganja with a view to ad¬ justing the real actual smokeable quan¬ tity of the drug in a seer of each of the three kinds. But I believe the propor¬ tion is still defective, and it will ever remain so, because some of the wholesale dealers or brokers purchase the standing crop, and cause a preparation of the kind more or less just as the rate of duty would suggest to be lucrative. Hence we find that in some year one kind of ganja is more imported than the other, and next year contrary is the case. (b) This change in duty (always towards enhancement) has been introduced in the middle of the year, which serve to disturb the men in the trade who were thus forced to grapple with a difficulty of which they had no notice when taking the license. (c) Malpractices can often be resorted to by the wholesale dealers by converting flat into chur and utilizing the same to make up the deficiencies in chur at the close of the year and showing deficiency only in flat and thus paying less duty. (d) For the purposes of comparing consump¬ tion in consecutive years, the comparison would be fairer than as shown at present if there be only one kind of ganja. For in a maund of flat the actual quantity smoked is much less than in a maund of chur, and it is misleading to compare one maund flat with one maund chur. (e) For the above reason the consumption in retail shops too cannot be accurately ascertained without an intricate way of calculation for fixing the upset price of shops and selling the licenses thereof. For the above reasons I would suggest the unification of the three kinds and fixing of one duty if it be feasible to effect this unification in the producing subdivision, Naogaon. 64. It seems to be unfair to charge for wastage under the existing rules when such wastage is more nominal than real,—i.e., produced by the effect of climate. Ganja weighed one maund at Naogaon in damp weather is sure to be found less in weighment made in Behar when the wind blows from the west and not from the east, The wastage should be charged in cases of abstraction or sale or theft on transit, and not in cases beyond human control. In not a few instances ganja is abstracted from bags on transit by rail. The quality of the bags and the mode of packing should be improved. I would suggest the discontinuance of the loafers known as wholesale dealers in ganja. Railway communication has removed all difficulties in transport, and ganja can be indented by the Collectors of districts upon Naogaon authorities or wherever the Government principal store-house may be. There should be a head office at Naogaon with a responsible officer, and each district will account with that head office as to quantity of the drug only, duty being realized, as at present, in the selling districts. Under such arrangement Government can introduce special uniform bags and adopt the system of packing now in use for packing the postal mail bags. Abolition of wholesale dealers will give certain relief to the retail vendors, and Government can then enhance the duty to the extent of that relief, which will be much more than the cost of transit to be incurred by Government, and the interest of the capital to be advanced for the purchase of the crop from the cultivators. This change will simplify accounts and give relief to the clerks. It will set the retail vendors at liberty to bid freely at auctions. At present a vendor in arrear to a goladar cannot bid against the wishes of such goladars. Practically I have seen that goladars are one of the factors at the annual auction in more than one way. 65. I think the present rate is reasonable and sufficient and see no necessity for any change. 66. Vide No. 63. I am in favour of unification. 67. No. It is sufficient for the purpose. 68. There is no prohibition to smoke on pre¬ mises of shops. Bhang is never consumed on the premises of retail shops: ganja is seldom consumed in vend shops. I have no objection to such shops and houses as they are at present,—i.e., like the shops for the vend of any necessary articles. 69. No. Such shops are not considered as a nuisance like liquor shops. There is no harm in consulting the local public opinion in this respect. 70. Nepal grows wild ganja. Its flavour is not much relished by our people. The Nepalese too prefer our ganja. But those of our people who live along the northern frontier of Bhagalpur and who wish to have cheap intoxicant smuggle in Nepal ganja. The smuggling is not carried on to any appreciable extent. - Evidence of BABU NAVAKUMAR CHAKRAVARTI, Brahmin, Deputy Magis¬ trate and Deputy Collector, Jangipur, Murshidabad


58 and 59. The system under which ganja and bhang are supplied to the consumers has been known to cause no inconvenience to the public, and is believed to be working well. In view, however, of the increasing consumption of ganja there ought to be further check in the shape of enhanced duty.
60 and 61. Cannot say. 62. Cannot indicate any. 63. There appear to be none. 64. None that have been advanced by the parties concerned. 65. There is no great disparity in the rates of taxation upon ganja and bhang. But supposing that one pice worth of ganja gives as much in¬ toxication as four pice worth of country liquor and two pice worth of opium, I should say that there is ample room for improvement in the taxa¬ tion of ganja. 66. There should be different rates of taxation for different kinds of ganja, according to the amount of intoxication that a particular kind of ganja is supposed to give. 67. None: only this, that with a view to check further increase of ganja consumption rates of duty should be further enhanced. 68. None in this district. 69. Yes. In Municipalities opinion of Muni¬ cipal Commissioners is taken; in the mufassal, of chief village men. Local public opinion ought to be considered. 70. None known to me.  - Evidence of MAULAVI ABDUS SAMAD, Deputy Magistrate and Deputy Collector, Purulia, Manbhum.


nected with it as Excise Deputy Collector of two districts, viz., Dinajpur in Northern Bengal and Singhbhum in the south-west of the province. I consider the system is capable of improvement. My opinions relate to ganja only. I am not much acquainted with charas and bhang. 59. The system is capable of improvement in the direction of bringing it more thoroughly under the control of Government. As at present worked, the system is controlled by Government on the one hand and by the three outside factors on the other: viz., (1) the cultivator, (2) the wholesale vendor, and (3) the retail vendor. These three factors are more or less independent of Government control. They can each in his own sphere influence the final cost to consumers. The truth of the following proposition seems undisputed:— "Fluctuations in the cost (for a given quantity) to consumers has a tendency to increase consump¬ tion." This proposition is based upon the following theory which embodies the result of long experience. The ratio in which a man's desire to indulge in an intoxicant increases with a given ratio of in¬ crease in the facility of gratifying it, is greater than the ratio in which his desire will decrease with an equal ratio of decrease in the facility. Thus if a man's consumption of ganja increases in the ratio of 8 to 10, while the cost decreases from 12 to 8, his consumption will only decrease from 10 to 9 when the cost increases from 8 to 12. The net effect of the double fluctuation would be an increase of consumption from 8 to 9, while everything else outside of him has come to its old position. The avowed object of the present system of Excise Administration being to reduce consump¬ tion and thereby to improve public morality, its duty is to prevent as far as possible any fluctuation of the kind referred to above. The cost to con¬ sumers should be slowly, but steadily, increased, so as to effect a corresponding slow but steady de¬ crease of consumption. Increase one year and decrease in the next is most harmful to the con¬ sumers. A year of cheap ganja will have the effect of increasing the desire for gratification, and a year of dearness will accustom the consumer to increased cost of gratification. It is possible therefore by a clever alteration of cheapness and dearness in successive years to enormously increase consumption and effect the ruin of the people. It is impossible to regulate consumption if all the factors that influence it are not brought under the complete control of Government. The cost to consumers must be steadily increased and con¬ sumption steadily decreased. Two points require notice in this connection. (1) It is not enough to say at the end of a number of years that the consumption is less at the end than it was at the beginning of the period. But it must be shown satisfactorily that during the period the consumption has never increased even by the smallest quantity at any point of time. Each succeeding year, month and, if pos¬ sible, day should show a decrease of consumption, however small, but always decrease and never increase. This decrease should be participated in by all the divisions, and if possible by all the dis¬ tricts; what ordinarily takes place is increase in some divisions and decrease in others one year, and decrease in the first mentioned and increase in the last mentioned divisions in the next, or something of the kind. This shows that the fluctuations in each locality are great, which in its turn proves fluctuations of a serious kind in the cost to consumers, and the entire absence of Government control. Government is in fact at the mercy of the cultivator, the wholesale vendor and the retail vendor on the one hand, and to local agricultural prosperity or otherwise on the other, Its own control is virtually nil. (2) The increase of cost should not merely be in the absolute amount as measured by the currency of the Empire, but it should be a real increase, offering a real check to consumption. Thus, if the cost was Rs. 20 in 1875 and it is Rs. 40 now to an individual, there has been no real increase if the man's income has doubled in the meanwhile; and if he is an agriculturist, surely his income has nearly doubled during this period by the mere operation of the currency changes over the world as between gold and silver. General progress of wealth has also perhaps increased his ability to spend more money on luxuries. To determine what would constitute an actual increase in the cost to consumers in any province would be a most complex problem involving many considerations. Government having the entire control of the ad¬ ministration (of excise) would hardly be able to discharge its responsibility satisfactorily. How much less should it be able to discharge it when half the control is not in its hands at all ? For the improvements I propose see answers to questions 60, 63 and 64. 60. Ganja is produced in my province. A tract of country including parts of the Rajshahi, Bogra and Dinajpur districts is selected for the cultivation of ganja for the supply of the whole province. I was in charge of one of these dis¬ tricts, and am of opinion that the cultivation is not adequately controlled. The staff employed for supervision does not appear to be sufficiently strong and well-paid, and the system itself seems faulty. I believe about 10 per cent. of the actual outturn goes into consumption direct from the cultivator's hand without paying duty. A por¬ tion is probably also stolen from the fields, to the loss alike of the cultivator and Government. It is noteworthy that in a very large area round the ganja tract there is no ganja shop and none can be opened. The reason can only be that the people smuggle and steal, having facility to do so. In fact, they have only to go and ask the cul¬ tivators, in order to have an adequate quantity for the year's consumption. If the cultivators can pass out ganja to their relatives and neighbours, why should they not be able to pass it out to licensed exporters without the Subdivisional Officer of Naogaon ever knowing of it ? Indeed the exporters are more dangerous than the thieves. The cultivator influences the cost to consumers to a considerable extent. The wholesale price which he charges varies from Rs. 10 to 100. This is a large variation and cannot but influence the cost to consumers. The system on which ganja is grown and manufactured and stored might be modified on the following lines:— (1) Experiments should be made in an honest spirit to ascertain if ganja can be grown on hill-sides on the system on which tea is grown. If this succeeds, the present system should be abandoned and the tea system introduced. If the experiment does not succeed, the present system should be continued with the following improvement:— 1. The area for which licenses to cultivators are given should be measured, mapped and recorded. 2. The supervision over the fields should be increased. 3. The entire crop should be purchased by Government and then manufactured by its own paid servants. 4. The ganja when manufactured should be preserved in air-tight tin vessels like tea, say each to contain one, two, or more pounds. There should be only one kind of ganja manufactured, namely, chur ganja, from which all extraneous matter has been eschewed. To have three different kinds of ganja looks like having two holes in the door for a pair of kittens. 5. The ganja should be manufactured at Naogaon and at once despatched to conve¬ nient divisional centres for distribution to the districts. 6. At least two years' consumption should always be in stock. 63. I have very serious objection to the present system of wholesale vend of ganja. The whole¬ sale vendor exercises a great influence in the revenue of Government on the one hand and the cost to consumers on the other. (1) The wholesale vendor should be abolished. (2) The ganja should be issued by the treasury officer like opium to retail vendors. There will be no weighment. The tins will be simply handed over. As regards the retail vend of ganja, I would introduce the following system tentatively:— (1) The retail price of ganja will be fixed by Government. (2) The number of licenses and the localities will be the same and restricted in the same way as in the present system. (3) The vendors would get a commission on the quantity sold. (4) The licenses will be sold by auction, preference being given to those who agree to work for the minimum commis¬ sion. The present system is a sort of gambling. The elements of uncertainty are considerable. The final cost to consumers is too much at the mercy of the vendors in the present system. 64. I have objection to the present system of transport. If the wholesale vendor is abolished, the present system of transport will die with him. 65. I do not believe there is any relation between the intoxication produced by ganja and that caused by alcohol. No man discusses within himself—" Now, if I take to ganja I have to pay so much for so many hours' inebriation, and if I take to alcohol I shall have to spend so much for so many hours' enjoyment." Whether a man will drink or smoke depends entirely on taste and circumstances unconnected with cost. The question of cost may influence those who are addicted to both kinds of intoxicatious. But I believe such men are rare. The theory of interchangeableness of ganja and alcohol is convenient to Collectors who have sometimes to account to superior autho¬ rity for variations in the two kinds of revenue. 66. I would have only one kind of ganja, namely chur; flat ganja could never be put in tins. The Commissioner says in his last report that consumers prefer flat ganja to chur. He evidently means retail vendors prefer flat ganja to chur. They prefer it because there is an element of uncertainty in flat ganja (in the ratio of the twigs to the actual ganja). The vendor considers this a subject for gambling. He wants and ex¬ pects each time to get more ganja than twigs. Flat ganja also perhaps pays less duty in propor¬ tion to chur ganja. I cannot conceive that there is any difference of quality between flat and chur or even round. The very fact that flat ganja is cheaper (seer for seer) induces vendors to prefer it. 67. My objection to the present method of tax¬ ing ganja is shown in answer to question 63, 70. There is no general use of untaxed ganja, but ganja is smuggled from Rajshahi and Native States to a more or less extent. Conclusion.—Mine is a consistent theory of administration. The final cost to consumers should be independent of all outside consideration. It should be entirely under the regulating power of Government. It should be gradually but steadily increased. No sudden increase will do any good, for that may lead to smuggling or pri¬ vation keenly felt, which last is only next door to entire prohibition in its results. Fluctuation in the cost is most harmful, resulting in increased cost to consumers without any corresponding gain in social morality. Increase of cost to consumers and decrease of consumption slowly and steadily is my motto. Whatever system helps this is good, and whatever flaw in the administration leads to disturb this is objectionable.  - Evidence of BABU KHIROD CHUNDRA SEN, Deputy Magistrate and Deputy Collector, Singhbhum.


58. The excise administration in respect of hemp drugs is working well, and I am not prepared to suggest any improvement. 60 and 61. I think that there is sufficient control and have no suggestion to make for the modification of the system. 62. I would not suggest any changes in this respect. 63 and 64. No. 65. (a) Yes. (b) Yes. 66. Yes; for flat and round have twigs which the chur has not. Each kind of ganja should be taxed in proportion to the narcotic matter that each is found to contain. 67. Yes, as remarked above 68. There are licensed shops for the sale of these drugs, but ordinarily they are not smoked or drunk on the premises. The shops are not disreputable. Generally mudi shopkeepers are the licensed holders of these shops. 69. Ordinarily the wishes of the people are not consulted or considered when a shop is opened in any locality. On the application of vendors and local inhabitants licenses are granted after due enquiry at the auction settlement held with the sanction of the Board. I do not think it is ne¬ cessary to consult or consider public opinion as these shops are not a nuisance. 70. There are no facts regarding importation or smuggling of hemp drugs from Native States. Yes; duty is paid in respect of ganja and charas, but not of siddhi. The latter is used to some extent illicitly, but the use is not general.  - Evidence of BABU GUNGADHAR GHOSE, Excise Deputy Collector, 24-Parganas.


58. Working well. 59. No license fee is imposed for selling hemp by wholesale dealers who make large profits. This may be done in future years. 60. Nothing to suggest. 61. Charas is not produced in this province. 62. If production of ganja could be prohibited, I do not see why bhang could not be so prohibited. In fact, it was prohibited by Excise Commissioner's Circular No. 6075, dated the 26th January 1893, but the circular was withdrawn. Strict orders on the Police and on the Excise preventive staff would enable us to enforce the prohibition. 63. For wholesale vend of ganja and bhang there is no license fee. The ganja and bhang goladar should pay a moderate license fee for his wholesale business, just as a wholesale dealer of imported liquor does. This is the most convenient way to raise the tax levied on ganja, and conse¬ quently the selling price of ganja in the market. At present one pice worth of ganja weighing 8 grains, or half a pice worth of bhang weighing 45 grains, is quite enough for a moderate habitual consumer. A quart bottle of khasia liquor of under-proof strength will cost at least one anna, and this quantity of liquor is not considered enough for a moderate drinker, So that if the tax on ganja and bhang is doubled, and the selling price is made twice as high as it is now, these drugs will still be cheaper than country liquor, and there will be no danger of driving the consumer to the use of country liquor. 64. Nil. 65. Half a pice worth of bhang is sufficient for a moderate consumer of bhang, while one pice is necessary as regards ganja and four pice as regards liquor. So that it is possible to raise the tax on bhang and ganja to twice as much as shown in reply No. 63. 66. Formerly one rate was in force, but in 1864-65, in order to equalise the incidence of the tax on the exciseable portion of the drug, the present system of charging different rates of duty was introduced. This is necessary, or else flat ganja would not sell. From one seer of flat ganja the vendor can sell only 9 to 11 chhattaks, and from one seer of round ganja 14 to 15 chhattaks. The saleable ganja varies according to the produce of the year and the quantity of twigs in the ganja. 67. None. 68. No. There is nothing, however, to prevent people smoking ganja or consuming bhang in the shops where they are sold. As the public do not object, I have nothing to suggest. 69. When an application for a new shop is made, local enquiry is made by the excise subor¬ dinates and by the Excise Deputy Collector, if necessary. It is not necessary to consult public opinion as regards the localities of these shops, as they are considered perfectly harmless. 70. I had two cases in Champaran where Sadhus had brought with them small quantities of ganja from Nepal, where the drug is very cheap. But these were rare cases, and I do not think any extraordinary measure is necessary to prevent this sort of smuggling. A little more vigilance on the part of the Frontier Police and our excise de¬ tectives will put a stop to them. Very little of any untaxed ganja is used in this province, but such is not the case with bhang, which grows wild and can be had without any difficulty.  - Evidence of BABU PROKASH CHUNDER ROY, Excise Deputy Collector, Patna.


69. In these matters local public opinion should invariably be obtained. I knew of places where opening such shops was considered objectionable by the higher classes of people.  - Evidence of BABU PRAKASH CHANDRA SINGHA, Deputy Magistrate and Deputy Collector, Chandpur, Tippera.


58 and 59. Ganja.—This district is concerned only with the consumption of ganja exports from Rajshahi under pass. The trade is carried on by wholesale and retail dealers. The selling price of ganja in the market is now equal to that of opium, and in my opinion an improvement may be effected in the present system by regulating the manufacture and trade of ganja in the same way as in the case of opium. A proper check against smuggling is to do away with the direct connection between traders and cultivators. The system as it stands at present has also a tendency to create undue competition resulting in the increase of consumption which is injurious. With the interference of Government the consumption may be effectually checked. The system I propose is this: Strict supervision and vigilance must be exercised on the cultivator and manufacturer of ganja by Government officers, a proper establishment being made for the purpose. The cultivators will receive from Government a proper price for the drug manufactured. The drug being stored in Government golas, indents will be sent from time to time by district officers according to local demand ascertained from licensed vendors. Direct connection between traders and cultivators being thus abolished and transit properly checked, it will remain with Government either to do away with the wholesale dealers or not. If they are retained, the ganja will be issued to them on payment of a certain rate for each kind, which will cover fixed duty, cost price, cost of establishment. The licensed dealers will then take from wholesale dealers. But I should not approve of introducing wholesale dealers; unless the licensed dealers deal directly with Government, the consumption cannot be restricted. It will remain only to fix the tax and also the retail price. By properly tracing these the consumption can be checked within the described limits, the license fees being fixed with reference to the probable consumption of each shop. 62. Bhang.—It will not be practicable to control the production of bhang in this district where it grows wild. The recent attempt at extirpation of wild bhang for inducing cultivators to take license has proved a failure. Sufficient evidence has been taken as to the fact that bhang  is only moderately used, and is not, as such, at all injurious. There is hardly any taxed consumption of bhang in this district. Much is collected for the purpose of exportation, and it is only necessary to frame stringent rules regulating collection and exportation; added to this the existing rules regarding the limits of licit posses¬ sion will, I think, have the desired effect. 63. Vide reply to questions 58 and 59 for ganja. For bhang there is hardly any sale in the market, people getting their bhang from fields. I have recommended for the abolition of wholesale vend altogether in the case of ganja. In bhang, how¬ ever, this cannot be effected, as any attempt to store wild plants in Government golas after manufacture will not prove successful. I don't think any cultivator will take out license for bhang, as the drug has hardly any price, and any rise in the price (i.e., duty) will not make it more valuable, as it is less cared for, and the chance of smuggling from fields cannot be altogether got rid of. 64. Vide reply to questions 56 and 59. The export of ganja from Rajshahi is the only thing with which this district is concerned. The present rules are strict, but, as I have suggested, more safety can be attained by direct transit from the storing Government gola to that of the gola of the importing district. 65 and 66. Bhang.—I think the taxation is sufficient. Ganja.—The taxation can be increased. Mak¬ ing 6 annas the retail price per tola of chur ganja, i.e., Rs. 30 per seer, the taxation can be fixed thus:— One seer. R Retail price 30 Cost price paid to cultivators by Government 1 Cost of transit, cost of establishment Cost of transit, cost of establishment 2 Profit to licensed dealers 4 License fees incident on each seer 4 TOTAL 11 The tax may be raised to Rs. 16 per seer, leaving Rs. 4 to fluctuation in consumption, the gain to Government by this system being Rs. 25 per seer. Since there is no marked difference of intensity in the intoxication which the different sorts of ganja produce, the proportion of twigs and stems only come in for consideration. The ratio be¬ tween the different rates now prevalent is to my estimate fair. The same ratio may be retained on the event of a rise in duty. 67. Ganja.—The consumption being 210 maunds annually (in this district), the price paid by consumers at Rs. 20 per seer (average of three kinds) = 210 x 40 x 20 = Rs. 1,68,000. Number of consumers 8,535 (average number of habitual consumers, vide question 20); the incidence of cost on each consumer is therefore 1,68,000/8,535 = Rs. 19-7-0 annually, i.e., about Rs. 20 = Rs. 1-10-8 monthly = Rs. 0-0-10 daily. Bhang.—The greater portion passes into con¬ sumption untaxed, hence no figures can be given. Ganja.—The revenue being a little over Rs. 90,000, it will be seen that about 50 per cent. of the cost paid by consumers goes to the wholesale and retail dealer, whose interests are for the most part one and the same. With the increase of competition amongst retail (or wholesale) dealers the drug is sold cheaper in the market, and increase of consumption follows. The incidence on the consumer is proportionately diminished. The question is to effectively tax the drug, so that the fluctuation of consumption may not be left at the mercy of the dealers. This may be done only by fixing the retail prices and adjusting the tax and license fees, which will restrict the consumption within the limits desired. This will also be beneficial for the revenue (vide note to questions 58, 59, and 65). 68. Ganja and bhang are not consumed on the premises of licensed shops. 69. The ganja or bhang shops are not a nui¬ sance in any way, hence the wishes of the public are not consulted. The sites, however, are published before being set up to auction, and any objection voluntarily preferred is duly considered. This I think is sufficient. 70. There is no bordering Native State or foreign territory from which ganja is smuggled into this district. There are sometimes stray cases where pilgrims take with them very small quan¬ tities of Gurjati or Nepal ganja, but such cases are rare here.  - Evidence of BABU SURENDRANATH MOZOOMDAR, Brahmin, Special Excise Deputy Collector, Monghyr.


58. Not working well; capable of much improvement. 59. The excise laws are much too stringent, and provide for punishment in cases of barely technical offences. As an extreme case, I may mention the fact that in one case a brother of a licenee was fined R30 merely because he brought down a jug of date juice on account of the licensee during the latter's illness. The man had no pass, nor was his name entered in his brother's pass. Cruel, indiscriminate prosecutions for possession of pachwai and tari are not uncommon. The law should be amended in this direction. The Excise Department should be manned by educated men, and the lowest official entrusted with the power of arresting men should carry a salary of no less than R50. A permanent staff of Deputy Collectors should be placed under the department, their jurisdiction being changed at intervals of three years. Convictions of whatever kind in excise cases should be appealable. The Collector of the District, who is an official superior to the Subordinate Magistrates who try excise cases, should have no connection whatsoever with excise administration. A Deputy Collector, be he designated as Excise Deputy Collector or otherwise, should have complete control, subject to the supervision of the excise inspectors and the Excise Commis¬ sioner. Similarly sub-divisional officers should be relieved of excise work. 62. I do not understand this question to apply to Bengal. As far as I am aware, I think the cultivation of the hemp-plant for the production of bhang is already sufficiently controlled in Bengal. Practically no one can cultivate such a plant for such a purpose, except surreptitiously or with the connivance of excise subordinates. Any one found to enclose or fence in a single " siddhi gach," the wild variety, is prosecuted or punished under the existing laws. 63. I have, as to ganja. Of the districts of which I have knowledge, the wholesale vendor, otherwise called the goladar, is, for all practical purposes, the licensee of all the retail shops. There are nominally different licensees, but they are all either servants or creatures of the goladar. The mischievousness of this arrangement is selfevident. The goladar rules the trade. He cheapens or enhances the price at his pleasure. The sale at cheap prices in the retail shops increases consumption. The accounts of no shop can be trusted, and the statistics collected are far—very far indeed—wide of the mark. My idea is that monopoly in this trade should be disallowed There should be at least half a dozen golas owned by as many men in reality unconnected with each other. Each gola should have its capacity fixed and each individual shop likewise. In sub-divisions the same arrangement, on a minor sale, should be effected. The stringent conditions of the license are, I know, nowhere followed, and the Board of Revenue have seen fit to relax rules in regard to poor natives for breach of such con¬ ditions. Some of these rules should be entirely left out. Each gola should be taxed. The Excise Deputy Collector should have under certain limitations, power to disallow the renewal of the lease of a gola. These things done, it might be said that trade in ganja is sufficiently controlled by authorities. 65. (a) Yes. (b) Vide reply to question 36. 66. Yes; in proportion to their relative intoxi¬ cating value. There is no other safe test. 68. I have no knowledge of shops licensed to sell ganja or its preparation or any of the other drugs for consumption on the premises. But as a matter of fact, shops holding the license to retail ganja are used for smoking purposes. 69. Yes, in that vague, undefinable way in which the agency of the police is capable of being employed for such a purpose. The thana office is asked to consult the wishes of the people. A notice is posted up in the thana, perhaps a drum is beat, and possibly the friends of the thana officer are in a few cases consulted. Practically there is no consultation. Genuine local public opinion, such as is to be found in the villages, is considered, even by police subordinates, to be beneath notice. 70. Actual occurrences of smuggling are very rare. " Smuggling " of evidence to prove smuggling is, according to my experience, much more common. A cry of smuggling once raised is hard to quell. It affords excise subordinates opportunities of securing many convictions on weak, insufficient, and even worthless evidence. It also enables plausible explanations being offered to superiors, and accounts for a great many days of touring, where no touring is actually made. Duty is paid, and there is certainly no general use of untaxed drugs either in the districts bordering Hill Tippera or the Orissa Tributary States.  - Evidence of BABU A. K. RAY, Sub-Divisional Magistrate, Bangaon, Jessore District.


58. The present system is working fairly. Smuggling of Gurjat ganja should, in my opinion, be checked as much as possible. 59. This can be done by reviving the Government of Bengal's order, prohibiting the cultivation of ganja in the Tributary States within three miles of the frontier of British territory, and by appointing a strong detective establishment to guard against this smuggling (vide my reply to question 8). Next the importation of Gurjat ganja has been legalised, and the minimum quantity to be imported at a time has been fixed at 8 maunds. The importers do not easily get sufficient ganja to fulfil the requirements, and are thus unable to import the Gurjat ganja into the Cuttack district. If the minimum be reduced to 1 maund, the importation will be easier, and as this ganja may be cheaper, the consumers along the frontier accustomed to this will have little incentive to the practice of smuggling. 60. Ganja is not cultivated in Orissa under Government control. 62. No. 63. Retail vend of any of the preparations of hemp to persons under a certain age should, in my opinion, be prohibited, as self-indulgence in any intoxicant in whatsoever shape by youths is undesirable. A condition may be inserted in the license issued to the retail vendors to that effect, and vendors may be punished for infringements of the same, as provided in the excise law. 64. Rajshahi ganja is imported into the Cuttack district. The importation of the drug should be carried on under stricter rules. The bales are often found to have been tampered with during transit, and more or less quantities of ganja are found to have been stolen. The gunny bags should be thieker than they are now—vide reply to question 18. 65. Yes. (a) The taxation, with reference to ganja and patti, is reasonable. (b) To opium, reasonable. The taxation, with reference to alcoholic liquors, may be considered from two different points of view, viz. (1) that of their relative intoxicating
properties; and (2) that of the strength of the purse of the consumers. As regards the first, it hardly needs mention that one anna worth of ganja probably produces as much intoxication as that produced by a bottle of alcoholic liquor worth a rupee. As regards the second point, the consumers of ganja are generally poorer than those of alcoholic liquor. On the whole therefore any alteration in the amount of taxation is not desirable. 66. The different rates at present in force should be adhered to. The principle is based upon the quantity of narcotic resin present in each variety of Rajshahi ganja. As regards the Gurjat ganja, the above principle cannot be applied. As the ganja is a wilder variety of cannabis, the narcotic properties appear to be present along with some other resins making this variety stronger, though it does not possess the characteristic flavour and other desirable qualities. The present taxation appears to me fair. 67 and 68. No. 69. Yes; until the people of the locality where a shop is intended to be opened apply for one, and their requirements are enquired into to our satisfaction by an excise officer, no shop is opened. In the case of municipal towns the opinion of the Commissioners should be taken. Local opinion ought to be considered. 70. See my replies to questions 58, 59, and 64.  Question 59.[oral evidence]—I think that if the prohibition of growth were enforced within the three-mile belt, the consumption of the shops along the British frontier would be improved, provided they were kept well supplied with Gurjat ganja, i.e., the cheaper drug. I say Gurjat ganja, because it is cheaper and people are accustomed to it along the frontier, not because I think the Rajshahi ganja is more baneful. Question 70.[oral evidence]—Gurjat ganja can be got easily within six or seven miles of the Gurjat frontier. In one case, however, a seizure was made twentyfive miles from the frontier, and in another within the town of Cuttack itself.- Evidence of BABU KANTI BHUSHAN SEN, Baidya, Special Excise Deputy Collector of Cuttack


58. The present system of Excise Administration is working fairly well, but is capable of improvement. 59. (1) There should be equalisation of retail selling price in every district; this must be looked to in the incidence of duty and not in license fees, which depend mostly upon the uncertain nature of the competition at the auction sales. (2) The abolition of the system of private golas or the maximum wholesale price per seer in each district should be fixed by the Commissioner (taking into consideration the expenses of the goladar, the price paid to the cultivator, the cost of transit, the cost of maintaining the gola, rent, etc.). At present wholesale dealers charge very high prices (R4 per seer) in some districts from the retail vendors. (3) The wholesale dealer should have no connection with the retail vending of the drug. 60. The cultivation and manufacture are sufficiently controlled, but they are capable of improvement. (1) Storing all ganja in public golas. This will prevent cultivators from selling illicitly in small quantities. (2) The stock in the cultivator's house is never weighed, but is counted according to bundles. It is easy to remove the ganja from the culti¬ vator's house illicitly. There is nothing to prevent the cultivator from taking out some ganja from several bundles and forming another bundle for illicit sale. In this way cases of illicit sale of ganja take place at Naogaon. (3) In ganja season a large number of out¬ siders (non-residents) go to Naogaon and they can remove ganja by boat or road with other goods. The smugglers generally do not travel by rail from the Sultanpur railway station. It is not sufficiently controlled. (4) The ganja belonging to each cultivator should be carefully and actually weighed at the chatars before storing. The staff at Naogaon should be strengthened. (5) At the chatars ganja plants of inferior kinds are rejected and these are sometimes removed by ganja smokers. The chatar inspection is by no means satisfactory. All rejected plants should be burnt in the evening. (6) A class of manufacturers go to Naogaon from Calcutta, and remain there for some months. I suspect they smuggle ganja. Their names should be registered in the ganja office, and their date of arrival and leaving the ganja mahal should also be noted. The present staff is insufficient for doing all this. (7) The goladars purchase ganja through dalals brokers). I am opposed to the existing system of purchase through middle men. There should be direct dealing with the cultivators. (8) Selling to goladars on credit by cultivators should be stopped. (9) Ganja should be placed on the same foot¬ ing as opium with regard to possession. The person in possession must account for the posses¬ sion. The possession of ganja up to one powa, ¼ seer, is objectionable. The limit of possession should be reduced to half the existing quantity allowed. 61. Charas is not manufactured in Bengal. I have no experience about its manufacture, etc. 62. There is no cultivation of the hemp plant for the production of bhang in Bengal. Wild bhang grows spontaneously all over Bengal, and control over its cultivation and manufacture would not be feasible with the pre¬ sent police and excise establishment. The cultivation of bhang may be controlled partially by awarding liberal rewards to chaukidars, panchayats, and villagers. I do not mean wild bhang; its extirpation will be attended with great hardship to the people in general, and will cause serious discontent. 63. I have no objection to the present system of wholesale or retail vend of (1) ganja, (2) charas (3) bhang or majum. But I must here make the following observation:— The wholesale vend should be separated from the retail vend as far as possible. The goladar holding retail shops sells ganja cheaper to his own shop, and charges exorbitant prices (in some places ganja is sold at R 4 per seer by the wholesale dealers) from other retail vendors with small capital. The bonâ fide retail vendor should be allowed to work independently of the capitalist wholesale vendor, who also owns retail shops. This can be done by fixing the maximum wholesale price in each district. 64. I have no objection to the existing regula¬ tions governing the export and import of ganja, bhang, and charas, or of their preparations, from and into my province, and their transport within the province. 65. (a) The taxation on ganja, bhang, and charas is not reasonable if compared with each other, though one is not interfering with the sale of the other. The taxation on ganja is higher than that on charas or bhang, but the consumption of duty-paid bhang or charas is limited. The pre¬ sent rate of duty on charas is most inadequate (equal to chur ganja). The duty should be raised to double the present rate. (b) The existing rate of taxation is reasonable and proportionate with reference to alcohol, etc. Ganja cannot bear any higher taxation. The intoxicating properties of ganja and alcoholic stimulants are of different nature and kind, and they are consumed by different classes of people. 66. Flat ganja contains more wood than round or small twig. Chur contains little or no wood. The duty has been imposed according to the ratio of the quantity of flower contained in each kind (vide answer to question 2). There should therefore be different rates of taxation for different kinds of ganja and for the different qualities of ganja (as Gurjat ganja). The ganja grown in the Gurjat States is charged with a duty of Rs. 3-8-0 per seer in consideration of its inferior quality, and its importation was legalized in 1890. Its intoxicating properties are less than those of Rajshahi ganja. 67. Having regard to the ultimate incidence of the tax on the consumer, I have no objection to the present method of taxing (1) ganja, (2) charas, and (3) bhang. The incidence is already high, and poor people cannot consume the quantity they require for their moderate dose. Owing to the taxation of ganja by means of license fees instead of in the shape of duty, unequal selling prices at different shops occur. The shops paying smaller license fees can sell cheaper, and do under-sell his neighbour, who pays higher license fees. The consumers in one place pay treble the price paid by consumers in another locality where there is no competition. The duty on ganja and bhang is capable of increase in some districts. 68. There are in my province shops licensed for the sale of these drugs and their preparations (majum). It is not the general custom or practice to consume ganja, bhang, or charas on the premises. Strangers and travellers, sanyasis and bairagis, etc., occasionally sit in front of the shop and smoke in their own chillum, which they always carry. Generally the consumers take ganja, bhang, and charas to their houses. Ninety-five per cent. of the ganja consumed is taken home, and 5 per cent. is consumed in the premises. People do not object to their smoking in the premises. I am not opposed to the system of allowing people to smoke in the premises, as ganja and charas are smoked like tobacco, and the num¬ ber of smokers is very small. Bhang is not smoked or drunk at the shop. 69. Yes, when necessary. These shops are not considered a nuisance as liquor shop or outstill, and the neighbours seldom take objection. Many mudis (grocers) accommodate such shops. The smokers are inoffensive, and they never become turbulent. If the neighbours object, their objections are duly considered. The Excise Deputy Collector or the Excise Sub-Inspector makes local enquiries and reports the matter to the Collector, who decides the objection. The sites of all shops are approved by the Commissioner of Excise and the Board, when the Proposition Statement for the settlement is submitted. People can come up to the Commissioner of Excise and the Board of Revenue if they are dissatisfied with the Collector's decision. The local public opinion should be considered if reasonable. 70. Duty is generally paid in respect to the ganja and other hemp drugs used. There is no general use of the untaxed drug. Wild bhang is used to a limited extent by the poor and for medicinal purposes, and no duty is levied on its consumption. The bhang imported by the Collect¬ ors and stored in golas pays duty. Ganja Smuggling.—Facts regarding the im¬ portation and smuggling of hemp drugs from Native States into my province, to which I wish to draw the attention of the Commission:— Hemp plant grows readily anywhere in the nineteen Tributary States called the Gurjat Mahal, and is easily prepared. The long line of frontier affords great facility for its illicit introduction into the British territories. Ganja is regularly cultivated in all the Gurjat States, and smuggling to a very considerable extent goes on all along the frontier. The effect of the Government Order No. 165-T., dated 19th October 1878, prohibiting ganja cultivation in the Gurjats within three miles of the Mogulbandi frontier, resulted in a marked increase in the sale of the Rajshahi drug, and the withdrawal of that prohibition by Government Order No. E-1-G/2.4, dated 6th September 1889, was followed by an immediate and marked falling off. Every ganja cultivator in the Gurjats is a ganja vendor. The Gurjat men now require very little ganja to buy, for almost all of them cultivate ganja for their own use. Every ganja cultivator within the prohibited area sells ganja freely, which is opposed to Government Order No. 0./103.5,d ated the 8th February 1889, and should therefore be stopped by again prohibiting the cultivation of ganja within three miles of the frontier. A wholesale prohibition of the cultivation of ganja is out of the question in a tract where the plant is indigenous, and where there is neither the will on the part of chiefs nor the establishment to enforce such a prohibition. Balasore.—Bhang is regularly smuggled into the district from the Gurjat States, and the demand for the duty-paid bhang is very small (only 2 maunds 7 seers 6 chittacks of bhang was con¬ sumed in the whole district in 1892-93, and the total revenue derived was R140).
GANJA. Year, Consumption. Duty. M. S. C. ft 1878-79 20 28 8 3,270 1879-80 19 16 3 3,091 1880-81 19 22 9 3,129 1881-82 23 6 2 3,724 1882-83 26 33 12 4,295 1883-84 32 25 5 5,229 1884-85 34 29 0 5,572 1885-86 37 15 8 5,990 1S86-87 42 34 13 6,841 1887-88 41 9 5 6,954 1888-89 35 4 1 6,429 1889-90 35 5 15 6,055 1890-91 26 25 1 5,415 1891-92 24 32 151/2 4,962 1892-93 37 8 8 7,469
Ganja.—Since the withdrawal of the prohi¬ bition, the consumption of duty-paid ganja has greatly decreased. Ganja. is now regularly grown in the Gurjat States of Mayurbhanj and Nilgiri, and the inhabitants of those two States take very little supply from our golas. Gujrat ganja is, on the other hand, now smuggled into the district from those two States. Since the intro¬ duction of the distillery system the poor people have taken to the consumption of ganja.
GANJA. Year. Consumption. Duty. M. S. 0. R 1878-79 98 25 7 11,326 1879-80 92 14 9 14,777 1880-81 102 9 13 16,360 1881-82 123 27 2 19,789 1882-83 128 8 6 20,513 1883-84 131 4 12 20,978 1884-85 126 0 9 20,162 1885-86 105 3 11 16,804 1886-87 116 22 0 18,660 1887-88 96 36 14 16,133 1888-89 93 11 8 18,657 1889-90 89 35 0 17,975 1890-91 77 39 7 15,597 1891-92 86 15 61/2 17,187 1892-93 91 29 2 17,831 Gurjat Ganja 5 14 14 538
Puri.—Ganja is the second principal source of revenue in this district. The maximum revenue, R30,372, was derived in 1888-89, i.e., the year just before the prohibition was withdrawn. Since then the consumption of the duty-paid drug and the revenue are on the decline. The largest quantity of Gurjat ganja is consumed in this district. In the towns of Puri, Bhubaneswar, and Satyabadi it is not smoked by the pandas, but it is smashed and pounded and mixed with spices, milk, and sweets, and then drunk. It is used in the form in which bhang is drunk in Bengal. The chief consumers of the Gurjat ganja are the pandas (priests) living in the towns of Puri, Bhubaneswar and Satyabadi. In the interior of the district ganja is smoked by the poorer classes. Smuggling is carried on most extensively from the Khandpara State, and thence through Khurda to Puri, where there is a ready and constant market, especially among the pandas (who are generally followers of the Siva). Traffic by cart and pack bullocks is extensive, and nothing is easier than to secrete ganja in bales or packages. Only the other day 39 seers of smuggled ganja was seized; it was being carried by two men in bundles. There are three chief routes of smug¬ gling:— (1) Viâ Bolghur and Bhubaneswar to Puri. (2) Viâ Tangi by boat during the rains or through Kanas (Chubbishkud Pargana) to Puri.
(3) From the Madras side from Rambha by boat over the Chilka Lake. In 1891-92 thirty cases of smuggling of Gurjat ganja were detected. In 1892-93 thirty-nine cases were detected. On account of the high price of distillery liquor, people are taking to the smoking of ganja, but on account of large smuggling of Gurjat ganja there has been little increase in the consumption of and in duty on the drug. There were bhang shops in the district formerly. No. bhang shop has been in existence since 1886-87. There is smug¬ gling of bhang from the Gurjat States. Cuttack.—Bhang is imported into the district from the Gurjat States, and is called "Gurjat siddhi." The consumption of duty-paid bhang is very small, as the following figures will show:— Year. Consumption. Revenue. M. S. C. ft 1890-91 3 13 8 135 1891-92 9 2 3 357 1892-93 5 5 12 394. The revenue derived from majum is also very small:— Year. No. of license. Revenue. ft 1889-90 1 93 1890-91 1 63 1891-92 2 132 1892-93 2 245 Ganja.—Ganja is the second principal source of revenue in this district. The maximum revenue, R48,038, was derived in 1888-89. By Govern¬ ment letter No. E. I-G./24, dated 6th September 1889, the prohibition against the cultivation of the hemp plant in the Gurjats within three miles of the Mogulbandi has been withdrawn. Since then the people of the Gurjats have abandoned Rajshahi ganja almost entirely. During 1890-91 no ganja was purchased by Gurjat men; on the contrary, a large quantity of the drug was smuggled into the British territory. The smuggl¬ ing is increasing every year, and a large number of cases of illicit posses¬ sion and sale of Gurjat ganja have been detected. The cultivation was pro¬ hibited by Government Order No. 165-T., dated the 19th October 1878. Probably the order was practically given effect to in 1880-81, from which year there has been a steady increase in the consumption of Rajshahi ganja up to 1889-90, when the restriction having been withdrawn by Government Order No. E.1-G/24, dated 6th September 1889, the con¬ sumption again began to gradually fall off. The latter order has therefore caused an unnecessary loss in the excise revenue of the Bengal Govern¬ ment. The figures of consumption are given in the margin. Banki and the north-western portion of the Jajpur Sub-division are contiguous to the Gurjat States. The wild and hilly nature of the country with sparse population affords every faci¬ lity for smuggling. The middle class people, Beharas, Panda Brahmins, and some of the Hatua castes, such as Teli, Khandayets, etc., consume ganja. Ganja is regularly cultivated in Keonjhar, Dhenkanal, Athgarh, Tigharia, Baramba, and Khandapara, and is largely smuggled at Sukinda and other places. Ganja is also smuggled by boat by the river Mahanadi into the town of Cuttack from Bodh. The best Gurjat ganja in all the Tributary States grows in Bodh, Khandpara, and Athgarh. I.—Keonjhar. Kusaleswarhat.—A fair is annually held here in which Gurjat ganja is sold. The fair lasts for three months. Ganja is brought from villages higher up the Mogulbandi frontier, and sold in the prohibited area. II.—Dhenkanal.—Fakira or Konkra, Naunai, Ramsunda, Kamorsali, Salogari, Balisari, Brindabanpur, Netka, Chandia, Pingwa, Chitalpur, Halidih, Saidpur, and Kasipur are all ganja pro¬ ducing villages, in which ganja is also sold. Information was received that such was the case in most of the villages in the prohibited area. Ganja is brought from other Dhenkanal villages to Kabatband (surrounded on all sides by Mogulbandi lands). III.—Athgarh.—Ganja is cultivated and sold in villages Gobra, Gonsai Sason, and Kanthapur, which are close to Gobra; Gurudajhati, Naogaon near Gurudajhati, Megha, and Patherchakra. Information was also received that in some other villages close to the frontier bordering on Banki, ganja was cultivated and sold. IV.—Tigharia.—Ganja was found to have been cultivated in almost all the villages in Tigharia. V.—Baramba. —Ganja, is cultivated in almost all the villages in Baramba, and where it is easily available for purchase. The information was veri¬ fied by local enquiries in villages Diniari, Satpuri (or Satkudia), Chandimangal, Gopinathpur, Toanpur, Mogagahiri, Telonia, Noranpur, and Bangur Singa. VI.—Khandapara.—Ganja is cultivated in al¬ most all the villages in the Khandapara State Ganja is cultivated in Fatiagarh and other villages within three miles of the frontier. Ganja in Hill Tippera.—Ganja is regularly cul¬ tivated in the territories of the Maharaja of Hill Tippera. Low caste up-country men, who have set¬ tled on the borders as well as a few Muhammadan fakirs and Hindu bairagis, travel into Hill Tippera and there consume ganja. There is reason to believe that they bring ganja into the British territory for personal consumption. Several cases of smuggling of foreign ganja of an inferior quality have been detected since 1883-84, but it seems that they do not smuggle it for trade. Occasion¬ ally sale of a small quantity of ganja by hill men to residents in British territory takes place at Sonamura, Udaipur, and other places. As the largest revenue of the Tippera District is derived from ganja, the cultivation of ganja within three miles of the British territory should be put a stop to. Ganja alone contributes more than one-half of the entire revenue. In ganja the revenue has increased from R29,354 in 1874-75 to R48,817 in 1892-93, while during the same period consumption has fallen off from 251 maunds to 100 maunds 6 seers 4 chittacks. The decrease in the consumption is partly due to greater use of the foreign ganja and to the weak detective staff, who show very little activity in detecting cases of this nature. Year. Consumption. Duty. M. S. C. R 1878-79 129 26 2 20,242 1879-80 125 35 0 20,140 1880-81 115 27 14 18,512 1881-82 129 30 9 20,971 1882 83 160 30 9 26,062 1883-84 162 36 1 26,552 1884-85 163 6 2 26,662 18S5-86 165 36 3 26.816 1886-87 174 4 11 28,680 1887-88 164 13 4 28,198 1888-89 152 7 0 80,575 1889-90 141 7 12 28,286 1890-91 136 22 7 27,384 1891-92 112 10 3 22,498 1892-93 112 21 9 22,626 - Evidence of BABU ABHILAS CHANDRA MUKERJEE, Brahmin, Deputy Magistrate and Deputy Collector, on deputation as 2nd Inspector of Excise, Bengal


58. I am not prepared to say that it does not admit of improvement. 59. The expression "a maximum of revenue with a minimum of consumption" is, after all, I think, the most beautiful and succinct way of describing the avowed policy of Government in matters of excise. I understand the' expression to mean in the first place that consumption should be a minimum, i.e., it should be restricted as much as possible, without interfering with the legitimate requirements of the people, and without driving them to abandon one form of exciseable article and to take recourse to another more injurious form, In the second place the expression means that, subject to the above conditions of minimum consumption, and in our endeavour to bring about this desired result, the greatest possible amount of revenue should be raised for the State, regard being had to the fact that restriction carried too far tends to defeat its own object by driving people to illegal practices, such as smuggling, etc. Let us now apply the above conclusions to the case of ganja. From these conclusions, we see that we shall be justified in advocating restriction so long as we do not interfere with the legitimate requirements of the people, and so long as we do not incur any risk of illicit dealings or of driving people to have recourse to more injurious intoxicants. Revenue consideration is at once thrown out of our consideration. For, according to the theory I have enunciated above, it is merely an accident that Government derives a revenue from excise. The imposition of the duty is merely a weapon for restricting consumption. Now, let us take up the first point we have to consider—legitimate requirements of the people. I have already tried to establish that craving for ganja is an abnormal one. It is a vice contracted by evil company. It has no beneficial effects; on the contrary it is a most deleterious article to consume. The people have no natural longing for it. It is not a necessity with them. Only those who have created an artificial and unnatural habit for themselves find it necessary to continue the habit. Even in their cases jail reports show that it is not difficult to shake off the habit. I therefore hold that the consumption of ganja ought to be absolutely prohibited if it be practicable to do so. I do not, however, think that that would be practicable. Total prohibition cannot be enforced without maintaining an army of detectives totally disproportionate with the object to be gained. Let us, therefore, see whether further restrictions can or cannot be imposed on the consumption of the drug. The total number of licenses issued for the sale of this drug in Bengal during 1891-92 was 2,578. The quantity of ganja consumed in that year was 5,677 maunds. The licenses are granted by auction to the highest bidders. The rates of duty imposed were R7, R6-4, and R5 for each seer of chur, round, and flat ganja, respectively. The rates at present are R8, R7-4, and R6, re¬ spectively. The total revenue derived from duty on ganja and license fees amounted in 1891-92 to R22,92,568, so that on the average each seer of ganja paid a revenue of R10 during the year. Of this amount, the duty varied from R5 to R7, so that a large part of the revenue has been derived from license fees. It proves also that the duty on ganja can be easily raised to R10 a seer. The effect will be a reduction in the license fees, without appreciably diminishing the consumption. The fact that the abkars have been paying R10 per seer to Government whilst Government has imposed a duty on the drug not exceeding R8 a seer shows that the present rate of duty has no deterrent effect upon consumption. For if ganja is, from its own demand, capable of realising a price of more than R10 a seer, any duty less than that has no effect in decreasing consumption, whilst it is manifestly unreasonable to leave that portion of the revenue which is derived in excess of the duty to the uncertain contingencies of competition by the abkars at the time of grantingthe licenses by auction. To restrict consumption, therefore, we must raise the duty on ganja far above R10. The objections to suddenly raise the duty far above its present limit are— (A) It will drive people to resort to illicit dealings. (B) It will drive people to resort to other forms of intoxicants. Under head (A) we have to contend with two difficulties— (a) The people may clandestinely grow ganja in their own premises. (b) They may smuggle it from the tracts where it is produced under Govern¬ ment supervision. With regard to (a), it is to be observed that successful cultivation of ganja is an operation requiring a great deal of care, industry, and skill, extending over several months of the year. Surely it would be an unmerited slur on the detective ability of our officers to say that they would be unable to detect a man who would be carrying on an unlawful occupation, extending over several months of the year, and that not within his own house, but on open lands requiring to be watered by the rains and to be lighted by the sun. That an illicit cultivation of ganja is now prac¬ tically impossible is admitted on all sides. Mr. Samuells, the Excise Commissioner of Bengal, says at page 36 of his Excise Administration Report for the year 1891-92:— "As to smuggling, any one who reads in that report the elaborate process by which ganja is manufactured from the green plant must admit that smuggling during cultivation would not be of much use, and the manufacture is not one of those operations that can be performed in secret." There is one point to which I wish to lay particular stress in this connection. The cultiva¬ tion of ganja has been confined to the Rajshahi tracts for nearly half a century. Previous to that even there is no evidence to show that ganja used to be ever grown on a large scale in any other part of Bengal. It follows, therefore, that the cultivators of Bengal, even if they had ever culti¬ vated ganja, have long forgotten the method of its cultivation, and would be unable to cultivate it now even if they be willing to do so. Further, it has been by no means established that the soil and climate of other parts of Bengal would be at all suitable to the growth of the ganja-bearing hemp plant. An experiment to cultivate the ganja at Sibpur under the scientific supervi¬ sion of the Director of Land Records has by no means proved a success. It is also known that the presence of a single male plant is sufficient to destroy the whole crop of a field. Ganja experts would be necessary to root out the male plants before one can hope to successfully raise a crop of ganja. Under these circumstances, I am of opinion that a further restriction on the use of ganja is not likely to lead the people to resort to illicit cultivation. With regard to (b), I must say that petty thefts of ganja from the ganja mahals will always take place, whatever establishment we may keep to guard the tracts. But I think, with our detectives awake, any extensive smuggling would be simply impossible. Ganja is incapable of extensive smuggling. Its bulk is against such a practice. You cannot keep concealed within your clothes and bedding ten seers of ganja, though you would easily be able to so conceal double the amount of opium. But what makes one particularly confident that there would be no danger of smuggling is the analogous case which we have of opium. Even with its increased price ganja would not be more valuable nor more in demand than opium. So the incentive to ganja smuggling will not be greater than what at present exists with regard to opium. If, therefore, we are able to successfully cope with opium smuggling, there is no reason why we should not be able to do so with regard to ganja. Mr. Money, in 1871, says on this point (vide page 31, Bengal Excise Report, 1870-71):— "Mr. Money agrees with the Commissioner of Rajshahi in thinking that illicit traffic in ganja is not large. Indeed, there are difficulties in the way of anything like extensive smuggling not easily surmountable. Ganja, unlike opium, can¬ not be smuggled in small quantities, as this would not pay, while its pungent smell would be likely to lead to the detection of any large quantity." Coming to the second great objection (B), namely, whether, if the duty on ganja is greatly increased, people will not be driven to other forms of intoxicants, we see that the other possible in¬ toxicants are (i) opium, (ii) tari, (iii) pachwai, (iv) country liquor, and (v) bhang. With regard to opium, it is to be observed that even with its increased price ganja will be far cheaper than opium, so that no inducement will be offered to the people to abandon their habitual drug for one of a totally different character. His Honour the Lieutenant-Governor, in reviewing the Excise Administration Report for 1870-71, said:— "The Lieutenant-Governor is struck by the circumstance that the consumption of ganja in the opium-producing districts (after allowing for the quantity exported from these districts to the North-West Provinces) is large compared with most other districts, although it is generally believed that the population of these districts have easy access to illicit and cheap opium. This points to a doubt whether opium and ganja are to any extent substitutes for one another in the tastes of the consuming classes." With regard to tari and pachwai, all that need be said is that it will certainly be a blessing if the people abandon the pernicious ganja and take to these totally inoffensive beverages. The real point is whether restriction in ganja smoking will increase the consumption of alco¬ holic spirits. In this connection it seems to me to be necessary to notice two points— (1) Whether people will resort to drinking spirits if the price of ganja is, say, doubled. (2) Even if they do, whether the change will not be for the better. In discussing point (1), we must divide the ganja smokers into two classes—(a) moderate consumers, and (b) excessive consumers. With regard to those who have become addicted to the drug to an excess, it is to be observed that, having become confirmed in the habit of consuming this drug, they cannot abandon it and take to another stimulant. The better off amongst them will pay for the increased price, whilst the poorer, who form the majority, will lessen their doses so as to regulate their habit according to the altered price of the drug. The above remarks apply also to the case of moderate consumers. A person addicted to one form of intoxicant does not easily abandon it in favour of another. In the case of moderate consumers, there is the further consideration that the amount which a consumer can at present afford to spend on ganja being only two pice or so would be too small to satisfy their cravings by purchasing liquor. I have already stated that the quantity of intoxicating drug or liquor which these people, unrestrained by considerations of pru¬ dence and moderation, consume, is only limited by their means. So, if a ganja smoker now spends two pice a day for ganja, it shows he cannot afford more to spend on it. If he could afford more, he would have consumed more ganja. Further, if he be in a position to spend more, there is no reason why instead of spending it for ganja he would go and spend it for liquor. There is another phase of this question that ought to be noticed. With the introduction of the Sudder distillery system into the greater part of Bengal complaints have come from several districts that the increased price of country spirits have driven people to ganja. Surely this shows that the duty on ganja ought to be raised in areas where the central distillery system is in force. Complaints were, no doubt, sometimes raised in places where the outstill system was in force that the liquor was so cheap as to induce people to abandon ganja and take to outstill liquor. But this was never advanced as an argument for lowering the price of ganja. It showed the necessity of putting the outstills on a more satis¬ factory basis or of abolishing them altogether. I have not yet considered whether a rise in the price of ganja will not drive people to more extensive use of bhang. I would consider it a blessing if such a change takes place. For bhang is far less injurious than ganja. It is doubtful, however, whether many people will take to bhang on account of a rise in the price of ganja. Bhang grows wild everywhere in Bengal; I should say on almost everybody's land. The excise officers cannot hold the owner of the land responsible for having in his premises bhang which he has not himself cultivated, but which has spontaneously grown in abundance on his land. Now at the present moment ganja selling at R20 a seer and with bhang lying priceless at every man's door, the ganja revenue is daily increasing, and evidence is not yet forthcoming that the people have given up ganja smoking to any appreciable extent. I maintain, however, that the excise from bhang ought to be placed on a better footing than at present. I have dealt with this subject in my answer to the next question. Supposing, however, that a considerable artificial rise in the price of ganja would drive people to the use of country spirits, it by no means follows that the change would be at all an unwelcome one. No one has ever claimed for ganja higher virtues than for alcohol. The utmost that has been said is that ganja, like alcohol, is a highly concentrated food. So, if people abandon ganja and take to alcohol, I apprehend, the virtues of the two being the same, the change cannot be regarded as being one for the worse. I maintain, however, that ganja possesses not a single of the virtues ascribed to it. On the contrary, it produces the most injurious and demoralising effects. Taken in medical doses it may possess those virtues ascribed to it; but we know that the real consumers do not restrict their consumption to a medical dose. I think it worth while to make the following quotations in support of my views:— (1) Page 16, Bengal Excise Administration Report, 1871-72— "The Commissioner of the Presidency Division observes, and the Member in charge coincides with him in opinion, that the increase in the consumption of ganja, the most deleterious of the drugs to which the excise law applies, is much to be regretted." (2) Page 13, Bengal Excise Administration Report for 1874-75— "There is reason to fear that the increase in its consumption of ganja during the year under report is to be attributed to some extent to increased difficulty of access to liquor which has been caused by the reduction in the number of shops. It has therefore been determined to increase the number of liquor shops again as the lesser evil of the two." (3) Page 31 of the same Report— The Commissioner writes—"It is probable that coolies returning from Calcutta, Assam, and elsewhere, bring back with them the habit of using ganja, and that others following their example, the evil spreads. I think it extremely desirable to check this habit at once decisively. The people of this part of the country are excitable enough naturally, and as they will make use of stimulants of some sort, country spirit is about as harmless a one as they could have, but ganja is not so, and I think it well worth consideration whether its consumption should not at once be checked by the imposition of a considerably heavier duty." (4) Page 3, Resolution of Government on Bengal Excise Report for 1877-78— "Ganja is doubtless the most injurious of all the articles which contribute to the excise revenue. (5) Page 8, Bengal Excise Report for 1879-80— "In trying to estimate the moral effects of the change of system, the Commissioner observes that there are two separate questions to be considered, viz., first, whether it has led to greater consumption of spirits than would have taken place under the Sudder distillery system; and, secondly, supposing that there has been such an increase, whether it has not been counterbalanced by a decrease in the consumption of other, and in some cases more hurtful, liquors and drugs. On the first point opinions are divided, and we have not sufficient materials to form a definite conclusion. As regards the second point, there is no doubt that the outstill liquor being within easy reach of people, has proportionately diminished the consumption of tari, ganja and other more hurtful intoxicating articles, so that, evil against evil, the outstill compares favourably in this respect with the distillery system. The revenue has increased, and if the consumption has also increased it is at least balanced by the cheering fact that it has in some measure displaced the intoxicating drugs." It may be asked that if your arguments are valid, why not recommend total prohibition, as your arguments apply equally to total prohibition as to partial restriction. I think total prohibition is not feasible unless, of course, we are prepared to keep up an enormous establishment far exceeding that at present maintained. What makes total prohibition impossible and considerable restriction possible is that in the  latter case, for each detective officer that we maintain, there are twenty or thirty licensed vendors whose motives for bringing to light smuggling and illicit cultivation are far stronger than those of the Government officials. Thus total prohibition will be possible if we are prepared to maintain a costly and unremunerative establishment twenty or thirty fold larger than we have at present. My first proposal, therefore, is that the present duty upon ganja should be considerably enhanced, say to R25 a seer. My second proposal is that there should be a minimum price fixed for the sale of ganja. Enforcement of minimum price is not difficult in the case of ganja, though it is difficult in the case of liquor. The utility of the minimum price is to prevent the lowering of the price of the article by the spirit of gambling which prevails so much amongst the vendors. My next proposal is to greatly reduce the number of retail licenses which are at present issued for the sale of this drug. Multiplication of shops has a serious tendency in increasing consumption. Ganja, unlike liquor, is an article which will keep without deterioration for a long time. So there is no necessity to bring ganja within easy reach. If in a locality sparsely populated we have shops five miles apart, there is no reason why they should be closer in a place where there is a greater demand for the drug. The greater demand shews the necessity of discouraging the consumption of the drug in the locality rather than stimulating it by multiplication of shops. My next proposal is that local option should be given in the selection of the site of a shop. The objection to it is that it may lead to the persecution of a minority by a majority. But I am of opinion that to throw difficulties in the way of indulging in ganja is not a persecution but a benefit. My last proposal is that duty on ganja should be paid at Rajshahi before the wholesale dealer is allowed to transport it to the selling district. This will indirectly tend to diminish consumption. 60. I am unable to answer this question. Only the Rajshahi officials can throw light on this subject from practical experience. 61. Charas is not prepared in Bengal, but is obtained from Amritsar and Allahabad. 62. The injurious effects of bhang are only a step lower than those of ganja. The production of bhang should be brought under proper control. For, unless this is done, the effect of raising the duty on ganja will also be partially neutralised. The difficulty about placing the cultivation of bhang under control arises from the fact that this plant grows wild everywhere, and no one can be held responsible for bhang grown wild on his land. The law, as it stands at present, prohibits the cultivation of bhang except under a license. Any scheme, therefore, for controlling bhang cultivation must first deal with the best means that should be adopted for extirpating the wild growth of the plant. An attempt in this direction was lately made by the Commissioner of Excise; but Government has ordered that, as the measure involves a great deal of trouble and inconvenience, it should be given up. One way of checking the wild growth of the plant will be to grant licenses for the sale of this drug more extensively, and thereby inducing the people to take their supply from the licensed shops. My idea is that all ganja licensees should be for the present allowed to sell bhang also, and also allowed to cultivate for himself the bhang that would be required for his licit trade. We will thus have a body of men throughout the country who will be able to assist our officers to detect unlicensed cultivation. Self-interest will also induce these men to extirpate as much of the wild plant as they can. Then, I think, a provision should be made in the existing law, creating a legal presumption, to be held conclusive until the contrary is proved, that bhang plants found growing on land in the possession of a person have been grown and cultivated by him. Such a provision in the law will be sure to induce people to extirpate wild bhang wherever found growing. To prevent hardship the operation of this provision may be brought into effect, say a year after it becomes law. When by these means wild bhang will be extirpated, it will be easy for Government to bring the cultivation of bhang under such control as is now exercised with regard to the cultivation of ganja. 63. I have already indicated these in answers to questions 59 and 62. The improvements are to be effected not so much in the system, but in its working. 64. I have already stated that duty should be levied in the producing districts instead of in the selling districts. 65. I have dealt with this question at length in my answer to question 59. 66. The three different varieties of ganja must necessarily bear different rates of duty in proportion to the quantity of useless wood that each variety contains. The effect of imposing the same duty on all the three varieties will be to altogether drive out of the market the flat and the round varieties. It is not, however, easy to say what proportion the three rates should bear to each other. The rates in 1892-93 were R5-6-4 and R7. From the current year the rates have been fixed at R6, R7-4, and R8. The effect of this change has been in this district to create a strong demand for chur ganja. It shows that it has now become more profitable to sell chur than flat or round ganja. The three varieties of ganja that are ordinarily sold here have been carefully examined by me with reference to the woody substance that each variety contains. If chur ganja be taxed at R8, the round ought to be taxed at R7-8 and the flat at R6. These rates are practically the same as are now in force. Though these rates have stimulated an increased demand for the chur ganja, still, I think, the change is one for the better; for in the sale of the flat ganja much room exists for the commission of fraud from the large quantity of useless wood it contains. It may not be out of place to note that it would be a distinct advantage if the ganja producers at Rajshahi were induced to prepare only one kind of ganja, the round variety. The frauds that are now committed can then be entirely removed. 67. None. 68. No prohibition to this effect exists under the existing rules in Bengal. I do not think any considerable number of the consumers consume their drug on the premises of the vendor. There is nothing like ganja or bhang dens existing in this province. 69. I do not think this is ever done. What is done is that the officials in their tours and in the course of their inspections enquire from the people if they object to any site where a shop has already been established. If the people have any objection to make, it is duly considered. Experience, however, shows that a shop already opened in an objectionable place is difficult to be removed elsewhere. On this account I think local opinion ought to be consulted before the opening of the shop. 70. I have no experience of districts bordering on Native States. Question 59.[oral evidence]—My view is that we should try to raise the revenue on the drug rather by the duty than by license fees, because the latter are regulated by an uncertain method. As little as possible of the revenue should be derived from license fees. I would ascertain local option through panchayats. Of course we are obliged to consult municipalities by Government orders. The panchayats which exist under the Chaukidari Act would answer the purpose. Their opinion should be furnished to the Magistrate, and the District Boards need not be consulted. There are three to five members in each village panchayat. Their opinions could not always be taken as representing the wishes of the people, but it could generally be accepted, and there is no better means available. The members of the panchayats are nominated by the Magistrate without consulting the villagers; but the law has been lately modified to admit of the Magistrate consulting the villagers. No one is, under present conditions, willing to serve on the panchayat, because it is an unpaid office involving considerable trouble. - Evidence of BABU GOBIND CHANDRA DAS, Baidya, Deputy Magistrate and Deputy Collector, Malda.


58. Working well. May be improved. 59. Can't suggest any for the present. 60. Not produced. 61. No charas produced. 62. Cultivation of bhang should not be controlled. It would not be paying to cultivate bhang. 63. The only objection which I can see is that there is no use of manufacturing different kinds of ganja, such as flat, round, and chur. Ganja is ultimately to pass into human consumption, and for this purpose flat and round are all rendered into chur. The manufacture of flat and round ganja should be abandoned. 64. Exports to other province should be allowed. 65. I think it is fair.66. There need not be different kinds of ganja. Let it be chur only. 67. No. 68. Yes; but consumers should not be allowed to smoke ganja in the shop, as this may lead to a large gathering of people in one place, and is likely to prove a source of nuisance. If each takes away ganja from the shop and consumes it in his own house, there is no probability of any one being annoyed. 69. The people of the neighbourhood are generally consulted, and I think this is sufficient. The general public need not be consulted. 70. Yes. Nepal ganja is smuggled into this district, and affects the sale of ganja here. This should be stopped. The bordering shops suffer very much from this. - Evidence of BABU NOBIN CHANDRA KAR, Excise Deputy Collector, Bhagalpur.


58. The present system of Excise Administration in respect of hemp drugs is, on the whole, working well; but it is still capable of some improvement. 59. The retail vendors cannnot often get their supply of ganja in due time owing to the gazetted officer who is to issue ganja being out on tour. This may be obviated by permitting some responsible ministerial officer to issue ganja. The ministerial officer may be required to furnish a reasonable security. Another remedy would be to permit the goladars to pay at once the duty on the entire quantity of ganja imported, so that they might store and issue ganja just as they would do in and from a wholesale imported liquor shop. The wholesale dealers of ganja make a considerable amount of profit. Their profits often exceed 50 per cent. on their outlay. The system of having these middlemen can easily be abolished, and ganja sold from treasury like opium. The supervisor of ganja mahals can, with a small addition to his establishment, purchase ganja from the producers and send the drugs to all districts. The procedure for storing and issuing would be exactly the same as at present, and no extra establishment will be required. If the Government be prepared to make this outlay, I think a fair return will be obtained on it. 60 and 61. No experience. I think the eradication of the wild hemp is uncalled for, if not impracticable. A. E. 62. The cultivation of the hemp plant for the production of bhang should be controlled. The only means of attaining the end seems to be to enact that it shall be the duty of every person on whose holding the plant may be growing to eradicate it. If such a law be passed, I think the wild growth of bhang may be effectually checked. 63. Vide answer to question No. 59. 64. No objections. 65. (a) The duty on bhang is small in comparison with the duty on ganja. One-fourth of a tola of bhang suffices to produce into intoxication. The duty on this quantity is three tenths of a pie. One-sixteenth of a tola of ganja would, however, produce the same degree of intoxication. The duty on this quantity is nearly 1 1/5 pie, so I think the duty on bhang should be R2 if the present rates continue for ganja. (b) Any increase in the price of ganja would probably lead to increased consumption of spirituous liquor or opium. A. E. (b) The taxation of ganja is low in comparison with country liquor. One powa of country liquor of 20°under-proof is required to produce intoxication of the same degree as would be produced by1 /16o f a tola of ganja. The duty on these quantities are 2 annas and1 1/5p ie respectively. But as ganja is generally consumed by the poorer classes of people and liquor by the well-to-do, I would not, on the above ground, recommend any increase in the duty of ganja at present. I agree. A. E. 66. There should be different rates of taxation for different kinds of ganja (such as the flat, round and broken ganja), as they contain different proportions of branches in them. These branches have to be rejected as useless at the time of sale. No ganja from any other locality except Rajshahi is sold in this district. I agree. A. E. 67. No objection. I agree. A. E. 68. Ganja is consumed to a certain extent on the premises of all license shops, but the shops do not appear to be nuisances. I agree. A. E. 69. Yes. The Excise Sub-Inspector and the Excise Deputy Collector make enquiries on the spot. Local public opinion ought to be considered before opening any shop. 70. I am not aware of any smuggling of ganja from any Native State into this district. Bhang consumed in this district is gathered from the hemp plant, which grows wild. No duty is paid in respect of the drug. There are a few licensed shops of bhang in this district, but there is practically no sale in them. So long as the wild growth of bhang is not checked by express legislation as suggested in answer to question No. 62, no revenue can be expected from bhang. There is very little to be said in favour of the drug as a narcotic. The intoxication produced lasts for a very long time, and complete stupefaction can be obtained by it. In the view of the above facts, it is not desirable to allow any untaxed drug to pass into consumption. - Evidence of BABU RAJANI PRASAD NEOGY, Excise Deputy Collector, Mymensingh


58. The present system works well, and no better method can be suggested. 62. The plant for the production of bhang should be cultivated under the same restriction as in the case of ganja, and the wild plants should be extirpated. 63 and 64. No objection. 65. In my opinion the duty on bhang and ganja is unreasonable with reference to each other and to alcoholic and other intoxicants, as the following will show: A bottle of country spirit worth one anna seldom intoxicates one habitual drinker; but ¼ tola of bhang worth a pice, and 1/8 tola of ganja worth two pice, can do so. 66. Yes. Round ganja contains less and chur much less twigs than flat does. The woody portion does not produce intoxication, and is thrown away by the retail vendors. Hence it is necessary that there should be different rates of duty on different kinds of ganja. I have never seen foreign ganja. It is not used here. 67. The taxation should gradually be raised. The method of taxing ganja and bhang is in no way objectionable. 68. There is no such house in this district. 69. The wishes of the people and demand for the drugs are considered before a shop is opened. The inspecting officers hold local enquiry in such matters and report the result, before proposals for opening a new shop are submitted to the Commissioner of Excise. Public opinion should always be considered. 70. Only one case of smuggling ganja from Jashpur (P.S.) was detected in Pargana Biru some time ago. - Evidence of GHULAM LILLAHI, Excise Deputy Collector, Ranchi, District Lohardaga.


58. The present system of Excise Administration in respect of hemp drugs appears to be working well. But I still think it is capable of further improvement. 59. The duty on ganja, charas, and siddhi is still capable of being raised. If, with the increase in duty, there be appointed a good preventive force to detect the illicit cultivation of the drugs and smuggling, there will be the highest revenue obtained, and there will be the least consumption. 60. I think the cultivation and preparation of ganja are sufficiently controlled. 61. Charas is not produced in this province. 62. The cultivation of the hemp plant for the production of bhang should also be controlled. Such control would be feasible. It is already an offence under the law to grow the hemp plant. Where it grows wild the owner of the land may be ordered to extirpate the plant. Government alone should cultivate the plant where the soil is favourable. 63 and 64. No objection. 65. (a) Bhang appears to be not adequately taxed. (b) With reference to alcoholic or other stimulants, the tax upon ganja and charas appears to be sufficient, but it is still capable of further increase. There would be the highest revenue and the lowest consumption if the tax be raised. 66. Yes. There should be different rates of taxation for different kinds of ganja. Broken ganja should have a higher rate of tax, as there are no twigs attached with the ganja. Flat and round ganja may have the same rate of tax. Other ganjas, if inferior in quality, should be lowly taxed. 67. I do not see any objection to the present method of taxing. 68. The drugs are not consumed on the premises of the houses licensed for sale. Such a house would be a public nuisance. 69. Yes. Under rules the opinion of municipalities is asked and local enquiries are held by excise officers when new shops are opened. Local public opinion should be considered. 70. I do not know of any facts regarding the importation or smuggling of hemp drugs from Native States. I think duty is really paid in respect to the ganja and other hemp drugs used. I do not think that untaxed drugs are used.  - Evidence of BABU SURESH CHUNDRA BAL, Baidya, Special Excise Deputy Collector, Howrah.


I have been three years in the Government service, and have been Excise Deputy Collector of Puri since December 1892. I have the whole excise of the district. I am stationed at the headquarters, but go out on tour. I have a minimum touring period of sixty days, but was eighty days on tour this season. I do not go to the States. I have only been one day in one of them. There is considerable consumption of ganja and bhang in the Puri district. In the past ten months of 1893-94 there have been over 72 maunds of Rajshahi and over 17 maunds of Gurjat ganja consumed in the district. Nearly the whole of the Gurjat ganja is consumed in the town of Puri and comparatively little Rajshahi. The total consumption of ganja in the town is about two maunds per month. The greatest consumption of Gurjat ganja is in the pilgrim months of March and July. There is smuggling of Gurjat ganja into the district of Puri to a very large extent; but we have not caught many cases. It is chiefly in the Khurda sub-division, which borders on Rampur and Naiagarh States. The average of cases detected in the district for the last seven years is ninety per annum. The average for the last four years is sixty-five. This is in my opinion about sixty per cent. of the cases that have occurred since the withdrawal of the prohibition against import. We have not succeeded in detecting many cases among the pilgrims. It is also difficult to detect cases of bringing in small quantities for use, and there are few cases of smuggling for profit. I believe that the most of the smuggling is by Khurda or Puri people and not by pilgrims: I believe that because we have discovered few cases among the pilgrims. I do not think that Mr. Taylor's statement is correct that only about onetwentieth of the cases are discovered. Cases discovered are now less numerous than in former years, but then the withdrawal of the prohibition against import will have reduced smuggling. The statement I have prepared shows that the average quantity found in each case was threequarters of a seer. The total average amount seized per annum was fifty seers taking the total of the cases in which the amount was recorded. I believe that formerly twenty maunds were smuggled in, and the detections were therefore only one-sixteenth of the cases. But I think we are better now as the establishments are improved. I think our success is much greater. I see that in 1889 only forty-five seers were seized, which is near the average. But I think that we have got hold of a greater proportion of cases now; and that our figure for seizures, though not higher, represents a far higher proportion of the cases that occur. Of course my figure is only a rough estimate; but I adhere to it that we catch fifty or sixty per cent. of the cases that occur. I do not think that the smuggling now under the present system exceeds five maunds in the year in the Puri District. There is no bhang used in the Puri District. No licenses are given. The Gurjat ganja is used as bhang. It is not much smoked in Puri town. The Pandas and others drink the stuff. It may be smoked near the border to a considerable extent where the people get it from the States. There were bhang licenses before. When I speak of Gurjat ganja being drunk I speak of the licit ganja. I have been told that Gurjat ganja is smoked only when Rajshahi ganja is not available in the place. I have myself never seen ganja smoked, so as to know what was being smoked, except in shops where Rajshahi ganja alone was sold and on one or two occasions when I was making experiments as to the effects of ganja. Therefore I know personally nothing of the effect of the smuggling of Gurjat ganja on the use of the Rajshahi stuff. But if what I have stated above as being told to me is true, the effect is little. I am told that in the years when there was no bhang and Gurjat ganja was also prohibited, some of the Pandas took Rajshahi ganja in their drink. But the great bulk of what they use must then have been smuggled in. They are large consumers. Very nearly the whole of the licit Gurjat ganja imported into the district is consumed in Puri town as drink. The Rajshahi ganja is said to be weaker than the Gurjat ganja. I asked some old smokers and licensees who say that the Gurjat ganja is stronger than the Rajshahi and produces dysentery and bowel complaints. I have no knowledge of this subject apart from this.  - Evidence of BABU BRAJENDRA NATH RAY, Excise Deputy Collector, Puri


58. As far as my experience and opinion go, the system of excise administration in this district, as also in other districts of the division in respect to hemp drugs, is well worked. Charas is neither manufactured, imported, nor consumed in the district. Ganja is sufficiently taxed. Last year the quantity of all sorts of ganja consumed in the district was 157 maunds 18 seers 2 chittacks with duty and license fee amounting to R34,143, R16,545, against 159 maunds 35 seers 2 chittacks with R16,938 license fee and R33,989 duty in the previous year; the tax, therefore, on the drug amounted to above R8 per seer.
Bhang, of which consumption as intoxication is limited in this district, escapes taxation for the reasons fully contained in this office letter No. 531-E., dated 20th January 1893, an extract from which is given below for easy reference.
I.
Name of district.
Total excise receipts of district in 1890-91.
Total ganja revenue in 1890-91. percentage of contribution of ganja revenue to district receipt.
R R R Gaya 3,75,672 38,321 10·2 Patna 5,53,293 1,15,888 20·9 Muzaffarpur 1,83,076 41,748 22·8 Saran 2,90,260 70,955 24·8 Darbhanga 1,67,886 50,977 30·3 Shahabad 2,53,300 88,092 34·7 Champaran 1,86,813 70,187 37·5
"The Special Excise Deputy Collector, Roy Brahma Dutt, who has had an experience of all the districts in Behar, attributes the following causes for there being no sale of bhang, and consequently of no revenue derived therefrom in this district:— "(1) The plant grows spontaneously in abundance, can be had everywhere, and bears no marketable value. "(2) In a damp country like Darbhanga, it is observed by experience that the consumption of the drug is not so large as in a dry district. "(3) It is further observed by experience that in damp places ganja, which is smoked, replaces to a certain extent the consumption of bhang, of which leaves are ground into a paste, and then dissolved in some liquid and drunk. It is for this reason that ganja in Darbhanga, Champaran, Saran, and Muzaffarpur contributes to the district excise receipts a larger proportion of revenue than in any other district in the division, except Shahabad, which has a special reason to account for its large proportion of contribution, viz., that the high classes of the people there (who abstain from drinking spirit and tari) are mostly addicted to the use of ganja, bhang, or both. See the statement No. I on the margin. "(4) A reference to the marginal statement No. II will show that it is a combined effect of the causes mentioned above that in Muzaffarpur, which is a sister district of Darbhanga, as also in Champaran, which resembles both these districts in points of dampness and indigenous growth of bhang, the sale of the drug has been insignificant. "(5) Darbhanga has an additional reason to account for no taxed consumption of the drug in it, viz., that during the last ten years there has been no successful prosecution for illicit possession of wild bhang in the district, because the High Court in 1892 declared in certain cases that prosecution for possession of wild bhang was illegal, and Mr. Boxwel, the then Magistrate of the district, recorded an order that the plant, called bhang in Darbhanga, was not an exciseable article, and that the police should give up interfering." 59. The duty levied upon different kinds of ganja has been enhanced this year which, it is expected, will further increase the revenue, and may proportionately decrease the consumption of the drug. I do not, therefore, think it advisable to adopt any policy indicating the enhancement of tax on the drug so soon. 60. Ganja is not produced in this district, though wild hemp plant (or phul bhanga, as it is locally called) abundantly grows here. 61. Charas also is not produced in this district. 62. Bhang plant grows wild so extensively in this and other north Gangetic districts in this division that it would be impossible, with the present strength and type of the executive establishment, to bring the production of bhang under the excise control by direct management. It would therefore be advisable to let the bhang mahal into farm; but the prospect of profit from the farm being little and the trouble of its management great, no farmer is expected to come forward for it. Under the circumstances, what suggests me as most suited to the occasion is to sub-divide the district into a certain number of vend-farms, and put up to auction each farm with a fixed number of ganja retail shops at fixed localities under the present system; and with a right to gather and sell bhang within the limits of the farm, for which no duty, except a monthly fee, will be levied. "This will be an amalgamated system of ganja retail shops under the fixed duty or the present system and bhang vend-farm." This will, it is expected, create competition among the present ganja dealers, while each vend-farmer will serve in his own interest as a detective against illicit possession and sale of bhang and ganja in his farm. After the system has worked for a few years, the people, who now gather bhang, will cease doing so, as they will find both the danger of illicit possession of the drug, and the facility of obtaining it from a licensed farm.
I think this will mean a great deal of undue interference, which is much to be deprecated here just at the present time. I would, however, punish people for regularly cultivating it, i.e., when it is not growing wild, to show we discourage it and do not recognize the right to grow it. H. C. W. 63. I find nothing against the system in force as regards wholesale and retail of ganja and charas. With reference to bhang the objection is that, under the circumstances as they now exist, it is difficult and not feasible to manage this branch of excise in the districts in which bhang grows spontaneously and can be had everywhere, and for which I have suggested a system explained above. They could easily find the money; but I do not think any necessity for this has arisen. H. C. W.
64. I have no objection to the existing regulations governing the export and import of the drugs. I find, however, that the wholesale dealers have given no security, and if they sell their ganja while in transit, or anyhow clandestinely dispose of it and run away, how would Government realize the duty due upon the drug? I think they may be required to give a cash security of R100 and deposit it by instalments in the saving bank if they find it difficult to pay it in a lump sum. Ganja being such a much more harmful drug than opium, I do not think there should be such a difference between the two. Duty on the former should he gradually raised. H. C. W.
65. I have no charas sale in this district. With reference to bhang, I have already discussed the question of its taxation. As regards ganja, the incidence of duty per seer last year amounted to above R8, while we levy duty on distillery liquor at R2 per L. P. gallon and our incidence of duty on outstill liquor per proof gallon last year was R1-15-7, which much exceeds the tax levied on tari. The tax levied on ganja with reference to the taxation of the above articles is reasonable. It falls short of that levied on opium by 50 per cent., the duty on the former (see above) being R8 per seer, while Government sells the latter at R16 per seer in this district. Certainly, because of the different amounts of the drug contained in a seer of each. If you look at a seer of each, you will at once see the difference. In flat a fourth is stalk only. H. C. W.
66. Yes, it is necessary to levy duty at different rates on different sorts of ganja.
67. No, I have no objection to the present method of taxing ganja. Bhang has been discussed above, and charas is not sold. 68. Charas is not sold. For bhang there is no shop here, for the reasons explained above. The ganja consumers, it has been observed, take their ganja with them either to smoke it in solitude or in company. Rarely a customer has been seen smoking ganja at a licensed shop. There are no houses in this district intended for ganja smoking. 69. The wishes of the people are consulted and considered before a new shop is opened, and with reference to all the shops when they are visited by the inspecting officers. 70. There are no cases worth notice regarding the importation of hemp drugs from Native States. Petty cases of illicit possession of ganja by persons (ignorant of excise laws), being consumers and not smugglers, are detected on the British-Nepal frontier in the district, and they are dealt with according to law. 

 - Evidence of BABU ROY BRAHMA DUTT, * Kayasth, Excise Deputy Collector, Darbhanga.


58. It is working well. 63. The present system of retail vend of ganja has placed no limit on the amount of ganja which can be sold by a licensee; hence the drug is sometimes sold very cheap, thus presenting an inducement to indulge in excess. On the other hand, if the system of issuing ganja according to license fees be introduced as we have in this district for two years by way of experiment, the system would work very well, and will prevent one vendor from underselling another (thus presenting a good opportunity of illicit sale) and also will prevent its being sold very cheap. 68, No such shop where they may be consumed on the premises.  - Evidence of BABU BANKU BEHARI DUTT, Excise Deputy Collector, Backergunge


In Angul there was prohibition of cultivation of ganja in Mr. Metcalfe's time. He ordered it in the Angul tract and such of the neighbouring States as were under management. This was seven or eight years ago. The plants disappeared. Three or four years ago the prohibition was repealed, and then the plants began to reappear. Hence cultivation is greatly increasing these last two years. The prohibition led to complaints; but they were few. The people used to get ganja from the neighbouring States of the Central Provinces, where there was no prohibition. There were no shops or means of supply in Angul or the States concerned. There is no excise administration in regard to ganja in the Angul District. We have nothing prescribed. We have no shops. We have no prohibition. There is consumption. The people consume the stuff they raise, and there is nothing to prevent their importing if they choose. There is the same want of excise system as in the neighbouring Tributary States. I do not think there is any need of excise administration. I see no necessity in the habits of the people. The drug is not used to excess. I only met one man who was sent to the lunatic asylum, but was all right by the time he got there. I was told he smoked too much. I have never seen any other bad effects. So I see no need. Then again Angul does not border on British territory. It is sixty or seventy miles off. So we have not heard of smuggling into British territory from there. It is poor people who use the drug, and a tax would press on them. I see no reason therefore for taxing ganja, though liquor is taxed. Liquor is lightly taxed by the outstill system. If the system of ganja administration elsewhere were interfered with by smuggling, I should still consider that the taxation of ganja should not be imposed because it would fall on poor people who cannot bear taxation. The liquor consumers are poorer; yet they pay outstill taxation. I would not, however, advocate the abolition of taxation on liquor because the consumption of liquor is on the increase. Apart from my consideration for the poor, I see no objection to taxing ganja in these Native States. But I see no reason for it, as ganja consumption is not increasing. I know nothing of the difficulties in regard to smuggling. I only look at the question from the point of view of the Angul tract. - Evidence of BABU NARAYAN CHANDRA NAIK, Khas Tahsildar and Deputy Collector, Angul.


58. I consider it to be working well. 59. I have no improvement to suggest at present. 60 and 61. Cannot answer. 62. We cannot control it, for bhang grows wild. The present excise rules for possession, license and supply of bhang are sufficient checks so far as possible. 63 and 64. None. 65. Yes, the taxation is reasonable. I do not suggest any alteration. 66. Yes; if they differ in quality. 67. I have no data before me, so cannot make any suggestion under this head. 68. There are licensed shops, but, so far as I am aware, these drugs are not consumed on the premises in the same way as liquor. Do not consider it right to allow these drugs to be consumed on the premises. 69. Generally not. It is only when objections are raised by the people of the locality that any enquiry is made or notice taken. I think local public opinion should be considered. 70. None that I know of.  - Evidence of BABU WOOMA CHARAN BOSE, Deputy Magistrate and Deputy Collector; Manager, Raj Banaili, District Bhagalpur.


58 and 59. I am not prepared to answer these questions, as I have very little experience regarding excise administration, and have had no occasion to study the subject carefully. 60. Ganja is not produced in this part of the district. 61. Charas is neither produced nor sold in this part of the district. 62. I don't think that spontaneous growth of hemp plant for production of bhang should be controlled. It appears to be inoffensive in its nature, and is very rarely used in this district for intoxicating purposes. 63 to 67. I am not prepared to answer these questions, as I have no knowledge on the subject. 68. There are shops for licensed vendors of ganja, etc. Ganja is sometimes smoked publicly on the premises of the shops, which may be discontinued and not exposed to public view; but this may, however, be allowed in private compartments of the shops to be set apart for the purpose. 69. No new shop has been opened at this locality. I don't know whether the wishes of the people were consulted when the existing shops were opened. 70. I am not aware of smuggling or importation of hemp drugs from Native States in this locality. The drugs are sold by licensed vendors.  - Evidence of BABU RASIK LAL GHOSE, Court of Wards' Manager, Dinajpur.


62. The cultivation of the hemp plant should not be controlled. It would hardly be feasible.
69. The wishes of the people are never consulted before opening a shop; but a shop is hardly ever opened at a place where the consumption is expected to be nil or next to nothing.  - Evidence of BABU GOUR DAS BYSACK, Retired Deputy Collector, Calcutta.


59. In the Sonthal Parganas the supply of ganja is greatly restricted, the shops are few, and besides the duty on the drug there is a heavy license fee  - Evidence of MR. W. M. SMITH, Retired Deputy Magistrate and Deputy Collector, Sonthal Parganas.


58. I am acquainted with the excise administration of Bengal in respect to ganja, and am of opinion that the system which prevails at present is on the whole working fairly well, but it is, I consider, imperfect in some respects. 59. The first improvement that I would suggest will be the reduction of duty levied on ganja, which has been raised rather too high. With increase of duty smuggling becomes more rife (vide my report, paragraph 133). The prohibition of private storage and the establishment of public godowns for the storage of the drug after manufacture will be my next suggestion of importance. This will put a stop to smuggling once for all (vide my report, paragraph 131). A spirit of too frequent and injudicious interference with the cultivators has grown up, and the abuse of the power of controlling the cultivation of ganja will lead to total abandonment of the cultivation altogether. There are other crops, such as sugarcane, jute, tobacco, &c., which are not less profitable than ganja cultivation; and the oppressed cultivator will find no difficulty in giving up the cultivation of ganja. This tendency should be checked by all means. 60. No particular modification of the system under which cultivation and manufacture of ganja is carried on is in my opinion necessary. 62. The cultivation of the hemp plant for the production of bhang may be carried on under the same system as ganja cultivation, the Excise Deputy Collector and the Excise Sub-Inspector respectively taking the place of the Sub-Divisional officer and the Supervisors in the Ganja Mahal in addition to their other duties. 63. No. 64. No. The existing regulations are, I believe, working fairly well. 65. As far as the taxation of ganja is concerned, I think it has been carried too far within the last decade. I have very little experience of the taxation of the other drugs. 66. Yes; the scale of duty should be fixed according to the quality of the drug and the woody portion of each kind of the drugs. 67. I have no objection to the method of taxing ganja. 68. I do not know of any such premises for the consumption of the hemp drugs. 69. Yes; the system of local option is in vogue. Local public opinion should be consulted. 70. Except charas, which is imported, the other hemp drugs are manufactured in Bengal, and there are very rare instances of smuggling of ganja or bhang from the Native States. - Evidence of BABU HEM CHUNDER KERR, Kayasth, Retired Deputy Magistrate and Deputy Collector, Sub-Registrar of Sealdah.


58. The excise administration in respect of the hemp drug has been working well. 60. I don't think any change necessary. 61. I do not know much about charas. 62. I do not think that any attempt at controlling the cultivation of the plant for the production of bhang, any more than at present, would be feasible. 63. I think the limit of retail sale might with advantage be reduced to one chhattack instead of one poa as at present. The high limit of a poa is quite unnecessary. A man consumes four-anna worth of ganja in a day at most and one poa is worth R5 at annas 4 a tola. 64. No, they are working satisfactorily. 65. These articles seem to me to be sold very cheap, in consideration of their power of intoxicating, as compared with alcohol. The duty might with advantage be raised even higher than at present. Relatively amongst themselves the taxation is reasonable. 66. Yes. If the same rate were applicable to all kinds, every kind of ganja would be required to be reduced to the same form, viz., to chur. The twigs make the difference in weight, and so long as the twigs exist the different rates must exist too. 67. Vide question 65. I think the tax should be increased. 68. Yes. I do not think they should be allowed. The consumption on premises should be prohibited on the same principle that the consumption of opium is prohibited. 69. Shops are generally opened in a locality by a request from the people of the locality for meeting their wants. I think there is no harm in the local public opinion being taken by official notice of an ordinary kind. 70. No. There is very little of importation of the drugs from Native States into Bengal, except smuggling from Nepal to some extent, The drug in general use, without tax, is bhang, which is generally prepared by people at home and consumed without payment of duty. The quantity of bhang sold in licensed shops forms but a small fraction of the total quantity consumed. Shops for the sale of bhang might, with advantage to the revenue,b em ultiplied very largely,  - Evidence of BABU JOGENDRA NATH MOZUMDAR, Brahmin, Deputy Inspector of Excise, Darjeeling.


58. The Excise Administration of Bengal with respect of hemp drugs is working well; but I consider it still capable of improvement in some respect. 59. The following are some of the suggestions indicating the direction in which improvement is possible:— 1. At present there is no sufficient check over the warehouses. There is great difficulty to weigh ganja accurately in the stock on account of bag, straw, ropes, etc. One seer pack, like opium cake, should be made, if possible. 2. The warehouses must be all built in the kutcherry compound at the expense of Government in a standard plan, and rent should be charged from the goladars. 3. The warehouses must be in charge of some responsible officer. No deliveries of ganja should be made by any ministerial clerk or muharrir and executive officer below the rank of Sub-Inspector or Superintendent drawing less than R50. The present rule is not practicable, and is therefore not strictly observed. 4. There should be only one sort of ganja when there is no difference in narcotic effect of each. The different sorts only increase confusion in the stock and account. 5. The duty of the drugs should be increased. I think the duty of ganja should not be less than R8, that of siddhi R1, and that of charas R10. The present rate of duty is not sufficient, for now one pice worth of any of these drugs can intoxicate a man. 6. The quantity of ganja and siddhi which a person is allowed to possess, should be reduced from twenty tolas to five tolas. This will minimize smuggling and at the same time will act as prohibition to the consumer, who has a tendency to go to excess. 62. Yes, the cultivation should be controlled. This would not be wholly feasible, but if special officers are appointed to watch the cultivation of hemp plant for the production of bhang, then I think there will be a great check. 63 and 64. No. 65. The taxation is reasonable with reference to each other, but not to alcohol or other intoxicants. I think their duty is capable of being increased. I have suggested this in my answer to question 59. 66. Yes, for flat and round have twigs which the chur has not. If different sorts of ganja are kept, then they should be taxed in proportion to the narcotic matter that each is found to contain. 67. Yes, as remarked above. 68. There are licensed shops for the sale of these drugs; but ordinarily these drugs are not smoked or drunk in the premises of the shop. The shops are not disreputable; generally mudi shopkeepers are the licensed holders of these shops. 69. Ordinarily the wishes of the people are not consulted or considered when a shop is opened in any locality. On the application of vendors and local inhabitants, licenses are granted after due enquiry at the auction settlement with the sanction of the Board. I do not think it is necessary to consult or consider public opinion, as these shops are not a nuisance. 70. No. Yes, duty is paid in respect of ganja and charas, but not of siddhi. The latter is used to some extent illicitly, but the use is not general. Question 59.[oral evidence]—By the word intoxicate I should mean making insensible. That is not my meaning in this place. I should now prefer to use the word exhilarate. My meaning is that, although there is no harm in a man being exhilarated, he should not be exhilarated at too cheap a price, and therefore the tax should be raised. I consider that for hard work a man needs to be exhilarated, and that it is no harm for any one to be exhilarated. The vernacular word nasha means exhilaration, and matwala or matlami means drunkenness. A drunken man is called matal. Question 62.[oral evidence]—There is no cultivation of the plant as far as I know for the production of bhang. I allude in this answer to the wild growth. Question 64. [oral evidence]—Zamindars and their gumastas and naibs frequently apply that shops should be opened in certain localities. I have had such cases. I have had application from other people asking for shops to be opened. The latter are not respectable people. Zamindars apply because they think it will make their tract flourish. It is in the Sunderbuns especially that the zamindars file such applications. They find that people will not come and live on these marshy tracts without the drugs, and the people are addicted to ganja and liquor and other intoxicants. We grant the application if we find that there is no shop in the locality. I do not remember how many have been granted in the last three years, but two or three may have been granted for ganja and many for liquor. The enquiry is made when the petition is presented, and it is only if it is decided to open a shop that a settlement is made. The subject of the enquiry is to see if the neighbouring shops will be affected by the new shops. In cases of liquor shops, enquiry is made to see if the local inhabitants object to the opening of the shop or its site. Such enquiry is not made in regard to ganja, because the ganja shop is not a nuisance, and for my part I think it is unnecessary. (Two days later witness appeared and said:—) I have searched the records of the last three years, and have been able to trace only three petitions for the opening of shops submitted by private persons, and none from zamindars. Two were rejected and one is under inquiry. I do not include in this applications of would-be licensees to open shops. There are five petitions on the register for these years which I could not trace, and cannot therefore tell what they were, i.e., whether they were from would-be vendors or not. I remember that there were two cases of zamindars who applied to the Excise Deputy Collector for shops last year (1892-93), viz. (1) Bholanath Banerjee, and (2) the agent of Khundu Babu of Ghat Kula. I do not know precisely how they applied, whether orally or in writing. No shop was granted, and no papers are forthcoming in their cases.   - Evidence of BABU DIGENDRA NATH PAL, Kayasth, Deputy Inspector of Excise, 24-Parganas.


58. I am acquainted with the present system of excise administration in respect of the ganja produced in Naogaon. I consider it is working well, but it is capable of improvement. 59. The following are my suggestions for improvements:— (1) That the wholesale vend of ganja may be taken in hand by Government like opium, if the results of the experiments of Dr. Prain as regards making ganja cakes prove successful. It will bring smuggling to the lowest ebb possible. (2) That the limit of possession of 20 tolas of ganja under section 15, Act VII (B. C.) of 1878, may be reduced to 5 tolas as regards the ganja mahal. The reduction will cause no hardship on the consumers. It will suppress consumption of undutypaid ganja, and increase Government revenue. (3) That the Assistant Supervisors may be empowered to make searches without police assistance. The police stations at Mahadevpur in Dinajpur and Adamdighee and Nawabganj in Bogra lie to a distance of about 20, 10 and 10 miles, respectively, from the centre of the ganja mahal. It is not easy to get timely assistance, and the work of detection often suffers. (4) That persons possessing any quantity of unduty-paid ganja should be punished. This being the ganja-producing tract, blades of ganja lie scattered in chatars and thereabout during the manufacturing season. People pick up such bits, consume, as well as sell. The consumption of such ganja causes loss to Government revenue as well as to licensed shopkeepers, (5) That the Sub-divisional Officer of Naogaon may be vested with the power of trying excise cases detected by the Assistant Supervisors in the Dinajpur and Bogra portions of the ganja mahal. On detection of excise cases by the Assistant Supervisors in the Dinajpur and Bogra parts of the ganja mahal, the Assistants are now required to take with them the accused for trial to those districts, the head-quarters of which are about seventyeight and twenty-nine miles from Naogoan respectively. On each occasion they are to remain absent from the ganja mahal for about four days, and the work suffers during their absence. The change of the criminal jurisdiction will save the Assistant Supervisors from the trouble of going to Dinajpur and Bogra, and enable them to utilize their valuable time in supervision work. It will also save Government from paying them travelling expenses. 60. The cultivation and manufacture of ganja are sufficiently controlled. 61. Charas is not produced in the ganja mahal. 62. I think the cultivation of the hemp plant for the production of bhang should in no way be controlled. It would be feasible, but it would not be necessary. 63. I have no objection to the present system ofw holesale/retailv end of ganja. 64. No. 65. The taxation of ganja, charas, and bhang is reasonable with reference to each other. 66. In my opinion it is necessary that there should be different rates of taxation between the ganja (flat, round and chur produced in Naogaon), and that grown in other localities, such as Gurjat in the Tributary Mahals, in Orissa, according to their narcotic strength and the wood they contain. The present rates of duty on the Naogaon round and chur ganja are disproportionate. They might be raised to R8 and R10 respectively. 67. I have no objection to the present method of taxing ganja. 68. There are some licensed ganja shops in the ganja mahal for the vend of ganja. The quantity of ganja sold is partly smoked in the shop and partly consumed elsewhere. I have no objection to persons smoking ganja in the shop. 69. In opening a ganja shop in any place, the wishes of the people are not consulted or considered. I think it is not necessary to consult or consider local public opinion, as the shop is not a nuisance. 70. I have no knowledge as regards the importation or smuggling of hemp drugs from Native States into Bengal. Petty ganja smuggling goes on in the ganja tract, and it cannot be suppressed. Duty is paid in respect to the ganja used. There is no general use of untaxed ganja.  - Evidence of BABU SIR CHUNDER SOOR, Satgope, 1st Assistant Supervisor of Ganja Cultivation, Naogaon, Rajshahi.


58. I am imperfectly acquainted with the system. 59. Thefts of ganja are common. Bairagis seem to be the principal offenders. 60. Charas is not produced. 61. Bhang is in this district made from the wild plant, and is said to be practically harmless, and its extermination would be more trouble than it is worth.  - Evidence of MR. W. C. FASSON, District Superintendent of Police, Bogra.


58. Working well, but requires the supervising staff to be a little more strengthened. 59 and 60. Ganja is cultivated only in the district of Rajshahi, chiefly in the Naogaon subdivision. The chief local administration of the ganja mahal now rests in the hands of the Subdivisional Officer of Naogaon in addition to his other duties. There should be a Special Excise Deputy Collector for the ganja mahal, who will be able to devote his undivided attention to the management of the ganja mahal. The supervising agency is very weak, having only a supervisor of the rank of a Sub-Deputy Collector, with one assistant of the rank of a Kanungo. They cannot properly keep up strict supervision over the cultivators, etc., owing to the extensive field of the work and the multifarious nature of the duties they have to attend. They are, therefore, compelled to entrust some of their subordinates with many responsible duties, such as weighment of ganja during storage and exportation. This is quite objectionable, and subordinates being not above temptation, the weighment of ganja when taken, during storage, at the gola in the importing districts, is invariably found to disagree considerably with the quantity noted on the pass from the exporting district, giving every allowance for dryage on transit. There must necessarily be something rotten at the bottom. To obviate this, some responsible officers must actually remain present during weighment, whether for storage or for exportation. So the staff of the supervising responsible officers must be strengthened—at least doubled. 61. The luxury of indulging in charas must totally be abolished, as being quite unnecessary. 62. Bhang is never seriously considered by the people to be an intoxicant, and its effects are not injurious to any appreciable degree. It is invariably used in medicinal purposes, but seldom with the object of intoxication, so no sort of restrictions ought to be imposed upon its free use. 63. Preparation and sale of charas ought to be stopped altogether. Bhang ought to be allowed to be used freely. Wholesale vend of ganja.—The wholesale vendors do not pay anything either in the shape of fee or duty. License for a wholesale gola ought to be granted, on condition of payment by the goladar, of a certain duty, say one anna per seer of ganja imported to the gola. Now the duty on ganja is paid only by the retail vendors and not shared by the wholesale vendors. The maximum quantity of ganja which a retail vendor can now sell to the consumer at a time is 4 chhattacks. This should be restricted and the maximum reduced to one chhattack at a time. 64. The exportation of ganja in bags ought to be stopped, and tin-lined boxes, well secured, should be enforced instead. To extract ganja from the bags during transit, keeping the seals intact, is not a difficult affair, and straw of equal weight may easily be inserted into them. That some of the goladars or their agents thus defraud Government out of its legitimate dues in the shape of duty, there is every reason to suspect. This sort of suspected malpractices during transit might be one of the reasons which accounts for the considerable loss in weight of the actual quantity of ganja during storage at the gola of the importing districts, though it is curious to observe that the gross weight (bag, ganja and straw) generally tally with the gross weight noted on the pass from the exporting district. 65 (a). Preparation and sale of charas ought to be stopped, and taxation on bhang ought to be abolished. (b) Although the duty on ganja has been increased by a rupee on each seer from April last, the duty on it is yet capable of being further increased. One pice worth of ganja makes one intoxicant, whereas 4 annas worth of alcohol will fail to produce equal effects. 66. Yes, there are at present different rates of duty for different kinds of ganja. But the practical value is the same. The present taxation is gradual in proportion to the quantity of stalks found in each sort. 68. Yes, there are licensed shops. Consumption is not allowed on the premises where they are prepared, but is allowed in the retail vend shops, which ought to be discouraged. 69. Not generally. Public opinion ought to be considered. 70. Cases of smuggling of hemp drugs from Nepal into the Bengal frontier districts are rare. The quality of the Nepal drug is much worse. Sometimes dealers in ganja in Nepal come to the frontier districts and take out ganja on payment of proper duty. There is no general use of untaxed drugs, as is suspected to be the case with liquor.  - Evidence of MR. F. H. TUCKER, District Superintendent of Police, Dinajpur.


58. I believe that there is much smuggling and room for much improvement, but it requires money. 59. I would insist upon closer and more frequent inspection of stocks. The cultivators do pretty well what they like at present. 60. The control is very weak. I would put the whole business on the same footing as opium, make advances, buy up the crop, store it in godowns, and issue it under passes to Collectors of districts. 62. No. 63. A wholesale vendor has numerous shops for retail sale either in his own name or benami, and he also advances money to the cultivators for growing ganja, and in some cases he is virtually a partner of the cultivators. This combination of three different interests in one person should be prohibited or discouraged as far as possible to prevent smuggling. At present a retail vendor can sell 20 tolas or one powa of ganja to one man. I think that this should be restricted to 5 tolas or one chhattack, like opium, to prevent smuggling as well as excessive use of ganja by the consumers. Names of buyers should also be registered, and consumption on the premises prohibited. 64 I do not think there is any objection to the existing regulation governing the export and import of ganja or its preparations. 65. The taxation of ganja is too low still. 66. Certainly there should be different rates of taxation for different kinds of ganja. The chur or broken ganja being without thick branches should be taxed at a higher rate per maund or seer than flat ganja, which is sold with the thick branches. I cannot say much about round ganja, except that it has also no very thick branches like the flat. This round ganja is preferred only by the people living in Calcutta and neighbouring districts. 67. I do not think there is any objection to the present method of taxation. I would not tax bhang. 68. In many places I have seen retail shops of ganja crowded with smokers all day. I have already given my opinion that no person should be allowed to smoke on the shop premises. 69. I am not aware that the wishes of the people are consulted or considered in any way before a shop is opened in any locality. I would not consult the people; it is impossible to get any but interested opinions. Excise officers, often for their own credit, create a shop at their option where it is not at all required. I would place it in the hands of very high authority to sanction the establishment of shops. Of course, if the people themselves move in the matter, their wishes might be duly considered. 70. I believe there is much smuggling of ganja from the Native States about Chota Nagpur, particularly Surguja. - Evidence of MR. R. L. WARD, District Superintendent of Police, Rajshahi.


58. In the Gurjat Mahals each Raja or Chief follows his own system as regards excise administration, and I am not aware that in any one State there is any restriction placed on the cultivation of the hemp plant. Those chiefs being independent, no special control over their excise administration from outside or by the British Government is exercised. In fact, the licensed storekeepers and retail sellers of ganja in the Mogalbandi or Regulation Districts of Orissa draw their supplies of ganja from many of the Native States I allude to with the sanction of the Mogalbandi authorities. I, like, I imagine, most British officers, would like to see the cultivation of the hemp plant and the preparation and sale of ganja under some kind of control in these Native States, and this under existing circumstances is for political reasons not possible. I am not thoroughly acquainted with the excise system in the Regulation Districts, but there the cultivation of the hemp is, I believe, interdicted, while arrangements exist for allowing confirmed ganja-smokers and bhang-consumers to obtain their favourite drugs from licensed sellers. I would restrict the wholesale as well as retail sale of ganja as much as possible, leaving the district officer to decide what the safe limit is. 64. No ganja is imported into the Gurjat States from the Mogalbandi Districts, but both hemp and ganja are freely exported under passes granted by the Regulation District officers from these Native States. Were I a native chief. I should raise the export duty on these consignments to the highest payable limit. At present, and to my knowledge, none of the chiefs collect any such export duty, and ganja is therefore much cheaper than it should be. I have no objections to the existing Mogalbandi regulations. 65. Not knowing what the rates of taxation in the Mogalbandi are, I can give no opinion. 66. I see no reason to suggest differential rates of taxation. 67. See answer to 65. 68. None to my knowledge in the States under the administration of these chiefs. 69. See above. 70. In the case of a plant or drug so easily reared and prepared, practically without restriction in Native States in Orissa, there must be constant smuggling, on a small scale, into the adjoining Regulation Districts. The actual harm done is, however, so infinitesimal, and to such a very small proportion of the Orissa population, that any more stringent measures than now exist appear to me uncalled for and unnecessary. - Evidence of MR. H. P. WYLLY,* Government Agent at Keonjhar, Orissa.


58. The present system is working well. 59. No improvement is suggested. 60. Ganja is not produced in the Kuch Behar State. 61. Charas is not produced here. 62. No; should not be controlled. 63. No. 64. I am for doing away with all restrictions. 65. Yes, reasonable; but it would be better if there were no taxes at all. 66. If there be any taxes at all, it is necessary that the rates should be different, inasmuch as they contain the intoxicating elements in different proportions. 67. No objection. 68. No. Such houses should not be opened. 69. The people here are consulted before any new shop is opened. Yes, local public opinion ought to be considered. 70. There are no facts regarding the importation or smuggling of hemp drugs from Native States. The duty is really paid. Wild bhang is not taxed here, nor is it sold in the bazar.  - Evidence ofB ABUJ ADUBC HANDRAC HUCKERBUTTY,B rahmin, Civil and Sessions Judge, Kuch Behar.


58. So far as I know, I think the system is working well in Bengal. - Evidence of BABU GIRINDRA MOHAN CHUCKERBUTTY, Brahmin, Munsiff, Comilla (Tippera).


66. In my own opinion I prefer different rates of taxation for different kinds of ganja, according to the qualities - Evidence of BABU SREENATH CHATTERJEE, Brahmin, Cashier, Public Works Department, Darjeeling Division.


60. The cultivation of ganja-bearing plant is sufficiently controlled; no modification is necessary. 61. I have no experience about charas. 62. The present restrictions on the cultivation of the bhang plant are sufficient. 63. No objection. 64. It seems to me unjust to levy any duty on the deficiency in transit when the seals of the bags are intact and the deficit is due to natural causes. Nor should the excess in weight, due to natural causes, be brought into account. Nor should any duty be levied on the deficiency in excess of 2 1/2 per cent., as found at the time of annual stock-taking. Ganja should be exported in wooden boxes with tin covering to avoid tampering in transit. 65. The taxation of bhang is reasonable with reference to ganja, and the taxation of ganja and bhang is also reasonable with reference to country liquor. 66. There should be different rates of taxation, as they contain different proportions of branches in them. The branches have to be rejected at the time of sale. 67. No objection. 68. Ganja is smoked in the licensed shops. A great deal of noise is made by the consumers. In my opinion consumption should not be allowed in the licensed shops. 69. I am not aware if the wishes of the people are consulted. I think public opinion should be consulted. 70. I am not aware of any such smuggling. Much of the bhang consumed is not duty-paid.  - Evidence of BABU HARA GOPAL DUTTA, Kayasth, Retired Excise Daroga, Mymensingh.


68. There are licensed shops for the sale of each of these drugs in these parts. 69. I think the wishes of the people are not consulted or considered in any way before a shop is opened in any locality, and as at present the shop is located in markets generally, the opinion of the local public is not so much necessary.  - Evidence of RAI KAMALAPATI GHOSAL BAHADUR, Brahmin, Pensioner, SubRegistrar and Zamindar, 24-Parganas.


69. People are not consulted before a shop is opened in any locality. - Evidence of ASSISTANT SURGEON UPENDRA NATH SEN, Officiating Civil Medical Officer, Malda.


58. So far as I am aware the present system of excise administration is working well. 60. No cultivation here. 61. No production of charas here. 62. No. cultivation of hemp plant for the production of bhang here. 65. Bhang and charas are not used, and hence not imported. The present taxation on the ganja sale seems to be excessive. 66. Yes; because chur ganja has the full advantage of having no stalks, whereas flat and round ganja include the weight of stalks which are not used. 67. Yes; the present system of taxation on ganja seems objectionable. 68. Yes; there are shops licensed for the sale of the ganja here, and they should continue to exist for the convenience of the public. 69. Yes; the wishes of the people are consulted before any shop is opened in any particular locality. 70. I have no knowledge under this head - Evidence of ASSISTANT SURGEON NORENDRA NATH GUPTA, Baidya, in Civil Medical charge, Rangpur.


58. So far I am aware, the present system of excise administration is working well. 60. No cultivation here. 61. No production of charas here. 62. No cultivation of hemp plant for the 'production of bhang here. 65. Bhang and charas are not used, and hence not imported. The present taxation on the ganja seems to be excessive. 66. Yes. 67. Yes; the present system of taxation on ganja seems objectionable. 68. Yes; there are shops licensed for the sale here, and they should continue to exist for the convenience of the public. 69. Wishes of the people are consulted before any shop is opened in any particular locality. 70. I have no knowledge under this head.  - Evidence of BABU DURGA DASS LAHIRI, Brahmin, Medical Practitioner, Rangpur.  


58. Not practically acquainted with this branch of Excise administration. Popularly the impression is that there might be greater care exercised in preventing illicit ganja from being sold to the public secretly. 59. I cannot go into this question here. 60. I have no practical knowledge of this. 61. Not used in Rajshahi as far as I know. 62. Not much used in this district. The plant is easily controlled by offering a small reward for information of private cultivation. 63. Yes; to retail shops for ganja. (1) There are 405 shops in Rampur Boalia for the retail sale of ganja for a population of twenty thousand. Two shops would be ample. (2) The drug is too cheap; a lad may buy one pice worth, and get a taste of the drug sufficient to produce intoxication. (3) It should not be sold to lads under twenty years. I know boys of ten to fifteen who club together to buy ganja for smoking. It is a shame that they should have the temptation thrust upon them by retail shop-keepers, who will gladly supply the drug to mere children. (4) Increase the price, say double what it is, and you will reduce the number of smokers by 90 per cent. This would put it beyond the reach of the labouring man, who is the largest consumer. 64. No experience of this. 65. Taxation of ganja is not sufficient when one remembers the minute quantity which produces intoxication. One pice worth to a beginner is sufficient to intoxicate. The same applies to alcoholic liquors; they are too cheap and thrust too much into the face of the public by the multiplicity of shops. 66. I only know the one kind of flat ganja. Its price certainly should be raised to save the morals of the rising generation. 67. It is too cheaply sold (ganja), and the tax should be doubled, as stated above. 68. Yes; four or five. Reduce them by half or one-third. Two shops would be ample. 69. Never. I cannot say. I suppose the ganja farmer chooses his ground and takes up the most promising site for his shop. Local public opinion would close every ganja, opium and liquor shop in Rajshahi. 70. Untaxed ganja is procurable in this district; from whom and to what extent I am unable to say. NOTE.—The wild ganja plant, of which so much is made as a substitute for ganja proper, is a large closely-growing fibrous plant, easily seen and known by everybody. It is not used for the following reasons:— (1) It is too mild to gratify the habitual smoker. (2) It produces intense headache and leaves disagreeable symptoms which the cultivated ganja is free from. (3) The severe penalty inflicted on those who are found with it in their possession or have it growing on their ground, deters even those who might take it from using it. If ganja were suppressed entirely, there would be no difficulty in preventing secret cultivation by a small reward offered for information. It does not grow wild like jungle; it must be sown like other plants from seed or cuttings. It grows round my stable, but was sown there by grains of seed falling from the syce's hand who used the drug.  - Evidence of REV. D. MORISON, M.B., C.M., M.D., Medical Missionary, Rampur Boalia.


58. It is capable of improvement. Greater barrier should be placed before people, so that it cannot be smuggled or easily secured and procurable by children and bad characters. 59. At present one man is allowed to buy twenty tolas, but it should be restricted to five tolas. There is no restriction about age. It should be a rule that no one below sixteen years or so should be allowed to buy ganja from the shop. Insanes and hardened criminals, who use ganja to assist them to commit crimes, should not be allowed to buy ganja from the shop. Opinion of the majority of the residents should be taken before establishing a ganja shop to any locality. If the authorities keep greater eye towards its prevention than the profit hereby obtained, I think the abuses may be successfully checked. The tax on ganja should be enhanced. 60. At present there is much possibility of smuggling. Cultivators of ganja may make illicit sale of it. There should be greater supervision to prevent such abuses. 61. Charas is not produced here. 62. There should be a restriction about the cultivation of bhang plants. If the Government orders special men to destroy all wild plants and keep the cultivation of them under its own men, as in the case of ganja, it may be prevented from abuse. It may cost some trouble, but it will amply repay. 63. As regards charas and bhang, I have no knowledge; but about ganja, the quantity should be restricted to five tolas a man, and the tax on it should be increased, so that it may not be available to all classes owing to greater price. 65. The price of ganja is much less in proportion to alcohol and other intoxicants. But it should be raised, for nothing checks these habits so successfully as to place it beyond the reach of the people. 66. There are different rates for the different varieties, as I am told. The price should be proportionately raised. 67. No. 68. I am told there are houses appended to each ganja shop for smoking there. But such places, if they at all exist, for I am not exactly sure, are highly dangerous. They are potent for mischief, and the seat of all conspiracy for crime. It should be a law that no one should be allowed to keep such a place appended to his shop; no one should be allowed to smoke in the premises of the shop. 69. The wishes are not consulted, and no measures taken, so far as I know. I think local opinion should be taken more fully than (if taken) at present, and that opinion should be from those who are the true representatives of the country. 70. There being no Native States, I am not able to answer this question.  - Evidence of PYARI SANKAR DASS GUPTA, Baidya, Medical Practitioner, Secretary, Bogra Medical Society, Bogra


58. As far as Bengal is concerned, excise administration does not require any further improvement. 60. From facts collected from persons who deal in ganja and who grow it and could venture to say that further modification is wholly unnecessary. 62. It would be useless to attempt at such a thing. Any further restriction would induce men to grow hemp clandestinely and smuggling would continue. 63. No, not the slightest. 64. No. 65. Yes, it is quite reasonable with reference to the hemp drugs, but alcohol will still bear further taxation. Trade in alcohol should be restricted for the safety of the people. Free use of alcohol would simply encourage crime and offences. 66 and 67. No. 68. Yes; there are houses in our city, where people resort to consume bhang, charas, and ganja. Such houses are often kept by the juvenile consumers who find it difficult to practise smoking or drinking in their own homes. These houses are dangerous, but there is nothing to do away with them. When shops opened out publicly, the authorities do not consult the wishes and opinions of the people living in the neighbourhood. It would always be wise to consult the opinion of the neighbours. 70. People of Rajputana, Nepal, Amritsar and Central Provinces sometimes bring hemp drugs for their domestic consumption, but they do not sell them to the people of this province. They don't pay the duty. Question 68.[oral evidence]—The houses I refer to are private places where the young men meet every day. Each frequenter has to contribute to the expenses of the house. They are in fact clubs for ganjasmoking. I know one shop on the side of the Chitpur Road where the keeper invites juveniles to come and smoke without charging them anything, so as to teach them the habit. The shop almost faces Bartala Street. This is a licensed shop. There may be other shops in the Chitpur Road, but the above description will identify the one of which I am speaking. My informaation is based on the statements of respectable persons whom I entirely believe. - Evidence of KAILAS CHUNDRA BOSE, Kayasth, Medical Practitioner, Calcutta.


58. It is working well. 60. The cultivation of hemp and its preparation are, in my opinion, sufficiently controlled. 61. Sufficiently controlled. 62, 63 and 64. No. 65. Yes, reasonable. 66 and 67. No. 68. Yes; such places should be selected, subject to local option. 69. No; the wishes of the people are not consulted, but they ought to be.  - Evidence of PRASAD DAS MALLIK, Subarnabanik, Medical Practitioner, Hughli.


63. With regard to the wholesale vend of ganja, I propose the improvement as follows:—Ganja is cultivated in Rajshahi under Government supervision. The wholesale vendors bring ganja from that place, say at one rupee a seer. In the district they (the wholesale vendors) sell, say at 10 rupees a seer to the retail vendors, who in their turn sell at a very exorbitant rate. If Government would supply the retail vendors with ganja, as in the case of opium, the consumers would have been saved from lots of money. With regard to the retail vend of ganja, I beg to propose as follows:—Let the system of auction be stopped, and the Government duty be increased proportionate to the sum Government loses by the stoppage. The smuggling will cease altogether. As, for instance, supposing in Chittagong there are two retail vendors, one at town and another in mufassal, say 10 miles off. In auction the town one is sold for Rs. 100 a month and mufassal one for Rs. 10 a month. The mufassal one can therefore supply ganja on a cheaper rate. - Evidence of NIMAI CHARAN DAS,* Vaidya, Medical Practitioner, Chittagong


65. (a) Taxation upon charas should be greater than that of ganja and bhang. (b) Alcohol being more detrimental to the health of the public than bhang, the tax upon bhang should be lowest of all. 68. Yes, there are houses for this purpose.  - Evidence of BASSUNTO KUMAR ROY, Zamindar and Medical Practitioner, 24-Parganas.


60. The cultivation of the ganja-bearing plant, and the process of its preparation are, I believe, sufficiently controlled by Government, and, I think, require no modification. 61. Charas is not produced in this province (Bengal). 62. I do not see any necessity for controlling the cultivation of the hemp plant for the production of bhang or siddhi. 68. I am not aware of the establishment of such houses in this province for the preparation and consumption of these drugs, but there are licensed shops for selling these drugs. Such houses, if any, must be for the use of low and vulgar persons of bad characters, who only can resort to them. They are considered by gentle class to be infernal or hellish places. 69. Yes; I think so. If not, it should be done. I do not know what measures are required to be taken for this purpose. Yes; public opinion ought to be considered. In conclusion, siddhi or bhang is used generally by up-country or religious people, and its moderate use is beneficial in some respects. Ganja and charas are smoked generally by low class labourers for alleviating fatigue, and obtaining stayingpower under severe exertion or exposure and for refreshing themselves. The excessive use of these drugs, as in the case of other intoxicating ingredients, is very injurious, and they create many wasting diseases, and produce immorality. All these are regarded as addiction to low vices, and those who indulge in ganja and charas are considered to be hated beings, and such persons lose all their respectability in the eyes of sober and good people.  - Evidence of BIJOYA RATNA SEN*, Kaviranjan, Kabiraj, Calcutta.


58. Yes; it needs no improvement. 68. Yes; they are carried on in a quiet manner. 69. No. None. Yes; local option should be put in force. - Evidence of the HON'BLE THE MAHARAJA OF GIDHOUR


62. The cultivation of the hemp plant should not be controlled. It would hardly be feasible. 69. The wishes of the people are not consulted before a shop is opened in any locality. But that is unnecessary. The licensee is the best man to judge whether there is a demand for a shop in a certain locality.  - Evidence of RAJA PEARY MOHUN MUKERJI, C.S.I., Zamindar, Uttarpara, Hughli.


62. I do not think it necessary to control the cultivation of bhang as it is not injurious to the people. 68. There is only one license shop at Kakina.  - Evidence of RAJA MAHIMA RANJAN ROY CHOWDHRY, Zamindar, Kakina, Rangpur.


I have only to say that there are ganja shops in almost every town and village in the district, but I do not at present feel in a position to commit myself to any suggestion as to how the existing state of things could be improved. It is certain that ganja shops do not spring up in defiance of public opinion, as the supply is very unlikely to go where there is no demand, and it is unlike a shop-keeper to take his wares to a bad market.  - Evidence of RAJA SURJYA KANTA ACHARJYA, BAHADUR, Zamindar, Mooktagacha, Mymensingh.


59. Cultivators have now and then to give wild bhang to their cattle for medicinal purposes in cases of illness, over-work and general debility, etc. It is not proper to prosecute these cultivators if a small quantity of wild bhang, which each cultivator should keep for his cattle, be found with them. The agriculturists should be allowed to keep a certain quantity of bhang, as there has of late been much deterioration of cattle in consequence of the keeping of the wild bhang by husbandmen even in small quantities being a subject of criminal prosecution.  - Evidence of RAI TARA PERSAD MUKERJEE BAHADUR, Brahman, Zamindar, Pleader, Saran Bar, Chairman of Municipal Board, Revelganj, and of Local Board, Chapra, President, Bench of Magistrates, Chapra and Revelganj.


67. In the present excise system the high duties imposed and the increased license fees levied upon the drugs have raised their prices too high, and the consumers who cannot afford to pay for the quantity they require, buy a little and admixture other poisonous substances with it, as stated above, knowingly, for reasons already mentioned, and thereby totally ruin their health, and sometimes ultimately even meet with an untimely death. - Evidence of FAZL RUNBBEE, Dewan to His Highness the Nawab Bahadur of Murshidabad, Murshidabad.


62. No; controlling not required. 65. Taxation of bhang not reasonable. 67. Bhang must not be taxed. 68. I have seen ganja consumed in the shops where they are sold, which ought to be stopped. 69. Wishes of people are not consulted or considered. Yes; local public opinion ought to be considered. 70. No. No ganja is allowed to be brought from Nepal, and sufficient precautions are taken for this purpose by Nepalese police officers, who examine the luggage of men coming from Nepal.  - Evidence of BABU RAGHUNANDAN PRASAD SINHA, Brahman, Zamindar, District Muzaffarpur


58. I cannot say that the present system of excise administration in Bengal is working well, though no better system could be thought of. 59. The system is all that could be desired in order to prevent illegal sale of exciseable articles, but owing to the inefficient working of the system, the effect produced is not wholesome. The head of excise administration has, if my information be correct, made it incumbent on his subordinates to detect one or two cases of illicit sale every month, and to secure a conviction of the offender, failing which the subordinates are either fined, suspended or dismissed. The excise law, moreover, allows a handsome reward to such men who detect any such cases. From what I have heard, this gives rise to many a false case got up by unscrupulous subordinate officers, either for the sake of reward or to please their superiors. Many an unhappy creature is even sent to jail I understand. No such reward should, in my opinion, be offered nor any pressure should be brought to bear upon the excise subordinates, save only that of thorough and frequent supervision. 63. No objection. 64. No. 65. Is quite reasonable. 67. No. 68. There are shops for the sale of these drugs where may be found many consuming them on the premises. I have objection to people smoking them on the premises of a shop. 69. Wishes of the people are not consulted before a shop is opened. But local public opinion ought to be consulted.  - Evidence of BABU SURENDRA NATH PAL CHOWDHURY, Zamindar, Ranaghat, District Nadia


58. I am quite ignorant of the present system of excise administration, and therefore cannot give any opinion. 62. The cultivation should be controlled by levying exorbitant taxes on the cultivators. 63. The only improvement I suggest is to tax heavily. 65. Taxation on all the intoxicants should be trebled. 66. I do not know its kinds, so I cannot suggest any opinion. 68. In this province we have shops for sale of these drugs. No houses. In my opinion shops should be allowed on heavy taxes. 69. I have never been consulted.  - Evidence of BABU GIRJAPAT SAHAI, Kayasth, Zamindar, Patna


65. In my opinion alcoholic drinks are more injurious in their effects than the use of these drugs, and the former ought to be more heavily taxed. 68. There are no such places that I know of.  - Evidence of BABU RADHIKA CHURN SEN, Kayasth, Zamindar, Berhampur.


68. There is no licensed house for smoking ganja, bhang, and charas. There is license for shops for the sale of these drugs. 69. The wishes of the people are not consulted before a shop is opened in any locality; nor does it seem to me to be necessary to do so.  - Evidence of BABU NUNDO LAL GOSSAIN, Brahmin, Zamindar, Serampore


62. There is no necessity of putting any control over the cultivation of the hemp plant for the production of bhang. 69. The wishes of the people are not consulted before a shop is opened in a locality. The local public opinion ought to be consulted. - Evidence of GOSSAIN MOHENDRA GIR, Sanyasi, Zamindar, English Bazar, Malda.


58. I have not much knowledge about the system of present excise administration, and consequently unable to answer this question. 59. I have no answer to make. 60. Ganja is very little produced in our district, so I have nothing to say as asked in this question. 61. Charas is neither produced nor much known in this district. 62. Bhang, as understood by this district people, grows spontaneously in abundance, and I think no method can be adopted that will come to practical effect in the way of control. 63. I am not in a position to answer the question which requires medical knowledge to be properly answered. 64. I like that Government should adopt stricter regulations for the import and export of these drugs than the present existing ones. 65. It is difficult for me to answer a question like this. 66. I have no knowledge of the thing and cannot pass any opinion. 67. I have no answer to make. 68. In our district there are ganja shops almost in every town and mufassal market, where generally ganja-smokers resort and smoke ganja; and sometimes innocent people are tempted to use ganja in these shops. 69. The wishes of the people are never consulted or considered in opening a ganja shop in any locality. The excise authorities give license to the applicants to open these shops. The public opinion must necessarily be considered and consulted. 70. I have no knowledge about the matters entered in this question, and no answer to make.  - Evidence of BABU JAGAT KISHOR ACHARJEA CHAUDHURI, Brahmin, Zamindar, Muktagacha, District Mymensingh


58. Excise administration in respect to hemp drugs, as far as I can judge, is working well, though it is capable of improvement. 59. I would suggest a reduction in the number of shops for selling the drugs and increase of duty. This will, I am of opinion, reduce consumption without causing loss of Government revenue. 60. Dacca, Mymensingh, and Backergunge are not ganja-producing districts. I can give no information. 61. No reply can be given. 62. Wild bhang grows spontaneously in abundance in the district of Dacca, and partly in Mymensingh, but not in Backergunge, where the growth is scarce. The consumers of bhang in these districts are few, and they use it to some extent medicinally. There is no cultivation, and any control on the part of the authorities quite unnecessary. Orders for destruction of the wild plants may continue as at present. 63. I left service for about ten years, and during this period took no notice of the present system; but generally I have no objection to the wholesale and retail vend of ganja and bhang or their preparation. I can say nothing of charas. 64. There is, in my opinion, no objection to the existing regulations. 65. In my opinion the taxation is reasonable. I would suggest a still heavier tax for the drugs, as well as for alcoholic intoxicants, with a view to reduce consumption. 66. There is some slight difference in the qualities of the three different sorts of ganja. The tax for flat ought to be very slightly less than for round and chur ganja, but the effect or intoxicating power of all three kinds is comparatively very little, at least such is expressed by the ordinary consumers. 67. I do not consider that there is any objection to the present method. The administration is going on smoothly for some time past. 68. I am aware of no houses or shops in the three districts I named, licensed for the sale of the drugs or their preparations, where, at the same time, they may be consumed on the premises. Had the case been such, it would have been objectionable. It would be giving undue advantages to the vendors. 69. When I was in the service, it was usual to consult and take the opinion of the neighbouring people before a site for a shop was settled, but no opinion was ever asked before a shop was to be opened. I think local public opinion ought to be asked or consulted. 70. I have no information to answer this question. - Evidence of BABU KRISHNA CHANDRA RAI, Baidya, Government Pensioner and Zamindar, District Dacca


58. I am not acquainted well with the present system. 59, 60 and 61. I am not in a position to do so. 62. It should be controlled by the imposition of a heavy duty; it is by all means feasible. 63 and 64. I am not in a position to answer. 65. Bhang and alcohol should be more heavily taxed, and ganja and charas should be stictly prohibited by law. 66. I am not in a position to reply. 67. I have not the least objection to increase taxation on these drugs, rather I hope Government should not shrink from its duty to check and heavily tax them. 68. There are many shops and houses in the province; they should be stopped and controlled. They are creating the greatest injury to the country, specially in a tropical one in which we inhabit. 69. Local opinion should invariably be taken. I do not think it is done so in all cases. 70. I do not know.  - Evidence of BABU BEPIN BEHARI BOSE, Kayasth, Zamindar, Sridhanpur in Jessore


58. It is capable of improving the excise administration. 59. The consumption may be decreased if the duty on ganja is raised and the license fee lowered. This will increase the finance. No duty is levied on bhang. Some sort of duty ought to be levied on bhang. 60 and 61. None produced here. 62. I think the cultivation of the hemp plant for bhang ought to be controlled. It will be feasible, though not all at once. Licenses on payment of fees may be granted for the cultivation of bhang plant within certain areas. Persons on whose lands bhang plants yielding four chittacks of bhang will be found may be prosecuted. This will bring the system gradually within the scope of the detective sub-inspectors of excise. Bhang plants will then have to be destroyed by excise officers. To levy duty on bhang will be the next step. The goladars of ganja receive a good profit. Twenty-five per cent. of the same ought to be paid as license fee. 63. For bhang, see Question 62. For retail vend of ganja, see Question 59. For retail sale of bhang, see Question 62. 64. None. 65. Taxation of ganja is reasonable; but no duty on bhang is levied—vide Question 62. There is no duty on liquor here. 66. There should be different rates of taxation on different kinds of ganja. As at present, flat ganja has twigs, while chur ganja has not, and it will not be expedient to levy the same rate for both. 67. Objections about ganja and bhang mentioned as before. 68. There are no houses where they may be consumed on the premises, nor would any be suitable, for most of the drug is consumed at the houses of the consumers. Very little is consumed in the shops. 69. Yes; they are considered, and the requirements of a locality are considered. The influential men of the locality ought to be consulted, and the public opinion of the locality must be regarded. 70. Very little ganja, say a few seers, are grown in the district, as I hear from persons. This ganja is very inferior in quality.  - Evidence of M. KAZI RAYAZ-UD-DIN MAHAMED, Zamindar, Commilla, Tippera.


68. Yes, in many licensed ganja shops, people generally consume ganja. But the shops are not licensed for consumption, therefore it would be better to strictly prohibit the consumption of these drugs in the licensed shops. 69. No, the people are not, to speak the truth, at all consulted before opening a shop. Local opinion ought to be taken into much consideration. The local opinion ought to be the basis of the foundation of these shops.  - Evidence of SYAD ABDUL JABBAR, Zamindar, Commilla, Tippera.


67. As already said, hemp plant and bhang plant are two different things, so far as I know. I am far from thinking that the growth of bhang plant should be in any way controlled, nor I think it would be feasible. 68. Intoxication can be controlled, and ought to be controlled, but it cannot be checked or prohibited. It is desirable, therefore, that licensed vendors of such drugs should be as limited as possible. To my knowledge there are no licensed shops or houses in this district which afford shelter to men addicted to the habit of smoking ganja, charas, etc., or drinking, or which allow persons of such habits to gather and enjoy. In Bengal, at least, licensed abkari shops are hardly seen to be converted into brothels, where all sorts of gatherings and amusements are allowed. - Evidence of BABU JOGENDRA KISHORE RAI CHAUDHURI, Zamindar, Ramgopalpur, District Mymensingh.


58. We have nothing to say against the present system of excise administration in respect of ganja, except that the dearer the drug is made the less will be the consumption. 60. Ganja is not produced here. 61. Charas is not produced here. 62. Ganja is not produced here; bhang is indigenous and cannot be controlled. 63. None. 64. None.
65. We say again the dearer the drug is, the lower its consumption will fall. 66 and 67. We have no opinion. 68. There are ganja warehouses and ganja and bhang shops and we have no opinion. 69. Wishes of the people are not consulted. 70. Ganja or bhang is not imported or smuggled from Native State into this sub-division. Gangetic Pandas, who come from places near the source of the Ganges, generally bring small quantity of charas to be given as presents to their jajmans in this part of the country.  - Evidence of BABU KALI PRASAD SINGH, Rajput, Zamindar, District Bhagalpur.


60 and 61. Ganja is not produced here. 62. Bhang is always grown here wild and not to be controlled. 68. There are many shops for selling ganja here. 69. No.  - Evidence of BABU GOPAL SINGH, Zamindar, Kumarsar, Bhagalpur


65. The tax might reasonably be increased for these drugs, because intoxication by using them can be produced at much less cost than by using the country alcoholic liquors, even though the effects of the latter are more durable. 66. No; one rate of taxation is the most suitable, though chur ganja, being less potent, might be more lightly taxed than the others. 68. Not in this municipality 69. No, but they should be. - Evidence of MR. L. H. MYLNE, Zamindar and Indigo-planter, Justice of the Peace, President of Independent Bench of Honorary Magistrates, Chairman of Jugdispur Municipality, District Shahabad.


58. The present system of excise administration in this district in respect of hemp drugs is, as far as I understand, working satisfactorily, and does not in my opinion call for any change. 60 and 61. I do not consider any modification necessary. 62 and 63. I suggest no change. 64. I have no objection. 65. Much more harm is done by alcoholic intoxicants than by the hemp drug. I hear of more harm in a week by the use of the former than I do in a year from the use of the latter. If anything was taxed more, it ought to be alcohol. 66. I should not say it would be necessary. 67. No objection. 68. As far as I understand, there are regular shops in this district for the sale of these drugs. 69. The wishes of the people, I consider, ought to be decidedly consulted before liquor shops are opened. But the use of the hemp does not amount to an evil in this district. 70. None that I know of.  - Evidence of MR. JOHN D. GWILT, Tea Planter, Longview Company, Limited, Darjeeling.


58. I am not well acquainted with the present system of excise administration. 62. It should, and I think could, be controlled. 69.. I doubt if the people are consulted, but have no certain knowledge of the subject.  - Evidence, of MR. JNO. RUDD RAINEY, Proprietor of "Khulna Estate," Khulna.


62. Wild hemp or bhang grows wild; it would be impossible to control the growth, and the police (native) would always trouble raiyats where bhang is growing. 64. None. 65. Yes, on ganja. No tax on bhang. 68. Yes; for sale of ganja. 69. Yes, the vendor first consults the villagers, and then petitions the Magistrate. Local opinion ought to be considered. Any planter or zamindar having any objection to the shop in certain places, on giving reasonable grounds, can have it removed by petitioning the Magistrate.  -  Evidence of Mr. A. G. M. WODSCHOW, Assistant Manager, Indigo and Zamindari, Dumur Factory, Purnea.


59. I think that no buyer of an exciseable article, be that article bhang, ganja, opium or grog should be allowed to use it at the vendor's shop. I think also that no vendor should receive in price any goods, chattel, cloths, ornaments, or grain but should always demand ready money. No vendor should sell an exciseable article on credit. Bhang in this country is a non-exciseable article. It grows wild. Its possession in any quantity should not be declared illegal.  - Evidence of BABU GAURI SHANKAR, Manager, Bachour, Darbhanga


58. On the whole the present system of excise administration is working well; but for all that I believe it may admit of a few improvements. 59. I beg to suggest the following as improvments upon the present system of excise administration:— I.—At present the limit assigned by the excise laws for any person to possess ganja for his own use is 20 tolas; In my opinion it should be reduced to 5 tolas. I consider it expedient, for— (1) it will increase the Government revenue because the difference between the present limit and the one suggested will be excisable; (2) it will check smuggling to some extent. The present limit of 20 tolas enables a man to accumulate a large quantity in a short time, and so facilitates the ways of smuggling. But should the limit be narrowed, it would be difficult for a man to accumulate a quantity in the ganja season sufficient to give him an opportunity of illicitly trading in the drug. II.—Searching with police. Under the present administration the assistant ganja supervisors detect smuggling cases with the help of the police. This, I think, retards the business, inasmuch as— (1) the police assistants cannot always be had in time; (2) the police are sometimes oppressive.
III.—Though it is not in the present excise law, yet the attention of Government has been drawn to the question of weighing ganja before it is stored by the cultivators in their own golas. I am afraid this will, if enforced, bring on the following disadvantages:— (1) There is no denying the fact that a considerable time will elapse between the weighing of the drug by the Government and its sale. It is very natural that the weight will get reduced in this long interval on account of atmospheric influences and the damages caused by rats and such other animals. But for this unavoidable loss of weight; provision may be made by making certain allowance for the above causes. But I am of opinion that such allowance will be inexpedient for the following reasons:— There is no knowing what will be the actual loss of weight, so the allowance made will inevitably be either more or less than the actual loss. Now if it be more, the Government will only afford the cultivators an opportunity for carrying on smuggling; but should it happen to be less, the innocent cultivators will be made liable to punishment without any offence on their part. I think I will not be supposed to be dreaming if I beg to say that the cultivators of hemp may, after they have been made to suffer bitterly for no offence, be forced to give up the cultivation altogether. The temptation of ganja cultivation is not such that the cultivators will persuade themselves to carry it on under all disadvantages and hardships. The net profit arising out of the cultivation of other crops, such as potatoes, sugarcane, turmeric, chilli, etc., is no way less than that yielded by ganja. (2) It means also additional expenditure on the part of Government; for there will be necessity of employing a larger number of officers than the present staff to carry out this scheme. The present staff will not be sufficient to weigh ganja stored in the houses of several cultivators. IV.—The attention of the Government has also been drawn to the question of enforcing the storing of ganja in Government depôts. I think, this, if enforced, will subject the cultivators to two inconveniences, viz.:— (1) The cultivators will lose much time in travelling from their homes to the Government golas simply to show the article to the intending purchasers every time they turn up; and it will also make the purchasers lose much time. There are some cultivators who, as soon as the ganja crop is over, begin to earn their livelihood as day labourers. For such persons this journey, which may sometimes prove quite fruitless, means starvation of the impecunious mouths depending upon them. (2) The poor cultivators will be quite unnecessarily made to incur expenses to convey the drug from the field to the Government depôts at a distance of ten or twelve miles. 60. The cultivation, in my opinion, is sufficiently controlled. 61. Charas is not produced in the province I belong to. 62. I don't see any necessity for such controlment. Yes, such check is feasible; but it is, as far as I understand, not necessary. 63. No. 64. The only suggestion which occurs to me regarding this question is that it would be more safe and convenient to export ganja to distant places by packing it in small boxes instead of sending it in bundles wrapped up with gunny cloth as it is done at present. The suggested change would save the drug from deterioration by atmospheric influence and waste caused in transporting the drug in the way now followed. 65. I am not acquainted with minute particulars regarding taxation, such as to enable me to answer this question. 66. Yes, there should be different rates of taxation. It should be regulated according to the quantity of the essential part which each kind of ganja possesses. The large, small, and absence of twigs in each kind flat— round and chur — should form the basis of this difference. The twigs have no narcotic power, hence they are rejected by the smokers, but they unnecessarily add to the weight of ganja. 67. I have no objection. 68. Yes, there are such shops for sale of ganja in several districts of Bengal. These shops are calculated to facilitate the sale of the drugs, but such a shop is looked upon as a rendezvous of low class people and persons of ill repute, who always prove offensive to their neighbours. 69. No. The application of a person belonging to the locality where there is likelihood of sale of such a drug is considered sufficient for the grant of a license for such a shop. Public opinion should by all means be consulted for the opening of these shops. 70. I am not aware of any such facts. As far as I know, duty is really paid for such drugs used, and I do not know of any general use of untaxed drugs.  - Evidence of BABU SASI BHUSAN ROY, Manager, Dubalhati Raj Estate, Rajshahi District.


58. I am not acquainted with the present system of excise administration; there must be many changes since I left the service sixteen years ago. 61. Yes. 62. Answered in paragraph 35. 63. 1 do not think there could be any improvement; there already exist too many restrictions. 64. No. 65. I have never heard objections to the ganja tax, but there is a great outcry against the tax on country spirits. 66. One uniform rate for all kinds of ganja would be preferable. 67. No. 68. There are licensed shops for the sale of ganja, but nobody is allowed to sit there or smoke on the premises. 69. Mufassal ganja shops are fixed in public bazars, where it is not necessary to consult the wishes of the people. 70. It can only be smuggled from Hill Tippera, but there are a good many safeguards against it. Before concluding I would add that even if the cultivation of opium is restricted, ganja will rule the country.  - Evidence of Mr. H. M. WEATHERALL, Manager, Nawab's Estate, Tippera.


There is a great deal of smuggling of Gurjat ganja. That is, I believe, the principal source of supply. The smugglers are servants and consumers principally. The servants bring it for their masters to use or sell. There are about fifty thousand pilgrims at the Car festival in an ordinary year, and not less than fifty thousand more throughout the year. I know nothing of their habits while here. I cannot say how many use hemp. They may give ganja to the temple servants. But no ganja is presented to the temple. Ganja is only given in Siva temples. If the Gurjat ganja were stopped, there would be discontent. There were complaints when it was formerly stopped. I heard that some six people died from not getting Gurjat ganja and having to drink Rajshahi ganja. They died within a year or two. They had dysentery and such diseases. They were shopkeepers and people of that class, not temple servants. I do not think that Bengal siddhi would satisfy people accustomed to drink Gurjat ganja. But if it were available, there would be less discontent. I am doubtful, however, if it would be so beneficial to health as Gurjat ganja. I think that Gurjat ganja is good for the health. I have taken it myself on the doctor's recommendation and also in social feasts, and have found it beneficial. I should be against stopping Gurjat ganja too suddenly. We cannot stop smuggling without harsh measures. Harsh measures should be avoided.  - Evidence of BABU NITYANANDA DASS, Assistant Temple Manager, Puri.


59. Duty on ganja is very heavy. The shopkeepers who purchase and pay duty for the whole year suffer loss for the unconsumed amount of ganja in the end of each year, which is burnt by Government.  - Evidence of BABU SASHI BHUSHAN ROY, Chairman, Satkhira Municipality, District Khulna.


68. In our town (Serampore) some shops are licensed to sell ganja and siddhi, but not charas. In Calcutta there are shops licensed for the sale both of ganja and charas.  - Evidence of BABU AGHORE NATH BANERJI,* Vice-Chairman, Serampore Municipality, District Hughli.


I know that there is a great deal of smuggling. I remember a great deal of ganja being brought in by night and buried in the sand for the Pandas, who went to take it when they required. Information was laid, and seizures were made. It is Gurjat ganja that is smuggled. The Gurjat pilgrims bring it to the Pandas. I base this on cases I have seen of pilgrims being convicted. They give it to the Pandas and temple servants and also sell it to them. There is also much smuggling by local people for their own consumption. I know this from my old experience when I was a Saristadar, and also from my experience as Honorary Magistrate. I cannot tell how much of the smuggling comes from Madras side and how much from our States. The ganja is the same in both cases.  - Evidence of BABU KHETTRA MOHAN BASU, Municipal Vice-Chairman, Puri.


58. It is working well in regard to revenue; but is sadly ruining the consumers of the hemp drugs physically and morally. 59. I do not think any attempt, without total prohibition or local option, is likely to remove the evil. 60. Ganja is not produced in Gaya. 61. Charas is not produced in Gaya. 62. Yes, by total prohibition. 63. The only improvement I can suggest is total prohibition. 64. It should be totally prohibited. 65 to 67. In my opinion total prohibition is the only means to repress and remove the evil. No amount of taxation is likely to ensure this end. 68. They should be closed. 69. The wishes of the people, as far as I know, are not considered before a shop is opened in any locality, although a rule exists to that effect. Not only local opinion be taken, but local option allowed. Question 58.[oral evidence]—When I wrote the answer, I was under the impression that the object of Government was to increase the consumption. If the statistics show a reduction of both shops and
consumption, I withdraw the statement. As regards my own district of Gaya, I see that the figures of the comparative official return show a reduction of ganja consumed from 183 1/2 maunds 16 years ago to 93 maunds in the last year. In the earlier time bhang was not taxed. Since bhang began to be shown in the returns the quantity sold has increased. I wrote my answer without sufficient enquiry as to the number of shops and the consumption, but under the impression that Government was pressing the sale. I admit that any person making an equally grave charge against a private individual on equally inadequate grounds would be deserving of censure for his injustice. My justification is that I could not have got such comparative statistics as have now been shown to me, even if I had applied for them. The Excise Deputy Collector, at my request, furnished me with statistics for one year. I think I asked him orally for figures for 20 years or more, but he would not give them to me, nor would he have given me the figures for one year unless I had shown him the Commission's question (remark under Chapter IV). I never made formal written request of any kind, because I was certain the statistics would not be furnished to me. I knew excise reports were published each year. I have never seen one, but I have seen abstracts of them in the newspapers. Question 69.[oral evidence]—I have not myself made any representation to the authorities regarding any ganja shop, nor am I aware of such representation having been made by the people of any locality. I have made representation about liquor shops. In one case a shop was near one of our schools. That is the only representation I have made. The shop was shifted, but not far, and its distance from the school was much the same after the change. I represented this, but my application was rejected. Ganja and liquor appear to me to be equally bad - Evidence of the REV. PREM CHAND, Missionary, B. M. S., Gaya


58. I should like to see the cultivation and sale stopped entirely. I believe that these drugs are simply demoralizing. If Government stopped its own cultivation, it would not be very difficult to control illicit cultivation. The wild plant is not much to be dreaded in comparison with the properly cultivated ganja. 69. I never heard of such consultation. Certainly. Question 58.[oral evidence]—I know something of the present cultivation of ganja, and I understand that it is carried on under Government patronage, and that Government fosters the cultivation. I have not seriously thought about the precise manner in which Government fosters the cultivation. I am not prepared to say whether the position of Government in regard to ganja is analogous to its position in regard to opium—in fact, I do not know what the system of cultivation is; but my information is that it is under the fostering care of Government. My impression is derived chiefly from Government excise reports. The detailed information about superintendence of the crop and the measurement of the land gives the impression. The cultivation, I believe, requires great care, especially in regard to the eradication of the male plants, and my impression is that Government supervision is directed towards this end and the success of the crop generally. My impression was strengthened by reference in the reports to the Sibpur experiments in cultivating the plant for ganja. That was in the reports for 1891-92. It is in reference to this impression only that I use the words "its own cultivation." If I found the facts different, I should propose a different plan of prohibition. The wild crop, having the male and female plants growing together, cannot possibly produce ganja of such a strong kind as is produced by cultivation, in which the male plant is most carefully destroyed. This is what I mean by the last sentence of my answer 58. I refer only to ganja.   - Evidence of the REVD. W. B. PHILLIPS, Missionary, London Missionary Society, Calcutta.


68. There are shops in this district licensed for the sale of ganja. The number of these shops should be decreased for the good of the people. 69. Never. . No measures are taken certainly. Local public opinion should always be considered before a shop is opened in any locality.  - Evidence of the REVD. G. C. DUTT, Missionary, Khulna.


As to what restrictive policy should be adopted, I should feel inclined to try the experiment of increasing the duty up to a prohibitive point. I dare say that this might lead to some illicit cultivation or preparation of the cultivated plant, to smuggling, and to indulgence in other stimulants. This probably would be the case to a certain extent; but if the consumption of a distinctly noxious stimulant could be restricted, even under such condition, I think that it would be an advantage. People will have stimulants, and it is folly to think otherwise or to devise means for the introduction of a reign of universal abstension from stimulants. The very recent disclosures as to ether drinking in Ireland in the district of "Temperance" apostles, may serve as an instance of what the result of such folly would be. But my opinion based on my experience, and what I have seen of the people of Lower Bengal, is that of the stimulants to which resort is had, none is so pernicious as ganja. Therefore I advocate its restriction, and that restriction is possible I believe.  - Evidence of MR. J. MONRO, C.B.,* late Bengal Civil Service, Ranaghat, District Nadia.


62. The cultivation of the hemp should not be controlled. 63 and 64. No. 69. The system of indiscriminate grant of licenses, without considering or consulting the wishes of the people of the localities to which licensed stalls are assigned, is, I venture to think, faulty. Except a mere formal enquiry, as is at present done, the administrators of the law do not go further to ascertain if there was a necessity for such stalls in given places. If Government is not prepared to grant local option, something might be done to ascertain local opinion by means of Gazette Notifications, as is done in other matters relating to the administrative arrangements of Government. I may be permitted to say that the
privilege of local option is a highly important boon; but the difficulty of its introduction is not to be overlooked. His Excellency the Governor of Bombay in his reply to the address of the Sholapur Association, dated the 23rd October 1892, pointed out the adverse arguments against its introduction. "Up to the present time, although the question has been argued a good deal in England, it has not been given effect to, and there still remain a certain number of people who believe it is not desirable that those people who have no intention of taking too much should be prevented from taking even one glass of what they want or what may be good for them, because of a slight difference in voting power such as I have indicated. I would ask you how you are going to apply this principle of local option. Are you going to call on each male in your district to vote, or are you going to ask each one who has a vote in your Municipality to vote? And how are you going to apply it outside the municipal area? Do you think that the people of Sholapur are sufficiently acquainted with the rights and powers of the franchise to exercise their votes fully and fearlessly? All these points would have to be considered before we could give effect to the principle of local option as you desire. Another important fact to be considered is this. Localities at present are given every opportunity of recording their opinion for or against the opening of a shop, for a petition may be sent to the Collector, who is, under the orders of Government, bound to give attention to the views of the people of the district and forward them to Government. If there was a very strong feeling shown throughout the Presidency that local option should be adopted, that opinion would undoubtedly weigh strongly with the Government." I would, however, beg leave to suggest that a sort of local option may be conceded, as in Burma, in places which are under the jurisdiction of Municipalities or Local Boards, and whenever it is proposed to open a new retail shop for the sale of opium or spirituous liquors within the limits of any municipality, the Municipal Committee must be informed of the proposal and of the exact locality and must be invited to express their views regarding the proposal. I may take the liberty of submitting that a tentative measure like this may be adopted as an experiment. I am fully aware of the fact that a grave responsibility is thrown upon the shoulders of the Municipal Committees and Local Boards, but the principle may be tried in some selected places, the final order being with the Collector or the Commissioner of the Division. As a matter of fact, these high functionaries are chiefly to depend upon the Police for necessary information on the subject, but I am of opinion that the committees, like those I have suggested, are far more competent than the Police to advise the administrators of the Excise Departments in matters like these. - Evidence of BABU MAHENDRA CHANDRA MITRA, Kayasth, Pleader, Honorary Magistrate, and Municipal Chairman, Naihati, 24-Parganas


68. Yes, almost all the shops that I have seen are made use of as a place for smoking ganja. I do not know if charas is also similarly smoked. In my opinion these shops should not be allowed to be used as a place for smoking ganja or charas, because I think that this contributes to the spread of the practice. 69. As far as I am aware, wishes of the people are not consulted, at least in the places that I know of. I think local public opinion ought to be consulted.  - Evidence of BABU MADHAVA CHANDRA CHATTERJEE, Brahmin, Pleader, District Court, Dinajpur.


62. Not necessarily, as there are no habitual consumers of this drug. The people use it occasionally for intoxicating and medicinal purposes.
69. Never. The local public opinion ought to be consulted, and due weight given to it. - Evidence of SYED RIYAZ UDDIN QUAZI, Pleader, Bogra.


58. It is not working well. 62. The plant grows wild. 65. Taxation would not be unreasonable. 66. It should be according to price. 67. The producers of ganja, charas and bhang should be taxed. 68. There are separate houses. 69. People are not known to be consulted by Government. It is absolutely necessary that they should be consulted.  - Evidence* of BABU UMA KANTA GHATAK, Brahmin, Government Pleader, Bogra.


58. Working well, but some changes with regard to price as well as its penalties must be considered to meet the requirements of the people. 59. The use of liquor should be prohibited, as its use is against the principles of Hindu and Muhammadan Laws. Ganja and siddhi and charas are not restricted by the Shastras. The price of it, if lowered by decreasing its duty, will be beneficial to the lower classes of men, as well as some members of the respectable men who are accustomed to it. The use of liquor by respectable rich old families has brought ruin on themselves, and also brought on untimely death. The above statement is given from my long personal experience. 60. Yes, sufficiently controlled. 61. No modification necessary. It is sufficiently controlled. 62. No further control is necessary. 63 and 64. No. 65. No. Some decrease in duty as well as price of these drugs is very desirable. 66. There may be no objection if uniform rates of duty be imposed on the three different kinds of ganja, but decrease of price and its penalties are indispensably necessary. 67. Yes. I have already recorded my suggestions. 68. There are shops, but no houses or premises for their consumption. The present system is working well. 69. Yes, when necessary. 70. There are no facts regarding the importation or smuggling of hemp drugs from Native States. Yes, duty is paid. There is no general use of untaxed drugs - Evidence of PUNDIT RAKHAL CHUNDER TEWARY, Brahmin, Pleader and Honorary Magistrate, Diamond Harbour, 24-Parganas.


62. So far as bhang is concerned, I don't think so. 68. Such shops, if any, should not be tolerated for one moment. 69. Yes, local public opinion should be considered. I must close by saying that I am neither ganja, bhang nor charas consumer, nor do I believe that I have any reason to be biassed in my opinion. But I am certainly of opinion that if it were a question of votes, I should vote against ganja or bhang suppression. But as to charas, I think it will be very much better if that is suppressed. - Evidence of BABU SASADHAR ROY, Brahmin, Pleader and Honorary Magistrate, Rajshahi


58. No; I am not acquainted with the present system of Excise Administration, nor am I in a position to say how the system is working. 59. No; I am not acquainted with the present system of Excise Administration, nor am I in a position to say how the system is working. 60 to 67. Unable to answer. 68. Yes. Exception is only taken when any of those houses or shops are in the vicinity of any school, or respectable neighbourhood. The shops or houses should be at a respectable distance from the houses of the residents of the locality as well as from all public institutions and bathing ghats, etc. 69. The wishes of the people are seldom considered. Most of the people do not know at all that they have any right to make any objection. They passively submit to what is done by the authorities, but they invariably regard such shops and houses as a nuisance. Yes, local public opinion ought to be considered. 70. None that I am aware of. - Evidence of BABU JADUNATH KANJILAL, Brahmin, Pleader, Judge's Court, Hughli.


58. It is working very well. Government have done all that is required. 59. I cannot propose any thing new, although as a newspaper editor of 33 years' standing, I have been compelled to study abkari literature, as well as the numberless trash circulated by the anti-opiumists, who do not know what they are about, but dare teach our Government on a matter when Government do not require any instruction. 60. There is sufficient control. The only proposal I wish to make, and that for the purposes of revenue, is to reduce the duty both on ganja and opium that is consumed in the country. People must use them. If the law puts it beyond the power of the ordinary man to buy it, he must purchase stolen opium, and secretly cultivate the hemp plant. This is done. Only a very small portion of the contraband articles are detected by our preventive officers. The police connive at it; they are the only gainers. But the public treasury suffers. 61. Charas is not cultivated in my province. Here again high duty is doing its work. Almost every man coming from Nepal brings charas, which he clandestinely disposes of. Sentiment in these matters is unadulterated nonsense. 62. I have nothing more to add. Lessen the duty, I repeat. 63. I have no objection. The objections I have seen in parliamentary speeches and tracts are sentimental, and raised by people who do not know anything about these matters and the difficulties of our Government. 64. No. 65. I think I have sufficiently indicated my views about this matter. After giving my close attention to it my deliberate opinion is this Reduce the duty on country liquor, so that a bottle may not cost more than ten annas. Reduce the duty on ganja, so that one pice worth of it may serve for at least four smokes. Ditto as regards charas. The price of opium varies in different districts:2 1/2 tolas in Calcutta, 2 tolas at Madhopur, 4 1/2 at Patna. This is courting illicit manufacture and smuggling. Half of the liquors sold in Calcutta shops are contraband. 66. No. 67. I have given my views above. It is bad financing which leads to illicit manufacture and smuggling. One must throw sentiments to the windows; look facts as facts; have regard for our revenue; do nothing by which dealers may be induced to bribe the police and the preventives as is now done. Money is offered. How many men can resist the temptation ? Our Government should without ceremony tell the faddists of England to mind their own business and devote their superabundant philanthropy to the myriads of drunkards and wife-beaters at home and not trouble a Government who know their people and whose people know them. Practical statesmanship our Government know, and if any suggestion should be made, it must come from us, the people. 68. Lots. The regulations regarding them are as perfect as human ingenuity and experience can make them. 69. People are seldom consulted, though Government pay every attention to any objection raised by the people. The closing of the katcha distilleries proves how anxious Government are to consult the wishes of their people in this matter. I am strongly for local option. The time has come for it. 70. I have already said much on this head. I do not know if contraband articles come from any Native State; but this I know, that almost every train that comes from the North-West to Calcutta contains some men who have contraband opium with them. Some years ago, while at Arrah, a servant of the house where I was a guest blandly offered to sell me two seers of raw opium for four rupees only. These men certainly know how to dispose of these things. Here I again repeat, adjust the duty so as to sell opium at a uniform rate everywhere. Of course, some distinction must be made in places which produce it. - Evidence of BABU BEPRODAS BANERJEE,* Brahman, Pleader, Newspaper Editor, and Chairman, Baraset Municipality.


58 and 59. This system is good. I have nothing to say and suggest about its improvements. 60. In this District of Burdwan, cultivation of ganja can be made. This I say from experience. I don't find any reason of modifying the system. The ganja is produced in force for controlling the process of its preparation. 61. I don't know anything of it. I have ascertained from many consumers that charas cannot be prepared here. 62. I can't say anything. I have no experience. Having consulted many a person on the subject, I come to the opinion that use of bhang is altogether harmless and beneficial to the health of the consumers; so I suggest that cultivation of bhang by the public may be permitted, and bhang should be exempted from the operation of excise law, and at the same time a heavy punishment should be prescribed for making ganja clandestinely on pretence of making bhang. 63. I have no objections. 64. I have no objections. The existing regulations are good. In my opinion there is nothing to suggest any alteration. 65. In my opinion the taxation is not unreasonable. 66. When there are different qualities of different kinds of ganjas, in my opinion, different rates of taxation ought to be introduced according to the quality of each kind, on this principle that taxation would naturally make the price of this kind of ganja high; that would deter the consumers to use excessively, but moderately. 67. I have no objections. 68. I don't know. 69. No. The public ought to be consulted in my opinion. At present only neighbouring licensed vendor is consulted; if he would say that there is no objection, the new license may be granted. 70. I don't know.  - Evidence of BABU NOBO GOPAL BOSE RAI CHOWDHOORY, Kayasth, Talukdar and Judge's Court Pleader (late Munsiff of Nator), Memari, Burdwan District.


62. The cultivation of the hemp plant for the production of bhang should be, in no way, controlled. 68. There are shops or houses in the district where these drugs or their preparations may be consumed on the premises. This is objectionable for this reason that it tends to make the consumers more depraved than ever and that the shopkeepers make best of their position at the expense of these consumers. 69. No, never. Only the report of an excise officer is required to put up a shop in any new place. Sometimes these shops are very objectionable in some places. Public opinion or gentlemen of position and respectability should be asked before opening a new shop.  - Evidence of BABU ANANGO MOHAN NAHA, Kayasth, Judge's Court Pleader, Comilla, Tippera District.


63 and 64. Yes, I have. At present too much facility is given to the people for free purchase and use of ganja. Ganja should be more highly taxed and should be sold in head-quarters only. Now they are placed at the door of the people. 65. Ganja and charas should be more highly taxed, at least double the present rate. 67. Yes, I have. 68. I am not aware of. 69. Local public opinion ought to be considered. 70 I am not aware of. - Evidence of BABU KAILAS CHANDRA DUTTA, Baidya, Vakil, Judge's Court, Comilla, Tippera District.


67. The incidence of taxation falls rather lightly on the consumers. There is no reason why ganja should not be as highly taxed as the alcohol. An increase in the present amount of taxation may not be unwelcome, as it would augment the Government revenue and at the same time deter many people from ruining themselves by excessive use. 69. The wishes of the people are not consulted by the authorities, while granting license for opening a ganja shop in any locality, nor is it so much necessary, as the existence of such a shop does not in any way interfere with the public tranquillity.  - Evidence of BABU MOHINI MOHAN BURDHAN, Kayasth, District Government Pleader of Tippera.


62. Wild bhang produced in this district are not used by the bhang consumers, as their quality is not good. 63. I have no objection. I think bhang should be excluded from the list of exciseable articles, as it is generally used in this district for illness only. 64. No, excepting bhang. 65. I think the taxation is good, or else the number of consumers would increase. 66. I think different rates unnecessary. 67. I have no objection to the taxation of ganja and charas, but I think bhang should be excluded. 68. There are no such shops in this district.  - Evidence of BABU TARA NATH CHUCKERBUTTY, Brahmin, Government Pleader, Faridpur.


58. I consider the present farming system to be objectionable. The practice of selling the shops to the highest bidder has a distinct tendency to increase the sale of these drugs. 59. I think it would be an improvement upon the present system to fix the supply for each shop at a maximum quantity, according to the ordinary requirements of each place, and then to pay the vendors at a fixed and uniform rate of commission upon the sale. The sale prices of different species should also be fixed. By this method the habitual excessive consumption would be greatly minimised without appreciable loss in revenue. 62. I consider it neither feasible nor necessary to control the cultivation of hemp for the production of bhang. 63. Already answered. 64. I have no objections to the regulations as working under the present system. But I do think that charas, not being of such general use as ganja and bhang, ought not to be exported outside its native districts. 65. Yes; I think it is. In this connection I would take the liberty to add that the proposal made in certain quarters for taxing tobacco is unseasonable and improper in the extreme. Such a taxation would prove highly oppressive to the people. Besides, it would be unjust to punish a large number of innocent persons for the vicious habits of a few men. 66. The rates of taxation should vary in proportion to the difference in strength between these different kinds of the drug. 67. I cannot say that I have any. 68. There are in this district no licensed dens, as they are called, though I have reasons to suspect that consumptions are generally allowed on the premises of the licensed vendors. The licensed houses, wherever they may exist, should be closed, and the practice to which I allude should be vigilantly watched and vigorously put down. 69. It is to be deeply deplored that there is no local option in the opening of these shops. They are generally opened upon application of professional men and police report, which absolutely means nothing. I am strongly of opinion that intelligent local public opinion should always be considered in these matters. 70. I don't know.  - Evidence of BABU AMVIKA CHARAN MAZUMDAR,* Vaidya, Pleader and Zamindar, Faridpur.


58. I think the present system of excise administration in respect of the hemp drugs is working well on the whole. 62. The hemp plant is not cultivated for production of bhang in this district, but its cultivation should not in my opinion be controlled in any way. 63. I have no objection to the present system of wholesale or retail vend of ganja. To my knowledge charas and bhang are not sold here. 65. I think the duty levied on ganja is very high with reference to alcohol. I would suggest an increase of duty on alcohol, which is undoubtedly greater of the two evils. The change may act beneficially in the interests of morality. 66. In my opinion it is necessary that there should be different rates of taxation for different kinds of ganja. Chur or broken ganja should fetch highest duty as it contains no twigs.
67 and 68. No. 69. The police is asked to report before a shop is opened in any locality. I think local opinion should be considered on the subject. 70. Answer is "no" to the first and last questions. Duty is, I believe, really paid in respect to ganja used in this district. - Evidence of BABU BHUVAN MOHUN SANYAL, Brahmin, Government Pleader, Purnea


62. No; the cultivation should not be controlled. It will not be feasible. 68. In my province there are shops for the sale of these drugs. They may be consumed on the premises. The premises of these shops should never be allowed for consumption of these drugs. 69. The wishes of the people are never consulted or considered in any way before a shop is opened in any locality. Certainly in a matter like this, the local public opinion should always be taken and considered.  - Evidence of BABU AMRITALAL RAHA, Kayasth, Pleader, Judge's Court and Talukdar, Khulna.


69. No. Government ought to consult the opinion of the people before a shop is opened in any place. Generally a petition is sent to the Excise Collector, and a shop is opened.  - Evidence of BABU PARES NATH CHATTERJEE, Brahmin, Pleader, Satkhira, Khulna District


Question 69.[oral evidence]—Local opinion is never, as far as I am aware, consulted in the location of shops. On one occasion, I moved the Collector to change the site of a liquor shop which caused obstruction, and the Collector wrote to me to select a new site in consultation with the Excise Deputy Collector. So far as I know, no letter has been sent to me consulting me as to the location of the liquor shops for the year; but I do not like to commit myself on the point. I think the only way to get local opinion regarding the location of ganja shops would be to consult Local and District Boards. These bodies are likely to represent the ideas and wishes and interests of the rural population, and I think they generally would do so. The practice would differ from the theory, however, in some cases, but we are bound to suppose that this would be the case. Cretainly the gentlemen who sit on the Boards would not represent the views of the kahars and similar low castes who consume the drugs. Such classes are not, in my opinion, competent to judge of the mischief which the drug may do them. The Local Boards might set themselves to ascertain the views and wishes of the consumers, and in that case would be a sufficient representation of them.  - Evidence of BABU JADUBANS SSHAI, Pleader and Vice-Chairman, Arrah Municipality.


62. The cultivation of the hemp plant should not be controlled. It would hardly be feasible. 69. The wishes of the people are not consulted before a shop is opened in any locality. But that is unnecessary. The licensee is the best man to judge whether there is a demand for a shop in a certain locality.  - Evidence of BABU GURUDAYAL SINHA,* Kayasth, Honorary Magistrate, Municipal Commissioner and Secretary, Total Abstinence Society, Comilla, Tippera


63. No, nothing to suggest. 64. No objection. 65. I think the present taxation is reasonable. 66. There should be different rates. Flat should be taxed less for its woody branches which are thrown away. 67. No objection. 68. Houses or shops are not licensed. Licenses are taken out for selling in certain localities where houses or shops are erected at the pleasure of the licensee. 69. I do not think they are consulted at all. Local public opinion should be considered. - Evidence of BABU KAMALA KANTA SEN, Kayasth, Zamindar and Pleader, President of the Chittagong Association.


The principal arguments advanced against abolition of Government monopoly by the supporters of the ganja traffic are: (1) it will affect revenue which will have to be met by a fresh taxation; (2) it may create a spirit of disaffection among the jogis, sanyasis, fakirs, and mendicants whose number is not small; (3) ganja has the property of destroying malarial poisons and of neutralizing the effects of impure water; (4) it is a question whether the use of ganja is really doing more harm compared to other intoxicants; (5) abolition of Government monopoly will increase ganja consumption. The total abolition of the monopoly of the ganja traffic will indeed entail a loss of revenue, an amount compared to the total revenue "is not," as Sir Charles Elliott said in his recent speech at Naogaon, "so great that its loss would plunge the country into financial difficulties." So there need not be any apprehension of a fresh taxation to recoup the loss.   - Evidence of BABU PURNA CHUNDER MAITRA, Secretary, Band of Hope, Faridpur.


I should like to see ganja consumption restricted more than at present. That is my chief view in coming before the Commission. I do not wish for total prohibition. I do not know to what point restriction has gone at present. What I mean is that I want to see the drug less used by the people than I have seen it used in the places I know—Bhawanipur and Kalighat. Of other localities I could only speak from hearsay. Apart from Bhawanipur and Kalighat, all that I know about the consumption of the drug is what I have heard from the Secretary about the Chowbes of Muttra and the sanyasis of Budh Gaya. My personal experience leads me to favour restriction short of prohibition. This could be effected by making the drug less accessible to the people; but how this could be done is more than I can say. At present every one can get ganja or bhang for a pice or a couple of pice. I should like to see the drugs made dearer. Of the three I should like ganja to be the most expensive, next charas, and then bhang. If it were possible to prohibit ganja alone, I should like to see it done, leaving charas and bhang to be used under restriction; but I am not sure that it would be possible. I don't know at what price ganja is now being sold in Bhawanipur; but I sent a pice, and they gave me a bit of flat ganja about the weight of a quarter tola, enough for one chillum. I know one pice worth goes to fill a chillum. I don't know the price of charas or bhang, and I did not know the price of ganja till I sent for the one pice worth. I would like to see ganja made inaccessible to lunatics and youths up to 16 at least. Government should not allow them to use any. I am not prepared to say that Government should lock up all lunatics. I have seen the patient I was talking of going to the shop morning and evening. There should be a prohibition against sale to a lunatic. I have no other suggestion to make in regard to the administration.  - Evidence of BABU GIRISH CHANDAR DE, Delegate of the Total Abstinence Association, Bhawanipur.


Government testimony.—The Government of India, in the Orders of 29th April 1875, noted as follows:—"If the use of the drug (ganja) could be altogether suppressed without the fear of leading to its contraband use, such a course would be justified by its deleterious effects." The Secretary of State for India in Council in his Despatch of 17th June 1875, confirmed the policy. The Lieutenant-Governor of Bengal (Sir Ashley Eden) in a Resolution dated 7th August 1877, noted that "the Lieutenant-Governor has himself no doubt that the use of ganja, in any form, is injurious to the consumer." Mr. H. J. S. Cotton, Secretary to the Government of Bengal, in a Resolution dated 3rd October 1890, p. 7, notes on behalf of the Government as follows: "The decrease in consumption is satisfactory." Mr. C. T. Buckland, late a Member of the Board of Revenue, Bengal, L. P., in an article in the National Review (January 1884, p. 627) writes "it remains to be considered whether Government would not do well and honorably to clear itself from all connection with the cultivation and sale of such a noxious and abominable article (ganja)." Mr. E. V. Westmacott, late Commissioner of Excise, Bengal, in his Report on the Financial Result of the Excise Administration in the Lower Provinces (1890-91, p. 36) writes thus: "I think it must be held satisfactory that with decreased consumption of this most pernicious article " The cultivator.—The position of the cultivator of ganja is the first point to be carefully considered. Nearly three thousand families, mostly Musalmans, are occupied in the cultivation of ganja (E. A. R. 1892-93, p. 36). Some of these use their own capital, others raise the requisite money by borrowing at rates of interest varying from one-half to one anna per rupee per month (Kerr's Report p. 29). The hemp-cultivators have almost formed a separate class. The majority of them cannot read or write and not a single man among them keeps an account of the sums expended by him in growing the crop (Ibid.). Cost in Cultivation.—In respect of the cultivation, it has been ascertained that the raiyat is out of pocket by the following sums per each bigha of cultivation (Kerr's Rep. p. 29):— R a. p. Putting fresh earth on the ganja field 4 0 0 Oil cake 5 0 0 Fee of the Ganja-Doctor including his feed 3 6 0 Irrigating charges 6 0 0 Rent 3 8 0 Total 21 14 0 To these have to be added the wages of the servants of the house, the value of the labour of the members of the family themselves, the hire of the ploughs, the price of the cow-dung, the value of green plants, seed, etc. "The true cost of cultivation may therefore be stated in round numbers to vary from Rs. 50 to Rs. 60 per bigha." (Kerr's Rep., p. 29.) The cultivator has again to spend a further sum for the preparation of ganja. (Kerr's Rep. p. 30.) To all this is to be added the item of exorbitant interest that is to be paid to the money lender. (Kerr's Rep. p. 29.) N. B.—It is to. be noticed here that the above figures represent the costs which the ryots had to incur in or before 1876. Since then the value of labor, the price of articles, the rent of land have greatly increased. Produce.—Now, what is the average produce per bigha? In the Excise Administration Report 1892-93, p. 36, we find it is stated as 3 mds., 7 seers and 11 chittaks for the past 5 years. (Vide App. III A.) Cost in Manufacture.—The cost of manufacture of flat ganja is Rs. 4 per maund and that of round Rs. 13 per maund (Kerr's Rep. p. 30.) N. B.—It is to be noted here that the value of labour since Mr. Kerr noted it has considerably increased and the cost of manufacture must now be greater. Total cost.—-Well, then, the cost of cultivation and manufacture of flat ganja is Rs. 23-6-0 per maund, being Rs. 19-6-0 for cultivation per maund plus Rs. 4 for manufacture, and that of round ganja Rs. 32-6-9 per maund (being Rs. 19-6-0 for cultivation + Rs. 13 for manufacture per maund). N. B.—The interest on money borrowed by the cultivator is excluded from the above calculation. Wholesale prices.—And what are the prices these commodities fetch to the cultivators ? The average of 1892-93 (E. A. R. p. 37) of flat was Rs. 16 per maund and of round Rs. 20-4-0 per maund. But as the Report aforesaid speaks of a fall in the wholesale prices as the result of the promising nature of the season's crop, and as the ruling prices during 1891-92 and 1890-91 are spoken of in the respective Reports as abnormally high, we shall take the wholesale prices of 188990 (E. A. R. p. 20) although they are spoken of as "enhanced" wholesale prices. They are Rs. 22-8 for flat and Rs. 30 for round on an average. Loss.—In comparing the above with the cost of cultivation and manufacture, we find that the cultivators are losers in the case of flat ganja by 14 as. per maund (Rs. 23-6—Rs. 22-8-0) and in the case of round ganja by Rs. 2-6-0 per maund (Rs. 32-6-0—Rs. 30.) Further loss.—It must be here added that more than 15 per cent. of ganja produced are left unsold on an average every year (vide App. III B.), and this factor must be taken into consideration. There is another important fact. The cultivators do not unfrequently fall a victim to the cunning of brokers and wholesale dealers. The sale of ganja is not always made for ready cash. "Indeed, in the majority of sales only part payments are made and the balance promised to be paid on a subsequent date; but in many cases the debt thus left behind by the dealers is not entirely discharged." (Kerr's Rep., p. 34.) Sales are generally made through brokers. "Oftentimes a wholesale dealer finds another way of cheating the raiyats and that is by making the payment in kind. They give to the cultivators in lieu of cash, clothes, brass and belt-metal utensils, mats, fans, etc., for prices much greater than their ordinary value." (Ibid.) Further Proof.—So, the ganja cultivation is altogether a losing concern. We are confirmed in this opinion from the fact that ganja cultivation was formerly carried on in Jessore, in which district it has now ceased to be carried on. It can be safely inferred that the cultivation could not die out if any profit could be made out of it, as no profitable cultivation can die out. Why cultivate still?—It is positive that the raiyats are always all losers. But a question might be asked why do they then grow hemp at all? First, because the practice is hereditary and they do not care to reckon up their gain or loss by the cultivation. Secondly, because their wants are simple and the whole family strive to eke out a miserable living by their joint labour, and if they fail in it, they curse their fate and mourn. And thirdly, because they have not the power to reckon up their gain or loss, as they keep no account at all for doing it. To their rescue.-—It is the duty of the Government to come to the rescue of the cultivators. Tobacco, chillies, potatoes and several other crops can be grown on the rich highlands which are now devoted to ganja. The venture would prove very remunerative, especially as a railway now runs through the heart of the ganja-growing country, which would open up the market for any kind of valuable produce. There can be little doubt that the cultivation of ganja could be easily suppressed by the authority of Government. Mr. Buckland writes as follows: "The same power which enacted the law now in force prohibiting the cultivation of ganja without the license of a Government official, could easily prohibit it altogether, either directly or indirectly. If the licenses were withdrawn, the cultivation would cease, or if the conditions on which the licenses were granted were made more difficult, the cultivators would no longer care to apply for them." Vide National Review, January 1884. A Plea for Ganja.—It has been urged that if ganja trade were suppressed, the people who use ganja would then be compelled to have recourse to some other drugs of more deleterious character. It is not easy to suggest what these other drugs may be; but it is difficult to find any that would be more deleterious than ganja or equally so. Government loss.—The revenue that the Government derives from this "immoral trade" is little over 23 lacs a year (vide App. iii c). And surely for fear of being deprived of this revenue, the Government should not make any scruple to suppress the cultivation of ganja and prohibit the public sale of it in any form by law. Some provision might, perhaps, be made for the sale under medical advice of the produce of wild hemp through licensed chemists and druggists as some doctors assert that it has some medicinal qualities. Loss—how to be recouped.—The last point for consideration is how to recoup the loss of revenue to the Government resulting from the suppression of ganja and its subordinate varieties. It has been pointed out that the total revenue derived from the hemp drugs is nearly 24 lacs a year. An enlightened Government such as ours, it is to be hoped, is quite competent to devise means for the recoupment of a petty loss like this for such a cause as the emancipation of 80,000 people from the use of these degrading and demoralising drugs and for the welfare of the cultivators thereof who are being ruined by its cultivation. Suggestions.—A few suggestions may however be respectfully made:— I. Economy—A wise parsimony is one of India's greatest needs. Civil salaries of European officers in Egypt and Ceylon are much lower than those of European officers in India. With the increased facilities for communications with Europe and furlough, privileges, etc., the condition of service in India for Europeans has considerably changed. And surely the scale of pay and pensions of the said officers need revision. If, however, it is considered that Europeans cannot serve with a lower scale of pay, native agency in the Government might be more largely used and thereby an important economy might be effected, as they would not only serve with a lower scale of pay and pensions but also the large amount of payments for non-effectives will there by be greatly reduced. Retrenchment may also be effected in the cost of the annual migration to the hills and the subject of compensation allowances may be carefully considered. II. Duties on cotton goods might be reimposed. The price of the goods thereby raised would not bear hard upon the people. By this process the country products will also be protected. III. Income-tax might be increased raising the taxable minimum to Rs. 1,000. The rich are principally affected by it, the mass of the people are not. IV. Savings—By the suppression of the ganja trade, retrenchment in the excise establishment may also be effected. Not only reduction might be made on account of a good portion of the excise work having been taken away, but also certain number of Excise Officers might be profitably employed partly on excise and partly, say, on income-tax. The item of expenditure for rewards out of State funds for detection of offences against the Excise Law, would be diminished and at the same time an addition to the revenue by way of fines be made. Lastly—There is another aspect of the question. The suppression of the use of the hemp drugs would diminish, by about 30 per cent., the inmates of the State Lunatic Asylums, who are maintained at the cost of the Government. It may be reasonably inferred that the reduction of expenditure on this head on the State Lunatic Asylums would go some way to balance the loss of this item of excise revenue. - Evidence of the INDIAN RELIEF SOCIETY, Calcutta.


58. As it is, it is working well in suppressing smuggling and increasing excise revenue. 59. I have no idea of it. 60. It is not produced in this district, and I have no experience of ganja cultivation. 61. Charas is not produced in this district. 62. While there is separate plant called bhang grown in this district, production and cultivation of hemp for making bhang is not necessary here. 63. I have no objection in the present system of excise working, and therefore cannot suggest any improvement. 64. I have no objection on the present procedure of importation, exportation and transport of hemp drugs. 65. I have no idea of it; if increase of taxation could decrease the use of intoxicating drugs I would recommend increase of taxation, or I would suggest abolition of all taxes on all intoxicating drugs with stringent prohibitory law to suppress the use of the said drugs. 66. I don't see any reason to make different rates of taxation on different sorts of ganja while the properties are same. 67. I have no objection of the present method of taxing. 68. In my opinion licensed houses or shops vending the drugs should be few and far between. 69. I am informed the wishes of the people are consulted and considered before the license is granted to any locality. Excise officers make enquiries. Public opinion ought to be considered. 70. I have not come across any facts of importing or smuggling the drugs from any Native States to this place. The duty is regularly paid. and there is no untaxed drug as far as my knowledge of it goes.  - Evidence of BABU NITYA NANDA ROY, Teli, Merchant and Zamindar, Chittagong.


58. The rules are already stringent in this' district owing to restricted issue of ganja to the retail vendors and needs no administrative change at present. 59 and 60. I cannot suggest. 61. No charas here. 62. Ganja is already cultivated under Government control within restricted area. Bhang should also be similarly cultivated. 63. No, no suggestion to make.
64. No, the present administrative regulations are sufficient. 65. Present rate of taxation sufficient. 66. Yes, different rates for different kinds, hut the issue of chur ganja should be discontinued. 67. No. 68. Yes, but not consumed on the premises. 69. In this district local opinion is taken into consideration before opening a shop. Within municipalities the municipal authorities are consulted, but in villages public opinion is of little value. 70. No importation from Native States. Yes; no untaxed drug used here.  - Evidence of BABU NOBIN CAHNDRA SARKAR, Kayasth, Wholesale and retail vendor of ganja and bhang, Barisal.


58. Is on the whole working well. 59. I cannot suggest any improvement. 60 and 61. No experience. 62. I think the cultivation of the bhang plant should not be controlled. 63. No objection. 64. The system of levying duty on the deficit that occurs in transit is not equitable. Such duty is levied, although the seals of the bags are intact and there is no suspicion of tampering in the way. In the same manner any excess in weight due to absorption of moisture is also brought into account. This also is a cause of hardship. Duty is also levied on all deficiency in excess of 2 1/2 per cent. found at the time of annual stocktaking. In most cases this is due to natural causes, and the goladars should not be made responsible for it. 65. The taxation of ganja is heavier in comparison with bhang and country liquor. 66. There should be different rates, as they contain different proportions of branches in them. 67. No objection. 68. Ganja is consumed in the shop very rarely. Such shops do not cause any disturbance to people living in the neighbourhood. 69. Yes; such enquiries are made by excise sub-inspectors. Local public opinion ought to be consulted. 70. No information.  - Evidence of BABU DHANI RAM SAHA, Excise Vendor, Mymensingh.


58. Working fairly well; but it is still capable of some improvement. 59. Vide answer to question No. 63. 62. I think the cultivation ought to be controlled, as this interferes with the consumption of duty-paid bhang. 63. Under the present system of wholesale vend of ganja, the retail vendors do not get their supplies just when they require it, as ganja is issued by officers who have to go out on tour. It would be more convenient if the goladars were permitted to pay the duty on the entire quantity imported, and to issue ganja themselves just as is done from a wholesale imported liquor shop. 64. No objection. 65. The taxation of ganja is very heavy in comparison with bhang. The duty on ganja should be reduced. 66. There should be different rates, as they contain different proportions of branches in them. 67. No objection. 68. Very rarely consumed on the houses, so that no disturbance is caused to consumers.
69. Wishes of the people are consulted through the Excise Officers. 70. I am not aware of any such smuggling.  - Evidence of BABU RAM NIDHI SHAHA, Excise Vendor, Mymensingh


58. In respect of hemp drugs the present system is working well. 60. Not produced in this district, and we are unable to say if the system of control requires modification, 61. Similar. 62. It should be controlled in the way that cultivation of ganja is controlled. 63. License fees for wholesale vend may be imposed. 64. None. 65. No suggestion. 66. Yes; because the quantity fit for use is different. 67. None. 68. None, as we are told and understand. 69. Yes; the authorities do not open a shop where it is disliked; but people seldom have any opinion on this point. 70. No; all ganja used is taxed, but not bhang.  - Evidence of the DISTRICT BOARD, Patna.


63. There can be no objection to the system of vend of preparations of ganja, charas, or bhang if the system of vending is at all to be retained. But, as a rule, the system in injurious. 64. Cannot answer. 65. These drugs have been already too highly taxed. 66. Certainly. The existing rates are generally approved. There is scarcely any ground for the rates being different. 67. Certainly not. 69. Wishes of the people are never consulted or considered. Local public opinion ought to be consulted and considered. 70. Cannot say. -  Evidence of the DISTRICTB OARD, Mymensingh (Sub-Committee


58. I think it works well. 62. It is absolutely prohibited. 63. No. 64. The system seems to work fairly well. 65. Yes. 66. Yes, they are taxed according to the quantity of the consumable article contained in a given weight of the product, i.e., one kind has more stalk, etc., than another; the flowers, again, are more abundant in one kind than in another. 67. No. 69. No, I believe not. No, I see no occasion for consulting local opinion in the matter; the consumption of the drug is not very extensive. Question 59.[oral evidence]—Looking at the wide range of the retail price of the drug shown in the Excise Commissioner's memorandum, I should say that it is due to the competition of retail vendors; and also to the fact that the wholesale vendor can charge the retail vendor what price he likes. There is a disadvantage from the view of excise administration, in that the wholesale vendor makes a profit which might go to Government. It is advantageous in limiting consumption. If a system by which the price at which the wholesale dealer should sell to the retail leader was fixed it would result in reducing the profits of the wholesale dealer and secure a larger portion for Government. I should not object to the introduction of such a system. To assimilate the ganja management more closely to the opium system by Government taking over the crop and supplying the retail vendor direct, would be open to the objection that Government would appear to be identifying itself too closely with the business of selling the drug. There are other objections, viz., that extra establishment would be required, more work would be thrown on the Government officers, and some risk would be entailed. - Evidence of MR. G. GODFREY, Commissioner, Assam Valley Districts


58. I consider the present system as good as any that could be devised. The object is to make ganja as expensive as possible up to a certain limit and not to afford too great facilities to people to obtain it, and to reduce and restrict consumption, and this is obtained under our present system. 60. Not produced in the province; we import from Bengal. 61. Not produced. 62. None in the province. 63 and 64. None. 65. I can suggest nothing. 66. The different kinds of ganja yield different quantities of the drug, and so I think different rates fair; but more reliable information could be obtained in the producing districts. 67. None. 68. There are shops for the sale of ganja, but as a rule the ganja is carried home and used. I see no objection to these shops. 69. As far as possible we consider the wishes of the people. As a rule we only open new shops when a demand has arisen for ganja and indicated by application by the people. I would not go beyond this. 70. In order to a correct understanding of our difficulties in connection with the excise on ganja, it is advisable to realize our position in regard to
the hill tracts round and within the province, and to consider the system of administration in those tracts, and how far we are in a position to exercise any control over their inhabitants. All these hill tracts produce ganja, which is smuggled into the plains, so that, irrespective of excise ganja, we have in Assam to deal with the so-called wild ganja, which grows luxuriantly in the plains districts, and the hill ganja, which is surreptitiously imported. Assam is divided into three distinct portions: the Northern or Brahmaputra Valley, the Southern or Surma Valley, and the Hill districts—the Garo Hills, the Khasi and Jaintia Hills, and the Naga Hills—which comprise the range of mountainous country running east and west and forming the watershed between the two valleys. I will first take the Brahmaputra Valley, which consists of the districts of Goalpara (on both banks of the Brahmaputra River), Kamrup (also on both banks), Darrang (on the north bank), Nowgong (on the south bank), Sibsagar (also on the south bank), and Lakhimpur (on both banks). I will begin with the hills on the south side, on the borders of the Goalpara district. We first come to the Garo Hills. This tract of country was formed into a Deputy Commissionership in 1866, and is administered under special rules. Though we have excise shops in Tura, the headquarters of the district, we interfere as little as possible in excise matters with the people and have no excise shops in the interior. Proceeding east we come to the Khasi Hills. Here we only possess a few small villages, ceded to us under special circumstances. These include the tracts of land on which the stations of Shillong and Cherrapunji are built. The greater part of the hills consists of the territories of Native Chiefs in subsidiary alliance with the British Government. The people govern themselves through their elected rulers. They pay no revenue to the British Government, but we, on behalf of the Chiefs, manage their mines and forests on condition of recovering half the profits from these sources. Petty crimes are dealt with by the Chiefs and only homicide and a few other heinous offences are referred to the Deputy Commissioner. In these hills, outside the station of Shillong, which is inhabited by foreigners, we have no excise system and no control over the people in excise matters. They distil their own spirits. To a certain extent the Deputy Commissioner's influence enables us to check the importation of excisable articles into the plains, at any rate openly. Next to the Khasi Hills we come to the Jaintia Hills. Here the Deputy Commissioner has more control over the people. The Syntengs (the people of Jaintia) make their own spirits, and ganja grows in their hills. To the east of the Jaintia Hills are the Mikir Hills and the Naga Hills. The various Naga tribes extend southwards up to the great Patkoi Mountains and eastwards to the Noa Dehing River—a portion of the Naga Hills forms the district, which is known by that name. This tract is administered by a Deputy Commissioner under special rules, but we do not interfere with the people in excise matters. They make their own spirits and their "zu" (rice beer). We have shops in the station of Kohima, maintained for foreigners, and we discourage the Nagas from frequenting them. The remainder of the Naga tribes are practically independent. They are supposed to be British subjects, but it has not been found expedient to extend to them our laws and regulations; a small tract of Naga country is under our political control and is visited yearly for a few days by the Deputy Commissioner with a strong armed guard, but beyond that, and over the Nagas, on the south of the Lakhimpur district, we exercise no control whatever. In the Naga Hills ganja grows profusely. Proceeding further we come to the Khamptis and Singphos, over whom we exercise no jurisdiction; and thence to the north of the Brahmaputra Valley we have various tribes; first the Mishmis, against whom we sent an expeditionary force a few years ago; then the Abors, with whom we are now at war. Then proceeding westwards come the Miris, the Daflas, and the Akas, all savage races, who are practically independent. We consider that all the territory inhabited by these people is British territory, but we have never extended our control over the people in any way. In all these hills ganja is grown and is brought down to the plains —the Miris specially are great offenders. Passing on from these races we come next to Thibet and Bhutan, countries under recognised Governments, with whom we have treaties, but we have no control over the people, and their own Governments have very little more, and we have had many instances of ganja being brought down from both Thibet and Bhutan. I have completed my remarks about the various hills and the tribes on the borders of the Brahmaputra Valley. In the Surma Valley the conditions are very similar. We have in that valley two districts, Sylhet and Cachar. Sylhet has on the north the Khasi Hills and the Jaintia Hills, to which I have already referred, and to the south the independent State of Hill Tippera, and from all these hill tracts ganja is exported. In Cachar we have to the north the tract known as North Cachar, which is administered by us under special rules, and where we have a rough system of excise. On the east we have the tributary State of Manipur—a State where both opium and ganja are produced and surreptitiously brought down to the plains,—and to the south the Lushai country, which we took over in 1890, and where we have a Political Officer supported by a strong force, and where it is inexpedient to interfere in excise matters. It will thus be seen that in both valleys our districts are surrounded by hills inhabited by people over whom we have, with few exceptions, either absolutely no control or only a so-called political control. All these hill tracts are ganjaproducing tracts, and the drug is brought down to the plains and secretly sold or bartered for other commodities. This condition of things increases our difficulties in regard to controlling the consumption of ganja and makes it incumbent on us to be constantly on the watch and to encourage our police by a system of rewards to be active and energetic. Every seer of hill ganja introduced into the plains means not only loss of revenue, but an increase to illicit and secret consumption. I think much has been done in recent years to discourage both the use of the wild ganja and the importation of the hill drug, but it is evident from the number of prosecutions that illicit cultivation and importation still continue to some extent, and any neglect to watch and check the practice will, no doubt, lead to a considerable increase in both production and sale. Question 58.[oral evidence]—There is one point in regard to which there is some difficulty, viz., the uncertainty of the price at which the drug is sold to retail vendors. It has several times occurred to me. The difficulty might be met by selling by auction the right of wholesale vend with a fixed price for supply to retail vendors. The price should be fixed so high as to leave a considerable. amount of profit to the wholesale vendor on his transactions. The wholesale vendor is often the retail vendor. Thus, where there are thirty retail shops, the wholesale vendor may secure fifteen of them. I do not think that this would stand in the way of the introduction of the above system. I do not think that this system would affect the combinations among vendors referred to in Mr. Anderson's note, if (as I suppose) he means retail vendors. But no combination of wholesale dealers would be possible to raise prices if the price were fixed. As to combinations, I may add generally that I believe their effects are easily exaggerated. Some effort and care being applied, they are soon broken up. Question 69.[oral evidence]—I remember a case in which a planter, Mr. Spicer, one of the witnesses before the Commission, asked to have a shop removed from the neighbourhood of his garden. His request was refused, because the shop was an old one of eleven years' standing. The quantity of ganja consumed showed a real demand, and the situation of the shop was such that if the licit ganja was not supplied, illicit stuff from the hills would be consumed. This is the only case I can recall of a request to close a shop being refused. We get more such applications about liquor shops than about ganja. Mr. Spicer was summoned to appear here. But no letter or telegram has reached him apparently on account of his absence from the district. Question 59.[oral evidence]—About the experiment made in Shillong of issuing ganja from the Treasury referred to in paragraph (m) of Mr. Anderson's note. In March 1892, when the Deputy Commissioner of Shillong was settling his ganja shops, he found that bidders had combined and would make no proper offer. He knocked down the two Shillong shops for Rs. 680 for 1893-94 against Rs. 890, the upset price. I refused to sanction this. There is no wholesale dealer in the Khasi Hills and no warehouse. The retail vendors get their ganja from the Gauhati warehouses on passes issued at Shillong on payment of the duty there. In order to break up the combination, I issued a license free to an official retail vendor, who was not, however, a Government servant. I brought up the ganja at Government expense from Gauhati and issued it to the vendor at Rs. 29 per seer, a price calculated on the basis of average consumption yielding sufficient to pay the cost of the ganja, duty, carriage, and the average license fees. All profits went to this vendor. This system is still in force, but will cease from the 1st of April, as for 1894-95 a good settlement has been effected.  - Evidence of MR. J. J. S. DRIBERG, Commissioner of Excise and Inspector General of Police and Jails.


58. Our excise administration of ganja follows that of Bengal. When our neighbour raises her duty, we raise ours. The only branch of administration as to which we have any doubt or difficulty is that which relates to the number of licensed shops. We have largely reduced the number of shops of late years, as will be seen from the accompanying tables. The one drawback to doing this is that we make the use of the wild hemp more difficult to detect. The more vendors, the more spies, on the illicit use of ganja. Of late the police have bestirred themselves in investigating cases of the illicit use of the wild plant. But even to this day I have heard officers in charge of districts in which the plant runs riot declare that it is unknown to them. I cannot suggest any improvement in the manner we administer the excise of ganja in Assam. Any improvement (including the heroic step of prohibiting the cultivation of hemp altogether) must come to us through Bengal. 60. Neither ganja nor charas are produced in Assam. 63. I have no improvement to suggest so far as this province is concerned. 64. None whatever. 65. We are gradually raising the duty on ganja, and will go on doing so till its retail price assimilates to that of opium and liquor (see Table B). I think that is all that can or should be done. 66. Table A seen with Table B shows the necessity of differential rates on the three different varieties of the drug. But this is a matter on which the Rajshahi authorities will be most competent to speak. 67. No objection. 68. Ganja is not consumed on the premises in Assam. 69. If objections are raised, they are carefully considered. As a rule, petitions for the opening of new shops are more common than petitions desiring the closing of existing shops. 70. Bhang, as I have already said above, is largely smuggled into the plains districts of this province. The district tables appended to Table B will show the number of prosecutions for such smuggling. But the practice is very common, and at such bazaars as Tharia, Jaintiapur, Bholaganj, which stand on semi-independent territory, a fairly large trade is done in the dried wild plant. Successful prosecutions make the trade unprofitable for a time, but it always revives, and, like the hemp weed itself, never quite dies out. Question 58.[oral evidence]—The phrase "run riot" is a strong expression, but I believe the plant does grow commonly. I think it one of the weeds which commonly follow cultivation. Question 65.[oral evidence]—The standard of what is required to produce intoxication is what I had in my mind in this answer. Judged by this standard, ganja is still cheap as compared with alcohol and opium. I do not know what the physiological effects of opium are, but I know that it makes a man cheerful, and the native regards it as an intoxicant. I cannot say if the present excise rates on ganja have nearly raised the price of the drug to the standard. Apart from smuggling, I think it would be desirable to tax the drug up to the standard. The usual daily cost of an intoxicant to a habitual consumer would furnish a standard of comparison of the various drugs. Question 68.[oral evidence]—-There is no rule against consumption on the premises. Question 69.[oral evidence]—I have never had complaints, as well as I remember, from a tea-planter regarding the location of a shop in his neighbourhood. A planter told me this morning that he was not aware that any of his coolies took ganja. The planters know the habit of their coolies if they drink. The point I wish to bring out is that the habit of ganja-smoking does not obtrude itself on tea-planters. Question 70.[oral evidence]—Tharia, Jaintiapur, and Bholaganj are bazaars at the foot of the hills and in the tracts in which the excise regulations are enforced. I can give no estimate of the amount of trade at these places, I have not tried smuggling cases arising at those places myself, but I have heard of them. I was only in that charge for three months. Excise Memorandum.—I think it might be possible to fix the price at which the wholesale dealers should sell to the retail dealers, but it would be difficult to carry out in practice, because one could not tell that the wholesale dealer abided by the fixed price. In my present district, where there is only one wholesale dealer, the retail dealers are of course in his hands, but where there are more wholesale dealers than one, competition would come in. The experiment described in paragraph (m) of my Excise Memorandum was a temporary expedient for tiding over a difficulty, there being no wholesale vendor forthcoming. So far as I remember, the gola was taken over by Government and the ganja sold direct by Government to the retail dealer.   - Evidence of MR. J. D. ANDERSON, Deputy Commissioner; Officiating Commissioner of Excise.


The explanation of the wide range of retail price in different districts lies in the fact that retail vendors either compete or combine to keep up the price. The competition for retail licenses tends to raise the retail price of the drug; the competition in retailing tends in the opposite direction. In Gauhati the retail shops are mainly in the hands of the wholesale vendors, and the competition is really between the wholesale vendors, who have the whole business in their hands. There is no class of middlemen properly so called in this district. The high price in the Naga Hills is due to the special circumstances under which the shop is conducted. There is a constant passage of troops and coolies in connection with the roadmaking, and there is consequently a ready sale of the drug and competition for the shop is keen. I should consider it an improvement to assimilate the ganja excise system to that of opium, that is to say, that Government should purchase and store the ganja and sell it to retail vendors at a fixed price. There would be risk of loss through damage to the ganja, but the prices bid for the shops would fully compensate for this. We should know more about the traffic and consumption, check adulteration, and ensure the quality of the drug. I do not think the closer association of Government with the traffic need be regarded as any obstacle to the charge. We should simply be establishing a firmer control over the traffic. In this district no advantage would be gained by merely fixing the price at which the wholesale vendors should sell to the retail vendor, because there are enough wholesale vendors competing to keep the price from fluctuating.  - Evidence of MR. R. B. MCCABE, Deputy Commissioner, Kamrup.


58. Working well. 63. I think the price of ganja wholesale might be raised to double its present rate gradually. 64. No. 65. I think duty on all excise articles might be raised to double their present amount without real hardship. 66. Yes; according to quality of ganja drug contained in each kind. 67. Not to mode of taxation; the amount might be gradually doubled. 69. Any objection raised to a site is carefully considered. Local opinion should be considered.  - Evidence of MR. J. L. HERALD, Deputy Commissioner, Silchar, Cachar


58. I consider it to be working well. 62. I doubt if it would be feasible, as the hemp grows wild luxuriantly in all parts of the Assam Valley. 63. No objection. 64. No objection. 65. I am not sufficiently acquainted with the comparative strength of each drug to say if the taxation on each is reasonable with reference to the others. We generally follow the lead of Bengal in fixing the price of flat and round ganja and of charas; but my impression is that the price now charged has a considerable effect on consumption, far greater than the effect produced by the taxation imposed on alcoholic drinks. 67. No - Evidence of MR. E. A. GAIT, Director of Land Records and Agriculture, Assam.


Question 70.—I never heard of the import of hemp from Bhutan. I have no reason to suppose that it is imported. The Goalpara and Kamrup districts border on Bhutan. Opium is, I know, supposed to be smuggled into the province, but I have never seen it, except from the neighbouring districts of Bengal, where the duty is lower. I do not believe that ganja is smuggled. The Kacharis do not, I believe, use ganja; they use rice heer.  - Evidence of MR. G. GORDON, Deputy Commissioner, Goalpara.


58. I think it is working well. 62. No; I do not think it is necessary here. Bhang is not cultivated in this district. 63. No. 64. No. 65. Bhang and charas are not in use here. In my opinion the taxation of ganja is not up to time unreasonable, with reference to alcoholic or other intoxicants, so far as this district is concerned. 66. Our supply comes from Bengal alone, and there are different rates of taxation for the different kinds of ganja brought therefrom, our rates being fixed by the Commissioner of Excise, Assam, with the approval of Government. 67. No. 68. No; not in this district. 69. Yes; when an application is received for a new shop, the police are required to report when necessary. No new shop can be opened without previous sanction of the Excise Commissioner. Yes; I think local public opinion ought to be considered. 70. No such importation; but hill ganja is sometimes smuggled from the Khasi and Jaintia Hills and Hill Tippera. Care is taken for detection, and, when detected, offenders are punished.  - Evidence of ISHAN CHANDRA PATRANAVISH, Bengali, Brahmin, Extra Assistant Commissioner, Sylhet


58. I am not acquainted with the system of excise administration. 63. Yes. The existing system of issuing of these drugs in large quantities by vendors to consumers is highly objectionable for the reason that persons using these drugs have a tendency to indulge themselves in it as much as their means can afford. In my opinion some hard-and-fast rules should be introduced, and measures adopted to diminish the consumption of it, which, like all other intoxicating drugs, is more or less injurious to health. 64. I have no remark to make on this. 65. Yes. 67. No. 68. None. 69. No. According to distance from one shop to another. In no case is a shop located in a place within the radius of 100 yards from the other. I think local opinion should be considered. 70. No. Yes; duty is paid in British India, but not in Manipur State (where I am stationed), where the Excise laws have not been enforced. No; there is no use of untaxed drugs that I am aware of.  - Evidence of LATCHMAN PERSHAD, Kayasth, Hospital Assistant, Manipur State


63. At present licenses for selling ganja are granted, without paying due regard to the wishes of the people of the locality, where shops are started for selling them in retail. There ought to be local option. 68. Yes; there are some. These houses, as far as practicable, ought to be very few and far between. For people are tempted to smoke excessively. 69. Not at all. Local opinion ought to be considered.  - Evidence of KRISHNA CHANDRA SANYAL,* Brahmin, Medical Practitioner, Sylhet


58. I have not done any excise work here, so I cannot give any opinion as to the excise administration, nor can I offer any suggestion for its improvement. 60. Ganja is not produced here, so I cannot give any opinion on this. 61. Charas is not produced here, so I cannot give any opinion on this. 62, 63 and 64. I do not know anything about it. 65, 66 and 67. I can't say. 68. I cannot give any opinion. 69. I think it is necessary to consult the wishes of the people before a shop is opened in any locality. I do not know whether any steps are taken for this purpose. 70. I do not know.  - Evidence of MOULVI ABDUL KADIR, Honorary Magistrate and Zamindar, Sylhet.


68. Yes. 69. So far as I can gather, the people are not consulted as to the site of a shop proposed to be opened if sold by public auction. I certainly think local opinion ought to be considered - Evidence of MR. F. C. MORAN, Tea Planter, Khoniker, Lakhimpur.


60. Yes. 63. I think the licensed shops should not be allowed near to coolies' houses. They should be at least two miles away and confined to only the large bazaars. 68. I would never allow such houses. It is bad enough when it is sold for consumption elsewhere, but it would be a great deal worse if ganja were consumed where sold. 69. Wishes of the people are never consulted. There is a shop at our shipping ghat at Tikulpar, and the manager of Tikulpar and every manager whose tea is shipped there must consider it a nuisance.  - Evidence of Mr. ALFRED SPICER,† Tea Planter, Pathecherra, Cachar


I would not advocate the total prohibition of ganja. So far as my experience goes, I am of opinion that it should not be interfered with. It would be a pity for the sake of a few who take it to excess to deprive the labourer of an indulgence and to him a luxury. There would be a feeling of discontent if those who used the drug were deprived of it. It would be difficult for me to suggest any measure to restrict the sale of the drug; I believe the present system to be a good one. It would be practically impossible to limit the sale or use of the drug, and I doubt if the licensed vendor would endeavour to prevent it. Those using the drug could easily purchase the quantity required by evasion and fraud. I hope the above will be of some use to you.  - Evidence of MR. G. A. DOLBY, Tea Planter, Modopee, Tezpur.


63. In the present state of society the existing system is the best. 68. Yes. There are licensed shops. They ought to continue.  - Evidence of MASDAR ALI, Pleader, Sylhet.


58. I think the present system of Excise Administration in Assam in respect of hemp drugs is on the whole the best, and, in my opinion, it is working well. The weak point in it is that Government does not take middleman's profit. In this respect it is capable of improvement. 59. In my opinion the Excise system is capable of improvement from financial point of view. Government should take middleman's profit.  - Evidence ofB ABUA BANTINATHD ATTA, Kayastha, Pleader, Judge's Court, Cachar


68. There are retail ganja shops in almost all the important hâts, where it is freely consumed. I object to such consumption, as it induces people who never tasted it to give it a trial. 69. Wishes of the people are never consulted to my knowledge. Local public opinion should be considered. Before opening a new shop subordinate police officers are requested to make a report and these officers know how to report on the matter.  - Evidence of BISHUN CHANDRA CHATTOPADHAY, Pleader, Dhubri


58 and 59. The duty may be further increased. 60 and 61. Not necessary to be answered. 62. So far as I am aware, bhang is not cultivated anywhere. 63, 64 and 65. I have not studied this question. 66. No, it is not necessary that there should be different rates. 67. No. 68. I am not aware. 69. Not in the least. It is certainly desirable that local public opinion should be considered. 70. I am not aware.  - Evidence of KAMINI KUMAR CHANDRA, Kayastha, Bengali, Pleader, Silchar.


58. The excise administration is capable of a good deal of improvement. 59. It is capable of improvement by prohibiting the sale of these drugs to young boys, the injuries suffered by whom have already been expressed. 60. Ganja is not produced in my province. 61. No charas is produced in my province. 63 and 64. Nil. 65. In my opinion the taxation of these drugs should be enhanced so that the consumers are not encouraged. 66. There should be different rates according to their demand. 67. The present method is not objectionable. 68. In all the houses or shops licensed for the sale of these drugs, these drugs are consumed on the premises. In my opinion this system is pernicious. 69. Before a shop is opened in any locality the wishes of the people are neither considered nor consulted. The shops are opened according to the demand. Local public opinion ought to be consulted where it is expected to be intelligent. 70. There being no Native States in the vicinity of this province, there is no importation or smuggling of hemp drugs from this source. Importation of these drugs is suspected from beyond the inner lines from hill tribes by the savage tribes residing in the British territories, such as Miris and Deories.  - Evidence of GANGADHAR SORMAH, Brahmin, Pleader, Jorhat


63. I have great objection to shops being opened where ganja can be smoked on the premises. It must be a great temptation to men to spend their time idly there. If sold at all, it should not be consumed on the premises. 68. Yes, and I think they should all be done away with. 69. I do not think people's wishes are consulted at all, and should they be, no shop would ever be opened.  - Evidence of REVD. J. P. JONES,* Missionary, Sylhet.


58. It is capable of improvement. 59. Reduce the number of shops and increase the duty. 60. No ganja cultivated in my district (Darrang). 61. No charas produced in Darrang. 62. Cultivation is already prohibited in Darrang. 63 and 64. No objection. 65. The taxation ought to be increased in each kind. 66. It is necessary that it should be increased according to the quality of the drugs. 67. I have objections, as I am of opinion that the use should be gradually abolished. 68. No. 69. Probably considered. 70. Can't say.  - Evidence of HARIBILASH AGARWALA, Merchant, Tezpur.


58. As far as I know, the present system of excise administration in respect of hemp is working well, and it requires no further improvement. 60. No ganja is produced in this province. 61. No charas is produced in this province. 62. There is no cultivation of hemp plant in this province. 63. In my opinion the present system of wholesale and retail vend requires no improvement. 64. No. 65. The taxation of ganja is, I think, reasonable. 66. Yes; chur or broken ganja contains no stick, whereas the flat contains enough sticks than the round; therefore in my opinion different taxation is necessary for these three kinds of ganja. 67. No. 68. There are only shops licensed for sale of these drugs. In my view this kind of licensed shops are better than any other system of selling ganja. 69. Before opening of a ganja shop the wishes of the people are not consulted. When anybody applies to open a new shop in certain locality, the district Officer considers it; and after getting sanction of the Excise Commissioner, he puts it to auction on some datesf ixed,a nd sells it to the highest bidder. Before opening a ganja shop, local public opinion is necessary. 70. It is not known to me that hemp drugs are imported from Native States. In my opinion the duties of the ganjas used are really paid. I don't think that there is any general use of untaxed drugs. Question 59. [oral evidence]—Since the hemp drugs have such bad effects on consumers, I think it would be well to prohibit their use, and I think this ought to be done. I think spirits also should be prohibited. So far, Assam has not suffered severely from liquor. It will in time. The effects of ganja are already felt. The man who takes ganja goes crazy and annoys his neighbours. I have known one case of that, apart from knowing that there are cases in the asylum. Ganja gives rise to murder and assaults. The ganja-taker becomes suddenly excited and does these things. I have seen assaults two or three times in this town by people whom I knew to be ganja-smokers. When I was steamer agent at Birnath, the Doms, my neighbours, used to quarrel under the influence of ganja, and we had to drive them off. The fact that such assaults and other offences arise from ganja does not come out in trials, because the people do not plead that they have taken the drug. They prefer to say that they never committed the offences at all. The Doms do not drink liquor, nor do the Haries. The Doms at Birnath did not drink liquor. I knew they smoked ganja, because I saw them smoking as I passed along the road, and when they quarrelled, the neighbours said they were ganja-smokers. I have never heard of any advantage from ganja-smoking. Question 69.[oral evidence]—I never heard of any shop being prevented from being established in consequence of people having objected. If the raiyats were asked, they would often object. The Assamese generally eat opium. The foreigners drink and smoke ganja. The two classes are at enmity.   - Evidence of LAKSMIKANTA BARKAGATI, Brahma, Secretary to the Tezpur Raiyats' Association, Tezpur, Darrang.


58. Working well, but capable of improvement. 59. In my district the ganja golas are in charge of traders who are not above scruples. In my opinion the principal medical officer of the district should be authorized with the charge of the drugs, or they may be kept in Government treasury like opium. 60 and 61. Not produced in Assam. 62. Not cultivated in Assam 63 and 64. I recommend for the total prohibition of the hemp drugs, and therefore need not discuss this question. 65. Vide answer to question No. 63. 66 and 67. Discussion not necessary. 68. Yes. Considering the illiterate, immoral, and low class of men who are licensed to sell these drugs, there is nothing to prevent people consuming them on the premises. 69. Never consulted to my knowledge, and no measures are taken. By all means local public opinion ought to be thus considered. 70. Do not know. Question 68.[oral evidence]—Consumption on the premises is forbidden by the Government, but the retail vendors are not a high class of men and therefore permit it. By "immoral," I merely mean that they are not of a very high tone. Question 69.[oral evidence]—I think local option is feasible. Public opinion can be taken through the Upper Assam Association. The raiyats are fully represented, but not the coolies. Their interests are taken up by Tea Associations. There are local boards; and I think the opinion of the public can be ascertained through them.  - Evidence of RADHANATH CHANGKAKOTI, Brahmin, Proprietor, "Radha Nath" Printing Press; Municipal Commissioner; Member of Local Board; Secretary to the Upper Assam Association; and Secretary to the Government Girls'  School, Dibrugarh


58. Working well. 60. Ganja not cultivated here. 61. No. 62. Present control is good enough. 63. In my opinion, if ganja is not altogether abolished, the present system is good. 64. Existing regulations are quite satisfactory. 65. I prefer heavy taxation to lessen consumers. 66. No. 67. No. 68. Yes. I have nothing to object against them.  - Evidence of JADU RAM BOROOAH, Assamese Kayasth, Local Board Member; Pensioned Overseer, Public Works Department, Dibrugarh


58. I think the present system of Excise Administration in respect of hemp drugs is working well. It has been gradually elaborated, and is now well understood. Does not give more trouble than any system of strict control that can easily be conceived, and brings in a very considerable revenue. Some of the best officers in the province have at one time or another in the last dozen years held the office of Commissioner of Excise, and they have done their best to establish a good working system. I cannot say that I have been able to give that minute examination to the de-tails of the system that would enable me to point out small blots or weaknesses, but that will not be expected from me, nor am I prepared to suggest that the present rates of duty should be enhanced or reduced. In spite of my belief that the use of ganja is on the increase, I am not prepared to say that it would be better that more alcohol should be consumed and less ganja. I do not think that the information collected up to date warrants us in dogmatizing on the matter. The other questions in this chapter have either been answered infer- entially in answers already given, or do not require an answer from me. But I would like to say in conclusion that I think in the case of a drug so generally consumed as ganja the system of taxation and of control should be, if not uniform for all provinces, yet on somewhat the same lines, and that the tax should fall, if not at the same rate, still at such rates that there should be no great temptation to smuggle from one part of British India into another. - Evidence of MR. J . W. NEILL, Judicial Commissioner, Central Provinces.


58. I have only got a general knowledge of the system of excise in respect to drugs in these prov -inces, and believe that it is working well. 60. I consider that under the system in force in these provinces the cultivation of the ganja -bearing plant and the process of its cultivation are sufficiently controlled; and I believe that if any further restriction were placed on cultivation, it would lead to a great deal of smuggling from the neighbouring Native States. - Evidence of COLONEL M. M. BOWIE, Commissioner, Nerbudda Division


58. No improvement on the existing system suggests itself to me. 60. I think it is sufficiently controlled in the Central Provinces Khalsa.63. I have none. 64. No. 65. I do not think any alteration is required at the present time, or until it is shown that con -sumption is decidedly on the increase ; or that a higher tax can be imposed without fear of i n-ducing illicit cultivation and smuggling. 67. No. 68. Consumption on the premises is prohibited in the Central Provinces. 69. I believe that any objections made always receive consideration, and I think this is proper. 70. I am not very familiar with the latest developments in this respect, but I believe that smuggling from the feudatory States of the Central Provinces has very greatly diminished. The Central Provinces are exposed to smuggling from the Native States on the North-Eastern and Western borders, also from the Tributary Mahals and the Chota Nagpur States under the Bengal Government. Some of our districts, particularly ardha, are also exposed to smuggling from Berar. There can be no doubt, however, that during the past ten or twelve years great progress has been made in the Central Provinces in the substitution of the taxed for the untaxed drug. - Evidence of MR. F. C. ANDERSON, Officiating Commissioner, Nagpur


58. I consider it to be working well: and am not prepared to make any suggestion for its im -provement. 60. I do not think that the system requires modification. 62. I am not aware that any such measure is called for. 63. None. 64. None. 68. No. See conditions of retail license. 69. If any objections are preferred, these are considered. But in an agricultural province like this, the people are not given to formulating their views in speech or writing; and "public opinion" can only be arrived at by laborious research.
Further note put in by Mr. Laurie.
I have been asked to give my views as to (4) The necessity for further restriction or for prohibition, and generally for any change in system (question 35, and chapter VII) regarding Administration. ) Holding, as I do, that the consumption of ganja is limited and is, on the whole, innocuous; I see no necessity for prohibiting its cultivation or sales. I do not think it would bear much increase in taxation, as if it becomes too costly, the labourers will take to tari, or mohwa-spirit or some other stimulant. What is wanted is greater identity between the systems in force in different provinces and between these provinces and Berar, so as to decrease opportunities for smuggling, and to ensure our raising the highest possible revenue from the taxed drug. It is unnecessary for me to detail and compare the systems in force for taxing the drug in (a) the Central Provinces, (b) the Bombay presidency, (c) Berar, as an account of this is given in the printed memorandum on excise arrangements in respect to hemp drugs in the Central Provinces which is before the Commission ; but it is well known that the free cultivation and low price of ganja in the Bombay Presidency is a source of danger to the revenue from taxed ganja in the Central Provinces and in Berar. Again, it is somewhat anomalous that our Khandwa godown should, without any official recognition of the fact beyond what is to be found in inciden-tal correspondence, be the source of supply for the North-Western Provinces Government con-tractors. Till I obtained the Chief Commissioner's permission to levy a " Registration fee " on all ganja purchased at our godown, this insti-tution existed (at our sole cost) more in the inter-ests of the North-Western Provinces Government than in our own. Traders must procure the drug much more cheaply at Khandwa than elsewhere, or they would not incur the cost of transport by rail for so many miles. If the subject were gone into, a revised system of export or warehouse dues might be arranged. Part of the money now expended on carriage might come into the hands of Government under a system of provincial cul- tivation and provincial storehouses.
 - Evidence of MR. L. K. LAURIE, Officiating Secretary to the Chief Commissioner, General Department.


58. I think it works well. 60. Quite sufficiently. 63.. No. 64. No. 65. Yes. 67. No. 68. No. 69. Any local representation is, and ought to be, considered, but it is not solicited. 70. There is smuggling of course, and always will be, until the retail price of hemp drugs in Native States is assimilated to the price in British territory. But it is not I believe extensive and it is decreasing. - Evidence of MR. A. C. DUFF, Deputy Commissioner, Jubbulpore.


56. I am not in a position to offer any criticism on the ganja administration of the province. My knowledge of it extends to only one year's expe -rience, and during this time I have had to pick up the threads of such a number of subjects in the general administration that I have paid no atten-tion to the special subject of ganja, its taxation, and control. I shall therefore pass only a remark or two on one or two of the points raised. 60. The law of supply and demand alone deter -mines the extent of cultivation of the ganja plant in Nimar. Licenses for cultivation are given to as many cultivators as apply. A temporary es-tablishment is maintained at Government expense when the crop ripens to supervise the cutting of the crop and the preparation of the pressed ganja. From enquiry I find that the control is considered sufficient, and that there have been no complaints against the system. 63. I have no remarks to offer as to the general system. A correspondence is at present going on regard -ing the system of purchase of ganja at Khandwa by the agents of the wholesale vendors. The system is briefly this. The agents buy up the ganja on their own account as a speculation, frequently while the crop is standing. The whole outturn thus passes into the hands of about a dozen men, who are then able to run up the price at the Khandwa storehouse to all except the wholesale vendors by whom they have been specially retained. Example : " Ais the agent of B, a wholesale vendor. A buys up 400 maunds of ganja on his own account. Out of this he can always supply B at a reasonable rate ; but if an outside vendor, say from another province, sends to Khandwa for ganja, he has to pay a corner price as A is in league with the other Khandwa agents, and all have combined to raise the price." The existence of the corner in no way affects the vend of ganja, as far as this province is concerned. The wholesale vendors have to supply the retail vendors at Rs. 3 per seer, so that the latter, and through them the consumers, are not affected. But wholesale vendors from other provinces un -doubtedly find it difficult to make purchases at Khandwa. 65. I have no remarks to offer. 68. The consumption of ganja on shop premises is forbidden in the Central Provinces. 69.The choice of locality for a shop rests usually with the authorities. In the present state of public opinion no measures are necessary in this respect. 70. Ganja smuggling from the Native States which border on Nimar, though it no doubt exists, has never been a prominent matter in Nimar. While opium smuggling cases are of daily occur
rence, ganja smuggling is almost unknown to the courts. It is the general opinion, however, that a good deal of petty smuggling exists, and this is probably correct when it is considered that ganja is sold in Indore territory at about 1/10th the price in the British districts.
 - Evidence of MR. B. ROBERTSON, Deputy Commissioner, Nimar


Question 59 —I do not think the duties are too low; but I think the number of shops might be re -duced. I am not prepared to indicate in what districts that change should be made; but if re -striction is desirable, it should take that form. If the people had to go very far for their drug, it might be necessary to allow them to keep a week's supply for personal consumption in their posses-sion. I have no suggestion to make regarding change of the present excise arrangements, which I consider satisfactory, since they do not tend to encourage increased consumption of the drugs. - Evidence of KHAN BAHADUR AULAD HUSSEIN, C.I.E., Assistant Commissioner and Settlement Officer, Jabalpur


I cannot say whether ganja or alcohol is more connected with crime. But my experience leads me to say that in the Assam Valley districts it will be found that both these intoxicants are sometimes associated with crime, especially in tea gardens. There has been considerable increase in the taxation of ganja both here and in Assam. I do not think the limit has been reached. I cannot say precisely how the taxation of ganja compares with that of other intoxicants. But I think it could still be increased. I have, however, no definite proposals to make. I do not think there is much smuggling of excise ganja. Government keeps careful watch over stuff kept in the local golas, of which Government keeps one of the keys  - Evidence of MR. H. V. DRAKE-BROCKMAN, Officiating  Commissioner of Excise, Central Provinces


I should like to draw attention to one detail of the present system of levying the duty on ganja. It is a sound fiscal principle that duties should be levied at as late a stage as possible. The duty on ganja exported to the North-Western Provinces is paid at Naogaon. It ought to be levied at bonded ware-houses in the North-Western Provinces, as is done in Bengal. Further, originally in this province there used to be several centres of production These were all concentrated at Naogaon. This has been found to be an excellent measure, of which the advantages are— (1) economy of establishment; (2) diminution in smuggling: wherever there is cultivation there is smuggling; (3) improvement in quality of the produce by one cultivator learning from another; (4) uniformity of taxation. The question arises, should this system not be extended by having one single centre for all India, as in the case of opium, or at least for all Upper India, including the Central Provinces. Cost of carriage is a main objection to concentration, but this does not enter very largely into the matter of ganja from its high value in proportion to weight. The duty alone on round ganja is R290 a maund, to which has to be added the intrinsic value of the drug. The Commission of course would have to select a suitable centre. But there is no doubt that the area for production could easily be supplied. The. area under cultivation in Bengal is trifling, viz., 800 acres yielding 8,000 maunds of ganja. Experience shows that this amount could easily be doubled, and I have no doubt that the wants of all India could thus be supplied from Naogaon without any great increase in cost of establishment. I have not studied the question of production or cultivation in other provinces. Nor have I considered the question of prohibiting production elsewhere than at the centre. But the experience of Bengal shows this to be feasible. I do not express any opinion at present as to total prohibition. That is the question now under trial before the Commission. I have observed a proposal in the replies to the Commission's questions by the officer in charge of the Rajshahi tract, that Government should purchase the ganja from the cultivator, store it, and distribute it to the distant districts where it is consumed. If this proposal is under the serious consideration of the Commission, I desire to record an opinion against it. It would be impossible for Government to purchase from the cultivators as private dealers do. The experience gained by the State in regard to opium, and by planters in regard to indigo shows that when there is only one purchaser in the field, he must make his arrangements before the crop is grown on a system of contract and advances. I do not think it desirable to undertake such a business in regard to a commodity for which there is so little demand, merely for the object of intercepting the moderate profits now made by the wholesale dealers.
The system by which the right of wholesale vend is put up to auction with the condition that the wholesale dealer shall sell to the retail dealer at a fixed price is new to me, and I am not prepared to give an opinion on it at such short notice. Appendix to MR.N OLAN'Se vidence. The consumption of ganja is much smaller than is popularly supposed. All Bengal, Assam, and a part of the North-West Provinces, with a population of about 80,000,000, is supplied from an area of 800 acres, the standard size of a single tea garden. The gross amount grown averages 8,000 maunds a year; but much of this is wasted before issue, so that duty was paid last year on 5,451 maunds only. Even of this a considerable part consists of twigs, separated before consumption, so that the quantity smoked cannot exceed 4,000 maunds. If every one smoked, the allowance a day for the individual would be1 /2281p art of a tola, or the twelfth part of a grain. At the rate of a tola a day, which tobacco-smokers would think moderate, 36,000 persons would consume all the ganja produced for 80,000,000. It follows from these figures that the habit must be rare or the doses taken homœopathic, producing no organic effect.  - Evidence of MR. P. NOLAN, Commissioner,R ajshahiD ivisision


58. It is working well, but for the smuggling from the Gurjat States. 59. I do not think that the above defect can be removed, except by greatly strengthening the preventive force. 60 and 61. I have no experience of the details of the Government control over the production of the excisable article. I do not believe it possible to prevent the production of the hemp plant either wild or otherwise. 62. It is already controlled, as far as possible, in Bengal, Behar and Orissa, though I doubt whether the control is effectual. In the Gurjats it is uncontrolled, and could not be controlled. 63. I have no objection. 64. None. 65. I believe it to be reasonable. 66. Undoubtedly each class of ganja contains a different proportion of intoxicating properties as compared with its bulk. Whether Gurjat ganja should be taxed as at present less than Rajshahi appears questionable; but the evidence on the subject is conflicting. 67. None. 68. None in Orissa so far as I am aware. 69. Such are the orders of Government, and I believe that they are obeyed. Excise Officers make local inquiries. I think local opinion should be considered in these matters. 70. The smuggling of ganja from the Tributary Mahals is now under consideration of Government. I believe that it is impracticable to prevent its cultivation owing to the nature of the country, and there are political obstacles to this being done. All that the British Government can do is to prevent its import. Should any policy of suppressing the use of the hemp drug be adopted, the Tributary States of Orissa will always afford facilities for smuggling, which will, I think, be beyond the power of the British Government to check. Question 62.[oral evidence]—In the first part of this answer I mean that there is control over cultivation. Cultivation is prohibited. I have, I remember, acquitted men on the ground that the plant was wild, and I believe that the law is simply that cultivation alone is prohibited. I do not think the prohibition can be effective in view of the enormous area under control. I have (I am quite certain) convicted men for cultivating the plant, though I have never myself seen it cultivated in Bengal. It was always a question as to whether the plant was wild. I could not distinguish between the wild and cultivated plant. I would take evidence as to the circumstances and also the evidence of experienced persons. I am unaware of any Circular having been issued by the Excise Commissioner regarding the extirpation of the wild plant. I may have been at home at the time. In my answer No. 9, I have said that I have no experience of cultivation in the Tributary States. This was written in October last. I started on tour in November. I have since seen fourteen out of the seventeen States. I think that the plant does not exist except in the baris. It certainly is not cultivated in fields. I feel sure that it does not exist except in baris (enclosures). I should have seen it if it did. My view is confirmed by that of men like Mr. Wylly who spent years in the States not touring through them, but residing in them. He says: "There may be some wild growth of ganja; but it must be of a very limited nature, as in all my wanderings I have seen none such, though I have looked for it and asked to be shown it." The Raja of Boad says: "It is rarely found in a wild state." The Manager of Barambha says: "It is never found in a wild state." This is quite in accordance with my experience and opinion. As to the extent of the bari cultivation, I cannot give accurate information as to the amount of supply available. The ganja I saw in the market (answers 15 and 16) was undoubtedly grown in baris. I do not think it is often sold in the markets, because it is grown in the baris, and the people use their own stuff. There is clearly a margin over and above what the people who grow it use themselves. I have seen it once exposed for sale in Dhenkanal, and it is probably exposed for sale elsewhere. This surplus is available for smuggling. It is smuggled, though I believe more is made of this sometimes than the facts warrant. I have shewn in my answer No. 25 that Gurjat ganja accounts for falling-off in consumption of excise ganja. I have before me the following paragraphs from my predecessor, Mr. Metcalfe's letter No. 204E., dated 9th June 1887:— "It is perhaps useless to attempt to estimate the amount of ganja actually smuggled, as the data for such estimate are inadequate; yet I may note that the activity of the police and excise staff has caused an increase in consumption of 11 maunds of licit ganja within the past six months; and as this increase has been obtained by simply checking the casual smuggling by pilgrims, it may safely be assumed that, were all smuggling put a stop to, at least 50 maunds of licit ganja would be required to take the place of the ganja now smuggled. "From the last Excise Administration Report I find that the average consumption of ganja in this district for 1880-1885 was 122 maunds, of which 25 maunds were Gurjati. The stoppage of sale of Gurjati ganja led to a falling off coresponding to this 25 maunds as in 1885-86; only 105 maunds of licit ganja was consumed, and it may safely be said that the result of the stoppage of the sale was simply to cause an increase in smuggling of 25 maunds a year, and the smuggling trade must be an extensive one if it could increase so as to meet one-fourth of the annual consumption in the course of one year." I cannot say that Mr. Metcalfe's is an exaggerated estimate; but I cannot see now where so much illicit ganja comes from. I am not able to say how much ganja is grown in the States. I have myself not seen much of it. I should be inclined to accept the opinion of Narayan Chandra Naik as to the extent of the cultivation there at present. He has much experience of these States. He was examined before the Commission yesterday (witness No. 73). Cultivation of ganja within three miles of our border was prohibited in 1878, and importation of Gurjat ganja in 1882. The former order was withdrawn in 1889, and the latter in 1892. In 1882 there was a jump of thirty maunds in the Cuttack District in the consumption of excise ganja, and there was a marked decrease in 189192. The alterations in duty, which occurred meantime (especially in 1887-88 and 1889-90), have to be borne in mind; but the figures undoubtedly point to the extensive use of Gurjat ganja. The districts of Puri and Balasore are said not to be affected by the Gurjat ganja so much as Cuttack. Balasore people are said to prefer Rajshahi ganja. I cannot explain the figures for Puri, which seem to indicate that it is also not affected by Gurjat ganja. I know nothing personally regarding the smuggling into Puri from Madras; but I know there has been much correspondence regarding it. The smuggling of Gurjat ganja, which is known to exist, certainly requires a remedy. I have considered the matter carefully. I do not think we can expect the States to provide a preventive service. We must do it on our side; nor do I think the Rajas have the establishment or energy to prevent smuggling. I therefore said in my answer No. 59 that the only remedy was to strengthen greatly the preventive force. But, as I have shown in my answer No. 70, this does not appear to me to be a perfectly efficient method. You may do something, but I do not see how over such a border you can hope to succeed I see no efficient method, except as was done before, going to the fountain-head and getting the Rajas enlisted in our system. There was a proposal to have a licensing of cultivation in the States by the Rajas and admission of the ganja into British territory as excise ganja under regulations similar to those regarding Rajshahi ganja. I do not think this would succeed. For the success of the plan would depend on the efficiency of the Raja's arrangements. The third method is to call on the Rajas to prohibit growth, and get them to take their ganja supplies from Government. I was not aware that this has been done in the Feudatory States of the Central Provinces, and that these States are now carrying out this system. I see no difficulty in this proposal except the difficulty of preventing the order of the Raja, or his promise to issue the order, remaining a dead-letter. If the Rajas themselves agree, there is, of course, no objection whatever to the consumer in their States being taxed as consumers are in our territory. But it would have to be considered how far it would be wise politically to tax the excitable tribes, such as Khonds, Bhunyas, and Santhals. I cannot say how far these tribes use the drug. I have not had opportunity of inquiring. In Mohurbhunj, where the prohibition was carried out and excise ganja used, there are many Santhals. This would indicate that there was no difficulty with them. None of the other States that agreed are remarkable for these aboriginal tribes; but they all have them to some degree.
*Vide his letter No. 1196, dated 22nd July 1886.
†Vide his letter No. 414, dated the 1st April 1889.
At present the Rajas derive no income from ganja, and there would be no difficulty in this respect. I am prepared to say that I hope "they would be guided very much by our advice;" but I am bound to say that Mr. Metcalfe's* position was stronger than ours is now, since the formal ruling that these States are not British India. I think they would be guided by our advice, but the character of one Chief differs much from another's. I observe, also, that the history of the matter, as shown in Mr. Hopkins'† letter, shows the complete willingness of seven chiefs to meet the wishes of Government. There were also four minors at the time. Of the remaining four I am of opinion that the objections (except, perhaps, in the case of Keonjhar) are not boná fide. They amounted to a polite evasion of dictation. I think that if the measure were adopted for the majority of States, dissentients might give way in time. In regard to securing the co-operation of the Chiefs, I see no necessity whatever for any compensation in a lump sum. There is nothing for which we have to compensate them, and we should get nothing in return. But I am strongly in favour of giving the Rajas the ganja at cost price, and letting them receive all the duty. This would make their interest in the matter coincident with ours. I am aware that the Government of Bengal, in Sir Steuart Bayley's time, abandoned this scheme on the ground that the Gurjat ganja was less deleterious than the Rajshahi drug. This has apparently been admitted to be a mistake of fact. And the action taken is undoubtedly to be regretted. The States had for the most part agreed, and the system had been practically introduced. I am in favour of the system. I am in favour of it mainly from the point of view of our excise. I see no cogent argument in favour of it from the interests of the Gurjat States, as they do not seem to have suffered from their drugs so far as I know. But from the point of view of our excise, and from the point of view of the evils attending the illicit traffic, I am clearly in favour of the system proposed. I think that the system would tend also to reduce and restrict the consumption of the drug in the Tributary Mahals. There would be difficulty in carrying out the measure. The Rajas might have difficulty in enforcing it. In a paternal Government an order goes a long way. We have seen this in the effect of the three-mile order. I believe, therefore, that there would be great effect, but not a rigid system at once. 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.  - Evidence of MR. H. G. COOKE, Officiating Commissioner, Orissa Division


58. I think the present system of administration of ganja in Bengal is working extremely well, especially when the moderate dimensions of the entire cost of the establishment are taken into consideration. I believe there is very little smuggling—not 50 maunds—while over 8,000 maunds represent the annual outturn. I doubt that there would be much appreciable reduction in smuggling if ganja was made a monopoly like opium, and the expense of the system of monopoly would be considerably greater. Larger establishments would have to be entertained and store-houses constructed all over the ganja tract. 59. All the material improvements in the system that could have been introduced have already from time to time been applied. Perhaps there is not sufficient pressure put upon cultivators to build proper store-houses, and the duty of chur ganja might be raised, so as to be proportionally equal to that of flat and round. But it should be remembered that the duty has been increased from Re. 1 both for flat and for round in 1854 till it has now reached Rs. 6 for flat, Rs. 7 1/4 for round, and Rs. 8 for chur. Originally only flat and round ganja were recognised, and the same duty was levied for both. A different rate of duty in Orissa Division was of later introduction, and it is now as follows: Rs. 4 1/2 for flat, Rs. 6 for round, and Rs. 6 1/2 for chur. Compelling cultivators to build secure store-houses would check pilferage and consequent smuggling, and raising the duty on chur would have the effect of limiting the manufacture of chur ganja, which acts detrimentally to the Government revenue owing to the abstraction of the woody portion. 60. I am quite satisfied that the present method of cultivation of the ganja-bearing plant and the process of its manufacture are sufficiently controlled. At the same time I am quite prepared to admit that improved systems of manufacture could be introduced. It is possible that the manufactured ganja could be made up into cakes, like tobacco; but I can give no advice in this matter, not having the necessary information or knowledge. 61. No charas is produced in Bengal. 62. No; the plant is not cultivated, but grows wild. 63. I have no objections, and I cannot indicate any improvements. 64. I have no objections. 65. I think the taxation of ganja is reasonable with reference to siddhi and charas, and with reference to alcoholic and other intoxicants. 66. It is proper that there should be different rates of taxation, as at present, for the different kinds of ganja. The chur has not any or very little admixture of the woody portion of the twigs; while round has a large admixture and flat a larger still. Only the flowery portion, which contains the resinous stimulating matter, is used in smoking, and this alone should be taxed. Ganja is grown in one place only in Bengal, in and around Naogaon of the Rajshahi district. 67. No. 68. There are no such houses or licensed shops. I do not think that I would allow them, because I think the consumption would be stimulated. But at the same time there is no doubt that many a ganja smoker, especially a traveller or way-farer, takes his smoke in the shop where he buys the ganja. Very often the shopman invites a smoke from the shop chillum to show the good quality of his ganja. 69. Yes, especially in municipalities, where the Commissioners are consulted. There is no public opinion outside municipalities; but I never open a new shop in the interior without consulting the residents. 70. I have nothing to say. Question 65.—I think that the limit of taxation in regard to ganja has been reached; for while the consumption of alcohol has a tendency to rise, that of ganja has been steadily decreasing. The consumption of ganja has fallen from an estimated production of 26,677 maunds in 1854 and a total of 8,125 maunds of retail sale in Bengal in 1873-74, to 5,451 maunds of retail sale in 1892-93. This shows a marked decrease owing to the growing taxation. It might be possible to go a little further without extinguishing ganja; but my opinion is that if Government went much further in taxation it would extinguish the industry altogether. That is, if pushed far enough, and not very far either, an increase in the price of the drug from increased taxation would tend to extinguish the demand. Question 59.[oral evidence]—The actual procedure in regard to the cultivation and distribution of ganja is as follows:—A man wants to grow. He applies on a prescribed form for permission to cultivate. He has to give the survey number of the field and the area. He may apply for what area he wants. License, which is free of any fee, is never refused except in case of misconduct during the previous year. I myself have refused on this ground. After the cultivator gets his license there is no active interference with him except to see that the land cultivated corresponds with the register, so as to check the production. No pressure, of course, would be brought to bear on a man to cultivate. If he did not, the entry would be altered. But a man cultivating more than his license covered would be liable to prosecution. There is no active interference with the man beyond this inspection of the fields until the man has manufactured his crop. Then he has to apply for a storage license. In his application he specifies the kind of ganja, the estimated quantity, and the number of bundles. The bundles are of prescribed size. No weighments are made. The statement of quantity is an estimate. The cultivator makes the estimate. It is checked by the supervisor. The cultivator cannot wait for the supervisor; so he has to check it either in the place of manufacture at the field or in the cultivator's store, according to the pressure of work on him. In many cases there is no need to apply for storage license when a purchaser is found before manufacture is complete. The ganja is then taken direct to the weighing shed. A supervisor should then be present; but there are only three. The stuff cannot be removed to the weighing shed without the supervisor's permission. In the store the stuff is entirely in the cultivator's charge; but it is inspected periodically. The whole of the stocks are, I believe, as a fact, inspected once a month, and weighed if there is any suspicion of fraud, i.e., of clandestine disposal of any of the stuff. The goladar is unrestricted in his dealings with the cultivator; but the supervisor's permission is required for the removal of the stuff, and it can only be moved to the Government weighing shed. Stocks not sold remain in the cultivator's private stores, but are destroyed after two years if not sold. There is no special standard of wastage, but a man is expected to explain any serious variation; and this is one of the reasons why cultivators will not apply punctually for storage license. I should have said that the permission of the supervisor is necessary before cutting the crop. But the supervisor need not be present. All the time the crop is growing, estimates of the crop are being entered in the diaries; and any important discrepancy would lead to enquiries being made. The opportunities for fraud or clandestine disposal of the crop are few— (1) There is always a chance of pilferage from the field, generally speaking, by an outsider. Mendicants have been detected and punished for this. Pilfering of a trifling character by the owner would be more difficult of detection. Extensive pilfering must be seldom indulged in, (a) because he has in all probability entered into negotiations for disposal of the produce of his whole field at a better price than he would get locally, and (b) because it is the interest of all persons to give information to the police, and the consequence of detection would be most serious. (2) In the above there is an opportunity for fraud owing to the fact that absolute accuracy of figures is not and cannot be secured in regard to the quantity in store. It begins with an estimate, and allowance has to be made for dryage, damage, and waste. The only real test is at the weighing shed. I think the most favourable opportunity for fraud is at the time of manufacture. For ten to one the supervisor has not been able to make the final estimate; and there the drug is in the hands of the cultivator and purchaser. Fraud, when the stuff is in the store of the cultivator, is much less likely, because the estimate has been made At present the great uncertainty regarding the amount of damage makes it impossible to insist on accuracy. Therefore I am trying to enforce the rule that the stores must be "secure." Apart from this there is no cheek on pilfering in having even secure store houses so long as they are in the hands of the cultivators. Therefore the most complete system would be to have a public gola. There are none provided. I do not recommend them, because the custody of the stuff would be in the hands of Government officers and subordinates. They would not take care of the stuff as the owners would. No doubt a well-built Government gola would be safer both from vermin and from abstraction than the houses of the cultivators. I do not think there would be any great difficulty if there were several Government golas situated in central places; but I do not think the cultivators would view the change with favour. They would require to have access to the stuff from time to time. If the stuff were weighed and registered and put in a secure place, the cultivator would not want to see it often. He would want to see it two or three times a week in wet weather. I see no great objection to the plan. The concentration of the market would also be a great advantage. The initial expense is a great objection, unless it is believed that much is abstracted. I do not think there is much pilfering; but I have no data of course. I do not think the expenditure on buildings and establishment would be recouped by the prevention of such pilfering as takes place. At the same time you cannot have a perfect system without Government golas. At present some believe that wholesale vendors make high profits, and that retail vendors are in the dark when bidding at auction owing to the ignorance of what they will have to pay for the stuff. I do not think myself that the wholesale vendor has too much profit in view of his expenses and the risks of the trade, because I have estimated that his net profits are only from Rs. 10. to Rs. 15 a maund on a average throughout the province. His expenses are in transport, buildings and establishments, and the risk of expenditure on the duty on waste above the allowed percentage is great. As to the retail vendor, of course he does not know what price he has to pay for the stuff, but it is a speculation, and I see no reason why Government should interfere. He knows his own business. There is nothing to prevent a retail vendor going to Naogaon to buy ganja if he has a wholesale gola in the importing district. He must have this, or where can he take the ganja ? A retail vendor, to deal direct with the cultivator, must become also a wholesale vendor. And I have no doubt that there are cases where the wholesale dealer has the monopoly of the retail trade as well, i.e., where the whole ganja trade is in the hands of a syndicate. I have my attention drawn to Rule 27 of Section XX of the Manual. But it contemplates a warehouse. I have no doubt this means a wholesale storehouse in the importing district. Therefore the retail vendor must be a wholesale vendor before he can purchase direct. The retail dealer can go to any wholesale dealer. At the head-quarters of my district there are three wholesale dealers. There would thus be competition. This is, of course, liable to combination. I think the retail vendor can go to the wholesale dealer of any district. This is contemplated by Rule 60 of Section XX of the Manual. The income from retail licenses has increased steadily. This indicates that the retail licensee makes a profit. I do not think that they are at the mercy of the wholesale dealers, because combination would be difficult among the wholesale vendors of a district. And in any case I see no reason for interference. The rise in retail license fees is due, no doubt, really in large measure to the rise in the price charged for the drug to consumers. At the same time the retail vendors are in the dark as to the price of the drug when they bid; and the wholesale vendors have better opportunities of knowing what the price will be than the retail vendors can have. For it is the wholesale vendors who go to the ganja-producing tracts and do business there. The present system affords no criterion of the profits received by the wholesale vendor, except by particular enquiry in each case as to prices and expenses. At present wholesale goladars are appointed on application. I do not think any one would be refused who made satisfactory arrangements. I know in my district there are eight; and I should say that was a very small number as compared with other districts. All the work could be done by one man if he had a monopoly. Explanatory statement submitted by MR. PRICE. I said in my evidence that the cultivators would view the introduction of the system of public golas into the ganja tract with disfavour; they would want to inspect and exhibit their stocks three or four times a week. They would want this for some time at first, in their desire to dispose of their stocks. Intending purchasers would not buy without inspection, and it is quite possible that on many days the ganja would be required to be exhibited several times a day to intending purchasers. In any case I am quite sure that a cultivator would wish to view his stock very much oftener than twice or thrice a week when it is stored in a public gola. I omitted to mention this cause of constant inspection when I was being examined - Evidence of MR. J. C. PRICE, Magistrate and Collector, Rajshahi


58. The present system of excise administration in respect of hemp drugs seems working well, and no change is necessary. 60. Ganja is not produced in this district. 61. Charas is not produced in this district. 62. In this district hemp plant for the production of bhang grows wild in a very few places and to a very limited extent. It is not feasible to control the growth of such plants. Any attempt to restrict the growth would give rise to discontent without producing any beneficial effect. 63. There is no objection to the present system of a wholesale/b retail vend of ganja/2 charas./3 bhang. 64. No objection. 65. The taxation of 1 ganja/2 charas/3 bhang is reasonable with reference to each other and to alcohol or other intoxicants. 66. Yes. It is necessary that there should be different rates of taxation for different kinds of ganja, and such different rates for different kinds of ganja produced in Bengal prevail here. Ganja grown in any other province is not imported into this district. 67. No; there is no objection to the present method of taxing 1 ganja./2 charas./3 bhang. 68. There are licensed shops in this district for the sale of ganja and bhang, but not for their preparations. There is no shop in this district for the vend of charas. There is in this district an adequate number of shops, and no increase is called for. 69. The wishes of the people are generally consulted and considered before a shop is opened in any locality, the enquiry being generally made either by the Excise Deputy Collector or by local police. 70. Hemp drugs are neither imported nor smuggled into this district from Native States, Duty is really paid in respect to the ganja and other hemp drugs used in this district. Untaxed drugs are not used.  - Evidence of MR. F. H. BARROW, Magistrate and Collector of Bankura


58. It works well on the whole; but, like all institutions, it is capable of improvement. 59. If the use of ganja is to be tolerated, I should prefer it issued from governmental warehouses to retailers, the price being periodically raised or lowered with the demand. The present system of levying duty and transit expenses is cumbrous and open to fraud. 60. Not produced. 61. No charas produced. 62. The cultivation of bhang cannot be controlled. 63. See above, answer 59. 64. Exports to other provinces should be certainly allowed. 65. I do not see any substantial difference between taxation on ganja and taxation on spirits and tobacco. Civilised governments have all agreed that intoxicants are proper subjects for taxation; and prohibition is opposed to the modern spirit as well as to racial progress. It is only the human weeds whose decay is a gain to the race who succumb. I am at one with Bishop Magee, who said that he would rather see his countrymen drunk and free; and I abhor the principles and tactics of the so-called temperance fanatics. 66. No. 67. See answer 59. 68. Yes; consumption on the premises should not be allowed. Men smoking there are nuisances. 69. Neighbours are generally consulted, and I think this is sufficient. 70. Yes; Nepal ganja is smuggled into this district, and affects the sale of the drug here. This practice should be stopped. The border shops suffer much from smuggling. Question 59.[oral evidence]—I should prefer that Government should keep the storage of ganja in its own hands. There would then be less difficulty in enhancing the duties. I advocate the abolition of the middleman and the substitution of a system by which Government should purchase and store the whole crop of ganja in its own warehouses, thus reaping the profits of the middleman, regulating the price to the retail vendor, and ensuring proper custody of the drug. Government will of course suffer all the losses from damage to the stored drugs by rats, damp, and dryage, but the loss will be much more than recouped. There would be no sentimental objection in this country to Government undertaking directly the wholesale disposal of the drug, and as regards English objections we should be able to meet them by showing that the system enabled us effectually to control the consumption. There would be no need for passes under this system, because the drug would be carried to the headquarters of districts by Government under escort, and the fraud which results from the system of passes would be obviated. It was this species of fraud that I had in mind in the last sentence of my answer. This is the system which I should prefer, but there is a good deal to be said for the system which I understand prevails in the Central Provinces, which fixes the price at which the wholesale vendor must sell to the retail vendor, and renders the wholesale licenses subject to sale by auction. I wish to lay stress on the desirability of reducing the loss to Government which now results from wastage, dryage, and damage - Evidence of MR. F. H. B. SKRINE, Magistrate and Collector of Bhagalpur.


58. Yes; I consider it to be capable of improvement. 59. I would wish to see the goladari system abolished. The ganja should be sold in the way the opium is being sold now. This would return a heavy profit to Government. 60. I think that a smuggling to a large extent takes place. I should like to see a large staff of detective officers appointed. 61. None. 62. Not at all. 63. Wholesale vend of ganja leads to much wastage. I would like to see it abolished. The Government itself should be the vendor as in the case of opium. 65. Except where it could be shown to be to the interests of the revenue, such as by making a change in the goladari system, I would not interfere with the consumption of ganja amongst those who habitually use it. 66. Yes. The proportion of taxation on each kind of ganja as exists now should be retained. I do not advocate different taxation on ganja grown in different localities (see 65). 67. See 65. 68. Yes. It is better that ganja should be consumed as we do tobacco, not in shops. Ganja shops are apt to develop into places for the concoction of crime. 69. No. A shop is opened where Collector thinks that it would be paying. I do not think it is necessary to consult local opinion in this matter, for I don't believe there is any public opinion on the subject. 70. None.  - Evidence of MR. A. C. TUTE, Magistrate and Collector of Dinajpur


Question 62.[oral evidence]—In view of agitation about the cadastral survey and cow protection, I think it would be inexpedient at present to start any measures of special interference with the growth of bhang in Behar. If these farmers had the exclusive right to gather the wild bhang, there would be interference. Wherever the stuff grows wild near the villages or compounds, there people sell it to vendors or pluck it and use it. This would be all interfered with. At present the stuff is simply gathered and sent off by rail: that is in accordance with law. There is no interference. I think that if an order were issued against the growth or existence of the plant in occupied land, it could be carried out. I think it could be outrooted. But whether it is advisable or necessary, I cannot say. I do not know what harm results from such growth. Practically all land is occupied here. I think the order could be carried out; and I do not think it would cause inconvenience. In ordinary times I think it would lead to little or no opposition. At present you would have objectors. I have heard that the drug is used for cattle. I heard that the wild hemp exported by rail was used for cattle. The police and others told me people did not consume it themselves, but that it was used for cattle. At the same time you find people coming in from Nepal smoking what appears to be the wild ganja. Question 65.[oral evidence]—I should be inclined to assimilate the ganja system as far as possible to that of opium. I think that would be well. I see no objection to that. If a Government monopoly were objected to on sentimental grounds, I should go as near to it as possible. The reason why I should be lenient about wild bhang is that I understand it is used for cattle, and hardly at all for drinking by human beings. As to ganja, I have no reason to think that the limit of taxation has been reached; for the price to the consumer is less in Bengal than in the Assam Valley notwithstanding recent increase of taxation in Bengal. *  - Evidence of MR. H. C. WILLIAMS,* Magistrate and Collector of Darbhanga.


I have been in the service since 1872, and in this district as Collector since November 1890. I have no concern with the Tributary Mahals All Collectors in this division are ex-officio Assistant Superintendents of the Gurjat States; but the Commissioner being here, I have nothing to do with them. I have ordered a copy of Mr. Kanti Bhusan Sen's report on the ganja across the Gurjat Border to be sent to the Commission with my forwarding letter. I have no knowledge of the cultivation across the border such as would enable me to give evidence that would be of use to the Commission. The plant grows—an odd plant here and there—in this district, principally towards the hills. I believe that these plants are sometimes found in this district apart from habitations; but the cases that come to light are cases of plants grown in the enclosures. The amount grown in this district may be left out of account in regard to any measures taken in respect to ganja, it is so small. An order requiring that it should cease could easily be carried out. But there is much jungle land to the north of Cuttack along the frontier in this district, and there the cultivation of a few plants would be difficult of detection. I know the manufactured Gurjat ganja. It is simply the plant dried. It is grown everywhere in the Gurjat States for consumption. I believe it is more grown near the border to supply our territory. It is also grown in detached Gurjat villages surrounded by our territory. This has also been waved in the face of our excise officers since the three-mile prohibition was withdrawn by the Board. I think the limit of three miles from the border was taken from the old three-mile rule for excise shops. Of course the difficulty is in enforcing the prohibition. The arrangement was political. The Rajas have neither the will nor the power to enforce prohibition in their wild tracts. I believe the three-mile limit was chosen that we might have our eye on the matter and enforce the prohibition; but this had to be by reference to the Superintendent and the Raja. I have never had to do with any Tributary State myself; but I make this statement regarding their will and power to enforce prohibition from what I know of this part of the country.
* Vide No. 165-T., dated 19th October 1878. † No. E. 1 G/2 4, dated 6th September 1889, para. 10. I think the three-mile rule was imposed in 1878* and abolished† in 1889. So far as I remember, the rule was abolished (1) because of the difficulty of enforcing it, and (2) because it was believed by the Government that Gurjat ganja was drunk, not smoked, and was less deleterious than the Rajshahi ganja. It was thought to be better not to discourage the Gurjat ganja. It was a mistake to suppose that Gurjat ganja was not smoked. It is smoked. I believe the Government have admitted this. So far as I hear, there is no systematic cultivation of ganja across the border. I have heard that the male plants are not exterminated, nor are the flowering tops separately collected. The part of the plant used is only the upper part of the plant. I should say that the statement made in answer 9 by Kanti Bhusan Sen is quite correct. This upper part of the plant is the Gurjat ganja that is smoked. This is distinct from the siddhi or bhang, which is licitly imported from Gurjat. As to the comparative effects of Gurjat and Rajshahi ganja, I am not in a position to give an opinion. I believe, however, that the Government of Bengal has reconsidered its view that the Gurjat is less deleterious than the Rajshahi. I have not sufficient ground for any opinion of my own. Mr. Kanti Bhusan Sen's statement regarding the licit use of Gurjat ganja in this district is no doubt correct. He has the figures. But it may be noted that the 8 maunds minimum referred to by him was only in force from 1891 to August 1893. Importation of Gurjat ganja was entirely prohibited by Government order at page 546 of Calcutta Gazette, dated 21st June 1882. It was again allowed (1) in the case of siddhi by order at page 756 of Calcutta Gazette, dated 23rd July 1890; (2) in the case of Gurjat ganja by order at page 1200 of Calcutta Gazette, dated 17th December 1890. From this time to 1892 the maximum amount that could legally be possessed without license was 20 tolas. By Board's orders of 13th April 1892, this was reduced to 5 tolas. As to illicit use, it is impossible to give accurate information. Nothing is known, except from the cases that come to light. There are no data on which we can estimate the illicit consumption, except that the consumption of licit ganja is on the decrease. Unless ganja is being given up for any reason, that would indicate that illicit consumption was on the increase, I know of no reason why people should give up ganja. The price of liquor is higher, and caste prejudices are against liquor. Although the price of ganja has recently been considerably raised by taxation, it is still much cheaper as an intoxicant than liquor, i. e., having regard to its intoxicating quality. Unless we are to encourage smuggling, I think that in this district the rate for Rajshahi ganja, though lower than in other divisions of the province, is as high as can be. It has reached the limit, unless pressure can be put on Native States to control their own ganja effectively, or we can do it for them. If they could do this, there would be no reason for differential rates. These States constitute the difficulty. I have recently, in my report above referred to, made proposals on this matter, to which, I understand, the Commissioner has taken objection on political grounds. We have been trying in vain to ascertain the cause of the falling off in the consumption of excise ganja. We have failed to find out the reason of this or what the people have taken to instead. The consumption of liquor was falling off too. We have re-established outstills along the frontier, because we found Gurjat liquor was competing successfully with ours.  - Evidence of MR. G. STEVENSON, Magistrate and Collector of Cuttack.


58. The excise administration in respect of hemp drugs is working well, and I am not prepared to suggest any improvement. 60 and 61. I think that there is sufficient control, and have no suggestion to make for the modification of the system. 62. I would not suggest any changes in this respect. 63. No. 64. No. 65. (a) Yes. (b) Yes. 66. Yes; for flat and round have twigs which the chur has not. Each kind of ganja should be taxed in proportion to the narcotic matter that each is found to contain. 67. Yes, as remarked above. 68. There are licensed shops for the sale of these drugs; but ordinarily they are not smoked or drunk on the premises. The shops are not disreputable. Generally mudi shopkeepers are the licensed holders of these shops. 69. Ordinarily the wishes of the people are not consulted or considered when a shop is opened in any locality. On the application of vendors and local inhabitants, licenses are granted after due enquiry at the auction settlement, held with the sanction of the Board. I do not think it is necessary to consult or consider public opinion, as these shops are not a nuisance. 70. (a) No. (b) Yes; in respect of ganja and charas but not of siddhi. The latter is used to some extent illicitly, but the use is not general. - Evidence of the HON'BLE F. R. S. COLLIER, Magistrate and Collector, 24-Parganas.


58. I think it is capable of improvement in the direction of restriction. At present there are too many ganja shops. The numbers should be largely reduced. They should only be established in towns and really large villages. I would discourage the use of ganja by these means as much as possible among the rural population, and only keep sufficient shops to supply the large floating population of the province, especially the mendicant class, whose addiction to the use of the drugs we cannot hope to restrain. Question 58.[oral evidence]—I have no reason to suppose that use by the rural population is more injurious than use by town dwellers. What I have in view is to leave the habitual consumers who cannot do without the drug the means of obtaining it, and to limit the number of shops so far as to remove temptation from occasional consumers. Towns and large villages should be selected for shops, because there are more likely to be a large number of habitual consumers in such places, and the people of the surrounding villages go there for market. There are a good many ganja shops in small villages at present. I have seen them in villages of 50 or 60 houses. I have not noticed any evil effects on the population of those villages, but I advocate the change on general principles. I do not propose that the location of shops should follow a hard-and-fast rule. The circumstances of districts or tracts might require relaxation of the general rule. I think we could do with fewer shops, and I have indicated the principle on which they might be reduced. To carry the principle too far and ignore the necessity which exists among the agricultural classes for the drug would occasion considerable discontent and would also be likely to lead to illicit consumption. This is more likely to happen where the spontaneous growth is common. It has also occurred to me that bhang is less deleterious than ganja, and that the reduction of the ganja shops might be compensated by an increase of the bhang shops. In Arrah there are, I think, 37 bhang shops distinct from ganja shops. There is no spontaneous growth to speak of in that district. The illicit consumption of ganja would probably be supplied by illicit cultivation of the plant and also by importation probably from Nepal. I have not enquired into the difficulties that lie in the way of such cultivation and importation. I also think that the existence of necessity for the drug among the labouring and agricultural classes would justify the supply of the legitimate demand apart altogether from the question of danger to the revenue from illicit consumption. I think there is a legitimate demand among the Hindus in connection with their religious festivals as well as among the labouring and agricultural classes. The view I formed with reference to the circular which was issued by Mr. Westmacott with the object of exterminating the wild growth in village lands was that such extermination was not practicable, at all events in a district like Bhagalpur, and that the attempt to carry it out would cause a great deal of harassment and annoyance to the villagers. The people are glad to have the plants removed from their lands it is true, where it is growing in very large quantities, but they have no special desire to have one or two plants removed from their "baris," where they do no harm. As the plant grows in great abundance in Bhagalpur, I do not think the prohibition could be carried out without harassment and interference by the police, because, although the existence of the plant is evidence against the person in whose lands it grows, a large amount of labour would be required to exterminate it, and therefore the people would not be likely to undertake the labour of doing it themselves. - Evidence of MR, C. R. MARINDIN, Magistrate and Collector of Shahabad


58 to 64. See my official note. 65. The duty on charas is the same as on chur ganja, viz., R8 a seer; but the proportion of narcotic matter is evidently larger in charas, and the duty on it should be raised. The duty on all the three varieties of ganja has undergone considerable enhancement since the present duty on charas was fixed in 1880. The question of raising the duty on chur is under consideration. It is difficult to compare the taxation of hemp drugs with reference to alcoholic or other stimulants; but having regard to the cost of daily average allowance (3 to 6 pies) of ganja, I should say that the amount of taxation on it is capable of increase, which can be done by gradually raising the duty. 66. Yes, taxation is based on the amount of narcotic substance present in each kind. 67. No. 68. There is no prohibition against consumption on the premises of licensed shops; but, as a matter of fact, the drugs are always bought and taken away. 69 and 70. See official note. Question 62.[oral evidence]—It hink that the chief objection to the prohibition of the growth of bhang in cultivated lands is that it leads to so much harassment of the people, and it would require so large an establishment. As regards the unoccupied land (i.e., the untenanted land) it would be in my opinion hopeless. I do not think it would be very difficult to stop its growth in the absolutely occupied lands. But I am not sure how far that would avail to stop illicit practices. I am told that cultivators and planters would be glad to get rid of the weed as troublesome. But how far the extermination there would be of much value for excise purposes, I am not sure. In Bengal, too, the stuff is used largely as a medicine for cattle and human beings, and I do not know how far it would be wise to stop the use. Even if we brought the bhang under the same regulation as ganja, I do not think we should get much revenue from it in Lower Bengal. I am not aware of any bhang being prepared from the cultivated plant in Rajshahi district. It is never brought into the golas; and I know nothing of its being made for private use. In Lower Bengal bhang is not much used as a stimulant or intoxicant. In Behar it is a very favourite drink. The consumption of bhang in Calcutta in 1892-93 was 460 maunds. There is there a large up-country population. The statistics will show that in Lower Bengal the consumption is not great. Of course in Calcutta there is control, and the bhang is not grown in the neighbourhood. So that consumption is more accurately known there. But the presence of the up-country population in Calcutta vitiates any deduction as to Bengal generally from the figures for that city. I remember myself as a boy partaking in the use of bhang at festivals such as the Durga Puja; but (as said in my answer No. 24) this habit is going out. I have said in paragraph 60 of my memorandum that the consumption of bhang is general. That is, however, more in Behar and also occasionally and not habitually. It is true (as there said) that what has paid duty is only a small fraction of what is used. I think an attempt at control might be made by prohibiting growth in occupied land, i.e., by making occupiers responsible for the presence of the plant on their lands. I would do this experimentally. If this succeeded, however, there would be this loss that the people would be deprived of it altogether in some places where there are not unoccupied lands for the plant to grow on and not a sufficient demand to lead to a shop being established. Of course, I should like to see the Calcutta system of having the stuff taxed extended, if it were feasible. Question 65.—In paragraph 64 of my memorandum I have shown that primâ facie it would be best in my judgment to reduce all ganja to chur. I think that the main objection at present is that the people sometimes seem to prefer the stuff with the stick. Perhaps the flat ganja is preserved better on the stick; but I doubt this. Chur is becoming very popular. I see no objection myself to having one tax fixed for all, i.e .,t o taking what is regarded as a proper tax on chur and making people pay the same for flat or round ganja if they prefer it. I have often had to destroy ganja in warehouses. I cannot, without looking at statistics, tell of which kind most had to be destroyed. Question 59.[oral evidence]—But for the probability of Government being attacked, as indicated in paragraph 63 of my memorandum, I should certainly recommend the adoption for ganja of the monopoly system at present in force for opium. I do not see the possibility of working a public gola system without such a monopoly. The difficulties in the way of having a central godown without Government monopoly are (1) the turning of the ganja every now and again; this would be a great difficulty in letting the cultivators have access to it; and (2) having separate parcels. If this were got over by the cultivators having to part with the stuff to purchasers at an early date, it would place the cultivators at the mercy of purchasers, and make the cultivation unpopular. If such sales take place, as a fact, early in Rajshahi, at present, this objection loses much of its force. But even if the other system could be worked without Government monopoly, I prefer the monopoly. All risk would be compensated by the profits. I do not consider the present system at all satisfactory in respect to want of control over storage and manufacture; therefore I recommend the monopoly system or (failing that) the public gola system. There is another great objection to the present system, that the price of supply to retail vendors varies so much. In some districts, owing to the action of wholesale vendors, the prices vary immensely in neighbouring districts. Thus in Rangpur the wholesale vendors charge the retail vendors Rs. 2-8. In the adjoining district of Dinajpur it is Re. 1 or even less. This is not because Dinajpur is a producing district, because similarly in the sudder sub-division of Balasore it is Rs. 3 to Rs. 4. In the Bhadrak subdivision, which is further off, it is only Rs. 2. This is due to monopoly and our want of control. I could give other instances of this. The Bhadrak subdivision is not more exposed to smuggling than the other subdivision. The Bhadrak subdivision is south of the sudder. As a rule, the price paid by retail vendors at head-quarters is, I find, less than in the interior; because, as a rule, there is more competition among goladars. Some wholesale vendors also reap undue profits. The Balasore man reaps a profit of about Rs 2 a seer, which is more than two hundred per cent. I think the Central Provinces system is a good one to meet both these difficulties; that is, to fix the price of supply to retail vendors. I do not see how the evils of monopoly can be met otherwise. Of course, the Central Provinces system would reduce the number of wholesale vendors. This would not be an evil. The system is really one of auctioning the right of wholesale vend over certain areas. In my table appended to my memorandum, column 41 does not include brokers' fees, which are paid in court-fee stamps. There are no storage fees in our system at present, as there is no Government store. Nor does column 41 include "import pass fees" and "Gola rent," which are shown under "Excise—Miscellaneous." Column 42 shows the amount of ganja on which duty is realised. It therefore includes the ganja sent to the North-Western Provinces and Nepal (470 maunds in 1892-93). It does not include what is sent to Assam, for duty on it is not realised here. It does include that sent to Kuch Behar, for which there is, I understand, no special arrangement. Therefore columns 32, 87 and 42 include figures relating to consumption in the North-Western Provinces, Nepal and Kuch Behar. The column about wholesale vendors is blank; because there is no payment made by them, except the fee on passes and (in certain cases) gola rent. They receive licenses without fee on application to the Collector. In some districts the number of goladars is more than is required. In some there are fewer than is required; and we have to break up monopolies. The subject receives departmental attention from this point of view.  - Evidence of MR. K. G. GUPTA, Commissioner of Excise, Bengal

 

 

 

 

Last year we had orders to go and establish a post at Sima, north-east of Bhamo. We left a garrison of three hundred men there. I heard that they were getting some kind of ganja and making it into a drink and using it. The Kachins found it in the jungles and sold it to the men. We took measures to stop it. The men were Gurkhas I think, and there may have been some Sikhs among them. I think they made a drink of it. That was my impression. We could, no doubt, easily obtain a specimen of the drug. Sima is in the middle of the Kachin country. This is not the only case I know of the cultivation or growth of the plant. I understand the Sima stuff was wild. There was a seizure at Kyaukse, and another at Pakokko (I think) —seizure of stuff cultivated. In the Kyaukse case I think they were growing it round the police station itself. Cases of illicit cultivation would be dealt with by the civil police. It would be one part of their duty to report any plant found growing. But the policeman might not know his duty. We have not established police schools all over Burma ; but there are orders to take up such cases. I cannot say from what date these orders have been in force. If there was special Excise establishment the police would probably leave it to them. I think that an Excise officer is bound to take a police officer with him for a search or seizure ; but I am not sure whether the police would initiate such action. I do not think that the checking of ganja illicit cultivation or smuggling is a matter that has been much pressed. There has been no such evidence of injury by the drugs as to call for much activity in this direction. Our civil police are generally recruited locally and belong to the same classes as the people among whom they serve. I have heard that ganja is cultivated among the Danus. The Danu civil police would be Danus. -Evidence of MAJOR PEILE, Inspector-General of Police.

58. Yes. 59. The system in force is working well and does not seem to be capable of any considerable improvement. I would like to see a maximum and minimum price fixed for the retail sale of the drug, as I think violent fluctuations such as sometimes occur are mischievous both to revenue and to consumers. It is this. The trade is naturally worked for profit. A ring of one or two or a few dealers is formed which outbids all the small men. If there is difficulty in this, they buy a few shops and sell very cheaply, so as to take away the custom of the small men and reduce their profit by this means, and because they, too, must sell cheap to get any custom at all. Then having got them all out, the retail price is run up and large profits secured. When the small men cease to compete, the big men reduce their bids and the revenue is at once reduced enormously, and it takes a long time to get back the small men to come and compete. By fixing a yearly maximum and minimum you, to a great extent, prevent this intershopcompetition and each shop is sold on its special average merits. 60. Ganja is not produced in this district. It is grown at Rajshahi, where it is sufficiently well controlled by Government officers specially employed for the purpose. 61. It is not produced here. 62. Attempts were made from time to time to extirpate the growth of wild bhang; but, far from securing the desired end, it proved a source of trouble and oppression upon the people on whose holdings the wild plant grew in profusion. The scheme has since been given up, as it was found almost impossible to check the growth of this wild plant. 63. No. 64. No. 65. Yes. 66. Different rates of taxation prevail with regard to the three different kinds of ganja (flat, round, and chur), and rightly too. For in chur nothing is lost, inf lato ne-fourth, and in round oneeighth are to be deducted for twigs, etc. 68. Yes. These shops are necessary, as they supply people with the drugs which they require. People generally carry away their ganja, but sometimes smoke at the shop. 69. Yes. When any new shop is opened, the opinion of the municipality as well as of the people inhabiting the locality is consulted. Yes, local public opinion should be consulted,
as is the case at present, before opening any shop in the locality; but a ganja shop is not objectionable to the general public, as liquor shops may be, if it is unsuitably located. 70. No such case. It is almost impossible to detect the smuggling of ganja in small quantities. I believe that any attempt to stamp out ganja smoking or an undue raising of the tax would lead to extensive smuggling, which we should be utterly helpless to prevent. Again, it would induce recourse to other similar drugs. In Eastern Bengal a decoction is made of the leaves of the jute plant. - Evidence of MR. L. HARE, Magistrate and Collector of Muzaffarpur


58 and 59. I think the Excise Administration in respect of hemp drugs has been working fairly well. The recent increase of duty on ganja has to a certain extent reduced the consumption of the drug in this district. 60. Ganja is not produced in the Saran district. 61. No charas is produced here. 62. Bhang is not cultivated in this district. The wild plant grows spontaneously in out-of-theway and unfrequented places. These can be controlled through the chowkidars if desired. 63. No. 64. No. 65. It is practically reasonable. 66. Yes, according as more or less of twigs and branches contained in each. 67. No objection. 68. Generally not consumed at the shops. 69. Yes. In towns the Municipal Commissioners, and in mufassal public bodies are consulted through Excise Officers. 70. No. Generally consumed duty-free by all classes of people. - Evidence of MR. G. E. MANISTY, Magistrate and Collector of Saran


58. The price of spirits has been raised far too high, and the recent orders forbidding the private manufacture of madak are most objectionable. 59. I would reduce the retail price of a quart of country spirits to from six to eight annas, adhering to the present central distillery system. The interests of the distillers would ensure the chief liquor being cheap. I would also allow private manufacture of madak. 63. I have no objections to present system. 64. I have no objections as they work smoothly, and I am not aware of any smuggling. 65. I would make no change in the taxation of ganja. 66. I am aware of no reasons for different rates in different localities. 67. No. 68. I have never had such shops in any district where I have been employed. 69. Local enquiries are made as to the wishes of the feelings. The present official tendency is rather to close old shops to opening new ones. 70. I know of no smuggling. - Evidence of MR. J. KENNEDY, Magistrate and Collector of Murshidabad


58. The present system of excise administration in respect of hemp drugs is working fairly well, but not quite satisfactorily. Various experiments were made in this district for regulating the taxation of ganja, chiefly by means of license fees. With a view to obtain the highest amount of revenue, the farming or monopoly system was gradually introduced till nearly threefourths of the total number of shops passed into the hands of the monopolists, who offered very large increase of fees. This tended to force up the selling price toa na bnormally high rate, and to restrict seriously the consumption, to the great hardship of the consumers, who formed the bulk of the poorer classes. Illicit sales sprang up. The practice of storing up wild bhang became prevalent, and there were many convictions for illicit possession of bhang. Thus, what was gained in license fee was lost in duty. To remedy the abuse, the monopoly was broken up and the licenses were settled with independent purchasers at less fees. The prices went down to the level of the adjoining district, and the sales received an expansion. The consumers felt great relief, and illicit sales gradually disappeared. The decrease in license fees was more than counterbalanced by the increase in duty. From last year, however, the upset prices have been fixed at very high rates, without regard to local conditions. This has been aggravated by the steady enhancement of duty. The independent vendors being unable to pay increased fees have been driven out by a body of monopolists. The old state of things has again been revived. Ganja is being sold at prohibitive prices in the town—R32 to 40 a seer. The consumption has again been greatly reduced.
I would break up the monopoly again by reducing the license fees, which should be fixed according to the circumstances peculiar to each locality. The upset prices fixed by the Collector should not be raised by the higher authorities without adequate reasons and without consulting him. The checking of consumption should be secured by the raising of duty and not by increasing the license fees. The present mode of fixing the fees by auction may be continued. People can never be made sober by compulsion. Ganja is taken by a large number of poor people as a palliative for pain induced by hard physical labour. It is also taken for the power it gives to the consumers to bear hardship, privation, and exposure in all sorts of weather. Some also take the drug for its medicinal properties. The number of excessive consumers is certainly not large. To deprive a large body of consumers who do not misuse the drug is not a sound and good policy. 59. Except on the lines indicated above, the present system does not, in my opinion, admit of improvement. 60. I am told that ganja is frequently smuggled from the producing tracts, This is possible, because the stock of the cultivators is not properly taken. It should be actually weighed. Mere numbering the bundles is not sufficient, as a dishonest cultivator can pick out sticks of ganja from several packets and make them into a separate bundle for sale. Ganja is also, I believe, picked out in thef ieldsa nd sold by travellers. It should be placed on the same footing as opium and declared contraband when duty on it has not been paid. 61. Charas is not produced, I think, in Bengal. 62. I do not think any such control feasible. The plant grows wild all over the province, more or less, and to make the owners of land on which it grows destroy it on pain of penalty might be oppressive. Recently such a measure was taken; but it was given up as being almost impracticable. 63. None. 64. No. 65. Yes. 66. Yes; according to the proportion of flowers each variety of ganja contains. 67. None; except to some minor points noticed in answer to question 58 above. 68. Yes; the practice of smoking ganja on the premises of the shop is not very common; but I think it is least objectionable, as it does not lead to any social or moral vice. 69. This is being done in recent years. The excise officers inspecting shops always listen to complaints whenever made. As a matter of fact, the people have not the same prejudice against these shops as they have against the liquor shops, unless they are roused by interested persons. Any complaint or objection on the part of the public is always considered. 70. Not in this district. I believe untaxed siddhi obtained from the wild bhang plants is in use at some places. No case of smuggling in ganja has yet come to notice. Question 59.[oral evidence]—I certainly do not think that there is any case for total prohibition of the hemp
drugs. The principles by which the restrictions are at present regulated are sound. There may be defects in detail, which, however, are capable of correction without interfering with the system. I should say that the taxation of ganja has nearly reached the practical limit. The retail vendor makes very little profit, and the consumer will not  be prepared to pay higher prices than he does now, for he belongs to the poorest classes of the population. This opinion is based on the facts I have given in answer to question 58. - Evidence of MR. T. L. JENKINS, Magistrate and Collector of Dacca


It will be seen from this statement that only to a nominal extent is Darjeeling a ganja-consuming district. The average quantity per year consumed during the last ten years has been 161/2 maunds, yielding an average yearly revenue of R8,259. The population of the district being 2,23,314, the incidence of the tax per head of population comes to (R0-0-7) seven pies and consumption to quarter of a tola per annum. The consumers are chiefly confined to the lower classes of up-country residents (dhobies, mochies, sweepers, sadhus, bhakats and fakirs), amongst
plainsmen and Nepalese, Rajbansis and Muhammadans in the Terai, and a small fraction of the Bengali population. The bulk of the hill population, Bhutias and Lepchas as a class, and Nepalese to a great extent, are non-consumers. One shop at Darjeeling (fee R60 a month) and one at Kurseong (fee R20 a month) are the only licensed places of sale in the hills. The ganja plant grows wild abundantly in this district, mostly below the elevation of 4,000 feet above sea level. The Nepalese know the use of this plant, and the sadhus commonly prepare from it a crude sort of ganja for smoking which they call bhang. They never drink or eat the product as bhang, but always smoke it like ganja. Ordinary consumers use two pies worth of ganja in two chillums a day, and hard smokers more than two annas worth (or a half tola) per day. Bhang is imported from the plains by upcountry men for their own consumption. The consumption of ganja is regarded with disfavor by the general population, certain classes of religious mendicants only being freely allowed the privilege, not for the purpose of intoxication, but as a help for the concentration of their thoughts in divine contemplation. As regards this district the use of ganja is not abused to any serious extent. The stoppage of the sale of the drug would inevitably encourage illicit cultivation, and drive the present consumers to the use of other obnoxious intoxicants. Ganga cases do not number one per annum on an average during the past ten years. During the last year several cases of no serious consequence came to light.  - Evidence of MR. R. T. GREER, Deputy Commissioner of Darjeeling

 

 

 

58. I have always had to carry out orders in reference to Excise Administration. I cannot at present suggest any improvement. 62. I am not sure if this question intends 'bhang' as I have used the word. If so, I think that bhang is very harmless, and that no control is necessary. 63 and 64. No. 65. Intoxication by ganja is the cheapest intoxication of all.
66. The difference is due to the fact that flat ganja contains a large amount of sticks which are of no use. At the same time, as already stated, I am told that round ganja is more intoxicating,
and I believe this to be due to greater fermentation. Then chur or broken ganja contains no sticks at all. 67. No: bhang meaning what I call 'siddhi.' 68. If this means where they may be consumed on the premises in the sense that liquors may be so consumed in English public houses, I think not. Ganja is not generally consumed in the shop where it is bought. I do not understand the latter half of the question. 69. Yes. Some enquiry is made, if I am in charge of a district, by the Excise Deputy Collector or myself if I happen to be in the neighbourhood. Sometimes enquiries are made by Excise subordinates. Certainly local public opinion should be considered on every question. 70. I think there was some smuggling from Native States into Cuttack when I was there, but I am not sure. Duty is generally paid, I think.  - Evidence of MR. H. F. T. MAGUIRE, Magistrate and Collector of Khulna


58. I think the system is as good a one as could be devised. 62. It would not be feasible I think as the plant grows wild in profusion in some districts. 63. As long as ganja and bhang are consumed I have no objection to the present system of wholesale and retail vend. 64. No. 65. I would like to see ganja certainly more heavily taxed. For two pice a man can get intoxicated on ganja, when it will cost him even in this district one-and-a half to two annas to get intoxicated on alcohol. I regard intoxication from ganja as infinitely more deleterious than intoxication from alcohol, and would certainly like to see ganja more heavily taxed. Bhang is a more difficult question, as it is so easily prepared from the wild plant. 66. There should be different rates of taxation, as a great part of the weight of chipta consists of the weight of the stalk, and this is also the case with gol, though to a much smaller extent. 67. No; except that the taxation of ganja is not high enough. 68. Yes. There are several shops licensed for the sale of both ganja and bhang in this district. 69. Shops are not opened in places to which the people object, and if any objection were raised, I should certainly change the site. But as the shops are only for the sale and not for the consumption of the article, they would not be objectionable to neighbours. New shops are opened only where there is a real necessity. 70. Some small amount of ganja used to be smuggled across from Nepal into Bettiah subdivision. I know nothing of the Nepalese excise system - Evidence of MR. W. R. BRIGHT, Deputy Commissioner of Palámau


58. Is capable of improvement. 59. The shops are now settled by competition, and owing to a paucity of bidders some shops are settled at a very low fee. The result is the retail selling prices of ganja are different in different shops. If the system of issuing ganja to licensees only in proportion to the amount of license fees paid by them be introduced, not only would it reduce the quantity of ganja sold, but would also bring the retail selling prices to one and the same level, prevent unhealthy competition, and check illicit sales. 60 and 61. Nil. 62. No control is necessary or practicable. 63 and 64. No. M
66
65. Seems unreasonable. 66. Yes; on the principle of their different intoxicating power. 67. No. 68. There are none in the district. 69. Yes; as far as practicable. 70. I have made enquiries into the question of hill ganja. I have questioned several people of the locality, and also some "Tipperahs" who had
come down to Amlighata from the hills. There is a consensus of opinion that no hill ganja is grown within a day's journey from the British frontier. I find that in 1870 a specimen of hill ganja was procured for examination, and the Civil Medical Officer reported that hill ganja is much inferior to the Rajshahi ganja in respect of its power of intoxication. The Minister of the Maharaja of Tipperah also stated that ganja was not grown in the Maharaja's territory, except in a very small quantity, which is far from sufficient to meet the local demand - Evidence of MR. N. K. BOSE, Officiating Magistrate and Collector of Noakhali.


58 to 60. If it is proved that ganja is more hurtful than other stimulants, it should, I think, be abolished, otherwise I have no fault to find with the system. Personally, I cannot say whether it is worse or not. I am inclined to think that it is, but I do not feel at all certain. 65. In Bengal it is only recently that ganja has been so highly taxed, and it is still, as far as I can learn, the cheapest intoxicant. In the Central Provinces the tax used to be very light indeed (I think only Rs. 1-4-0). I do not know what it is now. 66. Yes, because the plant contains more leaves and twigs and the others more blossom. 67. No.  - Evidence of MR. L. P. SHIRRES, Magistrate and Collector of Midnapur


58. The present system is working well. The consumption of ganja might be to some extent curtailed by raising its price. 59. If the duty on ganja werer aised,a nd consequently its price, only to such a point as to induce consumers to reducet heira verage con¬ sumption, and not to deprive them entirely of it, the habit might be somewhat checked. 60.G anjai sn ot cultivated in Orissa. In the Tributary Mahals its cultivation is practically uncontrolled by the Rajas. 61. Charas not in use in Orissa. 62. Hemp is not grown in Orissa. I would not consider the restriction of its cultivation for the production of bhang in the Tributary States at present necessary, except that if the Rajas took its cultivation under State supervision, it would lead to less smuggling into British territory. 63. A law might be passed rendering the sale of any hemp drug to persons under a specified age penal; but, as stated before, the drugs are not much consumed by the young. 64. The present regulations for the importation of Rajshahi ganja are adequate, but the bales should be more securely packed and in stronger gunny to prevent any removal on the way. The rule for the importation of Gurjat ganja is that not less than eight maunds be imported at a time. This might be somewhat reduced to five maunds as importers are not always ready to buy eight maunds, and in this way the sale of Gurjat ganja would be encouraged, as compared with Rajshahi; and, as it is stated to be less harmful, this would be an advantage. 65. Ganja is for its price much more intoxicating than alcoholic liquor, and hence is the intoxi¬ cant of the poor. To make liquor so cheap that it would be able to take the place of ganja or siddhi in this respect would not be, in my opinion, desirable. 66. The present proportion between the rates appears good, as by them the more intoxicating form of the drug is the more highly taxed. 67 and 68. No. 69. Yes. 70. There is smuggling from the Tributary States on the borders of Orissa into the districts of Orissa. The only way to prevent this is to have a strong preventive or detective force. In the two districts of Orissa, with which I am acquainted, viz., Puri and Cuttack, such cases have been much better detected in recent years owing to the inducement given to the police and others to detect them, by the liberal distribution of rewards on conviction - Evidence of MR. E. H. C. WALSH,* Officiating Magistrate and Collector of Cuttack


I have been over nine years in the service. I have been Collector of Puri only since the begin¬ ning of last December. I have been on tour for two months, about a fortnight of which was spent in Gurjat States, and the rest in the interior of this district. I was, while in the States, occupied specially with work connected with a recent rising and had no opportunity to investigate questions of general information. The only way in which ganja came to my notice then was that in the Rampur State, where I had grievances to investi¬ gate, one of the grievances alleged was that the Raja levied taxation on ganja. The people put up their grievances at great length, and mentioned everything that they possibly could against the administration. In respect to ganja they stated that they should have perfectly free trade in ganja and no taxation. My belief is that this was not a grievance that affected the people generally at all and that there was little of weight in it. But it was mentioned. The Raja taxes the vend; but I am not certain whether he interferes with cultiva¬ tion. In comparison with other matters contained in the representation of the raiyats this was quite unimportant. I made no inquiries as to the ex¬ tent of cultivation nor as to the traffic in the drug. I think there is no part oft hed istrict in which ganja is not used. By "used" I mean smoked. Ganja is generally smoked, though it is also occa¬ sionally drunk. My impression is that the use of the drug is common all over the district. At the same time I think it is commoner along the roads. That is, I think, it is commoner with pilgrims than among the real inhabitants of the district. My impression is that Gurjat ganja is at least as popular as the Rajshahi ganja, perhaps more so. This impression is not based on careful inquiry, but it is based on what I have heard here as to the popular view of the drug throughout the district. Besides the Gurjat ganja is cheaper than the other. Yet it is of the Rajshahi that the most is issued. Thus, taking the last quarter's returns, we find that the issues of Rajshahi ganja amounted to 17 maunds and 32 seers and of Gurjat 6 maunds 13 seers. The consumption of licit Gurjat ganja has been steadilyr isingf or the last three years as com¬ pared with the consumption of Rajshahi. But still it falls very far short. This leads me to have a strong impression that there has been much smuggling of Gurjat ganja. It is popular, yet it isn oti ssued from the legal sources of supply, and the fact that the legitimate consumption is rising so rapidly would seem to show that the people have long used it, butt hatw e are now only begin¬ ning to get the consumption of it under our control. This seems a logical conclusion. I have before me also the settlement of the shops for next year. There are forty-three shops. Of this, only fourteen shops have taken Gurjat ganja at all during the current year. Of these, all but one or two are in the Sudder sub-divi¬ sion. The Khorda Sub-division has two thanas, viz., Khorda and Bhanpur. Half of Khorda is surrounded by Native States, and Bhanpur is quite imbedded in the Native States. At the head-quarters of Khorda there is one shop, which takes on an average one seer and three chittacks a month. No other shop does. In Bhan¬ pur there is only one shop, which takes two chittacks. All the rest of the Gurjat ganja goes to the Sudder sub-division. Most of it goes to Puri town and the shops on the high road. But the interior shops of the Sudder sub-division also take it. My conclusion is that the Khorda sub-division gets a very large portion of its supply by smuggl¬ ing. It is obviously natural that the Khorda people would prefer Gurjat ganja, being of the same race as a large portion of the people of the Native States and being accustomed to it. The figures seem, to bear this out. The average issues per mensem are:— M. S. C. Gurjat Khorda 0 1 5 Gurjat Sudder 1 28 1 Rajshahi Khorda 0 27 1 Rajshahi Sudder 6 4 8 I am convinced that the total of twenty-eight seers cannot represent anything like the monthly consumption in Khorda.
71 There are seizures of illieit ganja both in Khorda and in the Sudder sub-division. I cannot say at present how many cases come from each sub-divi¬ sion. The total number of prosecutions for posses¬ sion of Gurjat ganja in the district for the nine months ending 31st December last was sixty-six. All of the Sudder cases come to me for sanction¬ ing of the distribution of rewards, and I see many of the Khorda cases. My general impression is that the cases as a rule are boná fide cases. If this is so there must be a great deal of smuggling, because our detective agency is no stronger than anywhere else. All the cases I have seen are petty. The people most concerned in the Sudder sub-division are low class people, either consumers or servants carrying it for others. In Khorda it is generally the people themselves. Of course the drug is also found with pilgrims; but I think the prosecutions of pilgrims are less frequent. There is no search of pilgrims whether coming by sea or land. It would be monstrous to search pilgrims, to search the carts or bundles of pilgrims for Gurjat ganja. We do not search them either for excessive possession of ganja or for illicit Gurjat ganja when coming by routes through the States. Pilgrims by sea are very few. The seizures of ganja being petty would indicate that as a rule it is local consumers who bring it in, but I came across a case the other day in which the man was a professional smuggler. I cannot of course say how large a proportion of smugglers are prose¬ cuted. I cannot say whether Mr. Taylor's estimate of one-twentieth is correct. But I am certain that sixty per cent., the estimate of the Deputy Collector, is preposterous. Ten or twenty per cent. would, I think, be a high estimate. As I have said, I am convinced that the consumption in Khorda is far in excess of the issues from legiti¬ mate sources of supply. Gurjat ganja is sometimes used in drink; but so also is the Rajshahi ganja. I have been told by some natives elsewhere that they used Rajshahi ganja thus and been asked to partake. But the principal use of both, so far as I know, is smoking. I do not know which kind of ganja is stronger nor whether the one is more deleterious than the other. I have no experience here to enable me to say whether a man who has acquired the habit of using the one will take easily to the other, or prefer what he is accustomed to. I know nothing of the extent of the use of ganja in the Native States. I do not know about the use of liquor in Native States. The use of liquor there will, no doubt, be much the same among the Uriya raiyats as it is in Khorda. There the raiyats drink hardly at all. But perhaps the Khonds may be great drinkers. I have not had any opportunity of ascertaining their habits. As our relations at present stand with the Native States it would be difficult to introduce any system into any part of their administration. For our present position in regard to them is to stand aloof and practically wash our hands of them. But if we were to enter into closer rela¬ tions with them, I think there would be no diffi¬ culty in introducing any ganja system that might be necessary in prohibiting cultivation and other¬ wise restricting the drug. I think it would be easy, in respect to the three States connected with this district, viz., Ranpur, Naiagarh, and Kandapara. My attention has not been drawn to smuggling from Madras. We border for a very short dis¬ tance on Gumsur; but my attention has been directed chiefly to smuggling from our own Tri¬ butary States. I have no knowledge of the facts about any smuggling from that presidency. The Madras border is comparatively very small. I cannot give any satisfactory explanation of the slight increase in ganja consumption shown in the figures for 1892-93 as against the average for the precedingf ivey ears. I think that the withdrawal of the prohibition of cultivation in Native States within three miles of the border would not affect the matter. For the distance of three miles would be nothing in respect to the smuggling of ganja. Nor do I think the prohibition could be expected to be effectively enforced in our present relations with the States. As to the increase in duty I believe that increase in duty is not invariably accompanied with decrease in consumption, and I have shown that the increase in the use of licit Gurjat ganja has increased steadily since 1891-92 - Evidence of MR. H. R. H. COXE, Offg. Magistrate and Collector of Puri


58. It is working well and capable of no improvement, as far as I am aware except great watchfulness. 60 and 61. It is not produced in this district, and I cannot give an opinion. 62 to 64. No. 65. Yes. 66. There are different rates of taxation for different kinds of ganja, as to which I have no criticism to offer. 67. No. 68. No such houses. They should not be licensed because it may tend to increased consump¬ tion. 69. No, it is not necessary. 70. No. There is no general use of untaxed drugs. In rare instances the Bairagis use the wild hemp for drink.  - Evidence of MR. J. H. BERNARD, Offg. Magistrate and Collector, Nadia


58. I consider that the present system works fairly well. 59. I do not advocate any radical change. 60. The defect of the existing system is that by a no means inconsiderable quantity of ganja escapes payment of duty. It is very difficult to form any estimate of the amount so smuggled, but the fact that, in spite of all difficulties in the way of detection, cases are from time to time detected in almost all parts of the province shows that the amount must be considerable. I believe that this smuggling could be reduced within very small limits if ganja were made a Government monopoly. The cultivators would then have the certainty of selling their whole crop promptly and at reasonable rates, and this would remove the principal temptation which they have at present to dispose of their ganja to illicit dealers. I doubt whether any measure short of this would effectually check smuggling. 61. Charas is not produced here. 62. In no district in which I have served is the hemp plant cultivated to any appreciable extent for the production of bhang. The plant often grows spontaneously on high land in the neigh¬ bourhood of houses, and no doubt householders sometimes protect such plants and encourage their growth for their own use; but there is no profit to be made by cultivating the plant on a large scale for the simple reason that the wild plant is so abundant. Any attempt to prevent cultivation such as I have described would do more harm than good. It would be ineffectual, and would expose innocent men on whose homesteads a few plants might be found to tyranny and extortion. Under the existing law the cultivation of the plant for the production of bhang without a license is for¬ bidden under section 5 of the Excise Act. I would keep this provision in order to retain the power of preventing cultivation on any consider¬ able scale should such be attempted, but I would make no attempt to enforce the provision in cases of the casual cultivation of a few plants such as I have described above.
63. I have no objection to the present system. 64. No. 65. I have no alteration to suggest. 66. It is necessary that there should be different rates for the different kinds of ganja for the reason that the different kinds as sold wholesale contain different proportions of the drug actually con¬ sumed. Flat ganja contains a considerable proportion of useless wood. Round ganja contains less wood, and chur less still. 67. No. 68. There are in this district licensed shops for the sale of ganja. There is no prohibition of con¬ sumption on the premises, but the drug is not as a matter of fact usually consumed on the premises. The consumers merely purchase what they require, and take it away with them. 69. No special measures are taken to ascertain the wishes of the people, nor is there any necessity for such measures, as the consumers are the only people who have any wishes about the matter. I have never heard of a ganja shop becoming in any way a nuisance to any neighbourhood. 70. I have no information regarding smuggling from Native States. In the case of ganja, there is no doubt that an appreciable quantity of the drug does escape duty. I doubt whether this smuggling could be materially diminished by any measure short of establishing a Government monopoly. In the case of bhang the greater part of the consumption is untaxed, and I see no practi¬ cable means of enforcing the payment of duty on this drug. - Evidence of MR. A. E. HARWARD, Offg. Magistrate and Collector, Bogra


58. The present system is working well in this district and weh aven o suggestion to offer for its improvement. 63 and 64. No. 65. Yes. 66. Yes, because of the difference in the quan¬ tity of toxic materials in each kind.
67 and 68. No. 69. Not in this district. The number of shops necessary for this district and the quantity of con¬ sumption are so small that public opinion in the present backward conditions of the district need not be taken into consideration. 70. There is no importation of any of the drugs from Native States into this district. So far as this district is concerned duty is really paid in re¬ spect to the drugs used, and there is no general use of untaxed drugs at all - Evidence of COLONEL C. H. GARBETT, Deputy Commissioner of Hazaribagh


58. The system under which ganja and bhang are supplied to the consumers has been known to cause no inconvenience to the public, and is believed to be working well. In view, however,
of the increasing consumption of ganja, there ought to be further check in the shape of enhanced duty. 59. See above. 60. No cultivation in Manbhum. 63 and6 4.N o objection. 65. There is no great disparity in the rates of taxation upon ganja and bhang. But supposing that one pice worth of ganja gives as much intoxi¬ cation as four pice worth of country liquor and two pice wortho fo pium, I should say that there is ample room for improvement in the taxation of ganja. 66. There should be different rates of taxation for different kinds of ganja, according to the amount of intoxication that a particular kind of ganja is supposed to induce. 67. None: only this, that with a view to check further increase of ganja consumption, rates of duty should be further enhanced. 68. None in this district. 69. Yes.  - Evidence of Mr. C. A. S. BEDFORD,* Deputy Commissioner of Manbhum


58. Yes, I am acquainted with the system of excise administration. I consider the system capa¬ ble of improvement. 59. As regards cultivation, storage and trans¬ port, I would like to see it put in the same foot¬ ing as opium. Its cultivation should be supervised by a superior agency, as is done in the case of opium: there should be a factory for its storage and packing, and indents for supplies to districts should be made in a similar way as is done in the case of opium. 60 and 61. I cannot say. I have no experi¬ ence. 62. I consider that it should be treated in the way proposed in my answer to question 59.
63. I have objections. I would like to see the golas abolished and sales made to retail vendors from the Government treasury, exactly in a similar manner as is done in the case of opium. One good result of the proposed system would be that we could exercise control over the price at which the drug is sold to the consumers and could prevent its being sold too cheap. 64. See answers to questions 59 and 63. 65. In this district the taxation is fair with reference to alcoholic and other intoxicants; but the taxation is, generally speaking, low in all cases. Year by year, however, it is being raised slowly and gradually. 66. In this district only round ganja is import¬ ed, so I am unable to offer an opinion. 67. The taxation is very low at present; the consumer can afford to pay much more. The lowness of the taxation is mainly due to the present defective method of taxing. See answer to ques¬ tions 59 and 63. 68. There are houses or shops licensed for the sale of these drugs or their preparations, and there is no prohibition to there being consumers in the premises. As no inconvenience has been brought to light as resulting from the present method, I would not interfere. 69. Up to date the wishes of the people have not been consulted; and as no complaints have been preferred, I suppose no cause for any exists. If the public did object, their objection should undoubtedly receive full consideration. 70. I have good reason to believe, in regard to this district, that a good deal of hemp drugs, but in very small quantities only, are smuggled into it from the Native States, which hem it in on all sides. All these drugs, so smuggled, are untaxed - Evidence of Mr. R. H. RENNY, Deputy Commissioner of Singbhum


58 to 60. There is at present no control over local manufacture or consumption of ganja or bhang. 61. Not produced. 62. So far as the Tributary Mahals are con¬ cerned, I do not think any interference is neces¬ sary. 63. There is no such system here. 64. There is no import. As to export, officers of the districts into which Gurjat ganja and bhang is imported are in better position to answer the question. 65. There is no taxation. 66 and 67. There is onlyf latg anja here, and it is not used. 68. None. 69. No shops. 70. No. - Evidence of RAI NANDAKISORE DAS, BAHADUR,* District Officer of Angul, Cuttack


58. It is working satisfactorily here. 59. The duty should be sufficiently great to prevent the consumption of these drugs increas¬ ing. The duty has been increased on ganja since 1st January 1894. 69. Enquiry is held by the Sub-Divisional Officer as to the wishes of the inhabitants of any place before opening a shop there - Evidence of MR. W. MAXWELL, Sub-Divisional Officer, Jhenidah, District Jessore


58 and 59. I have not had any acquaintance with excise administration since 1889. 60. There is, so far as I am aware, no restric¬ tion on the cultivation of the hemp plant either in the Tributary States of Orissa or in the ad¬ joining district of Ganjam in Madras. The manu¬ facture of ganja and the preparation of bhang are entirely uncontrolled. I am not prepared to make any remarks on the system. 61. Charas is not produced. 62. One or two plants of hemp in a raiyat's garden would produce leaves sufficient to supply him with bhang, and it would not, I think, be pos¬ sible to control this.
63. I have no recent experience. 64. I do not know sufficient of the subject to enable me to answer this question. 65. I have no recent knowledge of the subject excepting that the present rates in this part of the country are— Rs. A. P. Charas ganja 6 8 0 For the imRound 6 0 0 ported or RajFlat 4 8 0 shahi ganja. Gurjat (flat) 3 8 0 Grown loSiddhi or patti 0 8 0 cally. Even at the low rate of Rs. 3-8-0 very little Gurjat ganja pays duty, although a great deal must be consumed. 66. I do not think that there is any need for different rates of duty on round or flat Bengal ganja. Charas should pay a higher rate, as presum¬ ably a stronger and more elegant preparation. The rates on Gurjat ganja must at first be lower, but they can be raised gradually as the cultivation and smuggling is controlled. 67. I have not. 68. The licenses are for sale of the drugs only and not for consumption on the premises. 69. Not that I am aware of. Local opinion should, I think, be taken and considered. 70. A considerable amount of flat ganja and "patti" is smuggled into Orissa from the neigh¬ bouring States and Madras, chiefly in small parcels. When brought in on passes granted by the Excise Officers, Gurjat ganja has to pay about half the tax levied on Rajshahi ganja. Details of the amount of Gurjat and Rajshahi ganja imported and of the duty paid respectively can be obtained from the Collector. It is notorious, however, that large quantities of untaxed ganja and bhang are used in all the regulation districts of Orissa, but no figures are available. Question 70.[oral evidence]—I am persuaded of the prevalence of smuggling of ganja by the facts that many cases were brought to my notice, and that the frontier of Orissa marches for hundreds of miles with the Gurjat States and the Madras Presi¬ dency, where the drug is grown. Large quanti¬ ties used to be imported under the name of patti, and I pointed out to the authorities that the stuff was really ganja, but no notice was taken of my representation. I have read what Mr. Metcalfe said regarding the smuggling of Gurjat ganja in his No. 204-E., dated 9th June 1887. I thoroughly believe that the smuggling of ganja is very extensive, much more so even than is stated in this letter. The Commissioner would find it useful to get returns of the quantity of Gurjat ganja seized and destroyed, though the number of cases detected is not one-twentieth of the whole. The smuggling takes place from the Madras Pre¬ sidency as well as the Gurjat States, about equally from both sources, in proportion to the length of boundary. I include the ganja from Madras in all I have said about Gurjat ganja. I fancy there is much more ganja produced in the Gurjat states than they have use for. I have seen small patches as big as a quarter bigha of homestead cultivation myself. I believe the cultivation is unrestricted in Gumsar over the border in the Madras Presi¬ dency, though I have never seen it there myself. The whole frontier against the Gurjats and Madras, except a very small opening on the latter border, is forest. I saw the patches of cultivation between 1876 and 1880. I could not have mistaken anything else for the hemp plant.   - Evidence of MR. W.C .T AYLOR, Special Deputy Collector, Land Acquisition, East Coast Railway, and Pensioned Deputy Magistrate and Deputy Collector, Khurda, Orissa


58. I have been so long out of the department that I am not in a position to offer any useful opi¬ nion on this point.
59. I have been so long out of the department that I am not in a position to offer any useful opinion on this point. 60. Ganja is not produced in any district in which I have served. I cannot, therefore, answer this question. 61. Unanswered for the same reason. 62. Bhang grows so wild that I think it would not be feasible. 63 and 64. None. 65. In my opinion taxation of ganja was heavy with reference to outstill liquor at the time I was in charge of the Excise Department, but I cannot give any definite opinion with reference to the present state of things, of which I possess no detailed knowledge. 66. I think there should be different rates of taxation for different kinds of ganja. The flat and round ganja contain twigs which have no intoxicating power, whereas the chur or broken ganja is devoid of twigs. It is therefore natural that the last variety should pay higher rate of duty than the two first. 67. Left unanswered, as I don't know the pre¬ sent method exactly. 68. Not that I am aware of. There used to be none such when I was in charge of the Excise. 69. This used to be done when I was in charge. 70. I am not in a position to answer this ques¬ tion.  - Evidence of CHUNDER NARAIN SINGH, Kayasth, Deputy Collector, at present employed as Personal Assistant to the Commissioner of the Bhagalpur Division


58. I cannot speak much of it. I think the system is working well. 59, 60, and 61. Nothing to say. 62. Hemp is not cultivated here. 63 and 64. Nothing to say. 65. Nothing to suggest. 66. I consider the round should be taxed more, considering its comparatively greater intoxicating property. I can suggest no rates. 67. None. 68. There are shops for the vend of ganja and bhang, but I have no suggestions to offer. 69. Yes, to some extent. Enquiries are generally made by the police in regard to the advisability of opening shops in particular localities. It would be better if local public opinion is more consulted. As a rule I have invariably seen some opposition or other raised by residents of the locality in the mufassal when such sites for shops are selected.  - Evidence of BABU RAM CHARAN BOSE, Kayasth, Deputy Magistrate and Deputy Collector, Alipur, 24-Parganas


58. It is not capable of improvement in this sub-division. 59. No. 60 and 61. Not produced here. 62. Yes, if feasible.
63. If the cultivation and sale of the drugs are not to be discontinued, I have no objection to the present system of vend, except that shops at low rent should on no account be opened, and no shops on the borders of a sub-division or district should be opened. 64. No. 65 and 66. Yes. 67. No. 68. Four shops exist in this sub-division for the sale of ganja, but the drug cannot be consumed on the premises. On no account should shops where these drugs can be consumed be opened, as people would assemble there, at first for gossip, but eventually for smoking the drug. They would give greater facilities to vendors to encourage poople to smoke. 69. The wishes of the local people are considered before a shop is opened. Local opinion should be considered. 70. There are no facts regarding importation or smuggling of hemp drugs from Native States. Duty is paid in respect to ganja used. There is no reason to believe that untaxed drug is used. Question 63.—By shops at "low rents" I mean shops held at low license fees. Shops are sold by auction, and the amount bid at auction is the license fee. I see no reason for changing this system, if prohibition is not to be carried out. Shops go at low rates, because they are too close together or are not required. I think no shop should be opened unless it pays a license fee of Rs. 50 a month, and that there should be not less than six miles between any two shops. I recommend that no shops should be opened on the borders of a sub
division or district, so that there should not be competition between shops on both sides of the border. I think also that the limit of legal possession should be reduced from twenty tolas to ten tolas. My object in these recommendations is to restrict consumption. Out of four shops in my subdivision, three pay more than Rs. 50 a month and one pays less, because it is exposed to competition by one of the shops on the border. The Sonthals are not consumers of the hemp drugs. They take rice-beer for the most part, called in Bengali "pachwai." I consider that hemp drugs are doing more harm than rice-beer. Rice-beer is somewhat stronger than toddy - Evidence of MR. E. MCL. SMITH, Deputy Magistrate and Deputy Collector, Sonthal Parganas.


58 and 59. By raising the duty immoderate use may be checked. 63 and 64. No objection. 68. There are shops, but no houses or premises. The present system is working well. 69. Yes. 70. There are no facts regarding the importation or smuggling of hemp drugs from Native States. Duty is paid. There is no general use of untaxed drugs. - Evidence of BABU GOPAL CHUNDER MOOKERJEE, Deputy Magistrate and Deputy Collector, Diamond Harbour


58. The duty on ganja is being gradually in¬ creased. It has already become hard for the poor labouring classes who take it as an alleviation against hard work, and a protective against exposure, to meet their wants, The duty should not be raised higher than what it is now. 62. No. 66. Yes, according to intoxicating power, or rather on the quantity of the actual flowers exist¬ ing in several sorts of the ganjas. 67. In marshy, jungly, terai and pestilential places the taxation ought to be smaller than in towns and healthy places. 69. I cannot say whether the wishes of the people are considered, but they ought to be. - Evidence of BABU NAVIN KRISHNA BANERJI, Brahman, Deputy Magistrate and Deputy Collector, Purulia, District Manbhum


58. It is generally working, well, with careful supervision and management, and by raising the duty and license fee and thus regulating the retail price its consumption may be reduced. 62. It would not be feasible to control or restrict the cultivation of bhang. It grows wild everywhere. It is generally considered almost innocuous and beneficial in some respects. I do not think it necessary to do any more than levy a small duty on bhang stored and to enforce pay¬ ment of license fee for its sale. 63. No. Once it was suggested that Govern¬ ment should take the wholesale vend monopoly in its own hands, as is done in the case of opium. I consulted several officers and discussed the pro¬ posal with many. I think the present system is better. There is no reason for Government to take the wholesale trade in its hands. All that is necessary is to exercise strict control and super¬ vision over the work of the wholesale vendors both in the producing and importing districts. 65. The duty on ganja for the last twelve years has been more than doubled. It was Rs. 4 on chur ganja per seer in 1878, and this year it is Rs. 9. The license fee for its retail sale by the auction system has been very considerably raised. In 1878 the vendor paid Government Rs. 4¼ for each seer of ganja sold. Last year it paid Rs. 10¾. This year, with the increase made in the rate of duty,—vide Board's Circular Order No. 95-B., dated 23rd November 1893,—it is still more heavily taxed. Whenever the rate of duty of any parti¬ cular article is increased, I think it should also be considered whether the duty on other exciseable articles should not be increased. Of late years duty on all articles has been raised. It should be different for different parts of the country accord¬ ing to its special circumstances. 66. Yes; according to the resinous agglutinated intoxicating matter contained in each kind. The rates of duty, as fixed by Board's Circular No. 95-B., dated 23rd November 1893, I fully approve.
67. No, 68. Yes. If smoking at shops be prevented it would not be considered a great hardship. As a rule, people buy ganja at the shops and go home and smoke. 69. No. The Excise officers make their own estimates of requirements and propose shops at places where there is demand. I have, however, never heard of any complaint as regards the sites selected by Government officers for ganja shops. 70. I have no information on the point. Dhatura is the only drug not taxed. It grows wild largely. It is, however, little used. It is taken generally for medicinal purposes, and at times with ganja or bhang to intensify intoxication, and it is also used for drugging purposes. It may be included among exciseable articles and its use restricted.  - Evidence of BABU PRAN KUMAR DAS, Deputy Magistrate and Deputy Collector and Personal Assistant to the Commissioner of Burdwan.


58. I am well acquainted with the present system of excise administration. It is capable of improvement. 59. The consumption may be decreased if the duty on ganja is raised and the license fee lowered. This will improve the finances as well. No duty is levied on bhang. Some sort of duty ought to be levied on bhang, which would be very low at first, say, 1/16 of the average duty on flat ganja. This will make the system more regular and analogous to the system of selling ganja. 60 and 61. None produced here. 62. I think the cultivation of the hemp plant for bhang ought to be controlled. It will be feasible, though not all at once. Licenses on payment of fees may be granted for the cul¬ tivation of bhang plant within certain areas. Persons on whose lands bhang plants yielding more than four chataks of bhang will be found may be prosecuted. This will bring the system gradually within the scope of our detective officers. Bhang plants will then have to be destroyed by Excise officers. To levy duty on bhang will be the next step. The goladars of ganja receive a good profit. Twenty-five per cent. of the same ought to be paid as license fee. 63. For bhang see question No. 62. For retail vend of ganja see question No. 59. For retail sale of bhang see question No. 62. 64. None. 65. Taxation of ganja is reasonable. No duty on bhang is levied, vide question No. 62. There is no duty on liquor here. 66. There should be different rates of taxation on different kinds of ganja, as at present; for flat ganja has twigs, which chur ganja has not, and it will not be expedient to levy the same rate for both. I do not know about ganja cultivation elsewhere. 67. Objections about ganja and bhang mention¬ ed before. 68. There are no houses where they may be con¬ sumed on the premises, nor would any be suitable, for most of the drug is consumed at the houses of the consumers— very little is consumed in the shops. 69. Yes, they are considered, as well as the requirements of a locality. The influential men of the locality are consulted, and the public opinion of the locality ought to be regarded. 70. Very little ganja—say, a few seers—is grown in the Tippera hills. This ganja is very inferior in quality and not much is imported by consumers from the hills. The quantity is very small, for the hill authorities now import ganja under a pass from the Sudder (Tippera) golas. This ganja is very inferior in quality, and I believe no duty is paid for these drugs in the hills. There is no general use of this untaxed ganja.  - Evidence of BABU GOBIND CHANDRA BASAK, Deputy Magistrate and Deputy Collector, Brahmanbaria, Tippera District.


58. The Excise administration is working well, and is not capable of improvement. 60, 61, 62, 63 and 64, No. 65. Yes. 66. Yes; there should be different rates for different kinds of ganja. Chur pays a duty of Rs. 8, while flat or round pays less. This is reason¬ able, because there are no stalks in the former. 67. No, 68. Yes. In my opinion smoking in the shop should be discouraged, because it may tempt other people to smoke it. 69. No. It is not necessary. 70. There are no facts regarding the importa¬ tion or smuggling of hemp drugs from Native States. Yes, duty is paid,  - Evidence of BABU DINA NATH DÉ, Deputy Magistrate and Deputy Collector, Nadia.


58. In my opinion the excise administration of Bengal in respect of ganja is working very well. Every system is more or less capable of improvement and some improvement may be sug¬ gested. 59. The following are some of the suggestions indicating the direction in which improvement is possible:— 1. To strengthen the present staff of officers and men engaged in the supervision and control of the cultivation of ganja. 2. To reduce the quantity of ganja which a person is allowed to possess from twenty to five tolas. This will minimise smuggling, and at the same time will act as prohibition to the consumer who has a tendency to go to excess. 3. To provide for punishment for possession of ganja of any quantity for which duty has not been paid. This will check consumption of ganja on which duty has not been paid, and at the same time will benefit the revenue. 4. To authorise all the excise officers, spe¬ cially those employed for the super¬ vision of cultivation, to make search for ganja without the assistance of police, as they are, under the present law, required. This will check illicit cultivation and thus tend to decrease the consumption, 5. To weigh ganja manufactured by the cultivators of Naogaon and not to depend upon the guess weight which must necessarily be incorrect. This is necessary both from administrative and moral point of view. Ganja passing out from the hands of culti¬ vator without payment of duty must necessarily be cheaper. Therefore it will increase consumption. 6. To store ganja in public warehouses. At present ganja is stored in the house of the cultivator, who can smuggle a portion of it without being detected. 7. To provide punishment for taking away ganja plants from the field by other persons than the cultivators. 8. To provide the Subdivisional Magistrate of Naogaon to exercise criminal jurisdiction in all ganja cases arising within the ganja tract, which at pre¬ sent is locally situated in the districts of Bogra and Dinajpur where the ganja cases are now tried. 9. To reduce by half the rate of duty on different sorts of ganja in the ganjaproducing districts, Rajshahi, Bogra and Dinajpur. On general principle, the price of an article should be cheaper at the place where it is pro¬ duced. On this pinciple the duty of opium is nearly half of what it is in most other districts of Bengal. This will tend to entirely check or eradi¬ cate the petty smuggling which at present exists and which it is impos¬ sible to check under the present law and rules. 10. To increase the duty of all sorts of ganja, specially chur. In my opinion we have not raised the duty to such an amount where we should stop, so that overtaxing might not induce illicit cultivation. Chur ganja, it is admit¬
ted, even at present, pays less duty in proportion. Proposal for its increase has been submitted and it is anticipated that the increase will be sanctioned. 11. There should be only one sort of ganja manufactured. I would propose to turn all ganja into chur, to pack it in uniform bundles and distribute like opium to all the treasuries and suotreasuries of Bengal for sale. 12. To buy up the whole produce from the cultivator as soon as it is manufactured, and to distribute it to the several dis¬ tricts according to their requirements, keeping a reserve stock at Naogaon. 60. The cultivation of Naogaon ganja and its manufacture are sufficiently controlled. I would, however, recommend the appointment of two addi¬ tional supervisors during the manufacturing season with a staff of peons. 61. I have no experience. 62. I am not aware that the cultivation of hemp plants for production of bhang is controlled in any way. No control, I think, is feasible, since these plants grow wild all over the country. 63. The present system of wholesale and retail sale of ganja, charas and bhang is the best. No one would have any objection to it. 64. There would be no objection to the existing regulations governing the export and import of ganja. 65. In my opinion the taxation of ganja, charas and bhang is reasonable with reference to each other, but not quite reasonable with reference to alcoholic or other intoxicants. I have already proposed the increase of taxation of ganja in my reply to question No. 59. Four pice worth of liquor or tari could not make any impression in the consumer, but a pice worth of ganja is suffi¬ cient to intoxicate a habitual smoker and sure to kill a man who never smoked before. Charas is very little consumed, and any increase in duty on this article will not matter much. Bhang, as I have said before, is grown wild all over the country and could be had for collecting. Bhang pays a very small duty of eight annas per seer. If the taxation is raised, the consumer would not come to our shop but would collect it from the wild plants. Had it been possible to eradicate the wild growth of bhang, I would have recommended an increase in the taxation of this article. 66. In my opinion it is necessary that different rates of taxation should be for different kinds of ganja, flat, round and chur. In Bengal, ganja is only grown in Naogaon. In Gurjat in Orissa some sort of so-called ganja is collected from wild plants. Each kind of ganja should be taxed in proportion to the narcotic matter that each is supposed to contain. On this principle, the present rate of taxation was fixed. 67. Excepting the remarks made by me in the foregoing replies, I have no objection to the present method of taxing. 68. There is no objection to the consumers smoking ganja in the licensed shop. But ordi¬ narily the smokers take away the ganja from the shop and smoke in their own houses. The shops are by no means disreputable. 69. Ordinarily the wishes of the people are not consulted or considered when a shop is opened in any locality. I don't think it is necessary to consult or consider public opinion, as a ganja shop is not a nuisance. 70. I am not aware of the importation or smuggling of hemp drug from Native States into Bengal. In the ganja-producing tract of Naogaon, small quantity of ganja is used surreptitiously; cousequently no duty is paid on it. This cannot be prevented in a place where the drug is grown, and it is difficult to bring the consumers within the provision of law. There is no general use of untaxed drugs, so far as I am aware of. - Evidence of BABU GANENDRA NATH PAL, Kayasth, Deputy Magistrate and Deputy Collector, Naogaon.


58 and 59. The present system of excise ad¬ ministration is working well. 60. Ganja is produced in the province; but having never been in the ganja-producing tract, I am not in a position from personal experience to answer this question. 61. Charas is not produced in this district, and I know nothing about it. 63 and 64. I have no objection. 65. I have no knowledge of charas; but I think the taxation of ganja and bhang with reference to each other and to alcoholic or other intoxicants is reasonable. 66. There should be, and in fact there exist at present, different rates of taxation for different kinds of ganja produced in Bengal. The rates are as follows:— Rs. A. Duty levied per seer of flat ganja 6 0 Ditto round do. 7 4 Ditto chur do. 8 0 The above rates of duty with reference to each are fair, seeing that one seer of flat ganja yields about twelve chittacks of ganja when separated from the woody portion, and one seer of round ganja pro¬ duces about fourteen chittacks of ganja when sepa¬ rated from the woody portion, while one seer of chur or broken ganja yields one seer of ganja having no woody portion to be separated therefrom. It will thus be seen that the duty levied on ganja, whether in the shape of flat, round, or chur, really comes up to Rs. 8 per seer only; in the case of round ganja, annas 4 is charged in excess. 67. I have no objection as to ganja and bhang. 68. In this district there are shops licensed for the sale of ganja and bhang, but not for their preparations; neither are the drugs consumed on the premises. The shops are so situated that they very well meet the requirements of the consumers and have no objectionable features about them. 69. The wishes of the people are consulted before a shop is opened in any locality. Excise inspecting officer visits the locality, ascertains the fact whether the shop is needed, and whether the people of the locality have any objection to urge against its being opened. Local public opinion should be always considered before issuing a license for a shop. 70. There has been no case of importation or smuggling of hemp drugs from Native States into this district. I have no facts regarding the im¬ portation or smuggling of such drugs from such States into the province to which I wish to draw attention. In this district duty is really paid in respect to the ganja and bhang used. As far as I know, there is no use of untaxed drugs in this district. s  - Evidence of BABU GANGANATH ROY, Kayasth, Deputy Magistrate and Deputy Collector, Chittagong.


58. The present system of excise administra¬ tion requires, in my opinion, some improvements in its working. 59. I would suggest that the improvements may be made—
(a) by increasing taxation. I agree. A. AHMAD, Offg. Collector. (b) by modifications in the act of transport of these drugs from the producing districts. (c) by having sufficient establishments to watch and regulate its consumption. (d) by reducing the quantity for possession of these drugs, at present authorized by law. This should be controlled in the same way as opium, and certainly supervised by the same De¬ partment. 60 to 62. I have no suggestion to make regarding the improvements by which cultivation or production of these drugs should be controlled. 63. I have no objection to the present system of retail vend of these drugs, except with regard to the quantity at present the retailers are autho¬ rized to sell. But I object to the present system of wholesale vend of these drugs, since it not only affords to the wholesale dealers all facilities to import bad drugs at low prices, but also induces them on many occasions to sell those drugs to retailers even when they are unfit for use. More¬ over, it facilitates the wholesale dealers who hold retail shops to sell these drugs at cheap rates. The introduction of the proposed system will also sufficiently control the exorbitant charges obtained by wholesale dealers from retailers. 64. As I have stated above, I do not approve of the present system of export and import and transport of these drugs. I think in order to have a better control over the consumption of these drugs, the first thing will be to do away with the present system of the wholesale vend. 65. In my opinion the present taxation of these drugs is not sufficient in proportion to that of spirituous liquors and opium. The amount of taxa¬ tion of these drugs should be raised to the follow¬ ing rates, viz.:Ganja, Rs. 4, exceeding the present rate on average. Charas, Rs. 8, exceeding the present rate on average. Siddhi, Re. 1, exceeding the present rate on average. 66. The rates therefore should be for flat with small twigs, and round Rs. 11 Chur " 12 (Flat with large twigs should be done away with.) 67. If the above measures be adopted to enhance the taxation of ganja, charas and bhang, I think there will be no necessity to interfere with the present system of taxing these drugs. 68. In this district there are no such licensed houses or shops for the sale of these drugs where they are consumed on the premises, and it is not practicable to have any hold over the consumers in respect of inducing them to consume these drugs in the sale-rooms. 69. As a rule, the practice of consulting the wishes of people before a shop is granted in any locality is not now in vogue. When any such shop is in requisition in any locality, reports regarding the necessity, and the area, population, etc., are called for from the local Excise Officers, and they are considered by Excise Deputy Collector before proposing the same for settlement. 70. There has occurred no case of illicit importation of these drugs from Native States.  - Evidence of BABU BHAIRAB NATH PALIT, Deputy Magistrate and Deputy Collector, Birbhum


58. An increase in the license fees may reduce consumption of the hemp drugs, 66. It is necessary that there should be different rates of taxation for different kinds of ganja as chur is better in quality than round or flat, and round is better than flat. 68. No. 69. In the case of an opening of a shop for sell¬ ing these drugs, the wishes of the people are not consulted or considered at present. But in my opinion, local public opinion should be consulted and considered before a shop is opened. 70. There are no cases of importation or smug¬ gling of hemp drugs from Native States into our Division. Duty is really paid in respect to the ganja and other hemp drugs used, but by the sel¬ lers directly and by the consumers indirectly. Untaxed drugs are not generally used. - Evidence of BABU JOGENDRO NATH BANDYOPADHYA, Brahmin, Deputy Magistrate and Deputy Collector, Jalpaiguri.


58. Yes; it is working well.
60 and 61. I do not know much about the prac¬ tical working of the rules controlling its culti¬ vation. 62. The cultivation of bhang could only be controlled if the wild plant could be entirely suppressed. But this is not feasible. 63 and 64. None. 65. Yes. 66. Yes, because the quantity of ganja in the three kinds varies. There is a large quantity of sticks in the flat, less in the round, and it is entirely absent from chur. 67. No. 68. Yes. But ganja, unlike chandu and madak, is not generally smoked on the premises and there is nothing objectionable about the shops. 69. Ganja shops are never considered a nuisance and no one even objects to the site. Public opinion is never hostile to these shops, and therefore it is never consulted. 70. There are no facts regarding the importation or smuggling of ganja from Native States. Yes, duty is paid. There is no general use of untaxed drugs. (I have made close enquiry about this. We have no reason whatever for thinking that untaxed ganja is used: nor in Darjeeling, where the wild cannabis is so abundant, was a case ever detected. —W. O.)  - Evidence of BABU JAGA MOHAN BHATTACHARJYA, Deputy Magistrate and Deputy Collector and Personal Assistant to Commissioner, Chittagong


58. The policy of "minimum of consumption and maximum of revenue" adopted by the Excise Department of Bengal is working well. The ar¬ rangements are not, however, so perfect as to be incapable of further improvement. 59. For my suggestions, see appendix paper (B). Appendix paper. (B) CHAPTER VII, QUESTION 59, et seq. I begin with the premise that no people or class of people can be made virtuous by law or orders of the authorities. An evil habit once come into vogue cannot be easily eradicated. By judicious repression and punishment, it may cease to be prevalent: but this requires time, and the gradual education of the bulk of the people. Even then no evil habit can be altogether extirpated—wit¬ ness thefts, dacoities, murders and arson. In spite of the stringency of the Penal Code, of the strong horror of the public opinion, and of the vigilance of police, they have not ceased in any
country. Similarly with the habits of ganjasmoking and bhang drinking. 2. My next premise is that ganja-smoking is far worse than bhang-drinking. Patti is not unlike tobacco leaves, and may be placed nearly in the same category. Bhang-drinking is also enjoined by custom and the shastras in various ceremonies. Consequently the sale of patti is permissible like tobacco. On the other hand ganja-smoking, even in small quantities, is injurions, and if habitually used, permanently injures the constitution, and affects the moral conduct. The sale of ganja should therefore be more and more restricted with an eye eventually to its total prohibition, except for medicinal purposes. 3. The sale of ganja may be restricted in three ways:— 1st, by restricting the cultivation to a small area. In Orissa, ganja cultivation is not allowed, so I need not speak anything. In the Tributary States, ganja cultivation is free; this I will deal with later on. 2nd, by raising the duty per seer of the ganja. At present the duty is R6-8 on round ganja, and R3-8 on Gurjat gauja. In comparison with opium, which has a duty of R32 in Orissa, the above duty is less. It can be gradually raised to R20 and R10, respectively. For patti the present duty is annas 8 per seer. It can be raised to R1, but not more, as patti cannot be kept long. 3rd, by increasing gradually the license fees of the shops, and by locating the shops in retired places. The increase in the license fees will chiefly depend on the consumption of the drug, and the distance from the frontier, etc. I am in favour of putting a maximum consumption for each shop, beyond which the shopkeeper will not be allowed to sell in every month. Except near the frontier, I do not see why it shall not be practicable. The shops for ganja, at least, should not be placed in prominent sites, such as hâts, bazars, public places, temples, fairs, etc., where the people may be tempted. The principle of local option is not bad, but in Orissa there is hardly any public opinion. In Municipalities the opi¬ nion of the Municipal Commissioners might be taken before opening any shop on a new site. 4. All the above suggestions, if adopted, will increase the retail price of the drugs. Patti and ganja will become more and more valuable, and smuggling will be attempted. The Tributary States in Orissa are too close, and smuggling will not be difficult. This can be checked in the following manner:— 1st, the ordinary detective staff of the district should be strengthened. The easiest way of doing this is to amalgamate the present detective staff of the Salt Department with the present staff of the Excise Department. The same area is often inspected by Salt Officers and by Excise Officers, but this work can be readily done by one officer. 2nd, at least one officer on a competent pay should be placed along the frontier of each district. He will have to move along the border making rapid marches, and inspect¬ ing the adjo ining shops, and detecting smuggled drugs
3rd, the Chiefs of the Tributary States are to be induced to reorganise their Excise Estab¬ lishment (at present miserably kept), to restrict the indiscriminate cultivation of the plant, and to prohibit sales except under certain conditions. I am generally unwill¬ ing to make any suggestions about inter¬ fering with the liberty of action allowed to the Gurjat chiefs. But on moral grounds, for the benefit of their own people at least they might do so. Failing that, they may be persuaded to make over the Excise Administration in their territories to British Government, in consideration of annual grants. In Bombay Presidency this has been done and with apparent success. 5. I have no doubt that these arrangements, modified according to circumstances, will, in the long run, prove successful in Orissa. The changes, however, should be gradual; and the illsuccess of a year or two's experiments should not discourage. Question 70.[oral evidence]—The Gurjat ganja was largely smuggled both from the Tributary States and the Madras frontier. I have recollection of a case in which the drug was smuggled between the two coverings of a native umbrella. The contrivances for smuggling are various. Smuggled ganja is not sold openly in the town, but distributed secretly among the consumers. The license fees for vend of gunja have nevertheless been increas¬ ing in the town of Puri.  - Evidence of BABU MANMOHAN CHAKRAVARTI, Deputy Magistrate and Deputy Collector, Jajpur, Cuttack, Orissa.


62. It is impracticable to exercise any control effectually in respect of the production of bhang, as the plants cannot be eradicated. Any pressure brought to bear on the possessor of the soil spon¬ taneously growing bhang plants would prove to be an oppression and harassment. 63. It would be well if the three classes of ganja could be reduced to one while in course of preparation in Naogaon. My reasons for this are as follows:— (a) Since 1885 I believe there have been too many fluctuations in the rate of duty on each class of ganja with a view to ad¬ justing the real actual smokeable quan¬ tity of the drug in a seer of each of the three kinds. But I believe the propor¬ tion is still defective, and it will ever remain so, because some of the wholesale dealers or brokers purchase the standing crop, and cause a preparation of the kind more or less just as the rate of duty would suggest to be lucrative. Hence we find that in some year one kind of ganja is more imported than the other, and next year contrary is the case. (b) This change in duty (always towards enhancement) has been introduced in the middle of the year, which serve to dis¬ turb the men in the trade who were thus forced to grapple with a difficulty of which they had no notice when taking the license. (c) Malpractices can often be resorted to by the wholesale dealers by converting flat into chur and utilizing the same to make up the deficiencies in chur at the close of the year and showing deficiency only in flat and thus paying less duty. (d) For the purposes of comparing consump¬ tion in consecutive years, the comparison would be fairer than as shown at present if there be only one kind of ganja. For in a maund of flat the actual quantity smoked is much less than in a maund of chur, and it is misleading to compare one maund flat with one maund chur. (e) For the above reason the consumption in retail shops too cannot be accurately ascertained without an intricate way of calculation for fixing the upset price of shops and selling the licenses thereof. For the above reasons I would suggest the unification of the three kinds and fixing of one duty if it be feasible to effect this unification in the producing subdivision, Naogaon. 64. It seems to be unfair to charge for wastage under the existing rules when such wastage is more nominal than real,—i.e., produced by the effect of climate. Ganja weighed one maund at Naogaon in damp weather is sure to be found less in weighment made in Behar when the wind blows from the west and not from the east, The wastage should be charged in cases of abstraction or sale or theft on transit, and not in cases beyond human control. In not a few instances ganja is abstracted from bags on transit by rail. The quality of the bags and the mode of packing should be improved. I would suggest the discontinuance of the loafers known as wholesale dealers in ganja. Railway communication has removed all difficulties in transport, and ganja can be indented by the Collectors of districts upon Naogaon authorities or wherever the Government principal store-house may be. There should be a head office at Naogaon with a responsible officer, and each district will account with that head office as to quantity of the drug only, duty being realized, as at present, in the selling districts. Under such arrangement Government can introduce special uniform bags and adopt the system of packing now in use for packing the postal mail bags. Abolition of wholesale dealers will give certain relief to the retail vendors, and Government can then enhance the duty to the extent of that relief, which will be much more than the cost of transit to be incurred by Government, and the interest of the capital to be advanced for the purchase of the crop from the cultivators. This change will simplify accounts and give relief to the clerks. It will set the retail vendors at liberty to bid freely at auctions. At present a vendor in arrear to a goladar cannot bid against the wishes of such goladars. Practically I have seen that goladars are one of the factors at the annual auction in more than one way. 65. I think the present rate is reasonable and sufficient and see no necessity for any change.
66. Vide No. 63. I am in favour of unification. 67. No. It is sufficient for the purpose. 68. There is no prohibition to smoke on pre¬ mises of shops. Bhang is never consumed on the premises of retail shops: ganja is seldom consumed in vend shops. I have no objection to such shops and houses as they are at present,—i.e., like the shops for the vend of any necessary articles. 69. No. Such shops are not considered as a nuisance like liquor shops. There is no harm in consulting the local public opinion in this respect. 70. Nepal grows wild ganja. Its flavour is not much relished by our people. The Nepalese too prefer our ganja. But those of our people who live along the northern frontier of Bhagalpur and who wish to have cheap intoxicant smuggle in Nepal ganja. The smuggling is not carried on to any appreciable extent.  - Evidence of BABU NAVAKUMAR CHAKRAVARTI, Brahmin, Deputy Magis¬ trate and Deputy Collector, Jangipur, Murshidabad.


58 and 59. The system under which ganja and bhang are supplied to the consumers has been known to cause no inconvenience to the public, and is believed to be working well. In view, however, of the increasing consumption of ganja there ought to be further check in the shape of enhanced duty.
60 and 61. Cannot say. 62. Cannot indicate any. 63. There appear to be none. 64. None that have been advanced by the parties concerned. 65. There is no great disparity in the rates of taxation upon ganja and bhang. But supposing that one pice worth of ganja gives as much in¬ toxication as four pice worth of country liquor and two pice worth of opium, I should say that there is ample room for improvement in the taxa¬ tion of ganja. 66. There should be different rates of taxation for different kinds of ganja, according to the amount of intoxication that a particular kind of ganja is supposed to give. 67. None: only this, that with a view to check further increase of ganja consumption rates of duty should be further enhanced. 68. None in this district. 69. Yes. In Municipalities opinion of Muni¬ cipal Commissioners is taken; in the mufassal, of chief village men. Local public opinion ought to be considered. 70. None known to me.  - Evidence of MAULAVI ABDUS SAMAD, Deputy Magistrate and Deputy Collector, Purulia, Manbhum.


58. My answers relate to ganja only. I am acquainted with the present system of excise administration in Bengal, having been con¬
nected with it as Excise Deputy Collector of two districts, viz., Dinajpur in Northern Bengal and Singhbhum in the south-west of the province. I consider the system is capable of improvement. My opinions relate to ganja only. I am not much acquainted with charas and bhang. 59. The system is capable of improvement in the direction of bringing it more thoroughly under the control of Government. As at present worked, the system is controlled by Government on the one hand and by the three outside factors on the other: viz., (1) the cultivator, (2) the wholesale vendor, and (3) the retail vendor. These three factors are more or less independent of Government control. They can each in his own sphere influence the final cost to consumers. The truth of the following proposition seems undisputed:— "Fluctuations in the cost (for a given quantity) to consumers has a tendency to increase consump¬ tion." This proposition is based upon the following theory which embodies the result of long experience. The ratio in which a man's desire to indulge in an intoxicant increases with a given ratio of in¬ crease in the facility of gratifying it, is greater than the ratio in which his desire will decrease with an equal ratio of decrease in the facility. Thus if a man's consumption of ganja increases in the ratio of 8 to 10, while the cost decreases from 12 to 8, his consumption will only decrease from 10 to 9 when the cost increases from 8 to 12. The net effect of the double fluctuation would be an increase of consumption from 8 to 9, while everything else outside of him has come to its old position. The avowed object of the present system of Excise Administration being to reduce consump¬ tion and thereby to improve public morality, its duty is to prevent as far as possible any fluctuation of the kind referred to above. The cost to con¬ sumers should be slowly, but steadily, increased, so as to effect a corresponding slow but steady de¬ crease of consumption. Increase one year and decrease in the next is most harmful to the con¬ sumers. A year of cheap ganja will have the effect of increasing the desire for gratification, and a year of dearness will accustom the consumer to increased cost of gratification. It is possible therefore by a clever alteration of cheapness and dearness in successive years to enormously increase consumption and effect the ruin of the people. It is impossible to regulate consumption if all the factors that influence it are not brought under the complete control of Government. The cost to consumers must be steadily increased and con¬ sumption steadily decreased. Two points require notice in this connection. (1) It is not enough to say at the end of a number of years that the consumption is less at the end than it was at the beginning of the period. But it must be shown satisfactorily that during the period the consumption has never increased even by the smallest quantity at any point of time. Each succeeding year, month and, if pos¬ sible, day should show a decrease of consumption, however small, but always decrease and never increase. This decrease should be participated in by all the divisions, and if possible by all the dis¬ tricts; what ordinarily takes place is increase in some divisions and decrease in others one year, and decrease in the first mentioned and increase in the last mentioned divisions in the next, or something of the kind. This shows that the fluctuations in each locality are great, which in its turn proves fluctuations of a serious kind in the cost to consumers, and the entire absence of Government control. Government is in fact at the mercy of the cultivator, the wholesale vendor and the retail vendor on the one hand, and to local agricultural prosperity or otherwise on the other, Its own control is virtually nil. (2) The increase of cost should not merely be in the absolute amount as measured by the currency of the Empire, but it should be a real increase, offering a real check to consumption. Thus, if the cost was Rs. 20 in 1875 and it is Rs. 40 now to an individual, there has been no real increase if the man's income has doubled in the meanwhile; and if he is an agriculturist, surely his income has nearly doubled during this period by the mere operation of the currency changes over the world as between gold and silver. General progress of wealth has also perhaps increased his ability to spend more money on luxuries. To determine what would constitute an actual increase in the cost to consumers in any province would be a most complex problem involving many considerations. Government having the entire control of the ad¬ ministration (of excise) would hardly be able to discharge its responsibility satisfactorily. How much less should it be able to discharge it when half the control is not in its hands at all ? For the improvements I propose see answers to questions 60, 63 and 64. 60. Ganja is produced in my province. A tract of country including parts of the Rajshahi, Bogra and Dinajpur districts is selected for the cultivation of ganja for the supply of the whole province. I was in charge of one of these dis¬ tricts, and am of opinion that the cultivation is not adequately controlled. The staff employed for supervision does not appear to be sufficiently strong and well-paid, and the system itself seems faulty. I believe about 10 per cent. of the actual outturn goes into consumption direct from the cultivator's hand without paying duty. A por¬ tion is probably also stolen from the fields, to the loss alike of the cultivator and Government. It is noteworthy that in a very large area round the ganja tract there is no ganja shop and none can be opened. The reason can only be that the people smuggle and steal, having facility to do so. In fact, they have only to go and ask the cul¬ tivators, in order to have an adequate quantity for the year's consumption. If the cultivators can pass out ganja to their relatives and neighbours, why should they not be able to pass it out to licensed exporters without the Subdivisional Officer of Naogaon ever knowing of it ? Indeed the exporters are more dangerous than the thieves. The cultivator influences the cost to consumers to a considerable extent. The wholesale price which he charges varies from Rs. 10 to 100. This is a large variation and cannot but influence the cost to consumers. The system on which ganja is grown and manufactured and stored might be modified on the following lines:— (1) Experiments should be made in an honest spirit to ascertain if ganja can be grown on hill-sides on the system on which tea is grown. If this succeeds, the present system should be abandoned and the tea system introduced. If the experiment does not succeed, the present system should be continued with the following improvement:— 1. The area for which licenses to cultivators are given should be measured, mapped and recorded. 2. The supervision over the fields should be increased. 3. The entire crop should be purchased by Government and then manufactured by its own paid servants. 4. The ganja when manufactured should be preserved in air-tight tin vessels like tea, say each to contain one, two, or more pounds. There should be only one kind of ganja manufactured, namely, chur ganja, from which all extraneous matter has been eschewed. To have three different kinds of ganja looks like having two holes in the door for a pair of kittens. 5. The ganja should be manufactured at Naogaon and at once despatched to conve¬ nient divisional centres for distribution to the districts. 6. At least two years' consumption should always be in stock. 63. I have very serious objection to the present system of wholesale vend of ganja. The whole¬ sale vendor exercises a great influence in the revenue of Government on the one hand and the cost to consumers on the other. (1) The wholesale vendor should be abolished. (2) The ganja should be issued by the treasury officer like opium to retail vendors. There will be no weighment. The tins will be simply handed over. As regards the retail vend of ganja, I would introduce the following system tentatively:— (1) The retail price of ganja will be fixed by Government. (2) The number of licenses and the localities will be the same and restricted in the same way as in the present system. (3) The vendors would get a commission on the quantity sold. (4) The licenses will be sold by auction, preference being given to those who agree to work for the minimum commis¬ sion. The present system is a sort of gambling. The elements of uncertainty are considerable. The final cost to consumers is too much at the mercy of the vendors in the present system. 64. I have objection to the present system of transport. If the wholesale vendor is abolished, the present system of transport will die with him.
65. I do not believe there is any relation be¬ tween the intoxication produced by ganja and that caused by alcohol. No man discusses within him¬ self—" Now, if I take to ganja I have to pay so much for so many hours' inebriation, and if I take to alcohol I shall have to spend so much for so many hours' enjoyment." Whether a man will drink or smoke depends entirely on taste and cir¬ cumstances unconnected with cost. The question of cost may influence those who are addicted to both kinds of intoxicatious. But I believe such men are rare. The theory of interchangeableness of ganja and alcohol is convenient to Collectors who have sometimes to account to superior autho¬ rity for variations in the two kinds of revenue. 66. I would have only one kind of ganja, namely chur; flat ganja could never be put in tins. The Commissioner says in his last report that consumers prefer flat ganja to chur. He evidently means retail vendors prefer flat ganja to chur. They prefer it because there is an element of uncertainty in flat ganja (in the ratio of the twigs to the actual ganja). The vendor considers this a subject for gambling. He wants and ex¬ pects each time to get more ganja than twigs. Flat ganja also perhaps pays less duty in propor¬ tion to chur ganja. I cannot conceive that there is any difference of quality between flat and chur or even round. The very fact that flat ganja is cheaper (seer for seer) induces vendors to prefer it. 67. My objection to the present method of tax¬ ing ganja is shown in answer to question 63, 70. There is no general use of untaxed ganja, but ganja is smuggled from Rajshahi and Native States to a more or less extent. Conclusion.—Mine is a consistent theory of administration. The final cost to consumers should be independent of all outside consideration. It should be entirely under the regulating power of Government. It should be gradually but steadily increased. No sudden increase will do any good, for that may lead to smuggling or pri¬ vation keenly felt, which last is only next door to entire prohibition in its results. Fluctuation in the cost is most harmful, resulting in increased cost to consumers without any corresponding gain in social morality. Increase of cost to consumers and decrease of consumption slowly and steadily is my motto. Whatever system helps this is good, and whatever flaw in the administration leads to disturb this is objectionable.  - Evidence of BABU KHIROD CHUNDRA SEN, Deputy Magistrate and Deputy Collector, Singhbhum.


69. I have never known the wishes of the people to be consulted by Government officers before establishing a ganja shop in any locality. To my mind there can be no doubt that the wishes of the community ought to be consulted and respected on such occasions. Question 69.[oral evidence]—I know of no case in which people have objected to the establishment of a shop and their representations have been ignored. Nobody likes having a ganja shop next his house. I have not seen ganja consumed on the premises. I am not aware that the practice is prohibited. - Evidence of BABU GUNGADHAR GHOSE, Excise Deputy Collector, 24-Pargana


58. The Excise Administration in respect of the hemp drugs is, I think, working very satis -factorily, but I wish to suggest an alteration in the Excise Act. 59. The Excise Act prescribes the minimum
quantity of ganja and bhang which one can legally possess as follows:—Ganja, 5 tolas ; bhang quarter of a seer. This is enough for a moderate consumer to last for five days in the case of ganja and a fortnight in the case of bhang. This provision affords great facilities for smuggling the drugs from the foreign territories which lie conterminous with many of the districts of the Central Provinces. This is a reason why the normal consumption of the drugs is not known in the province. I think the minimum should be reduced to only two day's consumption, so that the smugglers will not think it worth while to bring them from foreign territories. 60. I think there is sufficient control in this respect. 61. Charas is not cultivated in this province. 62. Bhang is not produced from the ganja, which is cultivated in the Nimar district, and I cannot answer this question. 63. There is no objection to the system of wholesale vend, but the retail vend can be reduced in view of my answer to question No. 58. 64.  No. 65. I think in our province these drugs are sufficiently highly taxed, and are reasonably placed beyond easy access. 66. I think the rates of taxation should vary directly with the intoxicating power of each of these kinds of ganja. 67. I do not think there is much objection. The consumers must pay for the luxury or the necessity according as they look upon these drugs. 68. There are no such shops in our province. 69. No. I do not think it is necessary, for the consumers are few, and very few persons care whether the shops are opened or not in any loca -lity. 70. I think there is much room for improvement in this direction. if the taxation and. control be not uniform in the British and Foreign India, the smuggling should be closely watched. But as this is not possible, I think the minimum quantity which each person can legally possess should be reduced to two days' consumption only - Evidence of BABU KALIDAS CHOWDHRY, Brahmin, Pleader, Hoshangabad


58. I am in favour of the present system of selling ganja to wholesale vendors, who sell to retail vendors at a certain price. The price at which it is sold will be always a check to excessive use. I am against the farming of ganja to contractors as the Government has no control on its consumption under that system. Ganja is not produced in Bhandara district. 61. Charas is not produced in Bhandara district. 62. I cannot answer this question. 63 and 64. None. 65. With reference to country liquor, I think the present taxation on ganja, as sold by retail vendors to people, is rather high. Ganja is sold to vendors at Rs. 3 per seer, and. they sell at Rs. 10 per seer to the public. I think the vendors should be bound down to certain maxi-mum rate. 66. I cannot answer this question. 67. I have no other objection except the above. The large profit which wholesale and retail vendors make on the sale of ganja to the public should be stopped. 68. None. 69. No, I think the wishes of the people should be consulted. 70. None. 65. [oral evidence] Ganja is still the cheapest intoxicant. I do not think the equalisation of ganja with liquor would be harmful. I only wish to have a larger share of the profit of the vendor go to Government. I do not, however, think that the duty should be much raised ; for I think that the people should not be driven to liquor. That is worse than ganja. Opium also is worse than ganja, whether the opium is eaten or smoked. - Evidence of RAO SAHIB RANGRAO HARRY KHISTY, Pleader, Bhandara


58. I regret I am unable to give an opinion. 70. Any drugs that are used here are obtained from the Rewa State, as there is no drug shop in the camp - Evidence of Mr. J. A. MAUGHAN, Manager, Central Provinces Collieries, Umaria, Jubbulpore District


63 and 64. No, 67. Moderate reduction is needed. - Evidence of RAI BAHADUR KUSTOORCHAND DAGA, Bania, Banker, Kamptee, Nagpur District.


58. The system of giving rewards to the informers for arresting persons selling or using these drugs unlawfully is in more instances harmful,
inasmuch as persons with a view to obtain rewards by foul means put these drugs into the possession of their enemies ; otherwise the administration. seems to work satisfactorily.
59. The system of giving rewards should be put a stop to for reasons given above.
60. No.
61. Charas is nowhere produced in this province.
62 to 69. No.
70. Yes. The poor classes who are habitual excessive consumers use untaxed drugs from Native territories.
 - Evidence of LALA NIINDKESFIORE, * Agartcal, Merchant, Banker, Contractor, Malgoozar, Honorary Magistrate, Secretary, Municipal Committee, and .Me.mber, District Council, Saugor.


58. I am satisfied with present excise arrangements as regards both ganja and bhang. I get what little bhang I use from friends returning from Marwar. There is no occasion to make foreign bhang more easy to buy. 65. I consider it unreasonable that the wholesale vendor of ganja should be bound to sell to retail vendors at Rs. 3 per seer, while no restriction is placed on the amount which retail vendors may charge. The result is that the poor have to pay at the rate of Rs. 10 per seer. I think retail vendors should be restricted to a maximum charge not exceeding Rs. 5 per seer. This would be a great help to the poor, and not reduce Government revenue. It would not result in any injurious excess of ganja smoking. The labouring poor need their ganja, and it does them good and not harm. 69. There is no harm from a ganja shop that its location in a public place should be objected to, and no one entertains any such objection. It is a public convenience to have a ganja shop in the bazar. Question 58.[oral evidence]—All people cannot afford to import bhang from Marwar. It is proper thatbhang should be expensive and ganja cheap. Poorpeople would never drink bhang. The ingredients required to mix with bhang are expensive. Question 65.[oral evidence]— The retail sellers make inordinate profits. Question 59.[oral evidence]—I do not think further restriction should be imposed on ganja or bhang. These things are expensive enough. One pice (3 pies) only suffices for one chillum, affording a draught to three or four people. If restriction were imposed, the ganja smoker would not take to liquor or dhatura. I can't answer for opium. I consider the hemp drugs as preferable to liquor. Opium intoxication comes slowly, and is in that respect inferior to ganja. I refer to opium eating. Madak smoking is the worst form of intoxication.  - Evidence* of GIRDHARI LAL, Oswal Bania, Merchant and Banker, Seoni-Chapara


58. I have no improvement on present excise system to suggest as regards ganja. It is just as well that bhang is not readily pro -curable.
63. It seems to me a defect that the wholesale vendor has to supply retail vendors at Rs. 3 a seer, whereas the retail vendors are allowed to charge what they like, and do, as a matter of fact, realize at Rs.10 a seer. If the retail price were greatly reduced, there would be objection that consump -tion is encouraged. But, if the consumers have to pay Rs.10 per seer, it does not seem to me good administration that Government should get no more than the Rs. 2-8 a seer or thereabouts, which the wholesale vendor pays to Government.
When the money is going, Government should arrange to get the lion's share. If ganja were issued from the Government stores in ¼-seer bags, corresponding with the opium cakes, and issued
152
from the treasury direct to retail vendors, as opium is now sold, it would be easy for Government to realise Rs. 2 per ¼-seer bag, or Its. 8 per seer. It would be requisite, however, to ensure careful and honest selection of only the first class ganja for these ¼-seer bags at the Government stores. At present, Tahsildars are subjected to great waste of time in cleaning the ganja issued by sackfuls from the Khandwa store. It would pay Government well to cause effective and honest selection there. It would be easy to provide damp and rat-proof store places at every treasury. The ¼-seer bags should be sealed at the central store when filled. 68. Ganja is not a drug for which people collect in shops or houses to smoke together. The
habitual ganja smokers must have their whiff three or four times a day, and they carry it about with them. It never has been the custom for consumers of ganja to collect in the shops to smoke it together on the premises. The prohibition of smoking ganja in shop premises has, therefore, had no particular effect.
69. There are no complaints against the location of ganja shops. People have no objection to location of a ganja shop in a bazar. On the contrary, it is a convenience. The shop is no nuisance, for objectionable people do not assemble at or hang about the ganja shop. Ganja smoking is so common, that there is no prejudice against the shop. - Evidence* of ONKAR DAS, Agarwalla Bania, Mahajan, Seoni-Chapara


58. I have no recommendation to make. The present restrictions on cultivation and sale of ganja are useful, because they necessitate moder ation by enhancing the price of the drug. 59. The drug could stand further enhancement of price. Government might raise the wholesale price from Rs. 3 to 4 a seer. The result would be to raise the retail price from Rs. 10 to 12 a seer. This enhancement would not be too severe, and would be beneficial, so far as it goes, in curtailment to consumption. 60. The ganja is not sufficiently cleaned in the Khandwa store. Government should enforce better and stricter selection of the ganja flower, and rejection of leaf and stalk. If the wholesale price were raised to Rs. 4, as I recommend, Gov ernment could well afford this. The coarse leaves and stick should be burnt, but the pure leaves would find ready sale as bhang at Re, 1 per seer — wholesale price. 68. There was no general habit of smoking ganja on premises of the ganja vendor. The pro hibition against consumption on vendor's premises was superfluous in the case of ganja. The prohi bition, however, is good in principle. 69. There is no feeling against location of the ganja shop or stall in a public place. The majority smoke ganja, and there never has been consump tion on the vendor's premises, and there is no gathering of bad characters about the ganja shop. There are orders to entertain objections, if pre ferred, but I never heard objections made. In native opinion there is no ground for objection. On the contrary, the more central the ganja shop, the greater is the public convenience. 70. There is no general use of untaxed ganja in this district. The Native States are too far off for successful smuggling. No one imports foreign bhang. It is not available for sale in this district, nor is there any demand for it. - Evidence* of HUSEN KHAN,† Pathan, Abkari Contractor, Seoni-Chapara.


58. As far my opinion goes, I think the Government system of farming the ganja sale of wholesale and retail, though it increases the revenue annually, has now come to its zenith, and the time is not distant when the revenue will go down. Each year, at the time of selling the monopoly, a new contractor comes to the front and retires after his contract is completed, drawing a new person after him. If the old contractor had any profits, he would not have allowed the new man to take up his business for the sake of few extra rupees. Properly speaking the Government actually receive Rs. 6-0-7 on every seer of ganja sold to the poor retail vendor in Seoni district, or Rs. 5-5-5 on every seer of ganja and its products sold all over the Central Provinces during the year 1892-93 before it went in the hands of retail vendors of the province. 68. There are no shops where the preparation of bhang is consumed on the premises, and it is my opinion that such houses should not be en couraged. 69. Properly speaking people, even in large towns, have no interest in the matter, and are quite careless where you open a shop. - Evidence of COWASJEE MEHERWANJEE HATTY-DAROO, Parsi, Merchant and Abkari Contractor, Seoni-Chapara.

 

 
58. It works well. I cannot suggest any im provement. 60. No modification required. 63.  No  objection.64. No.
65. Taxation reasonable. 66. No, only one kind here. 67. No.
68. No special prohibition exists against this. The prohibition is sound. 69. The wishes and requirements are considered by the District Officer, as they ought to be. 70. No; there is very little smuggling. As a rule duty is paid on ganja and other hemp drugs used. - Evidence of BIJRAJ, Marwari, Wholesale ganja vendor, Kamptee, Nagpur District.


58. I am acquainted with the present system of excise administration in the Central Provinces, and I do not consider it to be capable of any im-provement. 60. Ganja is produced in Nimar district only, and the preparation is sufficiently controlled. 61. Charas is not produced in Central Provinces. 62. It is not produced in Central Provinces. 63. I have no objection, and I think the present system is exactly as it ought to be. 64. I see no objection. 65. (a) In my opinion the taxation is reasonable in respect to each other. (b) In this respect, in my opinion, I think these drugs should not be double taxed, that is, by license fees and duty, because these drugs are given at a certain fixed rate to the contractor, and if he is ordered to sell dear, then there is only probability that people will not use them so much owing to their being dear. And the system of the Central Provinces should be enforced in the whole of India. 66. I don't see it necessary that there should be different rates of taxation for different kinds of ganja. 67. Yes ; it should be heavily taxed, so that people should not get it cheap. 68. There are only shops for the sale of ganja and bhang. 69. Yes ; public opinion is generally taken for the inconvenience, if they are put to. - Evidence of LALA RAMSAHI AND LALA SITARAM,  Abkari Contractors, Nagpur.


My opinion is that if we had lots of money for supervision and were ready to make people's lives a burden to them, we might improve the present system of administration if it be an object to check cultivation and use. But I do not think that there is any occasion for this in the Madras Presidency ; and there is no room for substantial improvement in the present system. It is undoubtedly desirable that Government should know all that is going on, so as to secure any necessary control ; but elaborate supervision would only mean the levying of blackmail on the inhabitants without there being any sufficient justification for the adoption of that elaborate system.
I think that the prohibition of cultivation, except in restricted tracts, would be a hardship in respect to this, that the wrong people would be prosecuted. The Salt and Abkari Department has developed as effective a set of blackguards as we have in India when they are not controlled ; and it would be an added terror to village life to let them loose on respectable raiyats. I should not like to be responsible for this. The opium question cannot be regarded as throwing light on this; for there restriction is old and long established. It has settled down. We have nothing to do with it in this presidency. It is possible that existing establishments might enforce prohibition of cultivation, but I do not think they could without difficulty and abuse.
To drive the people by high taxation from the drug to alcohol might not be any advantage. I am doubtful. I know that the revenue has been recently very largely increased; and I am not sure that we need do more than leave the auction system to act. I think it would be quite fair to say this is an exciseable article and must not be grown without a license. This would be fair if feasible. I did not see my way to it. The limit of increased taxation as influencing price which I should be inclined to fix at present would be such as would not drive the people to alcohol. I see nothing at present to justify me in thinking that that would be a desirable change to bring about.
By the improvement effected in 1889, facts were ascertained which were not known before. This led to the facts regarding private cultivation being ascertained. This information cannot be regarded as general, because in the Madras Presidency the village system enables us to get the
fullest information regarding all the circumstances of the people. The system differs in this respect from Bengal. Our village agency puts us in possession of very clear views of facts if we inquire into them. The facts are that the hemp plant is found strewed in certain localities in the back-yards of any people who wish to cultivate it. This is the truth. And all that the Department knows is in a general way that that is so. I should like, for purposes of the careful control I have indicated, to have a return showing actually what was grown and what was done with the drug. But that would cost too much. The only other plan would be to restrict cultivation. If you were to order the stoppage of cultivation of hemp—or even rice—it would be done. There would be no difficulty in having the order carried out. The people would stop the cultivation : they are quite amenable. It would be stopped without the necessity of espionage and interference ; but there would always be the risk of false charges. In Malabar they put toddy into a man's pots and get up a false charge. So they might have the plants handy. In Madras you could carry out any order, but it involves this risk. There is no agitation in Madras in favour of hemp ; so I believe there would be complete submission. I understand that political agitators are entirely on the other side as far as this presidency is concerned. I am not prepared to commit myself to any opinion on the general question, whether, if the result of this inquiry elsewhere proved that the drug was specially injurious, the best time to inaugurate restrictive measures would be before the use became extensive, for the question is so extremely hypothetical in this presidency. There is, I believe, no tendency here in the use of this drug to extend, and I believe more people in this presidency injure themselves from tea than from hemp. - Evidence of THE HONOURABLE MR. C. S. CROLE, Member, Board of Revenue


58. So far as this district is concerned, the effect of present administrative measures is too trifling to afford any ground for an opinion as to whether they are working well or otherwise. 59. The administration of this district must no doubt, follow the system required elsewhere; but I am disposed to think that the system of licensing shops, without other effective measures of control, tends to advertise the drug and lessen the strength of the popular sentiment against its use.
60. With the present very limited cultivation, I do not think restrictive measures are called for. They certainly would not reduce it much below its present limits, and might actually stimulate it by leading people to think their liberty was being unduly interfered with. 61. Nil.
166
62. vide answer to question  60. 63. Vide No. 59. 64. There are none. 65. I have no reason to believe that any of the preparations are unduly taxed under the present system of annual leases of shops.
66. No. 67. Vide No. 65. 68. Vide No 59. 69. There is no local option and none is needed, as the consumption is so trifling. 70. No. - Evidence of MR. J. STURROCK, Collector, Coimbatore.


58. The present system works well. 60. Cultivation is very limited. No addition-al provisions are required. The process of its preparation is sufficiently controlled. 61. Charas is not produced here. 62. No control seems required. The use of the plant is no way abused, nor is ganja cheap. 63. No objection. 64. No. 65. Ganja and bhang are taxed alike. The consumers are poor and an increase in taxation would cause discontentment. 66. Not necessary. Flat ganja is much used here. 67. The ultimate incidence falls now on the consumer. 68. No such houses or shops. 69. Yes, municipalities and other local bodies are consulted. Shops are located at reasonable distances where necessary, so that all consumers may have the power of getting supplies with the minimum of inconvenience. The Head Assistant Collector says that there is no local public opinion on the point to be considered.
70. (a) No. (b) Yes. (c) No. - Evidence of MR. E. TURNER, Collector of Madura.

 

58. The present system is vend rent, licenses being issued for sale publicly in shops. I think it is working well. 59. 1 see no need for change. 60 to 63. See answers to 3,14 and 16 above. I do not see how control is possible. We cannot pry into every man's backyard and see what he is doing there. To try and obtain a Government monopoly (like salt) would necessitate an immensely expensive staff of officials, and the enhancement of cost would be excessively unpopular for no compensating advantage. 63. None. 64. None. 65. Yes. 66. I see no reason for any change in the present system. 67. No. 68. Shops are licensed, and consumption on premises is not forbidden. I see no reason to make a change. I have never had any complaints of rioting or gambling or misconduct in those shops. 69. Yes .    Yes. 70. None. - Evidence of MR. R. SEWELL, Collector of Bellary


58. The sale of ganja without a license is already prohibited. For the last three years these licenses have been sold by auction. There are only sixteen shops for two and a quarter millions of people over an area of nearly 4,000 square miles. 59. I don't think any case can at present be made out for further measures in the direction of checking consumption. 60. Ganja is not cultivated in Tanjore. 63. No remarks. 64. No remarks. 65. If and when the severe restriction on the consumption of alcohol and opium drive the lower classes to the use of ganja, further restrictions on the use of the latter will be called for. At present this ground for action does not exist. 67. No. 68. There are sixteen shops licensed for sale of ganja. The drug is never consumed on the premises.
69. The shops are absolutely inoffensive: No public opinion against any such shop has ever manifested itself.
70. The possession of hemp drugs for home consumption is not an offence, but I believe nearly the wholethat is consumed is obtained from the local licensed dealers. - Eviclence of MR. H. M. WINTERBOTHAM, Collector of Tanjore.


58. I think it meets the requirements of my district well. The use of ganja and bhang is but a very trifling evil here, if an evil at all, and it is difficult to see how to improve the present state of affairs without most serious interference with large numbers of innocent people. The advantage to be gained, if any, would be quite out of proportion to the annoyance and trouble which would result from closer supervision. 60. For the reasons given above, I do not think that any modification is called for. 62. I do not think it would be feasible here. It is not grown as a crop, and is often self-sown. My Huzur Deputy Collector had a plant in his garden lately which sprung up of itself. It would also be useless to control cultivation in the plains of this district, and leave it uncontrolled in the hills ; but no one would venture to think of interfering with the hill men regarding its cultivation. 6S. There are no restrictions as to the consumption of ganja on the premises of the shops here, but I do not think  that it often takes place. 69. There are only five shops in the district. The neighbours are not consulted about their position. I think that they would regard the matter with indifference. Question 59.—There are six licensed shops for this district ; but we have only been able to sell five. The revenue of the present year shows a decrease from the figure reached in the first year of the auction-sale of the shops. This is not significant of a decrease of consumption ; for there is no doubt the consumption of the last two years has been abnormally high owing to the influx of labourers on the East Coast Railway. I think that, whatever changes were made in the excise administration, the revenue of this district could not be materially raised. The shops are few and there is no demand for more. The practice of people growing the plant in their yards for their own consumption of course affects the revenue. But this practice is not very prevalent. I doubt if the plant is not grown in one village out of four, even in this casual way. Such plants spring up accidentally ; for I saw a few days ago a plant in each of two yards occupied by police constables. These men would never have sown the plants, for they would have got a had character with their superior on their being discovered. The contractors in this district get their supplies from the Kistna district as well as locally. A good deal of the local supply probably comes from the Agency immediately inland from Vizagapatam. I have heard no comparison of the quality of this ganja with that of the Kistna ganja mentioned. Extra taxation to any considerable extent would necessitate control of the cultivation. This would necessitate an increase of preventive measures. I am not opposed to an increase of the price of the drug if it were practicable. But preventive measures would be objectionable, because this would interfere with the people. There is already a fairly strong preventive establishment in the low country to control the hemp drug. But this establishment already harasses the people in connection with salt and abkari to the extent of 4,000 or 5,000 prosecutions a year. Additional interference in connection with the hemp drugs would add to these prosecutions, which are already a sufficiently great evil. The above remarks apply to the low country. Any interference in the agency might be productive of political danger ; but I am not sure that the extent to which the cultivation is carried on there is such as to render any serious discontent likely. I did not know cultivation had been stopped in the adjoining States of Bastar and Kalahandi in the Central Provinces. This does not affect my opinion much, because the tracts where trouble might arise would probably be the hill country of the Eastern Ghâts, and not the comparatively level country between Bastar and Kalahandi. My reason for this opinion is based on my knowledge of the races which inhabit the tracts in question. My impression is that the quantity of ganja grown in the Agency is trifling ; but I had no opportunity of ascertaining facts for myself since this inquiry began. I have never been called upon to make an enquiry in connection with complaints of smuggling into the Central Provinces. I was Collector of this district in 1892. I should see no very strong objection to limiting legal possession to the amount which might be held to be equivalent to the produce of one or two plants. And my opinion applies to the Agency also. I say one or two plants; but my meaning is that no one ought to be made criminally liable for possessing the produce of the number of plants that are ordinarily found growing in a garden in this district. If you go further than this, preventive measures of an inquisitorial kind become necessary. In this district you hardly ever see more than one or two plants growing in a garden. I consider it would be more objectionable to allow cultivation, and have the preventive force marking down plants and searching houses when the crop was gathered with certainty of detection, than to prohibit cultivation altogether, The people of the Agency Tracts, specially the hill people, are very much addicted to spirits
and toddy. No system of liquor excise has ever been framed for the Agency. The abkari revenue is leased  by farms or shops in much the same way as it has been dealt with from the time when Government first began to exercise control over it. I am endeavouring to reduce the number of shops, but consider that it would be impolitic and dangerous to move too rapidly in this direction. I cannot say that it is my experience that where the liquor habit is strong the ganja habit is practically unknown. I know nothing whatever on this point as regards this district. I do not even know where the ganja habit is most or where least prevalent. Returns from other provinces would lead me to suppose that such is the case; but I have no practical experience on the point. I can say nothing definite regarding the extent to which the ganja habit prevails among the people of the Agency Tracts. My knowledge on the subject is practically nil. I have no reason for supposing the ganja habit to be more pre valent in one part of the Agency than in another. As regards foreigners, they are almost unknown in the Agency. - Evidence of MR. W. A. WILLOCK, Collector, Vizagapatam.


58. The present system of auction of the right to sell works well. No improvement called for 62. No cultivation in this district. 63. No. 65. Regarded as an intoxicant ; its (ganja) selling value is far too cheap in comparison with toddy and arrack. But in this district interference to vary its value is uncalled for. 68. There are five shops licensed to sell the drug and its preparations, but none where they may be consumed, 69. No. Local public opinion need not be considered under the present system of management. 70. No. - Evidence of MR. J. THOMSON, Collector of Chingleput.


58. Under the present system of administration the right of vending these drugs for consumption is put to auction and sold to the highest bidder.
59. The present system is working fairly, and no change is called for for the present.
60. The cultivation of the ganja-bearing plant and the process of its preparation are not at present controlled ; but they being carried on to a very small extent, the state of things may be left as it is.
61. Charas is not produced.
63. There is only one kind of license at present which allows both wholesale and retail vend.
61. No.
65. (a) There is no charas in this district. There need not be any difference between the rates of the other two.
(b) Hemp drug is not in full working order here as the alcoholic drinks, and so no
compari-sion can be made.
66. This question will not affect these parts, as only one kind of ganja (flat) is here consumed.
67. No.
68. In the shops here the drugs are not consumed on the premises.
69. The objections of the public are first considered before a shop is opened in any locality.
70. The drug is not taxed, but only the right of vend.
 - Evidence of MR. G. STOKES, Collector of Salem,


58. There is no effective control. Shop licenses
are sold; but as there is no control of transport or possession, the control is little more than nominal. 60. There is no cultivation or preperation for sale. 61. Not produced.0 62. Bhang is not consumed. 65. There is no taxation. 68. No. 69. No ; there are only six shops in the district (for retail sale, not for consumption on the premises). 70. As there is no taxation and no control over import, transport, or possession, there is nosmuggling - Evidence of MR. S. H. WYNNE, Collector, Godavari District.


58. I think the present system is as good as any can be. If actual prohibition of the uses of the drug was possible, I should advise it. But I do not consider that it is advisable or possible. 60. We have no control over cultivation, and I do not think any necessary in the district. 62. The cultivation is so small here I do not see any necessity for controlling. 63. I object to the system of sale of shops for retail vend, but I can suggest no better one short of prohibition, which I do not believe is possible. 65. We want to get the highest possible revenue from the drugs with the least consumption. I do not consider the present taxation at all too high. 66. I do not know enough to give an opinion. 68. None. 69. Local opinion ought to be consulted. But at present we have only one shop at each taluk kasbah and one at Porto Novo. 70. No. - Evidence of MR. M. HAMMICK, Acting Collector of South Arcot.


58. As far as it goes, it is working well. It might be improved. 59. I would suggest the introduction of transport passes for more than small quantities intended for domestic consumption, and preventing all transport in larger quantities except by and for licensed dealers. 60. I do not believe it could be controlled in this district and in several others without an unnecessary amount of expense and probable oppression. 62. I do not believe it could be controlled. 63. The wholesale vend of hemp drugs is not really controlled. I would forbid their sales (otherwise than retail in licensed shops) to any one except a licensed dealer. 64. There are no regulations as to transport, including import and export. There should be some, I think. 65. At present I do not think hemp drugs are sufficiently taxed with reference to alcohol. I do not see how a heavier tax can be imposed when they can be obtained so easily. 67. I do not see how a better method could be devised here. 68. There are no such shops. 69. They are not consulted. There is no local public opinion on the subject worth the name. Probably an agitator could get up a plausible petition for or against a shop in every town or village in the district. 70. I do not think hemp drugs are imported in any quantity from foreign territory. Question 58.[oral evidence]—I have no suggestions to add to what I have made in my paper. If it were feasible and possible, I should recommend prohibition of cultivation with a view to much greater restriction. This view is not founded on any experience of the drug, but on what I have heard of the drug. If what I have heard of it is true, it would be a good thing for the country if we could stamp it out. What I have heard is entirely from Europeans. My feeling about the desirability is founded on what may be called the European opinion of the drug; what is said in books, in missionary papers; what I have seen in newspapers and in pamphlets; and chiefly from what I have read of this evidence before this Commission. All this is so much against the drug that I think prohibition of cultivation seems desirable. I have no sufficient material for forming an opinion as to whether ganja or alcohol is more deleterious. If two men were brought to me, one intoxicated with ganja and the other with alcohol, I should not know the difference. Prohibition of cultivation being impossible, I have no suggestions beyond those contained in my answers No. 59 and No. 64 for improvement of system in Malabar. I am not prepared to say anything about the rest of the province, as I have not considered the subject in other districts.
Question 63.[oral evidence]—I understand that the rule as it at present stands is that no one may sell without a license. And what I desire is that the rule prohibiting sale by a cultivator except to a licensed vendor should be enforced; and more than that, I would compel every cultivator who sells to take a license of vend before selling to the licensed vendor. This would, I think, restrict cultivation. I do not think it would interfere with the licensed vendor's supply, as I believe he would get men to take out licenses and grow for him. Question 65.[oral evidence]—I do not see how a heavier tax could be imposed without prohibiting cultivation. Nor can I say what proportionate taxation would be. I cannot determine the relative intoxicating effects of this drug and alcohol. - Evidence of MR. HERBERT BRADLEY, Acting Collector of Malabar.


58. I am acquainted with it. It seems to be working well. I do not see any other system would be better. 60.They are not controlled, and I do not ad- vocate control over them. 61. It is not produced. 62. No; because I doubt its feasibility. It would give rise to many opportunities for oppression, to extortion on the part of subordinates, and possibly result in cultivation being given up, and large farms started with an actual increase in the amount of the said cultivation. 63. No wholesale vend here. I have no objection to the retail. I object to bhang being prepared at all; but as it is prepared privately, it would be difficult to stop this. I should make its preparation penal, but only have a light punish-ment for the offence. 64. There are uo regulations. I think free passes might be issued for transport of the drugs.
It will enable more control to be exercised over the production of, and traffic in, the article. 65. It seems reasonable. 66. No. 67. No. 68. There are shops licensed for the sale of these drugs, and nothing is in the license to prevent consumption on the permises. I have no objection to this system, which allows con-trol, and if this be not allowed, gatherings in private houses under no supervision will result. 69. No; they are not consulted. The Collector reports to the Board of Revenue on report from Tahsildar, through the Divisional Officer or from his own knowledge, whether a shop is ad-visable or not. I don't think public opinion (so-called) should be considered, because the opi-nion given could not be guaranteed to be the real public opinion. 70. No. - Evidence of MR. C. H. MOUNSEY, Acting Collector of Cuddapah.


58. I opened a shop in Ootacamund this year and have to control sales. 59. It has only been working a few months, and the time has not yet come to form an opinion. 60 and 61. Not controlled here. The extent of cultivation and preparation is but small. 62. It would be quite impossible to control it here properly owing to the wild and mountainous character of the country and the quantity of jungly places where it could be grown. 63. No. 64. No. 65. Taxation, which is in the shape of licenses issued to the sellers, is certainly reasonable. I would raise the taxation in future if it is found the sales increase, because the articles are more or less of a luxury. 66. No. 67. No. 68. No consumption occurs on the premises of the one shop licensed. 69. Yes; a shop was opened in consequence of applications. Enquiry was made as to suitable location of the shop. Yes; local public opinion should be considered. 70. No Native States near. - Evidence of MR. F. D'A. O. WOLFE-MURRAY, Acting Collector of the Nilgiris.


58. The sale of hemp drugs is restricted to licensed shops, but there are no other restrictions, and there cannot, therefore, be said to be much of a system at all. No one will deny that the system is capable of improvement in the sense that it is not ideally perfect; so far as it goes it works well enough, but cannot do much to regulate or control consumption. 60. Ganja not produced in this district. 61. Charas also is not produced in this district. 62. No cultivation in this district. 63. I have no improvements to suggest in the method of regulating the sale of drugs so long as the manufacture and transport are left unrestricted. 64. There are none. 65. (a) No differences made. (b) The only taxation is the license fee paid by shopkeepers and the ordinary land tax paid by growers. It is not proportionate to the taxation on opium, but it would not be at present practicable to equalise them. 68. Shops are not licensed for consumption on the premises. 69. As the shops are not licensed for consump -tion on the premises, they do not affect the locality in which they are situated any more than a shop for the sale of any other commodity. It is not usual to consult the people before fixing on sites, but any objection received would be considered. 70. No. Question 58.[oral evidence]—I have not formed any opinion
as to the propriety of further restricting or control-ling the consumption of the drug. It is not much used in this part of the country. The shopkeeper's accounts furnish the only statistics of consumption. The hemp drug shops are auc-tioned, and are distinct from the opium shops. The revenue of Madura district, derived princi-pally from the shops in the town, is about Rs. 4,000.- Evidence of MR. L. C. MILLER, .Acting Collector of Trichinopoly


58. Capable of improvement. 59. The present system in this district is to put up to auction sale the right to vend the drug. Under this system there are three shops for sale of the drug in the district. It seems to me that the right to sell in places such as the head quarters of each taluk and division of Deputy Tahsildars may be put up to auction. I think that while the sale will bring in revenue, it will not operate as a hardship to the consumers. 60. The cultivation is not controlled. Whether this system requires to be modified will depend
whether the use of ganja is bad to health, and, if it is not, on the consideration whether revenue should not be derived from the narcotic (as from other narcotics).    61. No charas is produced here.    62. Same answer as 60. 63. No objection, except that a source of revenue is not availed of by selling the right of vend in many more sub-divided localities than at present. 64. The article being a local product, no remarks to offer. 65. At present the rate of vending the drug is sold by auction and there is no other tax. I have no remarks to offer as to (b), nor as to any altera-tion in the amount of taxation of any of the articles in relation to each other. 66. Not necessary. 67. No remarks. 68. At present it is consumed without reference to any locality. No restriction in regard to this seems at present necessary. 69. The wishes of the people are not consulted, and I do not think it is necessary to do so unless the opening of shop restricts the supply or raises the price. 70. No remarks. - Evidence of MR. K. C. MANAVEDAN RAJA, Collector, Anantapur.


58 et seq. The present system of excise administration in respect to these drugs is, I understand, more or less tentative. It is only within the past few years the Abkari Department has dealt with these drugs at all, .and at present our connection is limited to the licensing of shops for the sale of the drugs. It is only since the introduction of the system that it has become possible to form any estimate of the extent of consumption. I consider that there would be very great and serious difficulties in the way of any attempt to restrict the production of a drug so easily and widely produced. Hemp drugs are, however, in my opinion, and I believe in that of the majority of natives, the most pernicious form of intoxicant, and the danger of increased use is the greater, as there is no recognised rule of caste prohibiting it. Government should, I think, in connection with its declared policy to enhance the price of alcoholic and other intoxicants, consider the danger of thereby driving consumers thereof to the cheaper and more dangerous preparations of the hemp drug. 68. I think it is undesirable that shops should be licensed for consumption of the drug on the premises. 69. Enquiries are made before a shop is opened whether there are a large number of consumers or not in this locality. The demand for the drug is gauged roughly by the amount offered for the privilege of exclusive vend. If the amount offered is small, shops are not licensed. In very few places would there be any public opinion on the subject. 70. I have no information. - Evidence of MR. C. J. WEIR,* Acting Collector, District Magistrate, and Agent to Govr., Ganjam.


Question, 59.—I have never seen any cultivation of hemp not any patch cultivation outside back yards. That is a few plants in a back garden is the extent of cultivation. No notice is taken of such cultivation. We are under Act III of 1894 in Jeypore. There is no control then of the cultivation, manufacture or sale of hemp drugs. No revenue is raised from hemp drugs. The people who grow it, may sell it where they like. I believe that the true hill raiyats do not smoke the drug or use it for drinking, but only for medicine. I have never heard of a cultivator so using it in the small villages. The drug may be so used in the towns like Jeypore, but I have made no in-quiry, not knowing that 1 was to be examined. I have never seen the drug sold in the markets. It may be sold at Maidalpur or elsewhere. There is nothing to prevent such a sale, but I have no experience of such sales. The drugs are mainly used by foreigners. The hill raiyats keep Shiva-ratri. I have heard a general rumour that ganja is smoked in Jeypore, but I understand it is not smoked in the villages. I have generally under-stood that it is consumed by loafers, idlers, and such people in Jeypore and other large towns. I have never seen any ganja going across the border. I have never conducted any inquiry into the matter of smuggling across to the Central Provinces. The matter has never been brought to my notice. During the last four years I have had nothing to do with the Government Excise revenue. As I know nothing of the use of the drugs among the people generally, I know nothing of their effects among the people generally. I remember a foreigner, an Uriya Brahmin, a schoolmaster in a village, going mad about four years ago. As he was a schoolmaster, I inquired of the villagers (he had, as far as I remember, no relatives with him) why he had gone mad, and they said he smoked ganja. I knew nothing of his past history, and accepted that ; and, as far as I remember, I entered ganja in form C as the cause of insanity. I sent the man to the asylum at Waltair as Magistrate. I heard recent-ly of his being back in another school again. I think he has been back some time. I do not know whether it might not be madak that this man smoked. There is a great deal of opium smoked and the people do not discriminate. Village people are very ready to attribute insanity to ganja in Jeypore. I have heard of lunacy being attributed thus to ganja; but I am unable to recall any other cases. When I sent this schoolmaster to the civil apothecary at Korapat, as far as I remember, I told him that the supposed cause was ganja. I should not as a Magistrate inquire into such cases personally as a rule, but receive report from the police, and examine any witnesses the police brought up. In this case I went to the village to inspect the school. I do not think any ganja was grown in the village;
but a good deal of opium was consumed. This is the only ganja case I remember. I have had other lunacy cases, but all this has been more than four years ago, when I was a Magistrate. In view of what I have said regarding the use of the drugs among the general mass of the people, there is no need for restriction. But neither, so far as I know, would any privation be caused if restriction were necessary in the inter-ests of other provinces. I have not inquired as to whether the people use the drugs in their feasts. 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 under 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. It would only affect at all such places as the town of Jeypore. It would, however, be the best plan in regard to such towns. If opium arrangements were altered, there might be a greater demand for ganja, and this might alter the conditions of the problem. I would recommend the Government system being introduced experimentally by opening a shop in Jeypore. I think there would be great difficulty in interfering with the present growth of hemp. It would require an expensive preventive agency. I do not know certainly whether this little cultivation is carried on with a view to using the drug or to making profit by selling it. I have seen one or two plants of wild hemp in the estate. I have not hitherto discriminated between the excessive and moderate use of ganja as a cause of insanity. But I should certainly inquire into the extent of the use if it could be ascertained. It would be very difficult to get any definite information as to this. If ganja were mentioned, I should still make the prescribed inquiry regarding other causes, as shown in the form C, going back for a period of two years which (as far as I remember) is prescribed. I believe that people often take to ganja (as to drink) when they have heavy losses; and the two causes might combine. My own impression is that ganja might very well be a cause of insanity. I base this on general report. I should not therefore employ a man in estate service of whom I knew that he used the drug at all. I could not with confidence put such a man on important guard duty lest he became incapable. I should not have the same feeling about the  moderate consumption of liquor. - Evidence of MR. H. D. TAYLOR, Manager, Jeypore Estate.

 

58. The preparations from the hemp plant are consumed to so small an extent in these parts that I do not consider that any changes in the present system of excise administration are called for in this district. 60. There is no control at all in this presidency on the cultivation of the hemp plant. 68. Not in the Ganjam district, as far as I am aware of. 69. Enquiries are made as to whether there is any necessity for a shop at the place in question. No persons raise objections to the opening of a shop. There is only one shop in a fairly large town like Parlakimedi with over sixteen thousand inhabitants. People living in villages do not require a shop as they can grow the plant. - Evidence  of  MR. J. G. D. PARTRIDGE,  Assistant collector, Ganjam


58, 59 and 60. The system of administration prevalent in this presidency in respect of hemp drugs has been described in reply to question 8. The system is, I consider, working well. To obtain accurate information as to where and to what extent the hemp plant is cultivated, and the ganja and bhang manufactured thereform are con -sumed or transported for consumption, it is highly desirable that a correct record of cultivation and of sales to the public should be kept. The retail vend of ganja has been brought under regulation only since 1889, no restrictions having keen impos -ed upon the cultivation and possession of ganja. As yet the information available is of too indefinite and uncertain a character to justify the introduc -tion of any stringent repressive measures or the adoption of any elaborate system of administra -tion in regard to hemp drugs. The traffic in hemp drugs may, I think, be left as it is for the present and the results watched, no restrictions being placed upon this cultivation of the plant and pos -session of ganja by cultivators. Cultivators should not, however, be allowed to soil their stock to others than licensed persons, or to transport it to other districts. or provinces without a permit issued. by an authorized officer. To obtain a more inti -mate and accurate knowledge of the subject, it seems desirable to adopt such measures as are cal -culated to involve a minimum of Government interference and friction. At present so little is known of the subject that it is impossible to say with any degree of certainty as to what may be the best method of treatment. It seems, therefore, better to continue the present system with the modifications above indicated. 62. and 63. Vide reply to questions 58 to 60. 64. and 65. None. 66. In the present stale of affairs it is not desirable to have differential rates of taxation. 67. I have none. 68. There are no licensed shops where con -sumption is permitted on the premises. 69. The wishes of the people are not consulted before a shop is opened in any locality. It seems hardly necessary that public opinion should be consulted before a shop is sanctioned or opened. If the people take objection, their objection will always be given due consideration. 70. There does not seem to be any importation or smuggling of hemp drugs from, the Native States. - Evidence of MR. H. CAMPBELL, Acting Sub-Collector, Guntoor.


57 to 67. No information.
68. Two shops in Dindigul and one in Palni and Periyakolam. The consumer swallows the thing as he goes from the shop or takes it home. No licensed smoking dens. 69. Yes. The Municipal Council is consulted. I doubt if there is any "public opinion" as we understand the term in England in the matter.  - Evidence of MR. E. L. VAUGHAN, Acting Sub-Collector, Dindigul.


58. No complaints are made against the present system.
60. The cultivation is so sufficiently controlled that it has been altogether crushed. Ganja, however, as already explained, is imported ready prepared from other districts, and as long as this continues possible the system need not be changed. The raiyats can cultivate other crops. 61. Charas is not produced here. 62. No additional control seems required. The use of the plant is in no way abused, nor is ganja dangerously common or cheap. 63. The present system appears to supply the needs of this part of the country sufficiently well. 64. No. 65. The three are taxed alike apparently. Consumers of ganja are usually poor, and the increase of the tax would cause much discontent . 66. Not as far as is apparent. Here, however, flat ganja only is known. 67. The ultimate incidence of the tax falls now upon the consumer. 68. No such houses or shops are known here. 69. Shops are located at regular distances so that all consumers may have the power of getting their supplies with the minimum of inconvenience. The shops are in no way a nuisance to their neigh- bourhood, and no complaints against their location have been received. There is no local public opinion on the pint to be considered. 70. Yes, duty is paid. This is no general use of untaxed drugs. - Evidence of MR. W. FRANCIS, Acting Head Assistant Collector, Ramnad.


58. The system has not been introduced into the division, and I have no experience of its working. 60. The cultivation of the plant is not controlled, and as it is very limited, being confined to the backyards of houses in a few villages, I do not think there is any need for it to be. 61. Charas is not produced as an article of commerce. 63. There is no vend of any of the drugs in the division. 64. There are no regulations, and none are needed. 65. There is no taxation. 66. Having had no experience of the present rates of taxation, I cannot say. 68. No. 70. No. - Evidence of Mr. H. F. W. GILLMAN, Acting Head Assistant Collector, Nilgiris.


58. With regard to the questions in chapter VII, I am acquainted with the present system of excise administration in this presidency in respect of hemp drugs, and I do not think the consumption is large enough in this presidency to call for any further interference than that now in force. Question 59.[oral evidence]—I think that cultivation is here so small that the extra expense and what I may call oppression involved in prohibition is unnecessary. There is a good deal of back-yard cultivation which is untaxed. It would be desirable to stop this sporadic cultivation, if feasible. I think we could do this. I think it would be far simpler to issue an order stopping cultivation; and that would be far easier than attempting to tax it. I believe this cultivation could be stamped out by the mere issue of the order. And supposing that there were reasonable facilities for consumers obtaining the drugs, the dissatisfaction would not be great. I speak only of my own division at present, but I know the whole presidency except a little on the west coast. I think my remarks apply to the whole presidency so far as I know it. I think that the absolute prohibition would require extra establishment for a time. The present establishment would have to be increased, but not to any large extent. And this extra establishment would only be required for a short time. When the thing was established it might be dispensed with. When you show the
people that you want to carry out an order, they will do so at once. Ganja is much more lightly taxed than alcohol, and very much cheaper in consequence. The great bulk indeed is not taxed at all. There is in my opinion a margin for a considerable increase in taxation without equalising the tax on alcohol and ganja. I think that at present a man who takes ganja has to spend on the average three pies a day; and the man who takes arrack pays about from nine pies to one anna six pies a day. The toddy drinker pays about the same as the arrack drinker. These are about the average figures for an average moderate consumer. If a moderate consumer of alcohol took his dram a day, he would pay about Re. 1 as. 8 a month in the interior and Rs. 3 in Madras. Both liquor and ganja are under my charge; but of course ganja occupies comparatively little attention. I cannot say that I can state anything definite regarding their comparative effects. I am not prepared with an opinion.
 - Evidence of MR. J. H. MERRIMAN, Deputy Commissioner of Salt and Abkari, Central Division.

 

 

Question 59.[oral evidence]—I do not think there is any necessity to prohibit or impose further restrictions on the hemp drugs in the districts of which I am speaking. There is no direct restriction on the cultivation, possession, import, transport or export of ganja.
209
The sale only is under control. The revenue is too small to make further restriction important from a revenue point of view. A restricted posses -sion will necessitate an increase in the number of
shops and in the preventive establishment. There is no necessity for such a measure, but I don't think there is any objection to it beyond what I have stated above.
 - Evidence of RAO BAHADUR  R. DHARMARAO, Deputy Commissioner, Salt and Abkari, Northern Division.


58. The sale only is now under control. Insufficient information as to improvements desirable and possible, but it is generally thought the cultivation of the hemp plant and the manufacture and possession of the drugs prepared therefrom should be brought under thorough control, and in this opinion I concur, considering the pernicious effects of such drugs, the entire absence of check at present upon the consumption and the conse -quent want of accurate information as to the extent to which they are used. 61. Nil. 62. Vide answers to question 58 supra. 63. Nil. 64. There are no restrictions. 65 to 67. No information. 68. No. 69. No information. 70. Nil.
 - Evidence of MR. F. LEVY, Acting Deputy Commissioner, Salt and Abkari, Southern Division.


58. Yes, working well. The sale of ganja is regulated by the issue of licenses. No licenses are issued in this division for drugs. In the former case, only two licenses have been issued in this division, one at Narasaraopeta, and the other at Dachapalli. 60. There is no cultivation here of the ganjabearing plant, so to speak. A few plants are raised occasionally in a back-yard. No modification of the system seems called for. 61. Charas is not known here. 62. No. 63. None. 64. None. 65. (a) Only ganja is taxed here by the exclusive right of its sale being sold to one or more persons. The tax on ganja is reasonable. 66. I do not recommend different rates. 67. None. 68. None. 69. No ; the information as to the necessity of a shop is gathered from the number of consumers through the tahsildar of the taluk. It is unnecessary here to consult local public opinion as the consumers are rare. 70. None. - Evidence of P. PUNDARIKAKSHUDU, Brahmin, Deputy Collector, Venukunda, Kistna District.


58. Capable of improvement. 59. At present persons buy ganja not only from the licensed vendor, but also from others who are either cultivators or middlemen. The sales, except by licensed vendors, should be stopped. 60. There is no control at present. Cultivators give ganja to consumers either gratis or sell the same with impunity. Its cultivation should be restricted, except by persons licensed to cultivate it; otherwise there will be illicit cultivation and sale. 61. No charas produced here. 62. Bhang, as described in question 2, is not produced here. 63. There is at present no difference observed between wholesale and retail vend, and I think there need be no such difference, as the transactions in this district are very little. But the cultivation and sale by others than licensed persons should be stopped.
64. Neither exports nor imports here.
65. At present fees are collected from vendors licensed to sell ganja, which seems reasonable. The present fees may be continued, but unlicensed sale must be stopped.
66. Not necessary.
67. None. 68, There is a shop licensed in Anantapur town for sale, but the consumers are not allowed to use the drug within the premises of the shop. This should be continued. 69. The wishes of the people are not consulted before the opening of a shop; but I think they as well as local public opinion should be consulted. 70. None. Cultivators use untaxed ganja and sell it to licensed and unlicensed persons either for consumption or for sale. Licensed vendors get it from cultivators and sometimes from middlemen and sell it in their shops. - Evidence of  D. JAGANNADHARAO PANTALU, Brahmin,Deputy Collector, Anantapur.


58. Yes ; it is working well. 59. The cultivation or importing of ganja even for private consumption may be prohibited. 62 to 64. No. 65. Yes. 66 to 68. No. 69. No; none ; not necessary. 70. None. - Evidence of M. R. R. DEWAN BAHADUR S. VENKATA RAMADAS NAIDU, Deputy Collector, Godavari.


58. The present administration calls for no remarks. 60. There is no control at present, nor does it require any. 63. None. 64. None. 65. I have no suggestion to make. 67. None. 68, There is one retail ganja shop at Arni, where ganja is sold, but not consumed in the premises. 69. Yes; the local revenue officers generally make the enquiry in consultation with the police. The public should be considered. - Evidence of DEWAN BAHADUR K. V. LAKSHAMANA Row GARU, .Brahmin, Deputy Collector, North Arcot


58. The system is not working well. It gives room. for illicit sale. Some check should be placed on the cultivation of hemp. Its cultivation without license should be made penal. 60.    There is no restriction as to the cultivation of hemp plant.
61.    Charas is not prepared in this division. 62.    Vide answer to question No. 59. 63.    No distinction is made between wholesale and retail dealers. The licensed vendor can sell any quantity for any price whatever. 64.    No. 66. Difference in taxation is not necessary. 68.    No. 69.    No ; if the sale of the ganja is sanctioned, there can be no use in considering public opinion about it. 70.    No ; the right of selling ganja, is leased out annually. Question 58.[oral evidence]—I think cultivation could be restricted without difficulty. A prohibitive order would have the effect of stopping cultivation in back-yards, without any great interference with the people, for there is not much of such cultivation, and ganja can be had cheap in the bazar. There would be no dissatisfaction among the people worth speaking of. I speak of North Arcot, Salem and Chingleput, at which last place my family are managers of a shrine, where once a year all the fakirs of the presidency assemble, and have ganja among other things distributed to them.
  - Evidence of M. AZIZUDDEEN, SAHIB BAHADUR, Deputy Collector, North Arcot


58. Excise system extends at present only to the sale of this drug. It is working pretty well. 59. The hemp plant is home cultivated, and any restriction on the cultivation and possession of the drug for domestic use may prove a hardship. All that is required is the exercise of vigilance, combined with prudence, on the part of Abkari officers to prevent illicit sales, which, I think, are to some extent carried on, and to place some restrictions on the cultivation of this plant for sale. I am aware that difficulties crop up in carrying out the restrictions proposed ; but to restrict at once the cultivation itself may be felt severely by the people concerned.
60. The plant is not cultivated here in fields. A few scattered trees will be found in the backyards of some houses. No restrictions are yet placed on cultivation.
61. Nil..
62. Vide reply to question 60. 63. None. 64. I have no objection. 65. Taxation on ganja and bhang is not advisable, for the consumers are mostly fakirs, ascetics, beggars, and others of the cooly class.
66. Different trades are not necessary here if taxation is not at all introduced. 67. Since the exclusive right of selling ganja is leased out the price of ganja is raised to two annas a tola, whereby the consumers are put to some difficulty. 68. There are no such houses or licensed shops in this district where the drug or its preparations may be consumed in the premises. I am not in favour of opening such houses, as they may have the demoralising and stimulating influence upon beginners who may be led away to these places. 69. The wishes of the people are consulted before a shop is opened through the police and Abkari officers. 70. Hemp drugs are imported into the district from the Agency tracts as well as from the Tributary Mahals of the Cuttack district. - Evidence of B. NARAYANAMURTY, Brahmin, Deputy Collector, Ganjam.


60. The cultivation is very limited. No control seems to be necessary. 61.Charas not produced here. 62. No.
63 to 65. None.
66.    No such distinction appears to be desirable, 67.    No. 68. There are three shops in the division. The preparations are not consumed there, but only sold. 69. Wishes of the people are consulted before a shop is opened. The site is approved of by the Police and Magistracy before it is sanctioned. think public opinion ought to be consulted in the matter.
 - Evidence of K. NARAYANA IYER, Brahmin, Deputy Collector, Gooty


60. There is no control whatever over the cultivation of the ganja-bearing plant or in the process of the preparation of ganja. 62.  I do not think that it will be feasible to control the cultivation of the plant, more especially as it is not grown here to any large extent. It is found scattered here and there, a few plants being the most that can be found in any one house com-pound. 63. There is no system of wholesale or retail vend of these drugs or their preparations in this taluk. 64. No such regulations exist here. - Evidence of MR. J. H. GWYNNE , Deputy Collector, Wynaad, Malabar District


59. If the cultivation of ganja is managed departmentally, as is the case in the manufacture of salt, the revenue from this source will steadily increase, and ganja of better sort will be produced. 60. No ; the system requires modification. If the cultivation of ganja is left to the people they will be using it freely. As every one can with impunity raise the crop, people will be induced to make use of it. As every one who wants it can get it easily, the revenue too will not be increased. If the crop is cultivated under the direct management of Government, cured and sold as in the case of salt, revenue will be increased and good ganja will be produced. Its use also may fall into disrepute gradually to some extent.
62. Bhang is not a separate crop here, but is made of ganja. 68. There are two ganja shops at Masulipatam. In one of them majum also is sold. But some pun. chasers will consume there. 69. Public opinion should be considered in opening a shop where consumers should smoke.
 - Evidence of M. R. RY. P. VEERASWAMI NAIDU, Deputy Collector, Masulipatam.


58. The present system of excise administration seems to work well. 60.    The cultivation of ganja is not, as already stated, extensive, and the agriculturists do not as a rule aspire to increase the cultivation, and so no information is available on the point referred to. 61.    Charas is never prepared here. - Evidence of M R. W. E. GANAPATHY, Retired Deputy Collector, Palamcottah, Tinnevelly


58, 59, 60, 61, 62 and 63. The present administration of this drug appears to be sufficient for its purpose. The crop is grown by raiyats without any check. The dealers who purchase the privilege of sale buy the leaf from the cultivators and sell it in licensed places. There are frequent complaints of illicit sale. There seem to be no orders prohibiting the growth of the plant in backyards for private consumption by the grower. This drug is considered as harmless as tobacco. I do not consider that it is necessary to provide for any restraints in its cultivation any more than that of tobacco, as it is not injurious to the public and as Government interference in regard to its growth will unnecessarily cause hardship to innocent consumers. At present there is only one shop for this taluq in an out of-the-way village at Daggapad. Better provision may, however, be made for its sale to public in more places and also for its preparation and manufacture with reference to best medical opinion on the subject. 64. No regulations are in force in regard to the transport of these drugs. 68. There are no shops where consumption on the premises is allowed. 69. The wishes of the people or neighbours are not consulted before the opening of the shop in any locality is sanctioned. It does not seem to be necessary to consult others, in as much as the shops are not places of resort for bad men. 70. There are no importations of this drug in this district from other provinces. - Evidence of A. KRISHNAMACHARULU, Tahsildar, Bapatla, Kistna District


The drug or dry ganja is imported in small quantities from Daggupad in the Cuddapah district, Alamur, Nandyala taluq in the Kurnul district, Shamshabad and Umnabad, Bengal presidency. It is a wild plant grown spontaneously in those places. About 40 or 50 maunds are imported annually. There is no restriction or prohibition for the cultivation of the hemp plant, One Gejjai Kanteppa imports the above drug
from the places noted above. He sells the drug to two retail licensed vendors, Kamalpur Nagayah and Anikeri Nogappa of Adoni town. The former pays annually a tax of Rs. 85 and the latter Rs. 180 to the Government. The drug is sold at a retail price of 4 pies per tola or 8 annas per seer. This is the minimum price at which it can be sold. - Evidence of V. KASTHUR CHETTY, Tahsildar of Adoni.


58. Works well. 60. Cultivation and preparation are not under control, and I will not advocate an y modification. Sale is under control, and that is enough. 62. No. 63. None at all.
64. As an old Abkari officer, my honest opinion is that ganja should be let alone in this presidency. It is used by such a small, almost infinitesimal, portion of the population, and its effects are so harmless that I would not interfere with it. 65. There is no taxation except vend rents. The incidence is light. 66. No. 67. None. 68. No. 69. There is no local opinion. But there is no necessity for any. The shops are so few and the drug so inoffensive that I would not interfere with them. 70. The vendors pay for the privilege of selling and that is sufficient. - Evidence of P. S. SINGARAVELU PILLAI, Tahsildar of Erode


60. The cultivation is very limited and requires no control. 61. Charas not produced. 63. None. 66. No such distinction appears to be desirable. 68. There is only one shop at Tadpatri, where the preparations are not consumed, but only sold. 69. Wishes of the people are consulted by the contractor. He selects a site which is least objectionable by way of securing privacy. The police and the Magistrate then give their opinion about the site. It is necessary that public opinion , should be consulted in the selection of the site. - Evidence of S. VASUDEVA. RAO, Tahsildar, Tadpatri


 58. It is capable of improvement.
59. The cultivation of the hemp plant should be attended with the same restrictions as the cultivation of poppy plants. 60. The system requires modification in respect of laying restrictions on the cultivation of the hemp plant. 61. Charas is not produced in this province. 62. Yes. Village karnams may be asked to enter in the monthly cultivation account the area of ganja cultivation. 63 and 64. No. 65. Reasonable. 66. Not necessary. 67. No. 68. No. The brothels should be stifled. 69. The magistracy and the police are consulted. The local public opinion may be considered. 70. There are no facts regarding importation or smuggling of hemp drugs from Native States. Yes, duty is really paid. There is no general use of untaxed drugs. - Evidence of ADAKI JAGANNADHA RAO, Brahmin, Acting Tahsildar, Hindupur, Anantapur District


60. The cultivation is scarce.
61. Charas is not produced here, nor is it used.
68. In this taluk there are four shops where the drugs are sold. The buyers do not consume them in the places where they are sold. 69. Wishes of the people are consulted before any shop is opened. The least objectionable site will be selected, approved by the police and magistracy. Public local opinion should be considered. - Evidence of G. JAGANNAYAKULU, Acting Tahsildar, Gooty


58. I consider the present system of excise administration in respect of hemp drugs capable of improvement. 59. The improvement which suggests itself to me is the introduction of a license fee for the cultivation of the plant. My object is to prohibit the use of the drug without causing serious discontent. 60. It is not controlled. The raiyat is at the mercy of the contractor and the police as already stated. 62. No ; it is impossible. 63. I object to the system of both wholesale and retail vend of ganja or bhang or any preparation thereof, and I would abolish all tax, because—(1) the worry, annoyance and loss to the raiyats could be avoided ; (2) the opportunities to the subordinate police for unnecessary interference will be minimised. In connection with this I may state an instance which came to my notice in which an innocent man had been dragged into the Court with a charge of having smuggled ganja and convicted on the strength of the evidence produced. 67. I object to the taxation for reasons already given. 68. There are licensed shops for the sale of ganja and its preparation. Nothing peculiar about it. 69. It is not necessary to consult the views of the people in any locality before opening a shop there. - Evidence of A. KATCHAPESWARA. IYER, Brahmin, Stationary Sub-Magistrate, Cuddapah Taluk


58. I have not studied the rules promulgated for the present system of excise administration, but I hear the plant is indiscriminately cultivated. 59, 60, 61, 62 and 63. I think this indiscriminate cultivation must be checked. It must only be allowed to be cultivated in selected localities in each district or province, as poppy, and sold by licensed dealers at enhanced prices. 64, 65, 66 and 67. I don't know. 68. I hear licensed dealers only sell these drugs, but never heard that they prepare and sell the preparations themselves, I think it would be well to order these licensed dealers to prepare these drugs under proper control and sell in small quantities to the public.
69. The wishes of the people must be considered before opening a shop in a locality, otherwise the opening of a shop in a place where it is not wanted will cause the greatest annoyance to the people living in the neighbourhood. - Evidence of M. SESHACHALA NAIDU, Baliya, Pensioned Tahsildar, Vellore


58. I think the system works well. 60. There is no cultivation of ganja in this division. 61. Charas is not produced or known in these parts. 63 and 64. No objection. 65. The taxation might be raised with the object of checking its free use.
68. One uniform rate of taxation is sufficient. 67 and 68. No.
69. Yes; local enquiry is made with regard to location and number of shops required. - Evidence of N. SOONDRAMIAH , Brahmin, Deputy Tahsildar, Ootacamund


58. Present system, so far as it has been introduced, is working well. 1 do consider that it is still capable of improvement. 59. At present taxation and control have been imposed on the sale of the drug only. No control is exercised over cultivation and transportation. Nothing now prevents consumers getting the drug from the cultivators direct, or cultivating it in their own compounds and using it for themselves, If cultivation and possession are allowed only under check, the revenue may increase. But the consumers in this district being very small, special endeavours in this direction are not needed. 60. They are not at all controlled, The system requires modification. The cultivation of the plant should be allowed under license, and the crop harvested under supervision and the produce weighed and the duty levied. Then it may be allowed to be sold as freely as possible. The import of ganja should be prohibited save on payment of duty. In this case sale may be allowed free or on licenses on fixed fees. 61. No charas. 62. Yes ; feasible. Cultivation without license may be notified as an offence. Licenses may be granted by Tahsildars or Salt Inspectors. Cultivators may be made to keep a record of the plants sown in the licensed area, where a blackboard indicating that it is a licensed area should be hung up. Periodical inspection should be made, and the plants counted to tally with the registers maintained by the cultivator. The crop, when it is mature , must be watched and. harvested under the supervision of a Revenue or Abkari officer, and when it is ready for market, it may be weighed and fixed duty levied. If no duty could be paid by the cultivator, it must be stored and preserved under lock and key of Abkari or Revenue officer, and occasional deliveries being made on payment of the said duty.
63. So long as the present system of controlling the sale is carried out, and not that of controlling the cultivation and possession, there are no objections. If cultivation, transportation and possession are restricted, sale of the drug on license with fixed fees may be introduced. At present the drug is sold in shops selected and apprised for sale. The whole quantity consumed by the consumers does not probably pass through these shops ; hence modification 64. Yes ; for reasons given above. 65. There is only one article here in this district, and does not allow any comparison with the other drugs. The consumers of this article are very few, and therefore no comparison is possible between revenue on this and the revenue on other intoxicating drugs. 66. No. 67. My objections have been given above. 68. There are no shops for consumption. 69. The demand being very little, as evidenced by the small number of shops in existence, the wishes of the people have not been consulted. But District Officers and Tahsildars have been origin -ally consulted as to the places where the drug is mostly wanted and the necessary shops advertised for sale. Those shops where there have been no
demand have been closed and the remaining ones continued. As the demand is very little and the consumers are low caste people, it is not consi -dered necessary to consult their wishes.
70. Importation from Native States is not prohibited, nor are cultivation and possession restrict -ed. It is not possible to give any facts restricting the use of ganja duty on which has not been paid. On the other hand, there is at present room, as explained in answer to Question 63, to show that all the article consumed by the people is not obtained from the sanctioned shops. - Evidence of K. NARAINASWAMY NAIDU, Velama, Huzoor Sheristadar, Masulipatam


8. The excise system now in force is working fairly well, but considering the generally pernicious effects of hemp drugs, the tax might well be raised.
60. A tax on the cultivation of the plant should be enforced in addition to a tax on the sale of drugs, and the cultivation of the plant without a license made penal.
65. Considering the pernicious effects of ganja and other hemp drugs, I think that the tax should be made so high on both time (a) cultivation and (b) sale as to make the use of the drug prohibitive. The result of such action will be probably to drive the consumers of these drugs to the use of opium, which is practically harmless. Even school-boys are now learning to smoke ganja (especially Rajput’s children), and strong measures are necessary to repress the practice.
66. No; I would tax all hemp products equally, as they are alike pernicious.
68. No.
69. Not that I am aware of. - Evidence of MR. R. W. MORGAN, Deputy Conservator of Forests, Ootacamund, Nilgiris


63. There is only one small shop in this district for the retail sale of ganja and its preparations; it was opened this year (1st April 1893); it seems unobjectionable. There is no wholesale vend of hemp drugs in this district. 68.There are no such shops in this district; the demand is insufficient. 69.I am not aware, The local public have certainly no objection. - Evidence of SURGEON-MAJOR G. L. WALKER, Civil Surgeon, Ootacamund


58. I am not acquainted. 59. Cannot say. 60. Not known. 61. No charas. 62. Should be controlled. 63. Retail. 64. Not known. 65. Might be taxed, as it is so much sold in bazars. 66. Should be taxed according to the popularity, as it is grown in the district. 67. The cultivator and the vendor who buy the drugs from the cultivators should be taxed. 68. There are. They should be inspected more frequently. 69 and 70. Not known. - Evidence of SURGEON-CAPTAIN C. F. FEARNSIDE, Acting District Surgeon, Ganjam


68. There is one shop licensed to sell ganja in the main street of this town. 69. The wishes of the people are not consulted, and there seems to be no necessity for it, as the drug is sold to purchasers, who take it away with them or swallow it, and at once leave the bazaar. - Evidence of Apothecary G. A. W. VELLONES, Chetambaram, South Arcot.


58. No improvement can be effected in the shape of excise, as those addicted to this drug are invariably from the lowest rung of the ladder and constitute the scum of society or the dregs of earth. 59. Not expedient, because it may probably lead to other deleterious habits, as opium and dhatura smoking as a dernier ressort. 60. I do not know anything about this. 61. No charas is produced in this province, as far as I know. 62. Not known. Good manure is said to be serviceable for this. 63. The retail vend is expedient, as the users of the drug are usually poor or poverty-stricken. 64. None. 65. Reduction is advisable for reasons already assigned. 66. May be taxed alike, being indiscriminately used. 68. Yes, there are, but the drug is not consum-ed on the premises. The present system works well, otherwise it would not only be a hardship on its consumers, but would in a manner, though indirectly, encourage the use of the drug. No; usually muttams and other public places of endowment are utilized like this. May advantageously be taken into account. 70. As far as my knowledge goes, there are none. 59. [oral evidence] I think ganja is more injurious than opium. I have not seen a man smoking dhatura, but I have seen a case of a man suffering from alleged dhatura-smoking. 65.[oral evidence] Reduction is advisable to prevent people taking to more deleterious drugs. The prices of the drugs have been raised in the last few years. If any change is made, it should be in the direction of reduction - Evidence of Apothecary MUHAMMAD ASADULLA, Ellore, Godavary District.


58. No, I am not acquainted 59 to 63. Have no knowledge. 65. Have no knowledge. 68. Yes. If these houses or shops are closed, private clubs would be formed and the drug would even be used in private houses. 69 and 70. Have no knowledge.
 - Evidence of DR. ARTHUR WELLS, Medical Officer, Chicacole, Gan jam District.


58.  No. 61. No. 68. There are licensed shops. 69. No, the wishes of the people are not con - sulted. Local public, opinion should be consi-dered. 70. No. - Evidence of K. JAGANNADHAM NAIDU,* Medical Officer, Parlakimedi, Ganjam District.


58. Capable of improvement. 59. If you want to improve the taxation, raise the rate of taxation on the drug either cultivated or imported. If you want to have the control over the hemp cultivation, limit the cultivation on certain localities only. If you want to improve the social or moral life of the public, stop the cultivation of the hemp altogether. 60. As the cultivation of the hemp is not wide-spread, it can be controlled by stopping the cultivation of this plant. No modification is neces -sary. 61. Not produced in this district. 62. It may be controlled. It is feasible. Raise the tax. Cultivation of the plant shall be limited under license. 63. The present system is satisfactory. 64. Yes ; if you stop the importation or. export -ation. of ganja to those parts where it is not cultivated, it will, I think, greatly lessen the number of consumers ; if not the number, it will at least lessen the quantity of consumption. 65. The taxation of ganja is reasonable with reference to alcoholic intoxicants. In this district only we have ganja, and the other kinds are not sold, being not procurable ; hence I cannot suggest any alteration in the amount of taxation of any of these articles. 66. As there is slight difference in quality between flat and round, the rate of taxation may be slightly reduced to the round kind, as it is little inferior. The broken is very inferior in quality than the other two. The rate of taxation on this preparation may be very much less. Ganja, grown in Thaggupadu in the Kistna district, is superior in quality than the one cultivated in Godavery, the tax of which may be slightly raised. 67. No. 68. Yes, there are licensed shops in the town. These should not be within the limits of the town. The public generally view with aversion whenever they see the shops selling intoxicating drugs. These should be out of the limits of the town so as to give less chance of coming in contact with such shops by the rising young generation.
69. No, wishes of the people not consulted. No measures were taken for. this purpose, Local public. opinion. must be consulted; 70.No. - Evidence of Hospital Assistant T. RANGANAYA KULU NAID00, Rajahmundry, Godavari District.


58. I do not know the exact excise administration in this country, and whatever it may be, the present system appears to work well. 59. No improvement is necessary. 60. Ganja is not produced in this district. 61. Not produced here. 62. Not grown here. 63.No objections.
49. 64. No. 65. The present taxation is quite reasonable, and does not call for any alterations. 66. Does not require different rates of taxation for different kinds of ganja, either for the Bengal variety or for any produced in the other localities. 67. No. 68. There are no houses or shops in the station where I am; but in most of the large towns in the district there are licensed shops. In some stations where I had served before I have seen some houses to which the consumers of ganja used to frequent to gratify their wishes, and such houses were regarded by the people as most contemptible and degrading. 69. I am not aware of this subject fully; but what I think is that the opinion of the public needs no consultation regarding the opening of a shop in any locality. 70. Not known. - Evidence of Hospital Assistant M. IYASWAMY PILLAY, Saint Thomas' Mount, Madras.


61. Charas is not produced, and it is unknown to the public here. 62. No separate cultivation for bhang. 66. Sellers of ganja and confections are to be separately taxed. The latter sale fetches more profit. 67. The present method of taxing ganja is not felt by the consumers. 68. There are no licensed shops or houses for the sale of this drug. 69. The opinion of the public would be as good and necessary as for opening houses and shops for other intoxicants. - Evidence of Hospital Assistant CHINNY SREENIVASA RAU, Prapanna Komity, L. F. Hospital, Bobbili Vizagapatam District.


58. I think the administration of hemp drug will work well on the hills, like Putchay Malay in this district, as we get weekly an immense amount of oranges, lemons and other roots. 59. As above. 60. I think the cultivation of ganja-bearing plants could be controlled well. 61. For the production of charas if hemp is cul -tivated, its process of preparation can be controlled well under the supervision of experienced people. As for yielding more charas, well-trained men should be appointed. 62. Hemp plant is not cultivated for bhang, as it is prepared from the dried drug at their quar -ters, 63. I have no objection for the system of whole-sale vend, as for their preparations only ganja and charas are made, as a rule, and not the bhang, which is already mentioned in paragraph 16, chapter III. 64. I got no objection for the import, export and transport of these drugs. 65. I think the taxation of these drugs, alcoho -lic liquors and other intoxications is reasonable. 66. One rate of tax for different kinds of ganja will be sufficient. 67. The present system may be continued.
68. The houses and shops are licensed for the sale of these drugs everywhere. 69. Nothing has been consulted with any body for opening a shop except the convenience of the people.
70. No importation of hemp drugs whatever from Native States, and the duty is regularly paid on these drugs, and there is nothing untaxed drugs here. N.B.— There are four preparations of hemp, (1) ganja, (2) charas, (3) bhang, and (4) majum, in -stead of three. Majum, a compound of charas, butter, sugar, flour and milk, generally made in the form of small round or square cakes of light yellow colour, and is eaten like a sweetmeat all over India in a very limited manner, at one or two pies a time, once a day towards evening by some of the de -auched men, - Evidence of MIRZA DAVOOD BEG, Pensioned Hospital Assistant, Trichinopoly


58. There was no excise formerly in respect of the hemp drug. The modern system works well. But the duty on ganja is considered to be heavy. 67. Having regard to the ultimate incidence of the tax on the consumer of ganja, I object to the present taxation. I recommend a decrease in ta x-ing. - Evidence of H. S. A. M. MUNJUMIAH, Native Medical Practitioner, Cuddapah.


60. If Government desires to improve the condition of the ganja cultivators, it should introduce the following rules :— (1) The binding rules, which are in force respecting the ganja cultivators, may be relaxed in their favour (by referring to answer to question 8 it will be known as to what extent these rules, are binding), and they should be allowed to cultivate ganja as formerly and to sell it to the contractor alone at a price to be fixed by the panchayat. (2) The contractor should be compelled to purchase ganja at a fixed price from the cultivators of the taluka to which he belongs, and after their stock has been exhausted, he may be permitted to purchase the above article at a price which may seem reasonable to him. (3) The price should be fixed at such a rate as would be advantageous both to the cultivator and the contractor. (4) That for the purpose of rule (3) Government should appoint two persons who cultivate ganja extensively, two respectable merchants and an officer with full powers to fix the price of the ganja. -  Evidence* of SAIYID MAHMUD alias H AKEEM NHANNAY MIAN, Medical Prac titioner, Cuddapah.


59. I am decidedly of opinion that, if possible, there should be further restrictions in regard to these drugs. At present there are hardly any. I regard increased taxation of the drug as a justifiable means of increasing restriction. I should like to see restriction on cultivation, manufacture. transport and sale, as indicated in my paper.I have nothing to add. I think the number of shops here is too large for the city of Madras. I have been visiting these shops—I mean the places where the preparations are sold, not the drug in the crude form. From their situation and hygienic surroundings they may be called dens. They are kept by people who sell preparations, and these ready-made preparations (in solid or liquid form) are consumed (smoked and drunk, as the case may be) on the premises. I saw, for example, dudhia sold (a liquor preparation of ganja). I have seen half a dozen such places in Triplicane suburb alone, Opium is also sold in these shops, not country spirits. I do not think they are re, cognized by the Government*; but they are known to those who frequent them and can be searched out. Such shops should be abolished altogether, prohibited by law. I do not think it is difficult to tell the opium-smoker from the ganja-smoker. The ganja-smoker is generally in very high spirits, and, moreover, when the opium-smoker lets out the smoke we can smell opium in it. The opiumsmoker is quieter. I saw in the same room people smoking opium and others smoking ganja. Tobacco was used with both drugs. But with the opium there is a solid preparation for smoking, I saw both ganja and opium. The pipes are separate. I visited the shops in the evening about 5 or 5-30 P. M. I went on four different days. I saw no violent or unseemly behaviour. I saw some women there. I think they were also
accustomed to the habit, but did not see them smoking. I believe they were prostitutes. From there noisy talking, I thought they were using drugs in some other form. - Evidence of H. RUNGAPPA, Medical Practitioner, Vishvam Baugh, Madras.


61. I do not know that it is produced anywhere in this country. 62. I think not.
65. I do not know that any tax is imposed on the cultivation or consumption of, or the traffic in, this drug. - Evidence of the RAJA OF RAMNAD,* Madura District.


59. The effects of ganja and opium is not much felt here. It is the toddy and country arrack that is the chief cause of all poverty and crime. If the Government should really have the elevation of the lower classes, such as Paryahs, at heart, they should with a strong hand prevent the use of these cheap liquors by them. The Government need not be afraid of it. This drink is not a necessity here, but it is an immoral luxury. The climatic conditions don't require it. The abolition of this, and the extension of primary education following in its trail, will, I am certain, elevate them to an inconceivably better position in an incredibly short time, It is not the want of means of subsistence that makes the Paryah the degraded creature he is ; but it is this tempting cheap drink near at hand that drains all he has, and leaves him the miserable wretch that he now is. Government may modify the Darkhast rules in any manner they like; and the executives may, in conjunction with those rules, adopt means to deprive the mirasidar of his other property besides to enrich the Paryah. All this will only be the additional means given to an unrighteous and intellectually degraded class to proceed in their iniquitous course with more facility than before.
If the missionaries who justly raised the cry against the present degrade i condition of the lower classes, especially Paryahs, suggested first the prohibition of this drink as the chief remedy against the continuance, if not the furtherance, of this degradation, and then based their elevation on (I) education, and (2) facilities to acquire lands for cultivation, the intelligent rural population would have given them credit for sincere philanthropic effort. Since not a word was said by them about this pernicious habit of drinking, where the missionaries themselves seldom set a good
example, their present agitation to elevate the lower classes is viewed very much with suspicion ; for such facilities to acquire lands, in the absence of an effectual check to their usual work, will, without giving them the benefit sought for, only tend to facilitate the work of the local missionaries, who have to show a good outturn of their work to the mission that pay them in the shape of more evangelisation ; inasmuch as it is a patent fact that it is more the hopes of material help held out to them rather than real conviction in Christianity that brings converts from the lower classes, especially Paryahs, who are admitted by the missionaries themselves as a class intellectually low at present. Since the cause of all the misery here is the cheap drink of toddy and arrack within an easy reach of the lower classes, I earnestly request that steps may be taken, as early as practicable, to prohibit the use of this drink as effectually as possible, and save the lower classes from their present miserable state. Since the absence of one form of intoxicating drink or drug will only incite people to the adoption of another unrestricted one, I think the use of all sorts of intoxicating drink or drug ought to be strictly prohibited by law, except in cases of maladies, where the doctors can find no other means of relieving the patient. - Evidence of C. MUTHU KUMARASWAMI MUDELLIAR, Zamindar, Chunampet, Chingleput District.


58. The hemp drug is not known in these parts, and I am therefore unable to answer the questions on this matter. 60. No knowledge. 68. There are shops licensed to prepare and sell these drugs ; but I do not think the vendors can allow people to consume them in their shops. 69. No; the wishes of the people are not consulted. Yes; public opinion ought to be considered. - Evidence of M. ETHERAGULU PILLAY, Land-owner, Bezwada, Kistna District


58. The present system of excise administration in regard to hemp drugs is working well. 60. They are sufficiently controlled. 61. No charas is produced here. 62. No. 63. I have no objection to the present system of wholesale vend of ganja. If retail vend is brought to action, it increases the revenue. 64. No objections to the existing regulations. I suggest that if licenses should be given for cultivating these plants, it is advantageous, both to the improvement and downfall of the use of the drugs. 65. In my opinion a little increase in the taxation of ganja, etc., would be reasonable and proportionate. 66. No ; the rate of taxation should be the same for all kinds of ganja, for, if it is different, people will have greater recourse to the one taxed less. 67. No objection to the present method of taxing ganja, etc. 68. There are shops licensed for the sale of these drugs. It is better that licenses should be given for shops for the preparation of the drugs where they may be consumed on the premises.
69. The wishes of the people are consulted before a shop is opened in any locality. The leading men of the place are collected and their opinion taken before it is opened. Yes ; public opinion should be Considered. 70. No. - Evidence of AZIZ-UD-DIN ALI KHAN, SAHIB BAHADUR, Jagirdar, Cherlopalle, Gurramkanda, District Cuddapah.


58. There are two ganja shops in Adoni, and the right of selling ganja in them is sold for R180 in 1893-94. The low amount fetched is manifestly due to the fact that people grow the plant here and there for their own use without any restriction. 59. There would no doubt be increase in the revenue under this head if restriction be placed on people growing the plant and its growth made penal. 60. Ganja is not being regularly sown and cultivated in these parts in fields ; but a few plants are being here and there put in by people accustomed to its use either in the yards of their houses or by the edges of their fields. There is at present no restriction or control on cultivation of the latter kind. 61. Chants is not being produced here. 63 and 64. 1 see no objection. 65. The taxation of ganja is reasonable. There is no separate taxation on bhang or charas here. Charas is not in use here, and bhang to be drunk is made from dry leaves picked from flat ganja. 66. There is only one kind of ganja (flat) in use here. 67 to 69. No. 70. The person who has purchased the right of selling ganja imports ganja into Adoni mainly from the Kistna and Kurnool districts. No cases of smuggling have come to notice ; but there may be smuggling to a small extent at least by people using ganja grown in their yards, etc. It must be admitted that untaxed drug is also in use. - Evidence of K. SUBBARAYADU PUNTALU, Brahmin, Chairman of the Adoni Municipal Council, Bellary District


60 and 61. It is not produced in this town. 68. There is only one shop licensed for the sale of ganja. - Evidence of E. SUBRAMANA IYER, Brahmin, Chairman, Municipal Council, Con jevaram, Chingleput District


58. I cannot undertake to criticise the present or any system of excise administration. My own impression is that with regard to the growth and manufacture of these drugs, the Government would be wise to adopt a strictly " let alone " policy, leaving it to the spread of education and enlightenment amongst the people to prevent and lessen all ill effects. The province of Government (especially of a paternally despotic Government as ours of India necessarily is) should be carefully to watch such effects, and, wherever and whenever necessary, interfere with prohibitive legislation. such necessity, however, in my opinion, would not often recur. - Evidence of the REV. H. J. GOFFIN,*Missionary, Kadiri, Cuddapah District


58. As there is no authority prohibiting possession and transport without permission, the excise system or administration does not work well, and there is no probability of improvement also, and the people have ample opportunity to dispose them off. 60. The cultivation of the ganja-bearing plant is not at all under anv control. I would strongly propose such a control is quite necessary. Requires thorough modification. 62. Though there be a strict law prohibiting the production of hemp plant, I do not think it will be possible to prevent the production. Though not publicly but secretly people would plant. 63. If possible, I would advocate total abolition. 64. Now the existing Government rules do not prohibit the possession of ganja or any other drugs by any body. Any body can manufacture and keep any quantity in stock. There must be a special law prohibiting the manufacture by all, and only men who possess a license should be allowed to manufacture. Any one can transport it without any trouble, and generally the manufacturers sell at their own quarters without license. There must be a definite law bearing on the subject. 65. The present tax is not at all reasonable. 66. Yes, certainly there should be different rates of taxation. 68. There are shops only in two places in this taluka, but, no sale, as the drugs could be had at a lower rate at the manufacturers'. These shops sustain great losses. 69. No, the wishes of the people are not consulted. To consult the local public not necessary. N.B.—Intoxicating stuff out of hemp, Cannabis indica is unknown as ganja. Ink my opinion, founded upon actual observation, it is ganja and not opium that is doing most mischief in this country. I believe ganja is more insidious in its
effects than opium. Victims to ganja–smoking have been frequently known to fall into a chronic state of mental aberration. Opium, on the contrary when used and not abused, represents the poor man's materia medica, and I have no hesitation in saying that it has kept alive and in health and vigour many who, but for its aid, would have been in their graves long ago. Many regard it as a panacea for all the ills the flesh is heir to, and are ready to back it against the contents of a
whole medicine chest It is even considered a prophylatic against epidemics. Its effects in these parts are on the whole beneficial. Opium smoking is unknown here. Even the practice, when not carried to excess, is hardly more injurious than the us of tobacco. Opium-smoking Chinese are more industrious. Ganja is used in many ways. it is smoked in a chillum, made into sweetmeats, such as majum and halva, and sometimes the beverage known as bhang. Immediate effects are said to be indescribable, the smoker, eater, or drinker, as the case may be, falling into a blissful state, seeing visions and dreaming dreams of the most ecstatic nature, and yet the gradual effects, as mentioned above, are said to be very mischievous, as must be expected after such unusual mental excitement. 65. [oral evidence] I understand the present tax is very small; but I don't know exactly what it is. The tax is not high enough. 68.[oral evidence] By manufacturers, I mean anybody and everybody who chooses to grow the plant. In my note comparing ganja and opium, I refer
to the eating of opium and not the smoking of it. I do not know anything about the smoking of opium. My remark about the harmlessness of opium smoking is not based on experience I know some opium eaters, and they are not so mischievous as ganja smokers. The ganja smokers 1 have described are idlers, it is true; but they are mischievous also, in that people are afraid to pass them at night. Idlers of any sort might be offensive ; but the idleness of these men results from their habit of ganja smoking.  - Evidence of the REV. J, DESIGACHART, Missionary , Society for the Propagation of the Gospel, Badvel, Cuddapah District.


59. [oral evidence] I think the control of the hemp drugs is part of a very much larger question, viz., the restriction by Government of all poisonous drugs in the Indian bazars. I think Government
ought to prohibit the use of ganja except for medicinal purposes. I think ganja is very much worse than alcohol, because the five men whom I have mentioned above presented a much worse appearance the morning after a bout of smoking ganja than the drinker does after indulgence in his liquor. - Evidence of the REV. W. ROBINSON, Missionary, London Missionary Sobriety, Salem.


59. The cultivation must be dealt with, not the sale, if Government wishes to lessen the evils connected with the use of these drugs. Under the present system consumers can freely cultivate for private use. They can also purchase the drug without difficulty at the gardens or even in unlicensed shops. Ganja can easily be concealed, and its illicit sale is consequently hard to detect. 60. The hemp drugs are in no way useful or beneficial. Their action is decidedly injurious, and the effects of their use are wholly bad. I am strongly in favour of the total prohibition of the cultivation of the plant and the production and sale of the drug. I believe such a measure would command the assent of the great majority of the people. The small quantities of the drug needed for strictly medical purposes might be produced in Government gardens and sold under careful restrictions as, say, arsenic is sold in England. 62. See No. 60. 63.All these drugs are dangerous poisons and ought to be sold as such posions are sold in England. 65. The taxation of ganja is certainly not reasonable in reference to . alcohol, as the less dangerous and less hurtful alcohol is made very muck more costly than the wholly injurious. ganja. As I have said before, it costs ten times as much to get drunk on alcohol as on ganja. 68. I believe not in this district. 69. No, I do not see the use of consulting local public opinion on such a question. Though public opinion is decidedly against the use of the hemp drugs, it is doubtful if the majority of the people would take the trouble to express any opinion on the subject, while consumers of the drugs would certainly try to show that opinion was in favour of opening such shops. If the drugs are bad and are doing distinct harm, it is a matter of very small consequence whether the people of a certain locality wish or do not wish to have them prohibited. 70. There is a very general use of untaxed ganja. It can be purchased in unlicensed shops in many villages and in almost every garden where it is grown and it is very largely grown and produced for private use. - Evidence of the REV. W. H. CAMPBELL, Missionary, London Missionary Society, Cuddapah.


58. I saw no signs of ganja being sold in the open market anywhere, nor in any except licensed bazaars. At one place where the licensed seller was away for some time, the smokers complained much that they could not get supplies, which seemed to indicate that there was no illicit sale there. I was told that majium could be bought at a certain bazaar not licensed, and from my enquiries I conclude this was the case; but when I sent to purchase some, I found the seller had gone to the neighbouring town, to the market probably, to replenish his stock of majium amongst other things. 60. No control at all as regards cultivation or preparation, only as regards sale. 64. No regulations, as far as I can learn. 68. No. 69. I believe not. We need local option for all such things. - Evidence of the REV. S. J. LONG, Missionary, Coimbatore.


60. We think that the hemp plant should not be allowed to be cultivated, except by those licensed by Government to grow it for medicinal purposes, if it be so required. 68. We know that there are places here where I the drug is consumed by those who attend the place, and yet we do not know whether they are licensed to keep such an establishment or not. One man of whom we know is allowed to sell the drug. He is licensed to do so. Certainly the houses or shops where the drugs are consumed should be closed up, and. licenses granted only to those who are proper authorities for selling medicinal poisons. 69. The wishes of the people are not consulted at all, as far as we know. - Evidence of the REV. W. V. HIGGINS,* Missionary, Parlakimedi, Ganjam District.


58. It is working well and requires no alteration. 60. Cultivation of the hemp plant for the production of bhang should not be controlled more than at present. 63. The vend of these preparations is extremely limited in this district. No special legislation different to that now in force is at all necessary. 68. No.  - Evidence of the REV. A. MARGÖSCHIS, Medical Missionary, S. P. G., Nazareth, Tinnevelly District


62. The belief of the people that the Government are opposed to the cultivation of the plant is a strong preventive. If the fear of the people is incited by an occasional arrest for cultivating, the production locally will be fairly well con ¬trolled.
63. As a body the missionaries of the two Canadian Baptist Missions, representing fifteen stations, and some forty-five missionaries, and the native communicants, who number over 3,000, are opposed to the license for public sale of any such drugs. If a man is a known consumer, if any of them even moderately, he is not received into church membership, and if he becomes a member without knowing that the habit is contrary to the church discipline, he must give it up or suffer expulsion from the body. In order, however, that the members of the Commission may understand our position, it might be well to add that the use of opium and liquor (i.e., alcoholic drinks) equally debar from such membership. Not that there is any rule to that effect in the church; but the sentiment is very strong that the use of any such drugs or drinks is not consistent with the practice. of a Christ-like life. I have been unable to secure a very general expression from the body as to the relative ill effect of hemp drugs, opium, and alcohol; but, in so far as I can gather, all are united in the belief that in these parts any way hemp drugs are thus far the least injurious, and that opium and alcoholic drinks are not only much more extensively used, but much more baneful in their effects. 69. It all depends upon what that local opinion is. Under the present form of government local opinion is not consulted, and even if it were considered and were inimical, it is questionable if there were a prospect of a large revenue but that the shop would be opened. I question whether the Government could devise any means, except by the secret ballot of securing a general untramelled public expression, and amongst a people so largely illiterate as these are, that method would be impracticable. 70. The large percentage of drugs used are untaxed, and they are used by the classes indicated in previous paragraphs. Question 59. [oral evidence]—The position of our mission is that Government should not derive revenue from the vices of the people, or interfere in the traffic in liquor, opium or drugs, except in the direction of prohibition. I present herewith (1) a Resolution of the Conference of Missionaries of the Baptist Foreign Mission Board of Ontario and Quebec, Canada, comprising 28 members, working in a territory extending from the Kistna river on the south to the Vizagapatam taluka on the north; and (2) a Resolution from 772 of the 2,800 Native Christians of the above mission assembled in conference, both of which pray for the abolition of the traffic in hemp drugs. I think myself
justified in saying that the Baptist Missionaries of the Foreign Mission Board of the Maritime Provinces of Canada, as well as the Native Christians in their charge and the balance of our own congregation, hold the same opinion. This represents the opinion of our mission from the Kistna river on the south to the Uriya-speaking country in Ganjam on the north and from the sea to the Ghâts.
At the meeting of the Native Christians I invited any who had seen the hemp plant growing to stand up and state in how many villages they had seen it. Ten stood up and gave the names of 124 villages out of a possible 600. The persons who gave this information had not received instructions to make the enquiry, and, even if they had, they would not have been able to ascertain the whole extent of cultivation.
The Conference in India of the Missionaries of the Baptist Foreign Mission Board of Ontario and Quebec, Canada, comprising 28 members, under whose spiritual care and direction are 2,800 Native Christians, assembled in session at Samulkota, January 9th, 1894, unanimously passed the following Resolution for submission to the Indian Hemp Drugs Commission:—
Whereas the common consumption of hemp drugs by the people of these districts is in our opinion accompanied by sadly injurious effects, and whereas the habit appears to be on the increase, we would respectfully pray Government to take steps to prohibit the sale of these hemp drugs for common consumption.
Signed on behalf of the Conference. SAMULKOTA ,
The 9th January 1894.
J. G. BROWN,
Secretary.
H. F. LAFLAMME,
Chairman
In the districts of Godaveri and Vizagapatam are 11 Baptist churches with a membership of 772 persons. We, the 40 delegates assembled at Samulkota in the Godaveri Association on the 5th January 1894, representing the above 11 churches, resolve that since ganja is a poisonous drug, and people using this as bhang, majum, and in some other forms suffer various injurious effects, we earnestly beg the Government to protect the people by abolishing the ganja trade.
On behalf of the Association.
B. SUBARAIDU.
M. JAGANAIKULU
 - Evidence of the REV. H. F. LAFLAMME, Canadian Baptist Mission, Yellamanchili, Vizagapatam.


60. It does not seem to be sufficiently controlled, as the plant is undoubtedly grown privately in many gardens, etc., and freely used without any cognizance of officials.
68. I think not. Such encouragement and incitement to evil habits should by no means be allowed.
70. Considerable untaxed drug is used by those who grow a few plants for their own consumption and to give to sanyasis, etc. - Evidence of the REV. J. F. BURDITT, Missionary, Narsaravupet, Kistna District.


58 to 61. Unacquainted. 62. Yes, it could and should be controlled, and I believe it feasible. The best way is prohibitive, except for medicinal purposes.
63. The same objection as to the sale of opium, liquor, and any other poison. Government license first, then prohibition. 61. I know of no regulations. - Evidence of the REV. J. HEINRICHS, Missionary, Vinukunda, Kistna District


58. I consider it gives trouble to the people. 59. By employing good and honest men. 60. It is not properly controlled. It requires modification by the introduction of a stringent Act. 62. Yes. Yes. By the supervision of Tahsil-dars and Revenue Inspectors. 63. Yes. There is no check on the licenseholder whether he sells good or bad stuff to the consumers. 65. It is said that the present tax on ganja, etc., is rather higher than alcoholic or other intoxicants. 66. Yes; according to the quality. 68. No public dens in the town. 69. No. No. Yes. 70. No - Evidence of S. P. NARASIMMALU NAYUDU, Editor of the " Crescent," Coimbatore .


63. I have no objection to the present system, wholesale or retail. Excessive consumers who are found or certified by the doctors to have grown mad, or stupid, or violent on account of the use of the drug solely, may be put in jail for some time till they forget the use. 64. I have no objection either to exporting or importing of the drug, but the educational departments or social reformers should explain to the people the real effects of the drug.
65. Taxation, as heavy as possible, is reasonable and necessary with reference to ( a) and (b), for that will clearly show that the Government does not encourage any such drug or any other spirit, but at the same time does not wish to wound the feelings of its subjects by prohibiting them or countenancing any use of such drugs by freeing them from taxation or putting any indirect restrictions upon them. It would be the best and most healthy policy of the Government to impose the heaviest possible tax on the most consumed kind of the drug. If ganja is most consumed in
a special locality, there the tax should be heavy. Where there is no great consumption, there may be moderate taxation. Anyhow, there should be taxation, heavy or low, in all localities.
67. I shall not object even if the consumer be taxed more than at present. 68. There is a shop in our town. I have nothing to say against it. The shopkeeper does not induce anybody.
69. It is good that the local opinion be sought and the smoking rooms be kept as open and public as possible. The shop in our town ought to be more public and more opens to public view. - Evidence of N. KOTHUNDARAMAYYA, Brahmin, Editor of "Suneeti" Rajahmundry, Godavari District.


68. There are licensed shops for the sale of the leaf and flower tops; but they are not consumed
there, as they have no license for the preparations, which can only be done by the consumer. I am of opinion that there should be no shops for the sale of the prepared drug, as it is likely that a number of idlers will be collected there to consume the preparations. 69. There is some enquiry made before a shop is opened in any locality, and it is absolutely necessary that public opinion ought to be considered. - Evidence of K. VEMATASOOBIAH, Veishya, Trader and Pleader, District Munsiff's Court, Cuddapah.


60 The cultivation and the process of preparation should be brought more under control than it is now. 68. Yes. 69. In this district the wishes of the people are consulted by enquiry in the neighbourhood of the place where a shop is intended to be opened. I think local public opinion ought to be considered. - Evidence of P. C. ANUNTHACHARLU, Brahmin, Chairman, Municipal Council, and Government Pleader, Bellary


68. Ganja is sold in a shop in the municipal market and a shop in the commissariat bazaar. These two shops are licensed. 69. People are not generally consulted as to the opening of shops ; but I think it is better that they should be consulted beforehand. - Evidence of V. SIVA YOGI, Brahmin, 1st Grade Pleader and .Municipal Chairman, Vellore.


60. I am not aware of cultivation to any appreciable extent. It is the impression of the public here that such cultivation is objectionable.
62. To assess the cultivation of the plants sufficiently heavy would effectually prevent or control.
63. No objection.
64. No objection. - Evidence of C. SRINIVAS RAO, Brahmin, Government Pleader, and Chairman, Municipal Council, Cuddalore.


58. The consumers are generally beggars and poor people. I don't think that it will do any good by raising the taxation a little higher. After all it is not so bad as toddy and liquor which is simply ruining the people, and that in increasing numbers. 60. Cultivation is very limited. The cultivators may be made to take a license for the purpose. It will check its increase. 63. The licensed shops ought to be limited to a few centres in a district. Indiscriminate licenses to sell everywhere tend to increase the consumption. It is too tempting to lazy people to resist the fancy to try it, and then acquire the habit. If it is to be obtained with some trouble from a distant place, many a consumer, who has taken to it for the mere pleasure of it, will give it up. Those that grow the plant will be few, and will not daily part with it even for the sake of company. 67. Vide my remarks against 58. 68. They are sold in licensed shops. No smoking on the premises. Nothing bad is heard since the sellers are not themselves consumers. 69. No; people of a place are of no account in selecting places or granting licenses. It is necessary that people should be given an option in the matter. If local option is given, it will prevent many an evil arising from opening shops selling intoxicating drugs or liquids. Question 63.[oral evidence]—I have no particular locality in my mind, in which there are too many shops. In my own district, I think the number of shops is reasonable. My written answer on the subject is general.
Question 69.[oral evidence]—I think Local Boards and Unions might be given an option with regard to the opening and shutting of shops. To some extent, the Local Boards represent the rural interests. In towns the 'Municipal Councils might be consulted, both as regards the opening and shutting of shops, as the Local Boards might in rural tracts. The Collector may have the interests of the people at heart, but for his information he is at the mercy of Tahsildars, who are not as well qualified to judge by the needs of the locality as the Local Boards and Municipal Councils. Before restrictions are placed on the hemp drug, I should like to see more restriction placed on the facilities for procuring alcohol. I think there would be members of the Local Boards and Municipal Councils who would give consideration to the interests and convenience of ganja consumers. Questions of opening and closing of shops should, at all events, be referred to the Municipal Councils and Local Boards and Unions before the Collector passes his decision upon them.
 - Evidence of P. KESAVA PILLAI, Karnam, Pleater, and Honorary Secretary of the Gooty People's Association.


58. It is capable of improvement. 59 and 60. The cultivation of hemp must be restricted ; any man wishing to cultivate must obtain the permission of Government to do so, mentioning the area of laud so cultivated, so that there may be a public record of such lands and
their extent, and all possible information con - nected with it for ready reference ; this will put a stop to the promiscuous growing of hemp in gardens and backyards also. The ganja harvest must also be conducted under Government super vision to ascertain the quantity produced in the country. 62. The cultivation of hemp plant for the production of bhang should be controlled. This would be feasible. By raising the tax and keeping severe supervision of the Government in the cultivation of the hemp plant. 63. My objection to the system of retail vend is that all poor people who are lazy vagabonds and who are in the habit of smoking ganja, etc., can get the thing to satisfy their pernicious habit for a pie or for two pies, so, that they may use it for one day, but if it is to be a wholesale vend, then there will be an indirect check on the free use of these. 65. The taxation is reasonable. 68. There are shops licensed for the sale of ganja. I have nothing special to say on these. 69. It is a matter of formality that is gone through of consulting the neighbours before the shop is opened. Public opinion ought to be considered before opening such shops. 70. I have heard that ganja is imported from Native States by travellers occasionally and also by merchants. I think duty is really paid by the merchants. - Evidence of the HON'BLE A. SABAPATHY MOODELLIAR, RAI BAHADUR,* Merchant, Bellary.


58. The present system of excise administration is working well and requires no improvement. 60. This plant can well be cultivated wherever strong soil is found. 61. Charas is not cultivated in these parts. 62. No modification is necessary. 63. The sale can be managed in any way. 65. I suggest that imposition of heavy taxes is necessary, especially on alcohol, to put down this malpractice, which has turned thousands of people as drunkards. 66. We know nothing about it. 67. I have no objections. 68. No. - Evidence of CHODISETTY VENKATARATNUM, Merchant, Coconada, Godavari District


62. I do not think that the cultivation can be controlled, as it can be grown everywhere. I hear that people grow it in their private gardens in flower pots and use the leaves. - Evidence of MIRZA MEHDY ISPAHANI, Merchant, Madras.


58. As far as I am acquainted with the ad -ministration of these drugs, the abkari law apply -ing to liquor applies to them also. I do not know of any method deserving to take the place of the present law. Control is exercised under sections 6, 7 and 8 of Act 1 of 1886, over the import, export and transport of the drug and such pre -parations as are made from Cannabis sativa (see definition). Section 12 restricts the cultivation to licensees, and sections 55, 56 and 57 provide the penalties for violation of these rules. In order to restrict the use of these drugs, a minimum price such as is imposed on liquor might be imposed on them. - Evidence of APPALA NARASSIAH CHETTY, Vaisya, Merchant, Berhampore


Question 59.[oral evidence]—I do not think bhang is injuious, and I would let the people have it. By bhang, I mean the drink, that is made up from pounded leaves. This bhang is not procurable in this country, and must be imported from Wynaad, Coimbatore, or elsewhere. Bhang is the leaf of the plant and is distinct from ganja, which is the blossom. The two things are purchasable in the shop separately. Ganja like alcohol taken moderately is also harmless but excess is very bad. I don't think any further restrictive measures are necessary with regard to ganja. In Malabar there are not many ganja consumers, and moder rate consumers are the majority. The excessive consumers are very few. - Evidence of MR. D . MANECKJI, Parsi, Merchant and Contractor, Calicut.



Question 59.[oral evidence]—When I have asked people why they stick to the use of this injurious drug, some have said that it is due to the difficulty of getting liquor. And as the thing is a small thing, i.e., as the smokers are so few, I do not see why the use should be restricted. There is no harm to others in the ganja smokers. They are few, that is the main reason why the Government should not
restrict. I think ganja is worse than liquor. It would therefore be better to raise the price of ganja so as to drive the people from it. I do not think that restriction could give rise to adverse public sentiment, because to smoke is disgraceful and no one would acknowledge it. No one could come forward, because he could not say I want to smoke ganja or drink bhang. The growth in the house is very small, and cultivation could be repressed. I cannot speak for the Agency tracts. I think the cultivation or growth of hemp in the back-yards or gardens in the district tracts should be prohibited. That is how I should propose to raise the price of ganja. - Evidence of M. R. RY. V. ANANTH  RAO  PANTULU GARU, RAO SAHEB, Bank Cashier, Vizagapatam District.


60. Ganja is not publicly cultivated in this country. It is only grown in some compounds. - Evidence of MULAGULA KONDIAH, Goldsmith, Rajahmundry.


Question 59.—The use of the hemp drugs may be said to be general; but I am not able to speak with any personal knowledge as to the proportion of the population which uses them. The only knowledge I have of increase and decrease is based on the figures given in my reports. My impression is that cultivation is on the decrease in consequence of the restrictions imposed by the regulations for sale of the produce. There is only one wholesale vendor besides the cultivators, and he is in the Kolaba district. He imports from other districts, and supplies the Bombay market. The local supply of the drugs is, of course, supplemented by imports. These imports seem to show an increase in the Northern Division, and the drugs come for the most part, as well as I can ascertain, from Ahmednagar and Satara. But the increase in recent years is not very important. In the Central Division there is a tendency in the imports to decrease; but I do not think there has been any material reduction in consumption in the Division. There is a material increase of imports in the Southern Division, notably in the Dharwar district. This indicates an increase of consumption, and the tendency is still to increase. On the point whether the consumption of the whole presidency is growing or falling off, I should refer to the figures of retail sales supplied by the licensed vendors. These are as trustworthy as we can get; but they cannot be regarded as better than approximate. If there is any tendency to general increase of consumption it is very slight indeed. Regarding the substitution of drugs for alcohol or the reverse, I cannot speak with great confidence. I do not think there is cause to believe that drug consumers are taking to liquor. There is no temptation to do so. 1 certainly think liquor consumers are not taking to the drugs. The classes of the consumers of the two intoxicants are quite distinct. Theoretically, the cheapness of the drugs would be a temptation to people to consume them; but practically the habits of the people prevent the change taking place. I have had a good many years' experience as Magistrate and Collector in Ahmedabad, Belgaum, Thana, Broach, Khandesh, and I cannot recall any cases in which crime was traceable to the use
of ganja or bhang. I cannot speak as to the effect on people's health, for the consumption is so trivial. I have certainly not noticed any deterioration in the health of the people from this cause. I should, therefore, he opposed to the prohibition of the drug or any severe restriction. The effect of such restriction would, in all probability, drive the people to more deleterious drugs, such as dhatura, which is ready to hand in every village. I have not known dhatura to be used as a substitute for the hemp drugs, or as an admixture for strengthening the effect of the hemp drugs. Though I have not this experience, still I think it quite possible that the ascetic class would take to it. No other alternative drug suggests itself to me at the moment. The ascetic class would not take to alcohol, because they could not afford it. If the price of the hemp drugs were much raised, the ascetics would probably stint themselves of food in order to get the drugs and so do themselves great injury. I do not think the labouring classes, who use the drugs, would take to dhatura. They would rather take to alcohol. I think this would probably do less harm, the liquor being toddy or spirit of good quality, such as is supplied from central distilleries, than the hemp drugs do. I refer in these answers to the moderate use of either intoxicant. I do not think hemp consumers would take to opium, because it is an intoxicant of a different character. Those who indulge in a strong stimulant would not be likely to take to a sedative drug. In this respect I should wish to modify the concluding portion of paragraph 17 of my memorandum. As regards the objects which Government should keep in view in reference to excise of these drugs, I think there is a demand for the hemp drugs, and that the demand will be satisfied legitimately or illegitimately. Government should, therefore, exercise a certain amount of control over the drugs, its measures should not be so restrictive as to induce smuggling and other crimes, and Government should at the same time be entitled to derive such revenue as it legitimately can from this source. The policy should be one of restriction so far as restriction is possible, and I base this opinion on the reputed effects of the drugs. If absolute restriction were possible, I think it would be a good thing. But the territories of the Bombay presidency interlace so extensively with foreign territory, where the cultivation of the drug cannot be controlled, that this would not be possible. I think also that the feeling, which would be aroused among the consumers and those who sympathise with, and are influenced by, them, makes such restriction undesirable. When I say reputed effects of the drug, I mean the effects of the drugs on the people generally, whether taken in excess or moderation. This view of mine does not extend to alcohol or opium. I am not able to say what measures have been taken by Govern -ment to ascertain the effects of the drugs. Hitherto the matter has not attracted attention. I base my opinion of the injurious effects of the drug on the statistics of the lunatic asylums, and the understood fact that violent crimes are committed under the influence of the drugs, i.e., by people who have primed themselves with them. But I am not able to say that the statistics in regard to insanity are trustworthy ; nor have I in twentyeight years' experience, personally come across a case of violent crime of this kind. The Collector is responsible for the excise administration of the district. He does not visit the ganja shops with the object of seeing the effect of the drugs; nor does he collect the social wrecks caused by the drugs for purposes of inspection. I know of no general instructions issued by Government to undertake such inspection; nor, previous to this Commission, were any steps taken to cause medi -cal men to inform themselves of the effects of the drugs. Since restriction must proceed on a knowledge of the effects of the drug, it is certainly the duty of Government to satisfy itself as to these effects before introducing any restric -tion of a prohibitive character. In the past action of Government there may have been a desire to protect the morals of the people ; but Government action has been prompted principally by the right to derive revenue from this source. The drugs are reputed to stimulate and afterwards to intoxicate. I have never seen any one intoxicated from the drugs. I have seen plenty of natives intoxicated by toddy or country spirit. Intoxication is not harmless. I nevertheless regard the hemp drugs as more injurious, because they are by repute more maddening and more productive of crime. In the Kolaba Asylum returns there appear seventy -two admissions from spirit drinking and sixty -two from hemp drugs during the five years from 1888 to 1892. As the number of consumers of alcohol is much the larger, the proportion of insanity would tell against the hemp drugs. I cannot make any distinction between the effects of ganja, bhang and charas. Charas in this presi -dency is hardly used at all, and ganja is, accord -ing to my information, worse than bhang. I think the taxation of the hemp drugs in this
presidency might be raised; but the question would require detailed and careful examination. The ganja of this presidency is roughly manufac -tured, though the cultivation is careful enough. Referring to paragraph 10 of my memorandum, I regard the revenue assessment as disposing of the question of taxation as regards the cultivators. A direct tax would necessitate the adoption of a system of distinct wholesale vend. I see no objection to that as long as the tax does not fall on the cultivators. The variations in the retail price shown in paragraph 8 of my memorandum are no doubt excessive, and seem to indicate that there is room for taxation to regulate the whole -sale value of the drug. But it is to be noted that the cheap rates prevail in districts where the plant is cultivated. I think it reasonable that the consumers in the neighbourhood of cultivation should get the drug somewhat cheaper than con -sumers at a distance. I think that the maximum of possession (40 tolas) might be very materially reduced. 1 certainly do not think that this sort of restriction is ineffectual. It has not been found so in the case of opium. There is no con -sumption on the premises in the mufassal. I think it ought to be prohibited if it is found to exist. I do not think the provision in clause 6 of the license Form A, sanctioned with Government Resolution No. 4421, dated 23rd August 1880, results in causing the markets to be flooded by the outgoing contractor with the drugs sold at a ruinously cheap rate. The man has sense enough to avoid laying in a very large stock of a perish -able article. The large contract system, I have advocated in paragraph 11 of my memorandum, has the advantage that it enlists the farmer in the cause of excise. Government has a respon -sible man to deal with, who is more to be trusted than a number of petty shop-keepers. I think that it is desirable that Government should exer -cise the supervision over the drugs provided for in clause 5 of Form A. If a wholesome quality of drug is not ensured at the shops, people will be driven to get it by smuggling. The same principle applies as in the case of opium; but I would not go so far as to furnish a guarantee of the quality of the drug. The object is to pro -tect the excise revenue. - Evidence of the HON'BLE MR. T. D. MACKENZIE, Commissioner of Customs, Salt, Abkari and Opium, Bombay.


I think that the present system of administration in regard to these drugs seems to have grown up in a haphazard way. But it seems to be work-ing well, and I am unable to see necessity at pre-sent for much modification. I think that Govern-ment is entitled to control the growth of the hemp drug and so to regulate supply. I should say also that there would be no hardship in localising cul-tivation, and no primâ facie reason why it should not be done. The production in Native States would also have to be considered. I may add, to prevent misconception, that some of the ganja cultivation shown in the returns, e.g., Broach and Surat, is really only bhang cultivation. The ela-borate cultivation of ganja is quite different. I have not studied the matter carefully; but, so far as I see at present, I see no adequate reason for so taxing the drug as materially to raise the price. I do not know any reason why taxation and the price of the drugs should be less here than in other provinces; but I have not per-sonally studied this aspect of the subject. Primâ facie, there seems to me no reason for different rates in different provinces. Of course the faci-lities for smuggling would have to be considered. As to the best means of raising taxation, I should prefer not to give an opinion at present, as I have had no notice that I should be asked about these details. - Evidence of MR. G. B. REID, Commissioner, Northern Division, Ahmedabad


Question 59.–I think that total prohibition would hardly be possible; and I think that, as far as can be judged at present, it would be both unnecessary and impolitic. In saying this I refer to ganja as well as bhang. As at present advised, I do not think that adequate cause has been shown for any further restriction in this presidency than at present exists. Cultivation is restricted by the smallness of demand, and also by the restrictions on sale. It is not now so extensive as to call for further restriction. My attention has not, however, been specially drawn to the extent of cultivation as compared with Bengal, etc.
I think that the system which has been in force for the last thirteen years has worked well, and I am not prepared to suggest any modifications of that system at present. I have seen the memoran -dum prepared by the Hon’ble Mr. Mackenzie, and his views, as there expressed, have my general concurrence. I do not think, however, that there is any objection to a direct excise tax on the drugs on account of the existing revenue assessment on cultivation. As to the imposition of such a direct tax, as I have said, I do not know of adequate cause for this; but its imposition is not rendered impossible, in my opinion, by the circumstances of the revenue assessment. I understand that in certain other provinces the cultivation of hemp is restricted to certain districts. I see no objec-tion to such centralisation in this presidency ; but I have not considered this question in all its details. In view also of the higher taxation in other provinces, I see no reason why there should not be a higher direct tax in this province. The disproportion between the taxation of liquor and of hemp drugs, and the relative dearness of liquor which results from this, also points to the propriety of increasing taxation on hemp drugs. I am quite unable to compare the relative effects of hemp
drugs and alcohol. I have seen more evil from alcohol. You cannot traverse such a district as Thana without seeing a great deal of drunkenness. On the other hand, I have never personally seen a man whose intoxication was due to hemp drugs. I do not know, however, that I could discriminate between the two.
I have not studied the table at page 20 of the last Abkari Report (1891-92), and am not able to explain details and the different ratios to popula-tion in different districts.
I think that the condition (clause 5) in the present license for vend goes far enough in the direction of securing the quality of the drug sold.
I think that the objects which Government should have before it in excise administration are to control, as far as possible, the cultivation, production and sale of the drugs, to supply reaso n-able facilities for meeting the necessary demand for them, and to raise such revenue as may be possible without going to such a point as to encourage illicit practices. The policy of the Government should be regulated by reference to effects thus far, that the worse the effects the greater the restriction and the higher the taxation . I think that the effects of excessive consumption have to be taken into account as well as those of moderate consumption. It is so in regard to alcohol. In fixing taxation so high as to cheek excessive use, there is, I think, a heavy burden on the moderate consumers. So far as I see at present, drugs should be treated in very much the same way. It is on these grounds that, so far as I see at present, I would propose increased tax a-tion on the drugs. - Evidence of MR. G. W. VIDAL, Chief Secretary to the Government of Bombay.


 58. I think it is working well. 60. I see no local reason for supposing that further control than exists is requisite. 61. The extent to which charas is produced is described in answer No. 15, and I do not think that interference is necessary. 62. There appears locally to be no reason for more control than exists. 63. No. 64. No. As far as I can judge the regulations work smoothly and successfully. 65. As far as the result of local enquiry goes, I think the taxation to be reasonable. Cases of excessive and unhealthy use of the drug amongst local residents are very rare. The moderate use appears to be harmless, and a small luxury is placed within reach of the poor. 66. I have no knowledge of the subject. Any distinction should be made to depend on the ascertained proportions of strength. 67. No. 68. No. They would be extremely objectionable. 69. Wishes would be consulted if occasion arose for considering the question of opening or closing a shop, as is always the case in the instances of liquor, or opium, or toddy shops. Local public opinion certainly ought to be con-sidered. 70. No. I have no reason to suspect any abuse. - Evidence of MR. E. J. EBDEN, Collector, Ahmednagar


58. It is working well.
63. No, 64. No, and of this I have seen a good deal when Collector of Kolaba, because, a very important ganja firm has its headquarters (for mercantile convenience sake only) in the port of Panwell, and exports " urbi" (i.e., to Bombay) and " orbi." It gave no trouble. 65. Quite reasonable and not a subject of complaint from any one. 68. No, and there is no need for them nor call for them. 69. Not in Thana, because the matter is unimportant. But if it were important, I would consult the villagers, as is always done in the really important case of liquor shops.
70. No facts and no ,smuggling into Thana. The Bombay contractor complained of smuggling from Kurla and Bandora (suburbs of Bombay, but in Thana District) into Bombay. But he now holds both the Thalia and Bombay farms, and says that ,he is all right. The inference is that the hemp drugs smuggled into Bombay were such as had come into Thana legally. [oral evidence] I consider that there is a margin for increasing taxation, having regard to the price of other intoxicants, the fact that the drugs are mainly used by the poor, and the danger of smuggling. It is difficult to judge from my experience, as my farms are suburban, and have to be considered in view of the Bombay contracts. But I consider that there might be a margin. I may add that the poorest of the poor drink toddy and spirits and consumers are not always the poorest. My view of the general object of Government administration of the drugs is that it aims first of all at regulating their use and preventing intoxication. The making of revenue is a secondary object altogether. I have no suggestions to make in regard to the present system to improve it in view of these two objects. It might be different if I were serving in a country where the drugs were much used. In my district, as I have said, their effects are practically a negligible quantity. In any case, if anything was done to raise the price of ganja materially, it might be necessary to have subservient legislation regarding dhatura. - Evidence of MR. W. F. SINCLAIR, Collector, Thana.


58. Yes. No change necessary. 59. None necessary in this district. 60. No control is necessary in Belgaum. 61. None. 62, 63 and 64. No. 65. The import fee is 8 annas per Indian maund and bid in auction for the license R3,935 for last year. Ganja only is imported. No change seems necessary. If fees were raised, the contractor would bid less in the auction. 66. There is only one kind imported here, viz., flat ganja. 67. No. 68. There are no shops where the drugs may be consumed on the premises. I see no harm in allowing such consumption. 69. A shop is not opened unless a considerable number of inhabitants of a village wish it, or do not object. 70. Nothing known. - Evidence of MR. F. L. CHARLES, Collector, Belgaum


62. The present control is quite sufficient. An addition might be made to Government Notification No. 4421 of 23rd August 1880, requiring the cultivator to keep an account of his production and sales. The orders above referred to have already had an effect in restricting the production of bhang in this district.
68. There are only three such shops in Surat City. They undoubtedly make the consumption of bhang more easy, because the consumer is saved the trouble of preparing his bhang water. It has yet to be seen whether the experiment of closing similar opium shops is successful or not. I am inclined to think it will only lead to the formation of clubs, which will have the disadvan
-tage of less publicity. 69. No objection has ever been taken in this district to a ganja-bhang shop. If one was made, it would be attended to ; but there is not the same feeling as there is against liquor or toddy shops. 70. Large quantities of the drug were smuggled in small parcels from the Baroda territory in former times ; but since February 1892, when the sale was brought under control and a farming system introduced by His Highness the Gaekwar, smuggling has almost ceased.
Question 59.[oral evidence]—I should say that bhang was generally harmless—quite as harmless as the English glass of sherry. The vast majority of consumers are quite moderate. In my own office, which represents in many senses the best class of native society, there is perhaps not one who does not occasionally take bhang in social entertainments. I refer especially to the followers of Shiva. I have noticed no ill-effects among them, and they themselves say that the occasional dose does not produce any effect at all. There are also a certain number of habitual consumers and a few who exceed; but the vast majority are occasional consumers; and of the habitual consumers the majority certainly do not exceed. According to my information, the habit of drinking bhang is not very quickly acquired. In this bhang differs from ganja smoking. It would therefore take long for a consumer of bhang to reach this degraded condition. I do not, however, pretend to accurate knowledge on the subject. I am not prepared to say that I have myself observed people to have been reduced to such a degraded condition by bhang as by the use of ganja. I have made enquiries during my tours, and people have admitted to me that they took bhang, and their physical condition appeared to me, as a general rule, to be quite satisfactory. I do not mean to say that the drinking of bhang is confined to the Shivaites. The majority of Vaishnavites do not take it; and these form the mass of the nonShivaite agricultural population of my district. Some Musalmans do take bhang ; but not, I think, the Parsis. The Musalmans reprobate the practice. The number of victims to ganja smoking certainly appears larger than the number who injure themselves by the use of bhang. But this, I think, may be explained in some degree by the fact that there is more disrepute attaching to the moderate use of ganja than to the moderate use of bhang, and so long as a man indulges moderately in ganja, he can keep it secret and has an object in doing so; but when his constitution is ruined, he cannot keep the secret any longer and abandons all restraint. Besides, there is no doubt that the smoking of ganja is much less prevalent among the respectable classes than the use of bhang. The use of ganja is for the most part, though by no means entirely, confined to religious ascetics. The effects of ganja have not come to my notice in my mag sterial capacity, at least in the Surat district. One hears far more of alcohol or toddy. My knowledge is derived from information rather than ocular demonstration. In every taluka town the mamlatdar can bring up, and has sometimes brought up, perhaps half a
dozen social wrecks, said by him to have been ruined by ganja. The persons themselves invaria -bly admit the ganja habit; but they attribute their condition also to the want of sufficiently nourishing food in the form of milk and ghi. On the other hand, there are always to be found some well-nourished individuals who have used ganja all their adult lives and appear to be none the worse for it. Practically, I should not have any hesitation in accepting the view that the condition of the persons I have mentioned was due to the causes alleged by them. I could not answer for isolated cases. I have said that each mamlatdar could produce five or six such cases. The average population of a mamlatdar headquarter town would be 3,000 or 4,000. I have called upon the mamlatdar to produce the ganja smokers more frequently in the last month or two than previously ; but the subject has always attracted my attention more or less, and I have occasionally done this in past years. I cannot definitely remember to have called upon the mamlatdar to produce the social wrecks from opium or liquor. In regard to liquor, a large part of the population of some towns get drunk when they get the chance ; but the effects of alcohol on the constitution do not seem to be so permanent or so radical as those of ganja. Regarding the ganjeris, I have not instituted enquiries into their habits with the view of ascertaining whether they used alcohol or other drugs, because their statement and those of the mamlatdars and others that they used ganja appeared to render it unnecessary. It is very probable that if more strict enquiry had been made, the mamlatdar would have been able to produce even a larger number of persons than I have mentioned as victims of the ganja habit, because it is very unlikely that at a day's notice every one would be able or willing to come.I have occasionally given the order a day before hand—always verbally. I have taken far more interest in regard to alcohol than in regard to ganja ; and if I were to refer to my note books, I could probably call to mind many more cases bearing upon the effects of alcohol than upon those of the hemp drug. My information regarding the latter has been furbished up and added to in consequence of the present enquiry. The alcohol-consuming population of the Surat district, which is the one with which I am best acquainted, is quite distinct from time ganja-consuming population ; and, moreover, I do not know so much about the population that consumes ganja immoderately as about the liquor drinkers, and therefore I find it difficult to make a general comparison between the effects of the two habits. Alcohol is consumed by a vigorous population, who live a healthy, open-air life, and the injurious effects upon them of frequently getting drunk are therefore little or nothing. With regard to ganja, one knows little of the religious ascetics who are the chief consumers ; and I am not prepared to say whether it is more or less injurious than alcohol. I speak of alcohol in the form of toddy, which I think is much more wholesome than distilled liquor. Fully fermented toddy is about as strong as London stout, as shown by experiments made a few years ago. I think increased taxation of ganja would be highly impolitic. I can hardly see how, apart from political reasons, it could be beneficial. The consumer would be prepared to spend a pice or two more upon it. It is much cheaper to get intoxicated on ganja than on liquor. I do not recommend increasing the cost of the former, because the people who use it are poorer than those who drink liquor. I never remember seeing a person intoxicated by ganja. I only know ganja intoxication by description, and it has been described to me as not dissimilar to that caused by alcohol. I have seen a great many cases of drunkenness from toddy. It must, I suppose, injure a person to get intoxicated from alcohol in any form. I do not know of any adulteration of the drugs. There does not appear to me to be any necessity for Government to take measures to prevent adulteration. I think
40 tolas is an unnecessarily high maximum for legal possession of ganja. I think five would be rather too low, owing to the shops being scat-tered; but it would be sufficient in average cases. Question 68.[oral evidence]—I think there is no prohibition against consumption of bhang or ganja in the premises in the shops of Surat. The shops are not a nuisance, and the fact that smoking is there done in public would be rather deterrent than otherwise. - Evidence of MR. F. S. P. LELY, Collector of Surat.


I am not of opinion that the effects of the drugs are such as to justify prohibition nor any stringent restriction. I think the producers in Ahmednagar and Satara would resent very much any restric-tion of cultivation. I think that the prohibition of cultivation in those districts where it is trifling, so as to confine it to the two districts above named, might cause some little dissatis -faction, but would be feasible. It could be done. The system of restricted cultivation and bonded
warehouses, however introduces so many com-plications, as compared with the present system, that it would require careful consideration. I think a R10 (ten-rupee) transport fee per maund could be levied without any change of system, and the present system could not work well with a higher fee. Something like the Central Provinces system might be required. I do not recommend this at present in the Deccan. The rise in price by a tax of, say, R2 (two rupees) per seer, as in the Central Provinces, would be very much felt, and would cause more discontent than would be worth while exciting for the small increase of revenue that would result. If there were a large increase of revenue it might be different. As it is, I do not, as at present advised, recommend such a change as far as the interests of Bombay are concerned. I admit, however, that if the question were regarded as part of a general system of excise, there might be othe r grounds for taking action towards equalizing taxation. Smuggling from Bombay to the Central Provinces must be encouraged by the difference in rates. I think also, perhaps, that the heavy general excise taxation Bombay —the high revenue realised from excise as compared with other provinces—would be an argument against increasing taxation on any special in -toxicant, such as hemp drugs. I believe that the two habits, liquor and drugs, are practically quite distinct. If they were fully distinct, then there would be little force in the last argument I have referred to. Another objection to high taxation of drugs is that Hindus and some Muhammadans might object to it owing to the increased price of drugs being an inducement to take to liquor, which their religion condemns. In view of all the circumstances of the case, I would not impose on the drug more than a transport tax of R10 a maund under existing circumstances. I think that the object of Government in taxa -tion of the drugs should be the greatest revenue with the least possible consumption, that is, I think the drug is sufficiently harmful to make it a proper thing to seek to keep the consumption low. I think that the natural demand must be met to prevent smuggling and such practices; but the Government should seek to keep the facilities for supply as low as possible. I do not think the present demand is too great. I would therefore rather aim at not increasing it than at cutting down the existing sources or facilities for supply and reducing consumption. The latter would unnecessarily cause discontent, and be unadvisable. I would aim at getting as much revenue as possible without increasing the existing demand and consumption, and without interfering with it. As to the maximum of possession, I think that forty tolas is too high, and I would reduce that to five tolas. I think it is a good thing to have some shops in Bombay city, where the drugs are consumed on the premises. It keeps the consumers under notice. The shops are bound to close at a certain hour, and the consumers to behave in an orderly manner. This tends to regulate the practice, and control the habits of consumers. The closing of the chandu and madak shops is said to have really increased the number from 14 shops to about 150 clubs. The latter are not open to inspection or visit by the authorities. As a matter of fact, too, consumption of ganja within licensed shops is really small, and shows no serious evil. In statement K on page 16 of my memorandum the exports are of Bombay ganja, i.e., of ganja produced in the Bombay presidency. "Foreign Indian Ports" are mainly ports in Kathiawar. I believe that all the ganja exported is grown in the province. There was export ascribed to the Central Provinces; but this was found to be a mistake. The ganja exported has paid the trans
port duty on removal from the districts in which it is grown.
I believe that in ordinary magisterial work there is no connection between hemp drugs and crime. But there are certain crimes—murders and crimes of violence—ascribed to ganja ; and there are also certain statements regarding the use of the drugs by Rajputs that point to its leading to violence. I have never sifted these statements ; nor have such facts come to my notice. On the other hand, I have been told that the drugs make a man timid. It is otherwise with alcohol. Among the Bhils, in the wild parts of Gujarat and in such districts as Thana, there are many crimes con -nected with alcohol.
Mr, Almon and I have talked over the question of the average dose on which the estimates of consumption in Bombay city should be based. We have also made further enquiries. We both think that half a tola would be nearer the true average than one tola. Mr. Almon would desire his evidence to be corrected on this point.
 - Evidence of MR. J. M. CAMPBELL, C.I.E., Collector of Land Revenue and Customs and Opium, Bombay.


58 and 59. I think that the present system of excise administration in respect of hemp drugs has worked fairly well, but that the time has, come for putting these drugs on the same footing as alcoholic stimulants and opium. Hitherto the consumption of preparations of hemp has not been extensive, and so long as it was very small, the farm of the right to sell, as dispensing with the need of any preventive establishment, was perhaps most suitable. But it seems that not only in this district, but throughout the presidency, the amounts bid for the right to sell have been in -creasing, and it may fairly be inferred that the habit of consuming these drugs is spreading. It cannot indeed be said yet to be prevalent ; still the total consumption is, I think, sufficient to make it worth while to impose an excise duty ; it is al -ready in this district much in excess of the con -sumption of opium, though insignificant as com-pared with the consumption of alcoholic stimulants, particularly toddy. I use the expression " make it worth while," for in my opinion the question whether it is worth while is the only one which calls for consideration in this connection. It is, I believe, generally admitted that the system of deriving a revenue by farming the right to sell is suitable only in the earliest stage, and that the levy of an excise duty is the fairest and most satisfactory method of taxing an article produced in the country. Now the levy of an excise duty on preparations of hemp will present no difficulties in this presidency. The wild hemp does not grow, and the cultivation of the plant requires great attention, and cannot be carried on surreptitiously. The existing Abkari establishments would probably suffice for the levy of the duty, or at least would require strengthening to but a small extent. The article is too bulky to be easily smuggled, and the arrangement with various Native States as regards alcoholic liquor and opium could probably be easily extended to hemp intoxicants. The levy of an excise duty is of course a very different thing from total prohibition, and would not, I think, excite any opposition. The article already pays a duty through the incidence on the consumers of the amount paid for the farm, and is a very legitimate subject of revenue. An alteration in the form of the duty could not reasonably be objected to. The drugs would probably be a little dearer under an excise duty than they are now, but not so much so as to materially affect anybody—certainly not the occasional consumers, while the habitual consumers are ashamed of the habit, and are the less likely to make open opposition to a check on it.
The levy of an excise duty would, of course, have to be accompanied by an import duty on so much of the article as is imported from places outside British India, except such States as might give over to the Government the management of this as of other abkari revenue. The present duty on import, export, and transport is not, in my opinion, a very fair or satisfactory one. I apprehend it is intended rather to recoup the cost of controlling transport than to be a source of revenue. It does not, however, seem right that in a district in which the hemp plant is not grown the price should be increased by an import duty from which, or from any-thing corresponding with which, districts in Which the plant is grown to an extent sufficient to meet the local consumption are exempt. If the duty were charged only on importation from places outside British India, there would be less objection, for the several British districts would then be on the same footing as regards duty, whether the plant is cultivated in them or not. But the fairest method is to charge an excise duty on the article produced in British India, and a corresponding import duty on the article import -ed from places outside British India. In the first instance the rate of excise and import duty should be low, but not so low as the existing duty on transport, the incidence of which is under 1/33 of a pie per tola. Also the minimum amount of duty leviable should not be so much as at present. I should think that a rate of 8 annas per seer of ganja, which would be little more than a pie per tola, would be an exceedingly moderate rate with reference to the present duties on spirit and toddy. I do not know whether the strength of bhang differs from that of ganja so much as to require a separate rate. Of course charas would need a rate for itself. I consider that it would probably be practicable and desirable to apply to ganja and bhang the system now in force in most districts with regard. to toddy mutatis mutandis—that is, there should be a separate license for each shop, which, if there is only one applicant, should be given on payment of a fixed fee; if there are more, it should be sold by auction. All the ganja and bhang prepared should be kept in bonded warehouses or depôts, and sold thence only to persons who hold licenses for shops on payment of the duty. The licensee should have the option of supplying himself from any depôt in the presidency on payment of excise duty, or from places outside the presidency on payment of import duty, each consignment in either case, of course, being covered by a pass showing the payment of the duty. It is, however, possible that the consumption is in some districts not sufficiently large to induce
persons to apply for licenses for separate shops. In that case the right of sale throughout a district could continue to be given to one person—gen -erally the person who offered the largest sum for the privilege—who would supply himself from a depôt or import on payment of excise or import duty as proposed in the case of the holders of licenses for separate shops. 60. There is at present no need for control, 61. Charas is not produced here. 62. The cultivation of the hemp plant for the production of bhang is not separate from its cultivation for the production of ganja. 63 and 64. See answer to questions 58 and 59. 65. There is at present in this province no taxation in the strict sense of the term on prepa -rations of hemp except the duty on import, export, or transport, as regards which please see answers to questions 58 and 59. 66. I think not, but only one kind of ganja is used in this district. 67. See answer to questions 58 and 59. 68. No. I think consumption on the shop premises is as unobjectionable as consumption in the consumers' own houses.
69. Yes. The village officers are required to inquire and report whether the bulk of the people wish a shop or object to it, and in the latter case a shop is not allowed, I think it is reasonable that effect should be given to the wish of the majority in this matter.
70. I have reason to believe that although there is no, or practically no, smuggling, people who live on the borders of Native States get their supplies from shops in these States, where the article is said to be cheaper. This practice is possibly owing to the rule that any person may have in his possession without a license as much as 40 tolas. The limit should not, I think, be. more than 5 tolas,—perhaps better, 2 tolas.
 - Evidence of MR. J. MONTEATH, Collector and District Magistrate, _Bijapur.


58. I consider the system is as simple and effectual as it can well be, and I know of no measures which can be suggested for its improve-ment. 59. I think, perhaps that the maximum quantity allowed to be in any one's possession (40 tolas) is too high, and its reduction to one-fourth that amount would not be considered a hard-ship. 63 and 64. None. 68. No. 69. The consumption is so insignificant in this district that local option has seldom to be taken into consideration. As Collector of the district, however, I should ascertain the wishes of the people before establishing a new shop in any locality. 70. I should say that smuggling was rare and that the tax is usually paid. - Evidence of MR. H. WOODWARD, Collector, Kaira, Gujarat


 58. Works satisfactorily. 59.  I have no suggestions to make. 62. Not at all necessary. 63 and 64. None. 65. (b) Reasonable. 66 and 67. No.
68. No. Such houses or shops are neither desired by the people nor desirable. 69. Yes. A shop is allowed to be opened only where there is such a large population that obviously there must be a certain proportion of people requiring ganja, or else where people ask for a shop, and on enquiry the Collector and District Magistrate thinks fit to grant the request. There is no objection to local public opinion being thus considered. 70. No facts regarding importation or smuggling of hemp drugs from Native States. Yes, duty is really paid. No general use of untaxed drugs. -  Evidence of MR. R. A. LAMB, Acting Collector, Kolaba.


58. I am acquainted with the present system of excise administration in regard to these drugs and consider that on the whole it works well. There are however two points in which I think there is perhaps room for improvement (see answers to questions 59 and 60). 59. At present a man is allowed to have in his possession 40 tolas of bhang or ganja. Possession of bhang or ganja in excess of this quantity is an offence. I think 15 or 20 tolas ought to be the limit. Even with this amount a man can render himself and 3 or 4 other people intoxicated to such an extent as to lose all self-control. Forty tolas is in my opinion too high. It is impossible to cut the limit down very low, because doing so would necessitate increasing the number of licensed shops in order not to put habitual consumers to great inconvenience, and an increase in the number of shops would tend to cause an increase in the number of persons consuming the drugs. 60. I am told that the cultivators storing as they do their produce in their own houses and selling it to the contractor, frequently sell the drugs retail, which they are not allowed to do. It has been suggested to me that the drug should, when prepared, be at once taken charge of by Government officers, so as to prevent this illicit retail sale. As I am, however, not personally acquainted with the system of cultivation and manufacture, I am not in a position to express any very decided opinion on this point.. If any action is to be taken in this direction an amendment in the law would appear to be required. 62. Bhang is on the same footing as ganja in this respect. 63. No. The present system works well and beyond the point raised in my answer to question 59 I can suggest no improvement. 64. No. The present system works well. 65. Ganja and bhang are not taxed separately in Khandesh. The right a selling these is farmed out for a lump sum. No fee is charged for per-mission to cultivate. 66. Only flat ganja is used in Khandesh. 67. The present system appears unobjectionable. 68. There are no such houses or shops and I do not think that there ought to be. 69. The people are consulted and I think rightly. Inquiries are made by Government officers and the general feeling on the subject is thus ascertained.
70. I do not think that these drugs are smuggled to a large extent. Smuggling to a small extent for the personal consumption of the smuggler no doubt takes place and is hard to stop. The farmer or contractor has to pay a lump sum to Government for his contract. He recovers the money from the purchasers of the drugs, a tax on which must therefore be considered to be really paid by the consumers.
 - Evidence of MR. C. G. DODGSON, Assistant Magistrate and Collector, Khandesh.


 The system of excise administration in the Bombay Presidency has been fully described by the Honourable Mr. Mackenzie, Commissioner of Customs and Abkari, etc., in his letter No. 4752, dated 11th September 1893, to the Chief Secre -tary to Government. Reference is solicited to that report. The system is very simple and uniform. I think it serves the requirements of the Excise Administration and works well. 59.No experiments suggest themselves to me. 60 The taxation is fair, and the manufacture of narcotics from the hemp plant are well con -trolled. I do not think any improvement is called for. Though the cultivation of the hemp plant is unrestricted, I have not heard of illicit sales or manufacture of the drugs. The cultivation of the plant in this district is so very limited, that any restrictions other than those existing under the present system are not called for. The cul -tivation is noted and watched by the village officers and recorded in the village register. Moreover, the cultivator is not allowed to manu -facture or sell the drugs without a permit. No further restrictions are therefore needed. 61. Charas is not produced in this part of the country. 62. There is no cultivation of the hemp plant
for the production of bhang exclusively, as the ganja plant supplies what is known as bhang in this distriot. 63. The present system of both wholesale and retail vend of ganja and bhang works well and requires no modification. 64. None whatever. 65. In my opinion the taxation of ganja and bhang is reasonable with reference to each, and to alcoholic or other intoxicants. Ganja and bhang are taxed equally in this district, and I do not see any reason to disturb the arrangement. 66. I do not suggest different rates for taxing ganja and chur (otherwise called bhang). 67. The incidence per head is low. I do not see that any case in made out for altering of the present rate of taxation, which is quite unobjec -tionable. It is, however, clear that vendors make a large profit out of proportion to the taxes paid and expenses incurred. Appendix A will, I trust, be found useful and interesting as showing the net profits which a retail vendor makes out of his bargain. 68. There are no shops in this district where the drugs are consumed on the premises. The sweet -ened drugs, such as yakuti, majum, etc., and the drinks, such as bhang, though manufactured at shops licensed for the purpose, are not consumed on the premises. The consumers take home their purchases. it would not be advisable to permit consumption of the drugs on the shop premises, as it would probably lead to disorderly behaviour at the shops and in public.
69. The requirements of the people are considered before a shop is opened in any locality. The ganja farmer generally applies to the Collector of the district for permission to open a shop or shops in a locality. The Collector calls on the mamlatdar of the taluka in which the locality lies to report if such a shop is needed, and after such local enquiry as he deems necessary, the mamlatdar reports his opinion, which is generally accepted and acted on by the Collector. 70. I do not think the Bhor State, which is theonly Native State comprised in this district, ever imports any quantity of the intoxicating drugs. I am not aware of any case of smuggling having occurred. Bhor does not grow hemp. There is in consequence no likelihood that it would get untaxed ganja and import it into this district. Duty is paid on all drugs consumed here. I am not aware of any illicit dealings in the manufac -ture or transport of the drug. Appendix A. In the course of enquiries made by me regarding matters connected with the sale of the hemp plant drugs, it has struck me that the profits which the farmers of the right of vending the drugs make are very large. I shall endeavour briefly to state the accounts of the ganja farmer, so that his profits may be readily ascertained. In writing up the accounts I have closely followed the figures available for the Poona district. MR. A. H. PLUNKETT, City Magistrate, Poona.
 

 - Evidence  of  MR. A. H. PLUNKETT, City Magistrate, Poona.


58. I think the present system, which is designed with the object of raising a moderate revenue from the consumption of the drugs at least expense to Government and least inconvenience to consumers, is working well. Any improvement in the direction of tightening the control and restricting the production, manufacture, and sale of the drugs would cause needless harassment without any counterbalancing advantage. 60. No control is exercised on the production of the drugs, and none would appear to be necessary. 61. Charas is not produced. 62. Vide answer to query 60. 63. I have no objection to urge against the present system of wholesale and retail vend of ganja and bhang. 64. None. 65. There is no definite rate of taxation, the right of vend being sold annually to the highest bidder. The incidence of taxation, therefore, varies in different districts, and in the same district in different years. But, upon the whole, I think it is reasonable. 66. No; such different rates would be unwork -able, except at immense cost. 67.  No. 68. None in this district. 69.  No. 70. There are no facts regarding the importation or smuggling of hemp drugs from: Native States. Under the farming system, there is no room for evasion of duty. Question 59.[oral evidence]—I think that those who smoke ganja are the dregs of society, the beggar class. It any attempt were made to improve them, and
deny them that drug, they might take to crime so as to get it if it were dearer. Bhang is consumed by the better classes when consumed at all. I think that the drugs have a bad effect only when the consumers have insufficient food. I th i nk people who want intoxicants will get it somehow. I do not think people will be better off if they are compelled to take to liquor. Its physical effects are worse than those of hemp drugs. Opium-eating would be preferable to ganja smoking, but opium smoking worse. I do not think that the effects of hemp drugs call for increased taxation, though increase of revenue may be desirable. This would be a question to be considered in reference to other provinces. Ganja is largely imported into the province. In Nasik it is entirely imported from outside, i.e., from Ahmednagar in the presidency, and the Central Provinces outside. Bhang from the Punjab is, I am told, obtainable in Bombay. Statistics about imports are easily obtainable. I only state my impressions. I am quite unable to give any estimate of production. I have never had my attention drawn to this matter. The figures about consumption in the Excise Report are given by contractors, whose interest it is to understate consumption. But they may be gener -ally accepted.    I know of no special reasons why taxation should net be raised in Bombay. I do not know the figures for other provinces, or why there should be different rates of taxation. The bonded warehouse system would be very expensive  unless cultivation is concentrated. There would be no objection to stop detached cultivation with a view to concentration, provided the supply is kept up. I can make no recom -mendation as to what districts should be chosen. I have never considered the question of cultivation or the statistics. I do not think any change in the maximum of 40 tolas need be made unless the present system is changed, for there can be no evasion of duty under the present system. It would only be inconvenient to certain consumers to have a lower maximum. There is no scope in the present system for greatly increasing taxation. If this is necessary, we should have to impose a direct tax as well as the indirect, and have the mixed system. I am not aware that ganja is smoked on the premises anywhere. I object to it, because it gets consumers together, attracts people to the place, would appear to countenance the habit, and would thus tend to increase consumption. I have not heard of any adulteration of the drugs as sold in the presidency. Question 66.[oral evidence]—As a matter of fact only one kind of ganja is used in this presidency. I believe so. I have no practical knowledge of that. I have not travelled in the districts so as to see the ganja that is sold. Question 59.[oral evidence]—I could name a dozen cases in which young men have died from the habit of liquor; but I know no such case in regard to hemp drugs. These cases are Hindus.  - Evidence of RAO BAHADUR LALLUBHAI GORDHANDAS, Vania, Huzur Deputy Collector, Nasik.


. The present system is working well. I have no suggestions to make for its improvement. 62. In my humble opinion it is unnecessary to control the cultivation and the preparation of these drugs. 63. and 64. None. 65. In my humble opinion the tax on ganja is not sufficiently high to check its consumption or to prevent increase of consumers and consumption. Bhang need not be as highly taxed as ganja. Manufacture and import of bhang must be encouraged with the object of preventing the people from using ganja for eating and drinking. Ganja is so used because bhang is not imported. As compared with liquor, ganja is exceedingly cheap, and a reasonable increase in its taxation will not lead to the use of alcohol. 68. None in this district.
69.   No.
70. There is much smuggling from the Native States, where the ganja is had much cheaper than in this district. This is due to the fact that sales of ganja farms there are not so honestly and carefully made as here.
 - Evidence of RAO BAHADUR NARAYAN GANESII DESHPANDE, Brahmin, Deputy Collector, Belgaum


58. I am perfectly acquainted with the system ; it works well as far as Gujarat is concerned. 59. No improvement is necessary. 60. No change is needed. 65 to 67. I think no attempt should be made to raise revenue. According to the accounts of the farmer, the total consumption in the Surat district in 1892-93 was as shewn below:—
B. Maunds. Ganja. . . 103 Bhang . . . 45 The revenue in the same year amounted to Rs. 2,800. Any attempt to raise revenue from this source will be regarded as a blunder by rightthinking people. The increase will be very small and the excitement and ill feeling among the lower classes will unnecessarily be created without any corresponding advantage. If Rs. 10 are levied on a maund, the total revenue in the Surat district will be about Rs. 1,480. If bhang and ganja are made as dear as liquor, the object will not be served, and people will take to drinking liquor so far as their means will permit. 68. There are very few houses or shops, The consumers do not behave badly. The houses are not in any way objectionable. 69. People are not consulted. I do not think it necessary to do so. I am of opinion that the Municipality of the town should be consulted in respect to liquor and bhang and ganja shops. Question 59.[oral evidence]–I think that drugs are cheaper than liquor. If they are made equally dear, then people will take to liquor, which is an objection. Also I think that for political and religious reasons the taxation of drugs should not be raised. I would not, however, abolish the present taxes, to which the people have become accustomed. The hold that the ascetics, sadhus and fakirs have on the people cannot be overrated in its political connection with this question. It would bring agitation(at present confined to the bigher classes) down to the lower classes, who follow these sadhus completely. The sadhus and fakirs use the drugs religiously. - Evidence of RAO BAHADUR BHIMBHAI KIRPA RAM, Brahmin, Huzur Deputy Collector of Surat.


58. I consider the present system of excise administration in this province in respect of hemp drugs as working well, 59. I do not think it is capable of any improvement. 60. I think the process of its preparation is sufficiently controlled. As to its cultivation there is little need of control on it. 61. Charas, as stated above, is produced in too small a quantity to find market for it. What
little is produced is consumed in fields. So there is hardly any necessity for special measures to control the process of its preparation. 62. The cultivation of the hemp plant for the production of bhang is, I think, sufficiently con -trolled at present. 63. I think the present system of (a) wholesale (b) retail vend of (1) ganja, (2) bhang, or their preparations is free from any objection.
64. I have no objections to the existing regulations governing the export and import of these drugs and their preparations. 65. I think the taxation referred to in this question is quite reasonable.
66 and 67. No. 68. As to such houses or shops there are none in this province. 69. The wishes of the people are consulted before a shop is opened in any locality. For this purpose application bearing the signatures of the residents in a locality is submitted to the Collector, who sends it to the mamlatdar of the place for enquiry and report. Permission to open a shop is granted should the mamlatdar report that there is necessity for it. 70. The production of hemp plants being abundant in this district, there is no importation or smuggling of hemp drugs from Native States.
 - Evidence of RAO BAHADUR VYANKATESH BAPUJI WADEKAR, Deputy Collector, Ahmednagar.


58. I think it is working well, but seems to require improvement in two respects. 59 and 60. The cultivation and harvesting of ganja or bhang are not properly controlled. No special inspection is made of its cultivation, nor is the crop kept under proper supervision, so as to prevent illicit export or sale. There is nothing to prevent illicit sale to anyone having no permit or license to sell the drug. 61. No ; and so I cannot answer the question. 62. I think it should be, and it would be feasible. The Abkari Inspector may go to the place where the crop is grown at the time of the har -vest, have it reaped in his presence, kept in a room under his seal, and sold to retail vendors in his presence. The cultivator of the drug should be required to give notice of the date of reaping the crop, and the time when the retail dealers may re -quire the drug for sale. 63. The objection to the system of wholesale sale of bhang and ganja is stated above, The system of retail sale is open to one objection, which is that the rates are not fixed by Government. This leaves the retail seller at liberty to unduly profit himself at the expense of the consumer. I should say that the rates should be fixed as in the case of opium and other like things.
64 None. 65. I think it is, so far as the present system is concerned. Some change will have to be made if the rates of retail sale will be fixed. 66. No. 67. No, except as stated in my answer to ques -tion No. 63. 68. None. 69. Representations from the people are consi -dered ; but there is nothing which can be called local option. The number of shops is practically the same as it was before. If the general public opinion be in favour of the removal of the shop, it should, I think, be considered. 70 I know not of any. I think the imposition of duty on drugs used in British territory is evaded in very rare instances.
 - Evidence of RAO BAHADUR BHASKAR RAO RAMCHANDRA HEBLIKAR, Brahmin, Deputy Collector, Sholapur


58. The excise administration in respect of hemp drugs is working well in this district. The Collector, under the control and direction of the Commissioner of Customs, Salt, Opium and Abkari, is charged with the carrying out of the provisions of the Akbari Act. In this he is aided by his assistants and other subordinate officers, also establishment designated as district inspectors and sub-inspectors specially employed for duties under the Act. The import, export and transport of these drugs are controlled by passes issued by responsible officers. The sale of the drugs is permitted under certain conditions of the license. The sale of drugs to one man in one day is limited to a certain weight, and the possession of the drugs over the given limit is watched as an offence. Thus the burning desire of the consumers is tempered down to m oderation and the spread of the vice is checked. Since the above good objects are gained by the present administration, no improvement in it appears necessary. 59. The present administration is not suggestive of any improvement.
60. The Abkari Act, as it now stands, does not lay any control on cultivation of the ganja-bearing plant and the process of its preparation, and so any modification in the present system is not practicable. If, however, it is provided in the Act—(a) that the cultivators of the ganja-bearing
plant shall obtain a pass for cultivation, - ( b) warehouse the ganja and bhang in the manner required of him, this will afford opportunity to the officers to supervise the produce and consumption of the drug efficiently. There being no provision to this effect in the Act, the cultivator might, if he chose, distribute the produce amongst his friends and others, and, when it is not proved that he sold it at a price, his action will go unpunished. 61. Charas is not produced in this district. 62. Ganja-bearing plant is only cultivated in this district, and bhang is the tender leaves picked of the same plant. 63. The present system of wholesale and retail vend is unobjectionable, and no improvement in it appears necessary.
64. The existing regulations satisfy the condi tion in all respects, and there are no apparent objections to it.
65. Ganja and bhang are not differently treated in this district. A form of both articles is given in one lump sum, and so a comparison between the two is not possible. Charas is not used in this district. There is no direct tax on bhang and ganja; but a sum is paid by a license-holder — (1) for a permissive right granted to him to sell these articles, for which tenders are invited; (2) the fee is levied for passes granted for importing ganja from other districts; and if the amount so taken is to be construed as a tax, the realizations on this account, when compared with the revenue from alcoholic or other intoxicants, is reasonable.
66. In this district flat ganja is only known, and so one rate is preferable.
67. The incidence of the tax on the consumer is so considerate that there are no objections to the present method of taxing being continued.
68. There are no such shops in this district.
69. On the farmer applying to the Collector for permission to open a new shop in any locality the respectable people of the place are consulted. In case they make a statement that a shop there is likely to spread vice, permission is not granted; but, if found that a shop in that locality is a necessity and would remove inconvenience felt by the consumers, permission is granted, with the sanction of the Commissioner of Customs, Salt, Opium and Abkari.
70. There have been no instances of the import ation or smuggling of such drugs from Native States. The users of the drug have to pay its price to the licensee, to whom the right of selling ganja is farmed out for a fixed sum, and in this light it might be supposed that duty is really paid in respect to ganja and bhang used It is not obtained without payment.
 - Evidence of RAO BAHADUR SITARAM DAMODAR, H uzur Deputy Collector, Khandesh.


58. The present system of excise administration in respect of hemp drugs has been working well. 59. Requires no improvement. 60. Ganja is not produced in this district. 61. Charas is not produced in this district. 62. The cultivation of the hemp plant for the production of bhang should be controlled by issuing
licenses for its cultivation and for the preparation of bhang. 63. There is no objection to the present system of the vend of ganja. 64. No objection. 65. The taxation of ganja is reasonable with reference to other intoxicants. 66. It is not necessary that there should be different rates of taxation for different kinds of ganja. 67. There is no objection to the present method of taxing ganja. 68. There are no houses or shops licensed for the sale of these drugs or their preparations, where they may be consumed on the premises. 69. Before a shop is opened in any locality the wishes of the people are consulted Their opinions are received through the mamlatdar of the taluka in which the shop is to be opened. Local public opinion ought to be given weight to. 70. There are no facts regarding the smuggling of hemp drugs from Native States into the dis trict of Dharwar. Question 59.[oral evidence]—I have served in Ahmednagar, Satara and Poona, where ganja is cultivated. It was fifteen years ago. The ganja is sold to vendors in British districts. Cultivators can only sell to such vendors. I do not think any of it goes to Hyderabad ; but I do not know contractors could not send it without a permit. Dharwar ganja comes from both Satara and Ahmednagar. - Evidence of KHAN BHADUR RATANJI ERDALJI KANGA, Parsi, Deputy Collector and Magistrate, Dharwar.


 58. The present system works well. 60. Ganja is produced in this district. The plantation and process of manufacture of ganja are sufficiently controlled. 61. Charas is not produced in this district. 62. No such cultivation in this district for bhang alone. 63 and 64. No. 65. I think it is reasonable. 66. Only the flat kind of ganja is so sold in this district. 67. No. 68. There are no such houses for consumption on premises. 69. The wishes of the people are consulted. The opinion of the villagers of the village where a shop is to be opened is obtained by the Collector through the mamlatdar before a new shop is opened. 70. Duty is paid in respect of ganja consumed in this district.
 - Evidence of RAO BAHADUR BAPUJI MAHIPAT KHARKAR, Kayasth, Huzur Deputy Collector and Magistrate, 1st Class, Satara.


58. I consider the present system is capable of some improvement. 59. The only suggestions that I can make are (1) that the maximum quantity at present fixed, 40 tolas, for retail sale to, and possession by, one person, should be reduced to 10 tolas ; (2) that minimum retail sale prices of the drugs should be fixed ; and (3) that the rate of duty on import, export and transport of the drugs should be enhanced. [ make these suggestions with a view to restrict the use of the drugs as far as possible for the reasons given in my answer to question No. 35. 60. Yes ; I think so. The present system re-quires no modification in this respect. 61. Charas is not produced in the Southern Mahratta country. 62. No. 63. The only suggestion that I have to make is, as already stated, that the minimum retail sale prices of the drugs should be fixed. 64. In order to enhance the price of the drugs, I propose that the present rate of duty on import, export and transport of the drugs should be doubled. 65. At present ganja and bhang are sold under one license, and the rate of taxation on both the drugs is the same. The present taxation on the drugs, as compared with that on alcoholic and
other intoxicants, is considerably light. I am of opinion that the minimum rate of retail sale price of ganja should be fixed at R2-8 per lb., and that of bhang at 10 annas per lb. The highest rate at which ganja is sold by retail is R1-4 per lb., and that at which bhang is sold by retail is 2 annas per lb. If the rates proposed by me be adopted, the drugs will be dearer and the consumers will naturally be more economic and considerate in using them than now. 66. Only one kind of ganja is produced in the Southern Mahratta country. 67. I consider the present method of taxing the drugs entails a very light incidence of the tax on the consumer, and I am of opinion that it should be improved, as suggested in my answer to question No. 65. 68. Sometimes consumers use drugs on the premises of the shops licensed for the sale of the drugs. I am of opinion that they should be strictly prohibited from using them there. 60. From the enquiries made it seems that the wishes of the people are consulted before a shop is opened, in some districts through mamlatdars and village officers. It is necessary that local public opinion should be considered invariably. 70. There are none. I think duty is really paid in respect of the drugs used. I cannot say that there is any general use of untaxed drugs in the Southern Mahratta country.
 - Evidence of RAO BAHADUR RANGO RAMCHANDRA BHARDI, Deputy Collector and Native Assistant to the Commissioner, Poona, Central Division.

 

58 and 59. The present system of administra -tion in respect of hemp drugs works well, but it is capable of further improvements, so as to re -strict its use especially by the poor people; and I think the time has come now to put the drugs on the same footing as opium and alcoholic stimulants. The present rates of duty levied on trans -ports, imports and exports are in my humble opinion exceedingly light, and with a view to keep these drugs out of the reach of the poor people I would suggest that heavier excise duties should be imposed both on the drugs prepared in the British territory as well as on those in the Native States. The drugs manufactured should be stored in a bonded warehouse or a depôt, to be issued, on payment of excise duty, only to licensed vendors, as is now done in the case of opium. Charas should have its own rate. The ganja is said to be of a greater strength than bhang, and they must therefore have separate rates of excise duty. The farm of a district should not be sold to the highest bidder, as is now done invariabl y in every district, but separate shop licenses should be issued to applicants on payment of a fixed fee. To secure the efficient administration of the system, the right of selling the farm in the ad-joining Native States will have to be purchased by paying compensation to the chiefs, as has been done in the case of country liquor. 60. and 61. As it is impossible to prepare or cultivate the drugs surreptitiously, there is no need for control. 62. As the cultivation of the hemp plant for the production of bhang is not separate from the cul-tivation of the plant for the production of ganja, no further control than that now exercised is needed. 63 and 64. See answers to questions 58 and 59.
65. No tax is at present levied on the prepara -tions of these drugs, except the import and trans-port duties, in respect of which vide answers to questions 58 and 59. 66. Only flat ganja is prepared in this district, and I do not think it necessary that there should
be different rates of taxation, because the different kinds of ganja do not differ materially in their strength. 67. The transport and export duties levied at present are merely nominal, and I would suggest that the present rates should be considerably en-hanced. 68. There are licensed shops in this district where these drugs are sold, but there is nothing in the terms of the licenses granted prohibiting the use of these drugs on the premises of such shops. 69. Generally some sort of preliminary en -quiries are made by the local officers without con-sulting the wishes of the inhabitants of the local-ity where a new shop is intended to be opened. If the local officers are of opinion that a shop is required at a particular place, it is generally sanc-tioned. 70. See paragraph 18 of my Report No. 562 of 30th August last. Probably people living on the borders of Native States buy their supplies from shops in the States, as it is said that these drugs are sold there cheaper than in the British territory. According to the present terms of the contract, a farmer or licensee is authorized to sell to one and the same person on any one day as much as 40 tolas. I think this limit is rather high, and it should be reduced to two tolas as has been recently done in the case of opium. - Evidence of RAO BAHADUR RUDRAGOWDA CHANVIRGOWDA ARTAL, Lengayet, Deputy Collector, Bijapur.


58. The present system of excise adminis -tration in the Bombay presidency works generally well, but I consider it susceptible of improvement. in some minor points. 59. The improvement seems necessary in the minimum quantity of intoxicating drugs allowed to be sold to one person on any one day, and the rate at which the drug should be sold in retail. 60. In the Bombay presidency the cultivation of the ganja-bearing plant is not at all controlled, as under the present Abkari Act cultivation of ganja without permission is not an offence under Bombay Act No. V. of 1878 (vide Queen vs. Narain wd. Soma, 1883). But the process of the preparation of ganja is sufficiently controlled, as no one can prepare it without a license. I do not think any modification in the rules necessary. 61. Charas is not produced here. 62. Properly speaking, bhang as defined by Dr. Prain is not produced here, and therefore no answer to this question is required from me. 63. I see no objection to the system of whole sale vend of ganja. As regards retail sale, I think 40 tolas, which is the present minimum quantity allowed by the rules, is too large. If intoxication is to be checked, the quantity should be reduced to 20 tolas ; so also a rate should be fixed at which the licensee should sell the drug. 64. No. 65. According to the present system the monopoly of selling intoxicating drugs (including ganja, bhang and charas) is put to public auction, and the person whose bid is accepted is given a license. The licensee sells these articles at his own rates. Under such circumstances it is impossible to state what is the taxation of each of the drugs (ganja, bhang and charas) and therefore comparison with reference to each other is im possible. A comparison of the tax on ganja with that on alcoholic intoxicants shows that the former tax is lighter than the latter. In order to check the vice of the use of ganja some enhancement in the tax seems desirable. 66. I   think   there should be different rates of taxation for different kinds of ganja according as such kind possesses more or less narcotic property. 67 and 68. No. 69. The wishes of the people are not consulted before a shop is opened in any locality. I think the opinion of the local bodies ought to be considered before a shop is opened for the retail sale of intoxicating drugs. 70. I  am not aware of any facts. The Bombay Abkari Act has been introduced by the Native States, which are bound by agreement to enforce it. Everything is done according to the rules under the Act and strict supervision is exercised by the Abkari Department, and therefore the payment of duty is not, so far I know, evaded. There is no general use of untaxed drugs.
 - Evidence of RAO BAHADUR RAMCHANDRA RAJARAM MULÉ, Deshastha Brahmin, Administrator of Jath, in Southern Mahratta Country.


58. The present system works well, except that, each shop should be farmed out separately. 59. Vide answer to question No. 63. 60 and 61. Ganja is not produced in this district. 62. No. 63. The only change required is that instead of monopolizing the retail sale, as is done at present with regard to this district, each shop should be farmed out separately, so that the people might get the drug used for smoking at cheaper rates and of a better quality. At present there being one farmer for the whole district, it is in his hands generally to regulate the prices and the quality of the drug, while in the case of the different farmers for the several shops (there are fourteen in this district), there will be a competi tion among them as regards good quality and low rates. 64. None. 65. The taxation with regard to the drug used here appears reasonable. 66. No, as regards this district, where no dis tinction is observed between the different kinds of ganja. 67. No. 68. There are no such houses or shops in his district. 69. There appears to be no rule or order about this. But much depends upon the wishes of the farmer of the drug. It is, however, necessary that the people concerned should be consulted as to the advisability of a shop being opened in their locality. 70. None. This district does not adjoin any Native State except that of. Jangira, where the hemp plant is not cultivated and does not grow spontaneously.
 - Evidence of RAO BAHADUR V. H. SHIKHRE, Brahmin, Huzur Deputy Collector, Alibagh, Kolaba District.


. Considering that there is no hemp cultivation in the Ahmedabad district, and that ganja and bhang come there prepared ; further, that I left the service seven years ago, and that I am ignorant of the changes that have been introduced as regards administration and control since my retirement, I am not in a position to discuss the questions in this chapter. But bearing in mind the small and partial consumption of these drugs in this district, it seems to me that the farming system as regards their importation and retail sale (prevailing in my time) is the best arrangement possible. 68. Bhang, ganja, and majum are sold in the Ahmedabad district by tambolis or sellers of betel leaves and betel nuts (pan supari). The demand for them is not such as to admit of a shop being devoted to their exclusive sale. There was in that district during my time no house or shop where their preparations were consumed on the premises, but I hear that one has lately been
75
opened in the city of Ahmedabad, where bhang beverage is prepared for the public and used accordingly. I think this ought to be stopped. 69. There was no occasion for such a proceed-ing in my time.
 - Evidence of MR. J. F. FERNANDEZ, R etired Deputy Collector and City Magistrate, Ahmedabad.


58 and 59. No improvement in the present excise administration of the drug is needed. 60. The present mode of control, viz., the sale and manufacture of ganja and its export and import under licenses, is quite sufficient. 61. The present arrangements, as above describ
-ed, are sufficient.
62. Ganja and bhang are nearly one and the same, as described in reply to query No. 2, and therefore the answer to query No. 60 applies to this. 63 and 64. No. 65. I think the present taxation in the shape of
79
contracts in the British territory and annas eight per each maund of the drug when exported from or imported into a Native State is reasonable. 66. Only flat ganja is produced here; but I think there should be no different rates of taxation for different kinds of ganja, because they will be troublesome to the exporters, manufacturers and sellers. 67. No. 68.  There are no houses or shops in this district to my knowledge for the consumption of these drugs on the premises, and none such will thrive or be viewed with favour, as a majority of the smokers or drinkers still drink or smoke in private. 69. I must say that the wishes of the people are not consulted as they should be. The contractors are always inclined to open more shops, and they make some ganja smokers send a petition, which is complied with. If the people are told that it is in their hands to prevent the pernicious effects of the ganja smoking by objecting to the opening of a shop, they are sure to do so, as nonconsumers of the drug form a majority. 70. No. Question 59.[oral evidence]—The ganja is inspected in shops, and if it is rotton or adulterated, it is destroyed. As a Government officer I have made such inspections. I have never discovered adulteration. The flat tops could not conceal an adulterant. Not even in ganja when broken up or in the tiny leaves of bhang could an adulterant be hidden. - Evidence of NARAYAN RAO BHIKHAJ1 JOGALEKAR, Brahmin, Pensioned Deputy Collector ; now Karbhari of the Aundh Stale.


58. I am acquainted with the present system of excise administration in respect to hemp drugs in the Island of Bombay, and I think it works fairly well. Some little improvement might be made; but there is no great need, I think, for any change. A very small number of people use hemp drugs in Bombay—from 3,000 to 4,000, I estimate— and the revenue raised is nearly Rs. 50,000 a year.
59. To sell the license for each hemp drug shop separately by public auction. To raise the duty of eight annas an Indian mound to Rs. 10 per Indian maund. To reduce the quantity of a hemp drug that may he imported, transported, sold or possessed in Bombay by an individual without a permit from 40 tolas to 5 tolas. By selling each hemp drug shop separately, the absolute monopoly system would disappear. To the consumer this would be an advantage, as he would have a number of shops with different shopkeepers, at any one of which he might make his purchase. Competition among shopkeepers would reduce the possibility of immoderate prices being charged, and insure to some extent the sale of good drugs. The number of competitors for the privilege of selling these drugs would be increased, and it is reasonable to expect that there would be some increase in the license fee collections. The rate of fixed duty, eight annas an Indian maund, is low, and might be increased to Rs. 10. This would bring in a small additional revenue. The rate of fixed duty might be increased, from time to time, as considered necessary.
The quantity of a hemp drug that may be im -ported, transported, possessed, or sold to an indi-vidual without a permit should be reduced from 40 tolas to 5 tolas to prevent people bringing into. Bombay any excess quantity of a drug for use or sale.
63. I have no objections. See answer to ques-tion No. 59. 64. So far as the island of Bombay is affected, the quantity of a hemp drug which may be im -ported, exported or transported without a permit might, I think, be reduced from 40 to 5 tolas. This measure would tend to prevent people run-ning out by rail to the Thana district and bringing back with them so much as 40 tolas of the drug or any one bringing into Bombay so much. 65. For the island of Bombay I do not think different fixed rates of duty should be charged on ganja, charas, bhang, and garda. A rate might be fixed for ganja, and the same rate charged on the other hemp drugs. Ganja is the chief hemp drug consumed ; and there are not, I think, great rea-sons here for having differential rates of duty on other hemp drugs. The incidence of duty on hemp drugs is, I think, slightly low at present in Bom-bay as compared with that on alcoholic drinks. I have formed this opinion, having regard to the cost of hemp drugs and alcohol to the consumer as intoxicants. 66.Only flat ganja is consumed here. See answer to question No. 65 . 67. I have no objections. See answer to que s-tion No. 59. 68. In the island of Bombay there are seven shops where ganja., bhang or garda, and charas are consumed on the premises. There are also thir teen places where bhang and garda are consumed on the premises. I feel very strongly that it would be a mistake to close such shops. The closing of these houses would cause a multiplica tion of smoking and drinking places, over which neither the excise nor police authorities would have control. It would increase the sale and smoking of ganja by fakirs and other very poor people at street corners, near markets, and at other places where people congregate. It would also drive many respectable ganja and charas smokers and bhang drinkers to prepare and consume the drugs in their houses, which would, I think, tend to increase the number of persons who make use of hemp drugs. 69. The wishes of the people in the neighbour hood of the proposed shop are consulted in Bom bay before the Collector sanctions the opening of the shop, and the opening of the shop is disallowed if the objections of the people are considered reasonable. In the case where hemp drugs may only be sold at the shop the abkari officers make the enquiry, and in the case where drugs are sold and consumed on the premises additional enquiry is made by the police, as in the last-mentioned case a police license is required under Bombay Act XLVIII of 1860. 70. I do not think any hemp drugs are smuggled into Bombay from Native States. The present farmer holds the hemp drugs farm for the Thana district, and there is, I believe, but little smuggling from other districts into Bombay. There is no general use of untaxed drugs in Bombay. Question 58.[oral evidence]—The revenue will he about R50,000 this year. The increase I believe to be due to competition in the auction sales and nothing else. I do not attribute it to the closing of the madak and chandu shops. I believe these last-mentioned drugs are as much consumed as ever. This year's revenue will be higher than ever before ; but it has been steadily going up for years. Question 59.[oral evidence]—Since I have known the business, we have had only one contractor for each period for the whole of Bombay. I have indicated that the separate shop system would increase revenue and tend to improve quality. But I do not think that it would tend to increase consumption. The high license fee fixed by auction for each shop would keep up the price of the drug. This being the principal duty on the drug would also tend to prevent smuggling, as it would not be to the advantage of a shopkeeper to smuggle or connive at smuggling. I do not think, however, that the tendency would be for shopkeepers to push the sale of the drugs. In regard to direct duty, I think that Rs. 10 a maund is as high as we can take in the Bombay city owing to the danger that there would be of smuggling, It would be less dangerous to have a higher duty with the large contract system, because the large contractor would not be so ready to take to illicit practices. I do not think that there is any advantage in respect to control in the city of Bombay from the large contract system, though there is in districts. We have the small contract system in the city in respect to liquor.
I do not think that the Government should direct its attention to the refinement or purification of the drugs. I think the condition at present entered in the contractor's license sufficiently provides for any action of Government in respect to the purity and quality of the drugs. The only complaints we ordinarily receive are in respect to the drugs not being sufficiently intoxicating. We destroy drugs that have deteriorated. I do not think I have ever had to take action myself. The contractor destroys useless stuff because it is his interest to do so.
Question 68.[oral evidence]—My experience, i.e., what I am
told, is that the places where people meet to smoke chandu and madak are four times as numerous as they were when the shops were open. The seven "shops" referred to in this answer are places where the people sit and smoke. The thirteen "places" are where the people take a drink of bhang or garda and go. They do not hang about. All these have the police license for consumption on the premises. They are all old. established places which have not changed for years. Applications for new shops, i.e., to increase the number, are not presented. The police are only referred to in regard to consumption on the premises. My impression is that the tax on the drugs is too low. I think that the ordinary liquor consumer pays twice as much for what he wants as the ordinary ganja consumer would, or three times as much as the ordinary bhang drinker. I think the rates should be equalised.  - Evidence of MR. H . INGLE, Retired Deputy Collector and Special Magistrat e, First Class, Karwar.


58 and 59. The present system is working satisfactorily, with the exception of a few points which will be noted below under appropriate headings. 60. Under the present system the cultivation. of the ganja-bearing plants and the process of its preparation are, I think, sufficiently controlled. A cultivator, though he is not prevented by law from cultivating hemp plant, is not at liberty to prepare ganja from it without first obtaining a per mit from the Collector of the district. Hemp plants as such, being of no use as a narcotic, unless ganja is prepared from them, no restriction seems necessary on their cultivation. The present control on the preparation and the import, export, and transport is quite sufficient to guard against smugling and the loss of excise revenue. There is, however, one point which seems to me to be objectionable. Under the present system the cultivator of the hemp plant is placed some what at a disadvantage. He is not allowed to take the ganja produced by him to the open market, and sell it there to any customer who may offer to him the highest price. He must sell it to the ganja farmer. He must either submit to the terms, hovever disadvantagous they might be, offered to him by the latter, or allow his ganja— an article naturally liable to speedy deterioration— to decay. Then again, if the quantity of ganja produced in a particular year, being in excess of the requirements of that year, is not purchased by the ganja contractor, he (the cultivator) is not at liberty to dispose of it by selling to any customer he may happen to find. Special legislation having thus reduced the number of his customers to a minimum, the cultivator is debarred from securing to the full extent the benefits of free competition and of the natural law of demand and supply. This is rather unfair, and requires, I think, an alteration in the present system, so as to improve the position of the cultivator. My idea is that it would be more reasonable to make the ganja-farmer suffer for such disadvantages than the poor cultivator. This can be done, I think, by the following arrangements, which I therefore most respectfully beg to suggest for the consideration of the Commission. Individual cultivation of ganja should altogether be stopped. No cultivator should be allo wed to cultivate ganja on his own account. The right of selling (retail) ganja should be sold on the condition that the purchaser (ganja-farmer) will have to make his own arrangements for the production of the supply of ganja required for the annual consumption of the district or province for which he has obtained license. The right of retailing ganja should be put to auction and made final in the month of May or June instead of in the month of July as at present, so as to give the ganja contractor sufficient time, before the sowing of hemp plants commences, to make arrangements with individual cultivators to raise ganja for him sufficient for the year's consumption. He should apply for and obtain from the Collector the necessary number of permits for the cultivation of hemp in the names of such cultivators as would agree to raise the crops for him. He may, if necessary, advance money to the cultivators on the one hand, or bind them by such securities as may be deemed necessary on the other, in order to ensure the production of the required quantity, and will he responsible for the purchase of the whole quantity produced for him at the rates agreed upon between him and the cultivators. By this arrangement the cultivators will be quite free to propose their own terms to the con tractor, and to refuse to cultivate the hemp plant for him in case they are not accepted by him. On the other hand, the contractor will be at full liberty to ask such cultivators to grow ganja for him as would agree to sell it to him at the lowest prices, or to cultivate it himself if he thinks such culti vation more profitable. Thus the law of free co mpetition will have its full scope; the ganja con tractor will be careful not to carry the hemp plant cultivation to any unnecessarily large extent, and. some of the land thus set free will be more usefully employed by the production of ordinary crops. Moreover, the rights of cultivating and selling ganja being combined in one and the same person, there will be less room for smuggling, and the license-fees may probably bring in a larger revenue to Government. 61. Charas is not produced in this part. 62. There is no separate cultivation of the hemp plant for the excessive production of bhang. 63. I have already expressed, in answer to ques tion No, 60, my views with regard to the whole sale price,e.g ., the price at which the ganja farmer buys ganja from the cultivator who produces it. I am humbly of opinion that the retail price, e.g. ,
the price at which the farmer sells ganja to the customers, is also objectionable. The selling price, is not officially fixed under the present system. The farmer is left to himself to fix any arbitrary price he likes. He having secured the monopoly of the sale of these drugs in a particular locality, the consumers therein have no alternative but to purchase them from him at any price he may choose to set upon them. Thus it sometimes happens that the farmer makes large profits by selling the drugs very dear, the whole burden of these enormous profits falling on the poor consumers. Here, too, the natural law of demand and supply does not operate freely. I am therefore respectfully of opinion that the price at which a ganja farmer should sell ganja, etc., to the consumers should be officially fixed for each district or locality according to its circumstances. This suggestion may be objected to on the ground that a farmer may stiffer loss if in a particular year less quantity is sold than was estimated at the time he purchased the farm. True, it is quite probable that such a contingency may occur; but the farmer must be prepared to take his chance as in the case of other contracts, such as that of toddy, country liquor, tolls, etc. In the case of tolls, for instance, the fees to be levied on conveyances are fixed, and the contractor is left to take his chance. He is not at liberty to increase the rates of fees, because he finds that the number of articles passing by his toll-bar is not sufficient to recoup the amount he has paid to Government. In the same manner I think the selling price of ganja may be regulated. It is true that there have been no complaints; but this is no reason why feasible improvements should not be made. I shall illustrate by an example. Take Poona district and the town of Bombay. The quantity consumed during 1892-93 is respectively 248 and 345 maunds. The Poona farmer has paid Rs. 17,050 as the license-fee, while the Bombay man has paid Rs. 39,500; so that the Bombay man had to pay to Government Rs. 45.7 per maund more than the Poona man=(39500/345—17050/248) as license-fees: add to these the duty of 8 annas per maund paid for transport ing the ganja to Bombay from other districts, the conveyance charges of ganga from Poona and Bombay, which would be about Rs. 2 a maund, and the establishment charges, which will be higher in Bombay than in Peona, amounting to, sav,about Rs. 10 a maund. Thus it may be seen that the Bombay farmer has to pay about Rs. 60 more per maund than the Poona man. Now let us see what is the difference between the selling pricesinthe two places. The retail sale price in the Poona district is Rs. 120 a maund, while that in the town of Bombay is Rs. 285 a maund. The extra expenditure that the Bombay former is required to incur is Rs. 60 a maund, as shown above. Deducting this from Rs. 285, still there is a profit of his. 105 a maund to the Bombay man (Rs. 225-120, the selling price in the Poona dis trict,= 105). Thus the Bombay man gets about Rs. 100 per maund more than the Poona man, and this amount finds its way into the pocket of the farmer.
If the figures on which I have made my calculations be reliable, my inferences would be quite correct. Then again, I am of opinion that the prices officially reported are not the real prices. In pra ctice the ganja, contractors charge a much higher rate. In the Poona district, for instance, the price officially reported is Re. 1-8-0 per pound of 40 tolas; but I think the retail sale price actually charged is Rs. 2-8-0 per pound. There are at present no means to examine the accounts of the ganja-farmer. Had they been regularly kept, I am sure they would have shown a large profit to the farmer. For all these reasons, I am respectfully of opinion that the system of officially fixing the retail sale price is at least worth experimenting upon. 64. The present regulations seem to be unobjec tionable. 65. No charas smoking known in this part. Con sumption of bhang comparatively small. Bhang is not separately taxed. The taxation, as com pared with alcoholic and other intoxicants, seems moderate and fair. The quantity of the alcoho lic stimulant required by an habitual moderate consumer costs about 5 annas per diem and that of opium 2 annas. Compared with these, the cost of these drugs required also by an habitual mode rate consumer is much less, and must therefore be considered reasonable. This cost includes the contractor's profits, which seems to me unreason ably high. If, therefore, they are reduced to a fair minimum by officially fixing the price, as suggested in reply to question No. 66, the cost will be still reduced, and the taxation will be clear ly seen as quite moderate. 66. The principle which governs or should govern the taxation of intoxicating drugs is, I think, that the State should, by the imposition of heavy taxes, endeavour to check, as far as practic able, the use of such drugs because they act injuri ously on the body and mind of its subjects. Accord ing to this principle the intoxicant which has more mischievous effects by spoiling the body or mind or by creating a greater tendency to commit the crime should, I think, be more heavily taxed. Unless, therefore, the different varieties have differ ent powers of so acting, they need not be taxed at different rates. 67. My views have already been expressed in
reply to question No. 63. The retail sale price not being fixed officially, the consumer is practically required to pay a much higher tax in the shape of the price of ganja, though the tax imposed by Government is very moderate. The system, therefore, requires modification.
68. In the mufassal there are not such houses. I am of opinion that it is not desirable that there should be such houses.
69. Yes; generally they are. If a particular locality is objected to by the people, their com plaint is sent to the local revenue officer for in quiry and report; and if, on receipt of such report, the Collector is satisfied that there are sufficient grounds not to allow the shop to be opened, no permission is granted.
70. No, there are no facts regarding the import ation or smuggling of hemp drugs from Native States to which I wish to draw attention. Yes; duty is paid in respect of all the hemp plant drugs used. So far as I am aware, there is no use of untaxed drugs. - Evidence of R AO SAHEB GANESH PANDURANG THAKAR, Deshastha Brahmin, Mamlatdar, Pandharpur, Sholapur District, at present auditing the jamabandi accounts of the Poona  District, Poona.


58 and 59. The existing rules relating to bhang and ganja should have a provision of an enactment prohibiting the cultivation of ganja. Should this be found inexpedient, such duty should be imposed on ganja  as would make it a costly article. To attain this object, a rule should be made requiring the storage of bhang and ganja in a place assigned for the purpose, and the duty due to Government should be paid by the contractors. The shops, where the sales of bhang and ganja are considerable, should be sold by auction, and those where the sales are not large should be farmed as at present for a lump sum. The existing rule permitting the sale of ganja not exceeding forty tolas per diem per head enables a purchaser to dispose of a portion of it to another. If such a transaction be declared illegal, it, would cheek the increase of the vice. To attain this end, the limit of forty toles should be reduced to four tolas, the maximum quantity needed per head as shown in the answer to question 28. More than this should not be allowed to be sold to one person. If this course be adopted, the vice would materially decrease. 60. The cultivation of the ganja-bearing plant does not, require supervision, but it seems desirable that the process of the preparation of ganja and bhang should be subjected to supervision; ganja is not capable of being prepared secretly, The present supervision seems therefore sufficient. 61. Charas is not produced in this part of the country. 62. Ganja and bhang are products of the same plant. To prepare a good ganja it is necessary that the plant should not be allowed to reach maturity. Bhang requires a mature plant. When ganja is produced from immature plants, bhang turns out bad, and when bhang is made from mature plants ganja does not turn out good. Therefore a farmer should take precautions to manufacture good ganja from immature plants, and should reserve plants in an allotted area for preparation of good bhang. A rule should be so made that a farmer may not be able to obtain that advantage for the bad stuff which he can get for the good one. 63. There seems no need of any charge in the existing system relating to the wholesale vend of ganja and bhang. As regards the retail vend the farmers attempt to extort from purchasers any rate they like. This is hard on the purchasers. There fore, the farmers should be bound, as in the case of opium contracts, to sell at such rates as may be prescribed by the Collector or other officer authorized by him in this behalf, regard being had to the duty paid by the farmer and the cost of the drugs. 64 to 66. This has been explained in the answer to the questions 58 and 59, There seems no objec-tion to a same rate of taxation being imposed on bhang and ganja. 67. The imposition of a high duty as suggested in the answer to question 59 would relieve poorer classes from this vice, as their means generally would not enable them to purchase the drug at the proposed rate. It is, however, true that persons who can afford that rate would buy, but the number of such persons is very small ; but, all things considered, the number of consumers would decrease. 68. The  number of persons openly drinking on the premises of licensed shops is very small ; there is a suggestion on the part of respectable classes that the consumption on the premises should not be allowed as tending to multiply the number ad-dicted to this vice, and causing annoyance to the general public ; but as the use of ganja, and bhang is prejudicial to the health of the consumers, it seems to me desirable that special measures should be adopted to check the spread of the vice and gradually reduce the number of consumers. As observed in the answer to question 67 the imposi-tion of a duty would lessen the number of the poorer classes of consumers and confine its pur
chase to persons of means. My opinion therefore on this part of the subject is that a rule should be made providing that persons wishing to purchase bhang or prepare ghota should consume the stuff on the premises of the shops. This measure will deter persons whose means permit them to indulge in this drug from resorting to the shops for con-suming the drug there on the premises, as to do so will be felt by them as a very disgraceful act. Thus the number of persons resorting to the shops will be considerably reduced. I therefore consider that the rule requiring consumption on the premis-es should be passed. 69. Whenever a shop is desired in any village for the sale of this drug, the farmer first makes an application. The wishes of the villagers are then consulted ; and on consideration of the extent of consumption of bhang and ganja in that village, the shop is allowed if the villagers wished it, and there is no objection on other grounds. I see no necessity for a change in this system.
70. Instances of smuggling of such drugs from Native States are not detected. There is, however, a considerable cultivation of ganja in Native States, and it is sold there at cheaper rates, There is there-fore reason to believe that persons addicted to this drug and residing in British villages on the fron-tier are in the habit of illicitly importing ganja into British territory. - Evidence of RAO SAHEB SHESHO KRISNA MUDKAVI, Mamlatdar of Taluka Bijapur, Bijapur.


59. I do not think a case is made out for the adoption of a legislative measure to restrict the use of any of the hemp drugs; as in no case it has been shown that use or abuse of the drugs incites to crime either violent or premeditated. - Evidence of RAO SAHIB L. M. DESHPANDE, Brahmin, Mamlatdar and Magistrate, 1st Class, Poona City.


58. The administration is working well. 68. There is only one shop in Chiplon taluka licensed for retail sale of these drugs. 69. At present no local opinion is considered before a shop is opened ; but I propose that no new shops should be opened unless applied for by the people in an application signed by them. 70. There is no general use of ganja which is illegally imported or on which duty is not paid. During the course of twelve years, I have tried only three or four eases of smuggling ; but the control over illegal importation as at present exercised by the Excise Department and the Police and the Magistrates is, in my opinion, quite sufficient. Question 70.[oral evidence]—Ganja buds are smuggled from Mysore. All the cases I refer to here were of this character.. In all the cases (but one) I found that Mysore was the place ; in the other I did not find oat. They were all cases of import (or transport) without license. - vidence of RAO SAHIB KRISHNAJI BALLAL DEVAL, Chitpavan, Brahmin, Mamlatdar and Magistrate, 1st Class, Chiplon.


58. As far as I am acquainted with the present system of excise administration in this province, I am of opinion that it is working well. I can humbly submit that the system is capable of still further improvement—viz, firstly, the rates of sale at which ganja or bhang shall be sold by a licensed vendor should form one of the main among other conditions of the sale license. 59. The price at which opium shall be sold per pound, as well as the quantity of country liquor to be sold per gallon, if it is fixed by Government, the same case should be made applicable as regards ganja. I beg further to suggest that the right of sale of ganja during the year should not be farmed for each taluka separately, as is the custom at present prevailing in this district, but it should be treated iu the same way as the epium and country liquor farms. The wholesale dealers in ganja should not, as at present, be allowed to keep in their custody the whole quantity of the ganja they buy of the culti -vators, but it should remain in the custody of the Abkari Inspector. When the wholesale dealer shall obtain a written permit from the Huzur Deputy Collector for exporting ganja, he should be required to remove the same after the  Abkari Inspector has given the requisite quantity out of the quantity deposited by him in a store-house; and the whole quantity thus deposited should remain in the possession of the wholesale dealer in a room locked under key, the lock of which should invariably he made to bear on it time seal of the Abkari Inspector, and the room should not be allowed to be opened or closed without the pre-sence of the Abkari Inspector himself, like the country liquor system. The wholesale dealer should for this purpose prepare a book, and obtain Collec -tor's seals thereon, which should contain every description of the quantity of the ganja received and removed from the store-house. 60. I think that the cultivation of the ganja -bearing plant and the process of its preparation are sufficiently controlled. 61. Charas, as stated elsewhere above, is not pro -duced for trade in this district, nor is the planta -tion of the hemp plant made with this object. If in future it was found that it is being produced for purposes of trade, perhaps then it may be necessary to make some provision; but, all the same, it is nothing more than a little stronger smoke than ganja. 62. I think that the cultivation of the hemp plant for the production of bhang is sufficiently controlled. 63. As regards the answer to this query, I beg to invite a reference to the answer given by me to question No. 59—vide the latter portion of it. 64. I think that there is no objection to the existing regulations governing the export and import of these drugs or of their preparations ex cept that the proposal made by me in answer to query No. 59 should, if deemed fit, be adopted, by which I am humbly of opinion a greater check will certainly be exercised over the hemp plant than at present. 65. I am humbly of opinion that the taxation of (1) ganja, (2) charas, and (3) bhang is certainly reasonable with reference (a) to each other, and (b) to alcoholic or other intoxicants. The consumers of alcoholic and other intoxicants are far more in number if compared with those who use ganja and its various preparations, they being cheaper than the above two intoxicants, viz., opium and liquor, and less intoxicating in their effects. I think the taxation of these drugs is reasonable as compared with other intoxicants. It is the poor only who use it, and if the duty is raised thereon the poor would not be able to get any other cheaper intoxicant as a substitute.
66. I am of opinion that there need not be differ ent rates of taxation for different kinds of ganja, such as the flat or round ganja grown in different localities. The present rates of taxation are suff icient for them. I am unable to say anything about the broken ganja produced in Bengal.
67. I am of opinion that there is no objection to the present method of taxing ganja and bhang being continued. The present system is good and agreeable to the consumers. 68. There are no houses or shops licensed in this district for consumption of any of these drugs on the premises. 69. The wishes of the people are first consulted or considered by the Collector before permission is granted, if deemed necessary, to open a shop in any locality. For this purpose, application bearing the signatures of the residents in a locality is sub mitted to the Collector, who sends it for enquiry and report to the taluka mamlatdar and Abkari Inspector, who if report favourably to the wishes of the people, permission is granted. The local public opinion must necessarily be obtained in each case. 70. The production of the hemp plant being abundant in this district, there is no importation or smuggling of hemp drugs from Native States.
 - Evidence of DADABHAI BURJORJEE GUZDER, Parsi, District Abkari In spector, Ahmednagar.


58. The present system of excise administration works well and does not require any improve -ment. 59. No improvement necessary. 60. Ganja is produced in this district, and the ganja plants and the ganja itself are sufficiently under control, and no modification in the system appears to be necessary. 61. Charas is not produced in this district. 62. There is no cultivation in this district of the hemp plant for production of bhang, as bhang is nothing but the powdered dust and leaves of ganja produced by a handling of the ganja. 63. I have no objection to the present system of wholesale and retail vend of ganja. Charas is not sold at all. Bhang is not sold wholesale. It is sold retail. I have no objection against its system of retail vend. 64. I have no objection to the existing regula -tions governing the export and import of ganja from and into Satara or its transport within the province, excepting that all ganja for export and transport should be taken for examination, pre -vious to removal to its destination, to the mamlat -dar's office of the taluka to which the village whence the ganja is removed belongs. Charas and bhang are not exported from or imported into or transported within the Satara district. 65. With reference to alcoholic and other in -toxicants ganja is lightly taxed ; but as it is principally used by poor people, no change with a view to increase the duty would be desirable. Charas is not sold at all, and bhang is sold retail along with ganja. 66. I have not seen round or " broken " ganja, and so I cannot say whether there should be one uniform rate or different rates of taxation for different kinds of ganja. 67. I have no objection to propose to the pre -sent method of taxing ganja and bhang, charas not being. sold. 68. There are no houses or shops in this district licensed for the sale of ganja and bhang, where the purchasers are permitted to consume the drugs on the premises. I am of opinion that there should not be such houses or shops. 69. The wishes of the people are partly con -sidered before a shop is opened in any locality. Immediately an application for the opening of a shop is received, it is enquired into by the mam -latdar of the taluka to which the place where the shop is intended to be opened is subordinate and reported on to the Collector, with whom the final decision rests. Local public opinion should al -ways be considered. 70. No hemp drugs are imported or smuggled from Native States into the Satara district. Duty
is really paid in respect of all the ganja and-bhang used here, no untaxed drugs being consumed. - Evidence of KHAN SAHIB NASARVANJI EDALJI SETHNA, Parsi, Abkari Inspector , Satara.


58.  I have no such acquaintance. 60. The cultivation of the ganja plant should be more restricted. 61. Not produced. 62. By restricting cultivation, and farming the contracts at high rates, the prices of the drugs would be enhanced and consumption would tend to decline. 65. The taxation is unknown to me.
66. In my opinion it should be taxed at one rate for all qualities and kinds. 68. Yes; in every town. Such houses and shops are necessary, but should be well looked after by the police or other authorities.
 - Evidence of MR. G. P. MILLET, Divisional Forest Officer, West Thana, Thana


63 and 64. No.
68. There are thirty-four shops in this district having licenses to sell ganja.
 - Evidence of MR. J. E. DOWN, Districts Superintendent of Police, Satara.


68. There are licensed shops. 69. No ; the wishes of the people are not con -sulted before opening shops. - Evidence of MAJOR T. R. M. MACPHERSON, District Superintendent of Police, Poona.


58. The present system is working well, and I have no suggestions to offer as to its improvement. Only one license for the retail sale of ganja and bhang, and another for their exportation are issued, and cultivators can only sell their crops to one or the other licensee. 60. Ganja is not made from the hemp grown in this district or in any part of Gujarat, so far as I know.
61. Charas is not prepared in this part of India. 62. The cultivation of hemp is controlled in this district, as also in the other parts of the presidency, inasmuch as the cultivator has to take out a license, and though the license does not specify the amount which may be grown, the extent to which it is cultivated is limited to the quantity he can induce the licensees to purchase at a remunerative rate. All not so disposed of has to be destroyed. 63. I have no objections to offer to the present system. 64. No. 65. Yes. 66. I do not consider it desirable to have differ ent rates of taxation for the different kinds of ganja. 67. None. 68. Neither in this district, nor, as far as I know, in any district in Gujarat, are any shops licensed to sell these drugs to be consumed on the premises. Ganja and bhang are sold in twenty-two shops in this district, eight in the city of Surat and fourteen in the different talukas, and the annual sales amount to about 30 maunds of ganja and 40 of bhang. 69. The wishes of the neighbouring shopkeepers are not, so far as I know, consulted before the issue of a license for the sale of these drugs, and as they are not consumed on the premises, no objection is ever raised, and I do not consider that local public Opinion should be in any way considered, for these preparations of hemp are very often sold by grain sellers, tobacco shopkeepers, etc., and their sale is no more likely to be objec tionable to the neighbouring shopkeepers or to the public than the sale of any other commodity. 70. This district is much intersected with Gaik wari territory, and prior to 1892 both bhang and ganja were to some extent smuggled from the State ; but the introduction of the license system into the Baroda State has almost entirely pre vented this smuggling ; and to this is also due the increase in the sales of ganja and bhang in this district during the past as compared with former years.
 - Evidence of MR. F. T. V. AUSTIN, District Superintendent of Police, Surat.


58. I do consider that the system of Excise Administration in respect of hemp drugs in this State is capable of improvement. 59. There are in all three licensed venders of these drugs in this State—one in the city of Cam bay, and two in different villages. The licenses to deal in these drugs are sold by auction to the highest bidders,    but beyond this there is practically no control over the licensees in any way. They are at liberty to sell any quantity and import these drugs without duty. They keep no accounts, and their shops are never inspected. One of the licensees of this State keeps a shop in Petlad, which is a large town in Baroda territory, and about three miles from Fanganee, which is in Cambay territory, and where he has a shop also. In. Petlad this man can only sell one seer of any of these drugs at a time, whereas he can sell any quantity at Fanganee. In consequence of import dues and license-fees these drugs cost double the price at Petlad that they do at Fanganee, which is close by. I think it is very desirable that the vendors of these drugs should be made to keep accounts showing their imports and sales, and that their shops, stock-in-trade and books should be periodically inspected by some responsible revenue or police officer. The licensees in this State get their supply of these drugs wherever it can be had. at the cheapest rate. The local consumers of these drugs bitterly complain of their inferior quality. The licensee at Fanganee imports bhang and ganja from Ahmednagar (Deccan), and he occasionally supplies the Cambay vendors, who also buy these drugs in Baroda and import them free of duty. I am of opinion that the sale of these drugs to one individual should be limited to a reasonable quantity ; and that the vendors should not be allowed to sell them wholesale indiscriminately as they do at present. 60. Ganja is not prepared in this State. 61. Charas is not produced in this State. 62. I have no idea of the cultivation of the hemp plant. 63. Charas is not sold in this State. Ganja and bhang are sold wholesale and retail. I am of opinion that the sale of these drugs, except to vendors, should be restricted to a reasonable quantity. 64. There are no regulations in this State governing the export and import of these drugs or their transport within the State. There is no import duty on any of these drugs in this State. They are not exported unless surreptitiously.
There is a wide field open for the illicit trade in these drugs in this State. As an instance of which the licensee at Fanganee is allowed to import any quantity of these drugs without duty. Whereas in Petlad, which is close by, where he holds a license for the sale of these drugs from the Baroda State, he has to pay import duty on these drugs. The price of these drugs at Petlad is double that at Fanganee. This leaves a wide field open to this man to smuggle these drugs from Fanganee, where they are imported free of duty, to Petlad, where he has to pay heavy duty and license-fees. I am of opinion that an import duty should be levied on these drugs. 65. There is no tax on these drugs in this State. 66. There is only one kind of ganja used in this State which is either imported direct from Ahmednagar (Deccan) or from Baroda. As far as I am able to gather, the ganja farmer of the Baroda State imports all his drugs from Ahmeduagar (Deccan). Round ganja is not used here. 67. There is no tax on these drugs in this State. 68. There are no houses or shops in this State where these drugs are consumed on the premises. Where such houses and shops exist, I think it is very desirable that they should be open to inspec tion by the police, as in the case of liquor shops and other places of public resort. 69. There are no shops for the consumption of these drugs on the premises in this State. 70. There is only one man in this State who imports these drugs. He has a shop at Fanganee, which is surrounded by Baroda and British terri tory. His sales of these drugs at Fanganee are more than at Petlad, which is a large town. This, I think, can be accounted for by the fact that these drugs are much cheaper at Fanganee than at Petlad. The other two vendors in this State get their supply of these drugs from him sometimes, and they also get it from Baroda or wherever they find the cheapest market. There is no import duty on these drugs in this State. The licensee of Fanganee tells me he pays an export duty at the rate of Rs. 5 on every three Bengal maunds. This he says he pays at Ahmednagar. - Evidence of MR. T. G. FOARD, Superintendent of Police, Cambay.


58. The Excise Administration regarding hemp drugs is working well, and I do not see what further suggestions I can offer as to its improvement. 59 and 60. I do not know. 61. Charas is not made in this district. 62. I do not know. 63. I have no objection to offer to the present system of its working. 64. I do not know. 65. I have no suggestion to make in this connection. 66 and 67. I cannot say. 68. In the city of Surat and in the district the preparations of bhang and ganja are only sold. There are 22 shops in this district, and the annual consumption is 50 maunds of ganja and 40 of bhang. 69. The wishes of the residents of the locality are very seldom consulted in this district before opening a shop therein. Such objections are very seldom raised. I do not remember a single case known to me. Preparations of hemp are very often sold by grain-sellers, tobacco shopkeepers, and their sale does not appear objectionable to neighbours. 70. This district is surrounded by Gaekwari territory, and in old Gaekwari time ganja and bhang were no doubt smuggled from these States, but the i ntroduction of the license system in Gaekwari territory has prevented smuggling, and owing to this the increased sale of bhang and ganja had taken place since the new system intro -duced in. Gaekwari territory.
L - Evidence of KHAN BAH ADUR NANABHOY COWASJI, P arsi, City Police Inspector, Surat


68. Yes, I should have no objection to allow the houses or shops, as they are harmlesss, and often serve to assist in the detection of crime. - Evidence of RAO SAHIB PRANSHANKAR, Brahmin, Inspector of Police, Detective Branch, Bombay.


58. I think it is working well. 60. The present system does not require any modification. 63 and 64. No. 65. I think it is reasonable. 66. The rates of taxation should be proportionate to the strength of the drug as ascertained by chemical analysis. 67. No. 68. There are such houses in this province. I think there is a tendency to immoderate consumption in these houses, and that they also serve to spread the vice by attracting new customers, and for these reasons they are not desirable. 69. The wishes of the people are not practically ascertained before a new shop is opened in any locality. I think local public opinion ought to be thus ascertained. 70. I am not aware of any such facts. I don't think that there is any general use of untaxed drugs. Question 68.[oral evidence]—I know nothing of the effects of closing the madak and chandu shops. I know nothing myself in regard to ganja shops where the drug is smoked on the premises. There is one shop for bhang drinking recently opened in Poona. This is the only one I know out of Bombay. The shopkeeper is a Poona man. These shops increase the facility for consumption; and by drinking in company there is a kind of competition. I also think that the sentiment of the disreputability of the practice of using these drugs is shaken by these shops, as the people think that Government seems to sanction the consumption ; this would not be equally the result of the sanction of shops merely for the sale. I think that the mere licensing of shops produces among the educated classes the impression that Government sanctions and approves the sale of the drug, but not to the same extent among the uneducated classes. They ought, however, to know that licensing shops really means restriction. Question 69[oral evidence].—I know of no case in which a local representation has been made against a shop and has been disregarded. I think, however, that an expression of local opinion should be actually invited before a shop is opened. It should stand, in my private opinion, on the vote of the majority. If the majority are non-consumers, they should be able to prevent the opening of a shop.
 - Evidence of GANESH KRISHNA GARDE, * Brahmin, Medical Practitioner, Poona City


62. I am of opinion that there is no necessity of controlling the cultivation. I believe it would produce discontent. 67. I believe that the present method of taxation of ganja and bhang is objectionable, inasmuch as the ultimate incident of the tax falls rather heavily on the poor mendicant classes. - Evidence of BHALCHANDRA KRISHNA BHATAVADEKAR, Brahmin, Medical Prac ¬ titioner, Bombay.


62. The cultivation of the hemp plant for the production of bhang need not be controlled at all. The moderate use of bhang is decidedly beneficial ; and injurious consequences are only felt by those who are habitual excessive consumers, and after they have continued the habit to a very advanced age. 65. In my opinion bhang is taxed unnecessarily. It is a mild stimulant, and a comparison of it with any other intoxicant cannot be made. 67. I have said that the tax is unnecessary. I think it also unreasonable. In India, in the face of an ever-increasing and exacting land tax, every product of the land, whether it be an article of life or an article of luxury, has been taxed, to the great burden of the poor classes. When, after bearing a land tax, the article is subjected to a special tax, the consumer is taxed twice. In the case of bhang, although it is not a necessity, it is a harmless source of enjoyment and relief which often serves the consumer in ill-health as a valuable medicine, or prevents him from getting ill. Bhang is chiefly used by poor people, and to them every pie has its value. The tax, though not felt by the rich, is a burden on the poor. 68. In the city of Bombay there are licensed shops where bhang is prepared and consumed on the premises. The shop generally is in a small room on the road side, the furniture consisting of a mat, two or three lotas, and a stone slab on which the bhang leaves are made into a paste before the drink is prepared. The shopkeeper earns but sufficient for his maintenance. So far as I know, these shops are not known to have any ill name attached to them. The customers at these shops are not noisy or quarrelsome, and are seldom known to cause inconvenience to any one. These shops are not places resorted to by bad characters to concoct their plans ; but this to some extent depends on the locality in which the shop is situated. 69. Local public opinion ought to be consulted. It would be beneficial to the people. e of ganja. Question 62.[oral evidence]—The injurious effects here attributed to prolonged excessive use of bhang will also follow on similar use of ganja. Injurious effects can be seen even in a boy from one excessive dose of bhang, but these effects do not last long—not more than 24 hours. The effects of continuous use by the old are worse than the effects of occasional excessive use by the young. The prevalence of insanity from the drugs among young men is contrary to my experience, but I have little experience of the excessive use of ganja.  - Evidence of MR. PURBHURAM JEEWANRAM, Nagar Brahmin, Native Doctor (Vaidya), Bombay.


58 The present system of Excise Administra-tion in respect of hemp drugs is not satisfactory. It is capable of improvement. 59. The only chance of improving the present system is to make rigid rules like country liquor and opium. Monopoly must be made and the rates of the sale must be fixed by Government and not by the contractor, who has the option of increas-ing the rates as he chooses. Government store-houses should be built, where it should be allowed to be stored up by the planter, and a strict watch kept on this will prevent the illicit sale of the drug. 60. The cultivation is not under sufficient control. Many people plant the tree for private con-sumption, and the cultivation of the plant is not forbidden, nor excess assessment is levied on the plantation. Licenses should be issued for such cultivation, and not mere permission granted as is now done. 61. Charas is not produced in this district, and nothing can be said to it. 62. The real bhang is not produced and cultivated in this district, but round ganja or chur is used and sold as bhang, which is more injurious than real bhang. It may be controlled as stated in answer to the question No. 60. 63. The present system of wholesale or retail vend of ganja and other hemp drugs is not satisfactory. Planters of those drugs have only to ask for permission from local authorities to plant the hemp tree, and before cutting down they have to obtain permission also ; but there is no special duty for the cultivation of hemp. The hemp plant after it is cut down is stored up for drying; when it is ripe for market, it is sold to the con-tractor of the district, or anybody else, who is licensed to purchase at the rate the owner chooses. There is no control over the preparation. There is every chance of smuggling. The planter stores up the whole in his house and can keep away some out of the products, and sell the same where the market runs higher, illicitly. The rate of sale must be fixed by Government. 64. Export and import of these drugs from and into this province must be governed by more strict rules than now existing. There is so much of illicit sale now going on, and that can only be stopped by making uniform rates ; and taxation should be made upon the quantity sold and not as now given to the contractor for particular fixed SUM. 65. Bhang should be a little more taxed than ganja, and charas still more than either ganja or bhang. The taxation on alcohol may proportion-ately be increased ; otherwise there will be more consumption of alcohol, and many consumers of ganja, bhang and charas would go in for alcohol. 69. The wishes of the people are never consulted or considered in any way before opening a shop. There is no necessity of local public opinion in opening such shops. 70. Yes ; there are some grounds to think that there is smuggling going on. People in Native States grow the plants and sell the same to the shopkeepers privately from the British parts. There is no taxation or rules for growing the plant in Native States. In my opinion Government must take the whole and sole right over these narcotic drugs, even from the Native States. This will make the matter safer. The rate should be made uniform and thereby illicit sale will be put a stop to. Question 59.[oral evidence]—The recommendations I have made in this answer are, I think, necessary to control the use of the drug. The maximum of lawful possession is, I am told, five tolas, and I think that is a proper amount. Taxation should be increased in order that price should be raised and consumption discouraged. The hemp drugs are taxed much lighter than alcohol. People will go to cheaper drugs before they go to alcohol. Alcohol should always be kept at a higher price than the hemp drugs. We have a religious objection to liquor, and therefore regard it as a worse habit than that of ganja. Excess in alcohol causes death more frequently than. ganja does. I don't advocate total prohibition, because there is a natural desire for stimulant, and people will have it in some form or other.
Question 69.[oral evidence]—I should be in favour of stopping the sale of the hemp drugs in my village ; but if Government directs its efforts to reducing consumption gradually, I should be satisfied to leave the matter in its hands.
 - Evidence of RAMCHANDRA KRISHNA. KOTIIAVALE, Brahmin, Inamdur, Taluka Wai, in Satara District.


58. I am not acquainted with the system. 61. Charas is produced, I hear, in this district.
203
68. There are no houses and shops, as far as I learn, in this district licensed for the sale of these drugs on the premises of which they are consumed. 69. No ; wishes of the people are not consulted
(not even for the vend of liquor) before a shop is opened. No, I don't think. 70. I think the duty is fully paid. I think not.
 - Evidence of RAO BAHADUR GOVINDRAO RAMCHANDRA GARUD, Pleader Dhulia, Khandesh.


58. The present system of Excise Administration seems, as far as I am aware, to be working well in this district, and hence no improvement appears to be necessary for the present. 60. Ganja is not produced in this district. 61. Charas is not produced in this district.
62. Hemp plant is not cultivated in this district. 63. At present the contractors make wholesale purchases of ganja and bhang and sell them in retail to the customers. The original quality of these drugs is not spoiled by these contractors by adulteration and other foul means. As long as this is the case, there seems no need of improvement in this direction. However, the maximum quantity of these drugs, much less than that allowed in Form A of the rules framed under the Abkari Act of 1878, which at a time should be sold to the customers in retail, should, in view of discouraging excessive use, be fixed as in the case of opium and alcohol. The rates also should be regulated. 64. I see no objection to the existing Regulations governing the import of these drugs. 65. The present taxation on ganja and bhang is consistent and just with reference to each other, but as compared with other intoxicants (alcohol, etc.) it is very low. It would therefore be expedient to raise the present taxation on the drugs. By so doing its wide use would be discouraged. 66. There should be no different rates of taxation on the three different kinds of ganja grown in Bengal and in different localities, because the equality of taxation is to be maintained, and the Government will not be put to trouble in inves
tigating the different qualities of the different kinds of ganja. 67. As the consumers do not seem to murmur to pay the present tax, I see no objection to the present method of taxing ganja and bhang. 68. There are no such shops or houses here. But there should be such, and those too should be situated in markets and other public places. 69. At present the wishes of the people are not consulted before a shop is opened. Local opinion ought, I think, to be thus considered. 70. For the better administration of excise, and to remove all doubts of smuggling, it would be reasonable to purchase from the Native States their rights of selling ganja and bhang by giving them adequate compensation as in the case of toddy, etc.
 - Evidence of RAO BAHADUR HUCHRAO ACHUT HARIHAR, Deshast Brahmin, Pleader, District Court, Belgaum.


58. The present system of excise administration in this district is well enough with respect to hemp drugs and does not require improvement. 60. Ganja is produced in this district. I think the cultivation of the ganja-bearing plant and the process of its preparation are sufficiently controlled, and the system requires no modification in any respect. 61. Charas is not produced in this district. 62. I think that the cultivation of the hemp plant for the production of bhang is sufficiently controlled. 63. I have no objection to the present system of (a) wholesale, (b) retail vend of (1) ganja, (2) bhang, or preparations of them, 64. I have no objections to the existing regulations governing the export and import of these drugs, or of their preparations from and into your province or their transport within the district. 65. The taxation of (1) ganja, (2) bhang, is in my opinion reasonable, and does not require any alteration. I do not know anything about charas. 66. In my opinion it is not necessary that there should be different rates of taxation for different kinds of ganja, because the different kinds of ganja are produced from the same plant, and no significant difference is noticed in their effects. 67. I have no objection to the present method of taxing (1) ganja, (2) bhang. 68. In this district shops are licensed for the sale of these drugs and not for consuming them there. And I think that such shops or houses should not be permitted for the latter purpose. 69. The wishes of the people are not consulted or considered in any way before a shop is opened in any locality, and measures are not taken for the purpose. Local public opinion should be considered on such occasion. 70. Ganja is not smuggled in this district.
 - Evidence of NARO DHAKADEO, Brahmin, Pleader, Jalgaon, District Khandesh.


58. I think the excise administration as regards the hemp drugs is working well, and neither the contractors, nor the consumers, nor the people in general, whom I have questioned have any grievances to complain of. 60. The cultivation of ganja in these parts is on a very small scale and is well controlled. 62. I do not think what purpose can be gained by checking cultivation unless and until the demand for the drug diminishes. It is the cheapest intoxicant. Six pies a day is not a heavy charge. The temptation for smuggling is not so great, and no particular arrangements are needed to control the cultivation.
65. I am not at all of opinion that, compared to alcohols, the hemp drug is unreasonably taxed, and no complaint in that direction exists as regards ganja, bhang, etc., etc. 67 I have no objection to the present method of taxing. 68. None. 69. Local opinion is no doubt necessary, and at present shops are allowed to be opened irrespective of the wishes of the people. But I must at the same time state the number of shops is few, and no complaint on the subject exists. It is the liquor shops to which the complaint refers.
 - Evidence of RAO BAHADUR VISHWANATH KESHAWA JOGLEKAR, Brahmin, Sowkar, Karajgi in Dharwar District


58. I am acquainted with the present system of excise administration in my province of Gujarat with respect to hemp drugs, and I do not consider it to be working well, which is capable of improvement. Under the present excise administration of hemp drugs, the exclusive privilege of import, manufacture and retail sale of hemp drugs is granted to the highest bidder on a lump sum of an annual guaranteed minimum revenue. The farmer is allowed to purchase bhang from local cultivators free of duty at any prices, or import from other districts covered under permits on payment of Rs. 5 for the first 10 maunds and Re. 1 for each subsequent 2 maunds. The " pak " is manufactured locally by the farmer as described in the answer for question No. 2. Since no F etail price is fixed in the license, the farmer can sell bhang, ganja and pak at his own prices. At present bhang is sold from 5 to 6 annas per lb, ganja from Re. 1 to Re. 1 1/4 per lb and pak from Re. 1to Re. 1 1/4 per lb. The retail sale accounts kept at shops are unsatisfactory. The actual consumption may be disguised, as deteriorated bhang and ganja destroyed and accounted for in the column of loss from deterioration and destruction, thus rendering actual statistics of consumption unsatisfactory. 59. The manufacture of pak, local purchase of bhang, and import of bhang and ganja should be sufficiently controlled, and stocks to be kept in a central district depot from whence each drug to be issued to retail shops covered under permits, proper accounts kept, deteriorated drugs destroyed in the presence of responsible officers, retail price of each drug fixed in the license, and the limit of retail sale and possession by any one person on any one day to be reduced from 40 to 10 tolas. The farm for each district should be given on " the central depôt, annual guaranted minimum vend, and definite duty system." The farmer should be restricted to the sale of such quantity of the drugs as may be covered under the annual minimum revenue guaranteed under his license, and calculated at a certain rate of duty fixed per lb of each drug sold, as is the case with the country spirit farms at present, and was the case with the opium farms before the guaranteed minimum vend system was abolished. 62. The cultivation of the hemp plant for the production of bhang should be controlled by granting licenses for cultivation, registering the area under cultivation, collecting, weighing and storing the produce under Government supervision which may be issued and transported, covered under permits granted by competent authorities for local consumption "at the district central authorized depot" for the farmer, or transported to other districts as may be necessary, and proper accounts kept of each transaction. 63. Yes ; I have objection to the present system of (a) wholesale, (b) retail vend of ( 1) ganja, (2) charas, (3) bhang, or preparations of them, which I have fully described, and indicated the improvements I suggest in the answers for the questions 58 and 59, which I consider unnecessary to repeat here. 64. Yes. The existing regulations governing the export and import of these drugs or of their preparations from and into my province or that transport within the province are unsatisfactory, because the farmer may import, export or transport the drugs from one place or district to another place or district, under permits which are never scrutinized, or the storage kept under Government control, and satisfactory accounts of each transaction are not kept. Illicit drugs could not he distinguished from licit or the mischief traced. 65. Yes ; in my opinion the taxation of (1) Ganja, (2) charas, (3) bhang is not reasonable with reference (a) to each other, (b) to alcoholic or other intoxicant. I would suggest an excise
duty of Re. 1 per lb. bhang, Rs. 3 per lb. on ganja, and Rs. 5 per lb, on charas, Bhang is
the least noxious out of the three drugs. Next to bhang is ganja, and the worst is charas. These are my reasons for the different rates of taxation of the three drugs I suggest. 66. No. 67. Yes; the ultimate incidence of the tax on the consumers of ganja, bhang and charas is quite insignificant, and out of all proportion to that on the consumers of alcohol and opium when the relative intoxicating property of each drug is considered along with its price. 68. There are no houses or shops licensed for the sale of these drugs, or their preparations, where they may be consumed on the premises in my province of Gujarat. However, some unlicensed sale of prepared bhang is practised at Surat which may be suppressed. 69. The wishes of the people are seldom considered in any way before a shop is opened in any locality. The revenue and police authorities are only consulted before the opening of a shop is sanctioned. I think it would be advisable to consider local public opinion in such matters. 70. There are cases of illicit import or smuggling of hemp drugs from the Native States of Baroda, Rewa Kantha and Mahikantha, which surround and interlace the province of Gujarat, although the actual offences on record are few. These drugs are so small in bulk and easy to transport that detection is very difficult and sometimes impossible. There is use of untaxed drugs to a certain extent which may be greatly aggravated by enhancing the duty on them for licit import and sale. The only remedy would be the cooperation of the Native States concerned with the British Government in maintaining an uniform system of taxation, import, sale, and transport as in the case of opium at present ; otherwise the Native States will gain in revenue at the cost of the British Government if they may be pleased to raise the taxes on the drugs as suggested in the answer for question No. 65. The proportion of habitual moderate and excessive as well as occasional consumers of these drugs could. only be ascertained by actual enumeration through the village officers in each district under the directions of the Collector any time, or on the occasion of the census. During the tenure of my opium farm for the Broach district for the years 1890-91 and 1891-92, I have induced the Collector at Broach to order the preparation of a list of opium-eaters residing in each village through the mamlatdar and village officers in each taluka, with the quantity or value of opium consumed by each person per diem. These lists were scrutinized and corrected by my private preventive Inspectors on personal inquiries at each village, and they proved to be greatly instrumental in calculating the actual consumption of opium in each village, and tracing the illicit import, sale and consumption of the drug from the surrounding and intervening Native territories of Baroda and Rajpipla. In the same manner lists of consumers of each intoxicating drug may be prepared and corrected from time to time, which may be very useful in deducing the requisite statistics.
 - Evidence of JAMSEDJEE NASSERWANJEE GINWALLA,* Shenshai Parsi, Abkari and Opium Farmer, and proprietor of cotton-ginning factories, Ankleswar.


60 and 61. No. 62. No. It is quite feasible. The practice of obtaining a license before hemp is cultivated is quite sufficient. 63. No. 64. The present restrictions are quite sufficient. 65. The present taxation on bhang, charas, and ganja is excessive. If it is reduced, it will not affect alcoholic or other intoxicants. 66 and 67. No. 68. There are shops for the sale of these drugs, also of their preparations. These are harmless places 69. No ; the wishes of the people are not consulted when a shop is opened in any locality ; I think people should be consulted. 70. I am not aware.
 - Evidence of NANNU MIAN B.SHAIKH, Municipal Secretary, Surat.


58. I consider the administration is capable of improvement. 59. In paragraph 9 of the ganja license, ganja is permitted to be sold. not exceeding 40 tolas to one person. This concession allows a number of people to gather together to indulge themselves in consuming the ganja. This assembly, idle as it is and spendthrift, conspire together in committing offences and bad actions. It should therefore be ruled that one person should have only five tolas or less once in a day. 60. The existing system works well and requires no modification. 61. Yes, they are sufficiently controlled, and that the system requires no modification in any respect. For producing charas only the hemp plant is not cultivated. 62. The hemp plant is not cultivated for the production of bhang. 63. There is no objection to the present system of vend of preparations of ganja, charas and bhang being continued. 64. I have no objection to the existing regulations governing the export and import of these drugs, or of their preparations from and into your province, or their transport within the province, 65. The price of ganja is more and that of bhang less. This being the case, the taxation on both is alike. The rate of tax should be in proportion to their price, and they should not be imported or exported together covered by one and the same pass. The rate of tax on bhang should, in my humble opinion, be one-tenth on that of ganja. The amount of tax on the drugs and alcohol is proportionate to their price. Charas is not sold in shops, because the production is not sufficient to export, nor is there any demand for it. The tax on it is therefore not imposed. 66. No, not necessary. 67. None whatever. 68. None. 69. The wishes of the public in general are not consulted at present in any way before a shop is opened in any locality. The opinion of the Taluka Revenue Officer (mamlatdar) is asked by the Collector, and the mamlatdar consults the village officers. Local opinion is desirable, so that the respectable and well-behaved persons in the village or town should have a voice in the welfare of the village community in general. 70. There are no such facts to which I should draw attention. Duty is paid in respect to the ganja and other hemp drugs used. It is likely that there may be some people who may be using drugs bought from the Native States and removed to others within the limits of the British Government ; but it is impossible to detect such illicit transactions inasmuch as the Native States are, I think, not bound by the regulations in force in British India. - Evidence of GURAPPA RACHAPPA, Lengayet, Office of Shetti (Revenue and Police), Dharwar.


58 to 70. I do not think that any alteration in the law or administration is required at present. So far as I know, no such evil results, either physical or moral, have presented themselves as to justify any interference.
65. Compared with other intoxicants, hemp drugs are lightly taxed. For instance, a retail seller in Sind tells me that a novice to bhang drinking could get intoxicated for 6 pies, while liquor, to have the same effect, would cost 2¼ annas. One accustomed to bhang drinking would need 2 annas worth to produce the desired effect, while a drunkard could take 4½ annas worth of liquor or more comfortably. Assuming (though I have no evidence of it) that the effect of the raising of the excise on liquor has been to stimulate the consumption of hemp drugs instead, the circumstance, if proved, might be considered to point to the desirability of raising the duty on these drugs more to a level with that on liquor. But I would certainly not recommend any attempt of the kind. The following are my reasons :—
First.—We practically levy the highest excise possible on these drugs by our system of selling farms by auction. The farmers know the cost of the raw material, and bid against one another, till the sum paid for the farm only leaves a reasonable remuneration to him, as interest on his capital, wages for his labour and recoupment for his risk, after paying expenses.
Secondly .—The only way to excise the drugs and so raise their selling price, would be to initiate such a careful control over their production, importation, and retail sale, involving measures for the prevention of smuggling, that the expenses would be very considerable, and not recouped out of the increased receipts, for the consumption will fall off. Thirdly.—If the price be raised so as to approach the price of liquor, the best-to-do consumers may eventually take to alcohol, which imparts a much greater stimulus to crime than these drugs, while the poorer will almost certainly find dhatura, or some other vegetable substance, out of which to manufacture or distil intoxicants at a cheaper rate than liquor.
Fourthly.—The recent interference with liquor, at any rate in Western India, has been sufficient interference with the luxuries of the poorest classes during the present generation. The artificial increase in the selling price of liquor has fortunately been accompanied by a general rise in wages and prosperity and has, therefore, not been seriously felt. There is always, however, a substratum of very poor in India, and any attempt to make their intoxicants too expensive, must result in failure, apart from the discontent it would cause. Fifthly.—The whole question of hemp-drugs is not worth the tro uble involved in meddling with it. Overworked as all officials are, the time that would have to be devoted to introducing an elaborate system of hemp excise, would only be taken away from the consideration of matters of much greater urgency e.g., agri  cultural indebtedness, religious animosities, the growth and repression of crime, the extension of communications, and irrigation, all of which are a never-ending source of anxiety. I do not go so far as to say that the bringing of the consumption of hemp drugs under stricter control would be impossible, but in my opinion, the game would not be worth the candle. 68. We have licensed houses in Karachi for the sale of bhang ready made, in addition to the ordinary shops licensed for the sale of the raw materials. But we have no ganja or bhang " dens" where the stuff must be consumed on the premises.
69. No concession of" local option "in the matter of hemp drug shops has been made nor is it necessary. Where there is sufficient demand, the farmer applies for a shop and retailers are all grocers, and the drug forms a small addition to their ordinary stock of groceries. The farmer's self-interest no doubt might be supposed to induce him to stimulate sales. But in three out of five of the Sind districts, the shops are actually fewer in number than nineteen years ago. Even in the large district of Shikarpur also, where ( J imagine, owing to the advent of people from across the border, for the construction of railways, and also to the Afghan War ) shops increased from 179 in 1873 to 265 in 1881-82, the figure has receded to 246 in 1892-93. And in Thar and Parkar, where the shops have also increased, the present figure of 29 is only 5 more than it was fifteen years ago. A farmer does not, like a publican at home, stimulate sales by accessories calculated to make his shops attractive. He simply depends on the demand. The Collector and District Magistrate, after consulting the local officials, is able to judge whether a shop should be opened or not, and local residents other than the consumers of the drug take no more interest in the matter than a tailor in an English country town in the question whether a particular grocer down the street should have a license to sell claret or not.
The subordinate officials whom the Collector would consult before deciding, e. g., the Revenue and Police beads of the taluka, no doubt ask the local zemindars or Hindu Mukhi their opinion upon this as upon most matters affecting the peace and comfort of the village. But the matter is too insignificant for any formal rule to be made or to be necessary.
70. We occasionally catch a load of hemp drugs being run across from Cutch, but all told, the smuggling, especially across the desert, is of no importance to the revenue. We may have a treaty some day with Khairpur which will prevent any little smuggling there may be from that State, but there is no hope of such a measure during the lifetime of His Highness the present Mir. - Evidence of MR. H. E. M. JAMES, Commissioner in Sind.


58. I am well acquainted with the excise system in force as regards hemp drugs, and I think that it works fairly well, but needs more than one radical change. 59. At present the price of bhang and of charas and ganja too is entirely unrestricted, and it is left to the licensed farmer's will to raise or lower it at his pleasure. If, therefore, at the auction a man bids excessively, the farmer can reimburse himself by raising the price, provided, of course, that such price is not actually prohibitive. The consequence is that the bhang farmer buys at Rs. 2 ½ to Rs. 4 ½ per maund (the landholder before mentioned actually sold his crop last year at Rs. 3-15-0) from the cultivator, and sells at Rs. 50 to 60 per maund. This seems a very loose system, and one which must often result in the farmers reaping an excessive rate of profit, especially as combinations at the auction sales to prevent competition are still not uncommon, and used to be frequent. 62. The quantity of cultivation is now sufficiently controlled, not by its price, but by the fact that if the cultivation exceeds the farmer's demand, the produce is unsaleable. I myself remember very well a year when some bhang which was forfeited to Government in default of payment of rent was absolutely unsaleable because the farmer had got all he required. The farmer gives the cultivator what he pleases, and just enough to induce the men who ordinarily cultivate it to supply the quantity he wants. There is consequently little fear of any excess in the area of cultivation. Even now a cultivator requires a license to possess and manufacture his bhang, and can only sell it wholesale to the licensed farmer. The simplest method of control would be a Government monopoly as of opium. 63. With the above exceptions, I do not object to the present system of vend. 64. Nor do I object to the regulations governing the export, import and transport of the drugs. 65. I think that the amount of taxation should be fixed by Government, and not left as it is at present in the farmer's hands, the taxation being the prices realised at auction. In the case of opium and country liquor Government first levy a duty, and this should be done for bhang in such a way, however, as not to lower its present price. The statistics previously sent demonstrate
what is well known to be a fact that the price of bhang has been raised immensely in the last twenty years by the farmers. Thus five toles used to be purchased for three pies, whereas only one is now obtainable. Yet the average area cultivated in the five years ending 1877-78 was 164 acres, and in the last five years l65 acres, i.e.,only one acre more, while the revenue per head of taxation has risen from 5 annas to 1 rupee.
67. Whether ganja and charas pay any Government duty in the Punjab or elsewhere I do not know. But their price also should, I think, be fixed by Government, and a duty levied on them, if not already done. 68. There are no houses or shops where hemp drugs can be sold and consumed on the premises, and I certainly do not want to see such opened. 69. A retail shop for the sale of the drugs is only opened when there is a boná fide demand, although no regular system of local option exists. The matter must, I think, rest with the Revenue Officers to decide, because any rule that a shop should only be opened when a certain percentage of the inhabitants signed an applicacation for it would not be of much value, signatures being obtainable for very little even when the bribe is one of words only. Revenue Officers should, however, be very careful not to sanction any new shop until clear proof of substantial demand has been given. 70. There is no reason to think that bhang is much smuggled into this district. Bahawalpur indents on us for its supply ; Khairpur grows its own ; but as it is sold there at a much cheaper rate, petty acts of smuggling may be carried on. There is no tax on importation.
 - Evidence of MR. R. GILES, Collector, Shikarpur


58 and 59. The system appears to work well, but, in view of the baneful effects produced by ganja and charas, I am disposed to recommend that their sale should be restricted to a greater extent than is now done. In terms of the present form of license, a retail vendor is permitted to sell 40 tolas or half a seer of these drugs to any one person on any one day ; he is also permitted to sell the same amount of bhang, which is a much cheaper commodity. I think in the case of ganja and charas the maximum vend might well be fixed at 10 tolas. 60. Not produced in this district. 61. Not produced. 62. It is already sufficiently controlled. 63. Vide answer to paragraphs 58 and 59. 64. No. 68. No. 69. Merely iu so far that shops are only opened where required. None seem called for.
Unnecessary. - Evidence of Mr. C. E. S. STAFFORD STEELE, Officiating Deputy Commissioner, Thar and Parkar District.


58. I am acquainted with the system of excise administration in this province in respect of hemp drugs. I think it is capable of improvement. 59. In my opinion the administration requires the following improvements : —
(a) Ganja and charas are not manufactured in this province. They are imported by far -mers from Panveli of Thana district in the Bombay presidency and. Yarkand re -spectively. The farmers try to purchase inferior articles as cheaply as they can and an inferior stuff is always injurious. Gov -ernment ought to purchase charas and ganja, and supply them to the farmers in the same way as they do opium ; because the use of inferior ganja and charas is more injurious than that of a superior kind.
(b) Hemp is cultivated by agriculturists in their fields wherever they like. They have only to obtain permission for cul -tivating it. The revenue authorities warn them to sell their produce to Govern -ment farmers, but owing to the want of sufficient establishment these authorities cannot depute a special officer to see that
all the hemp produced . by the cultivators is sold and handed over to the Government farmer. This leaves the cultivator at perfect liberty to sell as much of it illicitly to consumers as he likes before the Government farmer comes to buy it from him. The best plan will be that only those who have lands not far away from the taluka head-quarters should be per -mitted to cultivate hemp plant, and Gov -ernment should appoint a well-paid and trustworthy official to see that the hemp from the time of its harvest up to the time it is handed over to the Govern -ment farmer is not tampered with. Until this is done the illicit consumption of bhang cannot be stopped in the neigh -bourhood of those fields where it is cul -tivated.
(c) Government sell by public auction the right of retail selling of charas, ganja bhang.  The person whose bid is accepted is called the farmer. There is no con -dition in the license specifying the rate at which he has to sell these drugs to the consumers by retail sale, and he is to fix his own rates, just as he pleases. Com -paring the rates at which he purchases with those at which he sells to the con -sumers, the difference is very great and most startling. To prove this assertion I give below the figures regarding the Hyderabad Collectorate,  for one year, viz., 1891-92 : —
In the year 1891-92 the farmer paid R29,335 to Government. The quantities of the drugs sold by him are shown below :—
Manuds.    Seers. Tolas. (1) Bhang . 1,120 15 39 (2) Charas 14 10 67 (3) Ganja .39 36 69
From the accompanying statement it will be seen that the three drugs, which were consumed during the year, were purchased by the farmer at a total cost of R7,097-12-2 and were sold to consumers at R83,404-11-9. The difference between the prices at which the farmer bought these drugs and sold them to the public is no less than R76,306-15-7. Deducting the sum of R29,335 paid to Government, it leaves him R46,971-15-7.
No doubt the farmer spends something out of this in the shape of carriage expenses of bringing the drugs to various retail shops and paying com -mission to agents who sell the drugs by retail in different villages ; but this will not amount to more than a few thousand rupees and the margin of profit to the farmer is very great.
In the case of opium in this province Govern -ment have made conditions with the farmers that they cannot sell the drug beyond a certain maxi -mum price to the consumers, which is five annas a tola or Rs. 12½ per lb. The duty paid to Gov -ernment is Rs. 10 .per lb.. As long as the present system is in vogue, there is a very great danger of the illicit importation of hemp from the adjoining territory of Khairpur.
Bhang, which is purchased by the farmer at Rs. 4 per maund, is sold to consumers by retail at the rate of 3 pies a tola or Rs. 50 per maund, and from the letter of the Political Agent of Khairpur territory it appears that bhang is sold to consumers in that territory at the rate of Rs. 4 or Rs. 5 per maund, and in times of scarcity at the rate of Rs. 9 or Rs. 10 per maund. It may safely be said that the retail rate prevailing in the Khairpur territory is Rs. 5 per maund, while that in the British territory of the Hyderabad district is Rs. 50 per maund. The difference between the prices in the two adjoining countries is so great that people have strong temptations in their way to illicitly import hemp from the Mir's territory into the Hyderabad district. The Political Agent has further informed me that the retail sellers pay only one rupee per maund to the State. The Khairpur territory is bordering along the Shikarpur, Hyderabad and Thar and Parkar districts, and as long as this great disparity of rates continues, there is a great danger of illicit importation of the drug. The number of patrols, who have to guard the borders of the Mir's territory for the purpose of suppressing and detecting crimes against the salt and excise laws is far from sufficient. 60. Ganja is not produced and manufactured in this province. 61. Charas is not produced and manufactured in this province. 62, 63 and 64. In answering question 59 I have answered these questions. 65. I would adhere to the present system of selling the right of bhang, charas and ganja by
public auction, but would insist on a maximum price for retail sale being fixed by Government, as is done in the case of opium, and I think the present retail rates at which bhang, ganja and charas are sold are very high. 66. I need not answer this question. 67. I have answered this question while answering question 59. 68. There are shops for the retail sale of these drugs; but the drugs are not consumed on the premises. 69. The wishes of the people are consulted before a shop is opened in any locality. The Collector has power to determine how many shops and in what localities are to be opened, and before fixing their number and locality the wishes of the people are consulted through the mukhtiarkars of the talukas. I think that local public opinion should always be considered on this point. 70. While answering question 59, I have pointed out the different rates at which bhang is sold in this district and in the adjoining native territory of Khairpur, and as long as this disparity of rates is not removed, the danger of illicit importation of hemp cannot disappear. Otherwise duty is paid on all these drugs. I may further say that in some instances the excise and salt establishments have succeeded in detecting cases of illicit importation of bhang from the Khairpur territory into this district, and the offenders have been dealt with according to law. - Evidence of KHAN BAHADUR KADIRDAD KHAN GUL KHAN, C.I.E., Deputy Collector, Naushahro Sub-division


58. I consider the present system of excise administration working well, and requires no improvement. 59. Requires no answer. 60. Ganja is not produced in this province. 61. Charas is not produced in this province ; it is imported from Amritsar and Lahore, where it is brought from Yarkhand and Afghanistan. 62. Under the present Abkari Law, Bombay Act No. V of 1878, there is no prohibition or restriction of any kind for the growth of the hemp plant either for manufacture of bhang or for its fibre. For the latter purpose solely the plant is rarely sown ; it is for the production of bhang that it is mainly cultivated. Cultivators of hemp are at liberty to keep the entire plants within their premises without a license, and under section 16 of the Act no license is even necessary for the sale by a cultivator or owner of any plant from which an intoxicating drug is produced, of those portions of the plant from which the intoxicating drug is manufactured or produced, to a person holding a license for the sale of intoxicating drugs or to a person licensed under this Act to manufacture or to export intoxicating drugs. The process of manufacturing bhang being only separation of the branches from the stalks of the plants in the case of " ghundis," and separation of leaves, flowers and seeds in the case of bhang " kuto " or " churl," the cultivator or owner of the plants runs very little or no risk in the socalled process of manufacture, and its use by him personally, in making presents to his friends or in carrying on sales to others in outlying villages where no licensed shops for its vend exist, and persons addicted to its use get their bhang at a nominal price. It is the entire absence of any prohibition or restriction chat leads to smuggling and unlimited consumption of the drug. I would therefore suggest that the cultivation of hemp should be restricted, and not allowed except under a license, and its crop should not he reaped except in the presence of a village officer, who should see that if the plant has been grown for its fibre only, the leaves, flowers, and seed are separated in his presence and destroyed ; that if it has been sown for the manufacture of Chang the entire stalks are stacked in a place to which the cultivator does not get access except for its sale by the permission of the taluka officer, and the sale to take place in the presence of the village officer. These restrictions will prevent the abuses which occur under the provisions of the existing law. 63. I have no objection to the present system of wholesale or retail vend of ganja, charas or bhang. 64. No. 65. I have no suggestions to offer under this head. 66. Ganja is not used in this part of the country, and I have no suggestions to offer under this head. 67. No. 68. There are no houses or shops licensed for the sale of these drugs or their preparations where they may be consumed on the premises. If such shops are licensed and the consumption is allowed upon them, the consequences would be mischievous, as the shop-keepers for the advantage of effecting sales of large quantities of these drugs in order to gain large profits would tempt the consumers to their habitual excessive use beyond proportion. 69. The wishes of people are considered, and very often consulted before a shop is opened in any locality. If people object to the opening of a shop in their neighbourhood, their objections are considered, and the question decided on its merits. 70. I have no facts regarding the importation or smuggling of hemp drugs from Native States to which I wish to draw attention. Duty is really paid in respect to the charas used in this district as it is imported from the Punjab. But in respect to bhang, please see remarks under paragraph 62.
 - Evidence of S. SADIK ALI SHERALI, Deputy Collector and First Class Magistrate, Frontier District of Upper Sind


58. I think it is working fairly. 59. I cannot give reasons. 60. Ganja is not produced in Sind. 61. Charas is not produced in Sind. 62. I do not think so. 63. I have no objection. 64. I have no objection, as the present regulations are working very well. 65. No alteration is needed in my opinion. 66 and 67. No.
68. Licensed charas shops for smoking chandu, which were really a source of misery, have been done away with, but shops for the sale of these drugs are in existence, and there is no objection to their existence. 69. Yes, the mukhtiarkar always enquires from the townspeople before a shop is allowed to be opened, and I think this is a right course. 70. No.  - Evidence of WADHUMAL CHANDIRAM, Pensioner, late Huzur Deputy Collector. Karachi.


58. The system is working well. But the hemp cultivators secretly use bhang for personal consumption. This requires to be remedied. 59. The hemp cultivators are bound to sell their bhang to contractors, but frequently they reserve a little quantity for their own use.
60. Ganja is not produced in this province. 61. Charas is not produced in this province.
62. The cultivation of the hemp plant should not be freely allowed. It should be strictly res-tricted. Particular plots should be marked out where the cultivation should be allowed. It should be under the control of the zamindar and the tapedar.
63 to 66. I cannot say. 67. I see no objection.
68. There are licensed shops, but no houses. I can give no further opinion upon it.
69. Sometimes the consumers, when they meet in otaras, madhis or such other places where these narcotic drugs are generally taken, consult each other, and then subscribe to the purchase of the drug. Their wishes should be considered.
70. It is not necessary to modify the existing regulations. Such a drug is not used without the duty being paid on it. These accidents are rare, but there are sufficient safeguards against them. Consumers sometimes use untaxed drugs.
 - Evidence of RAO BAHADUR LAKSHMANSING MATTHRAJI , Police Inspector, Hyderabad, Sind


70. There is little or no smuggling of hemp drugs from Native States. Passengers frequenting this from Cutch ports are sometimes found in possession of bhang or ganja, but in all the cases which have come under my notice the persons were given to the consumption of these drugs, and what was found by the Preventive Department was either what was over after consumption on the voyage or which could not be used on account of sea sickness. Such passengers are however protected from prosecution under Government Resolution No. 3995, dated 4th June 1886, provided the quantity is not in excess of ten tolas in each case. Except in very stray and exceptional cases the consumption of hemp drugs is not prevalent amongst the class of sea-faring men who frequent this port. - Evidence of MR. GEO. JUDD, Head Preventive Officer, Karachi.


58. I consider it to be working well. 60 and 61. Ganja is not produced in Sind.
62. Cultivation might (if necessary) be confined to some central part of the province only, so as to minimise the possibilities for the removal of the drug illicitly.
63 and 64. No.
65. Yes.
66. Only flat ganja is used here. Contractors should be encouraged to use the best ganja so as to reduce the temptation to the smuggling of a quan-tity of ganja superior to that used. 67. No. 68. In Karachi, there are places called Shaki-khanas, where bhang only is prepared and sold. These have been in existence for very many years and have been brought under control, and the number of them limited. They are a convenience to those of the poorer classes, travellers, etc., coming on business to Karachi and who have not the vessels or the time to prepare their drinks of bhang. 69. The numbers of shops are regulated accord-ing to the demand for them. No new shops are opened without the actual necessity for such. 70. Ganja is sometimes imported illicitly in small quantity at a time into Karachi from Cutch
ports and from Lus Beyla, both foreign States. The ganja used in Lus Beyla and, I think, in Cutch also is brought from Panwel, Kolaba district, Bombay, on payment of a nominal duty of 8 annas per maund, and being sold cheap in these States it is smuggled across here.
If these States paid a higher duty and raised the prices of ganja, smuggling could be reduced considerably.
 - Evidence of MR. GEO. J. BARKER, Abkari Inspector, Karachi.


58. The present system, which confers a monopoly of sale upon the Government farmer, is
objectionable. Adulteration and admixtures are not avoidable. Old and deteriorated bhang might be mixed with good stuff. Old charas is not unfrequently mixed with oil of bhang seed to give it freshness. New ganja is similarly mixed with old ganja. Such adulterations are said to be injurious; but at any rate they are unfair to the purchaser, although unavoidable under the present system. 62. Desirable to control it further, so as to render the admixture of the produce of the male plant, which is said to cause giddiness, impossible or difficult. 69. Local opinion is not consulted. It is very desirable to consult it before a shop is allowed to be opened in any locality.
 - Evidence of RAO BAHADUR ALUMAL TRIKAMDAS BHOJWANI, Deputy Educational Inspector, Karachi.


58 and 59. I cannot say any thing about it. 60 and 61. It is not produced in this province. 62. The control exercised by Government on the cultivation of bhang is sufficient. 63 and. 64. I have no objections. 65. I cannot say anything about it. 66. I do not know. 67. I cannot say anything. 68. There are such shops, and they are licensed. I cannot say anything further. 69. The wishes of the people are not consulted, nor do I think it necessary that public opinion should be considered. 70. I do not know.
 - Evidence of MAKHDUM DOST MOHAMMED MAKHDUM FAZUL MOHAMMED, Zamindar, Bubak, Karachi.


68. So far as I can gather, there are no houses or shops licensed for the sale of these drugs where they may be consumed on the premises.
  - Evidence of the REV. A. E. BALL, Missionary, Church Missionary Society, Karachi.


58. The system is working well under me, and requires no improvement. 59. This requires no reply. 60. Ganja is not made in this province; hence I cannot answer this question. 61. Charas is not produced here. I cannot, there-fore, answer this question. 62. The preparation, sale and transport of bhang is under control; but the cultivation is not controlled. Hence people cultivate it for their drink-ing purposes; but the same, when prepared or used, is an offence, and the planters, if the facts are proved against them, are convicted. Hence persons get opportunities of increasing the use of the drug, and the Government revenue suffers. Its cultivation also should, therefore, be prohibited, except under a license. All opportunities for the increase of its use would disappear, and no offences would be committed, and Government revenue would not suffer.
63 and 64. I have no objection.
65. I see no reasons for alteration in the vari -ous taxations. 66. I see no reason to alter the present mode. 67. I have no objection in regard to this. 68. I can form no opinion. 69. The wishes of the people are not consulted before opening a shop, but they are considered. 70. There are no facts regarding the importation or smuggling of these drugs from Native States to which attention may be drawn. If such drugs are illicitly imported or otherwise smuggled, they are properly inquired into and dealt with.  - Evidence of MAHOMED LAIK, Mukhtarkar of Hyderabad.


58. The present system is based on Bombay Abkari Act V of 1878 and the rules framed there -under. 59. It is capable of improvement only in one direction. There should be local option. No shop should be allowed to be opened until the wishes of the people living in the neighbourhood are consulted, and there should be also supervision over the kind of hemp drugs used by the retailers. 60. Ganja is not produced in Sind. 61. Charas is not produced in Sind.    • 62. If it can be arranged, cultivators should sow hemp seeds and reap the crop after getting the necessary permit from revenue officers, which is not the case now. 63, Perhaps it will be as well to fix the maxi -mum price for one tola of each drug, and to bind the retailer not to sell more than 5 tolas of bhang, 1 tola of charas, and 1 tola of ganja to one person in one day. 64. No. 65. The privilege is put up to public auction. The system as regards the levy of duty on alco -hol is different. There is a distillery at Kotri, and the duty which is levied on all liquor manufactured there varies according to strength. 66. No. 67. None, but the alterations proposed may be considered. 68. There are no such shops, but where they exist they should be closed. 69. No, but they should be. 68. I do not know any, - Evidence of PRIBHDAS SHEWAKRAM ADVANI Secretary, Band of Hope, Hyderabad, Sind.


58. It is not necessary to improve it. 59. The farm is ordinarily given to one man, and for that reason he buys very bad charas and ganja at very low rates and sells them high. For this reason the smokers are much injured; and the bhang and charm and ganja farm should be regulated on the same system as opium and liquor now are, i.e., small licenses should be given to many licensees.
65. The taxation on ganja, charas and bhang should be raised, for thereby they would sell very dear and hence few will use them. 69. The wishes of the people of the neighbourhood should be consulted before opening a shop, for the purchasers of these drugs being often illiterate and ignorant and foolish persons, prove very offensive to the neighbourhood.     - Evidence of TIRITHDAS HASRAJMAL, Member of the firm of Denmal Sachanond, Karachi.


58. The present system is not working well, and is capable of improvement. 59. The practice now in vogue is that one zilla or two zillas are farmed out to one man or to one company, which results in the following evils : — (1) The farmer fixes the selling prices as high as he likes, i.e., he becomes the lord of the purses of the purchasers of these drugs. The high prices can be judged from the following :—    Original cost.    Selling price. Charas    Rs. 2-0-0    Rs. 30-0-0 per seer. Ganja    „ 0-8-0    10-0-0 do. Bhang    0-2-0    ,, 1-10.0 do. (2) On account of the above high rates, the habitual consumers, in order to purchase their usual quantities, are often led to commit thefts and pickpocketing, etc. (3) The drugs are illicitly imported from other parts. (4) Bhang is illicitly cultivated. (5) The farmer pays no allowance to retail sellers for selling the drugs, and these retail sellers who depend on the selling business for their livelihood, must necessarily sell them at still higher rate, for which they murmur. (6) A very large portion of the farm money comes from the pockets of the retail purchasers who mostly are poor and straightforward and true men. But rich, mischievous and unprincipled persons get these from the central depot of the monopolist at a very low rate, for lie is afraid of them. (8) The monopolist gives many troubles to the poor retail sellers. The whole profit of the farm goes into the coffers oil the monopolist and the working men, i.e., the retail sellers, get no share. (10) One farmer cannot manage the whole district, though lie employs many agents. (11) Consequently complaints of the insufficiency of the stock in particular shops are often made by district officers. (12) At the close of the year, the old. farmer sells all the drugs a little higher than their cost price if the farm for the next year is given to another man, and thus induces all willing and unwilling purchasers to buy often more than the authorized quantity at such. low rates, which not only results in loss to the new-comer, but tempts the purchasers to consume more quantity than usual, and thus the use of the drugs increases. Note.—Remedies for the above evils are detailed in answer to question No. 63. 60 and 61. I do not know. 62. The cultivation of the hemp plant for the production of bhang should be more strictly controlled. (1) A cultivator wishing to cultivate hemp should be allowed to do so in some limited portion. of his number. (2) The cultivation should be inspected from time to time. (3) A Government officer should be present at the time of reaping, and as soon as it is ready, it should be weighed and sealed with Government seal. (4) If the farms are given by talukas, or licenses issued, each licensee can watch the illicit growth within the limit of his farm more easily and more satisfactorily. 63. The evils of giving the farm to one person having been pointed out in the answer to question No. 59, the improvements to remedy the evils are given below separately. (1) The licenses should be issued for the sale of drugs in the whole district. (2) The farm should not be sold to one man or to one company. (3) By such a division, many persons would be employed and would earn the livelihood, independent of the farmer, and will be free from the troubles which he gives them. (4) If the selling rates were fixed by Govern -ment for whole Sind, as is now done in the cases of opium and country liquor, it would be well, and all illicit import and export of the drugs, and the illicit cultivation of bhang, would stop. In my opinion the following rates are reasonable :—  

which should be    the selling price per seer and orders should be issued that no drugs should be sold at higher or lower rates than the rates fixed. (5)    In consequence of the uniform rates everywhere, no drugs will be illicitly imported and exported. (6) On account of low rates, there will be no illicit growth of the hemp plant. (7) On account of cheap rates, the poor purchasers would be relieved of their present troubles and grievance. (8) On account of there being many licensees in the whole district, no complaints of the insufficiency of the stock of any of the drugs will likely be made by District Officers. (9)    The rich and the poor will have equal treatment. (10) The evils, which are the results of the transfer of the farm to another at the end of the year, will disappear. 64. The quantity covered by a permit should be transported all at one time, and not in instalments and if the whole of the quantity covered by suet a pass is not procurable and after the portion procurable is transported, the permit covering the quantity should expire, for the transport of the quantity covered by a permit in instalments give, many opportunities of committing crime. 65.    In my opinion the taxation of ganja, charas and bhang is unreasonable, both with reference to (a) one another, and (b) to country liquor and opium.
Per seer. R.a.p. 1. Country liquor, manufacture expenses 0 6 0 Selling price (including royalty) i.e., the selling price including royalty is four times    its cost price 1 8 0 2. Opium, original cost about 6 0 0 Selling price, i.e., the selling    price including royalty is a little more than four times its cost price    25 0 0 3. Bhang, original cost 0 2 0 Selling    price including royalty, etc., i.e., the selling price is thirteen times the cost price 1 10 0 4. Ganja, original cost, etc. 0    6 0 Selling price, i.e., the selling price is twenty times the cost price 10 0 0 5. Charas, original cost, etc.    2    0 0 Selling price, i.e., the selling price is fifteen times the cost price 30 0    0 The rates which are reasonable in my opinion have been given in the answer to question 63, and will be found to correspond with the present rates of opium and country liquor. 66. Only one kind of ganja is used in Sind, therefore the question cannot be answered. 67. I have objections, but I am not in possession of sufficient information. 68. There are no such shops. 69. The wishes of the people are not consulted, but they should be consulted and considered.
70. Ganja is illicitly imported from Cutch, but the smugglers, if apprehended, are punished. General Remarks.—Another preparation from the hemp plant is majum : about a pound of bhang is boiled in five or six seers of water ; half a pound of ghee is also put in it. When the water after boiling is reduced to a pound, i.e., as much as bhang, it is mixed with sugar, and made into majum. Other ingredients are also put, i.e.—poppy pods, cardamom and saffron. This majum is sold at one anna per tola or even at much higher rate. It is requested that in suggesting a new system of farming out these drugs and other improvements therein to Government, the Commission would be pleased to consider the following points which I herewith submit :— (1)    The use of ganja and charas should be put a stop to at once, because the smokers of ganja and charas are by this habit at once reduced to misery and penury. (2)    They are not used on any social or religious customs. (3)    None of them is useful or beneficial in any way. (4)    They produce many physical diseases, as asthma, piles, cough, jaundice, impotence, and many other various diseases. (5)    Both of these produce intoxication at once, which produces unconsciousness, and there is every likelihood of the smoker being plundered. (6)    They are never used in the treatment of any disease. (7)    Both lead to crime. (8)    By foregoing these, no smoker would resort to other narcotics, liquor, etc. (9)    People use them as a luxury, and do get a temporary pleasure, but are much harassed by their after-effects. (10)    Sons of rich men sometimes get into the habit, and I have seen many of them who afterwards became beggars. What could then be the condition of the poor ? For the above reasons I am of opinion that ganja and charas should be put a stop to at once. No deaths will result from foregoing their use, and there is no danger to Government at all.
As for bhang, it should not be prohibited. It is used both on religious and social gatherings. The only improvement to be made is that uniform and cheap rates should be introduced everywhere, in which case, the rich and the poor, the high and the low, will be equally treated. There is every likelihood that crime would disappear. Illicit growth will cease. The evils of illicit growth are that abkari laws are broken, the produce is illicitly sold or given to others, that it is illicitly consumed, and that those who get it for nothing or on payment of a nominal sum, consume it in excess, and thus intoxication increases. All these evils will be stopped. Besides, the whole zillah should not be farmed out to one man, because the hemp cultivation will not be properly watched over. But if the farm is sold by talukas, or licenses are given, the illicit growth would be strictly watched over and will ultimately stop. Uses and benefits of bhang (1)    It is used on religious or social customs. (2)    The intoxication takes effect gradually, and therefore will not be dreadful, (3)  It aids the powers of digestion. (4) Moderate use of bhang makes a man meditative and intelligent for the time he is under its influence. (5) It aids in the meditation of God  and creates fear of Hari. (6) The consumer of bhang grows timid, and never commits any offence under its influence. (7) It is used as an application in piles and wounds. (8) It is used in syphilis, pox and other diseases. (9) It is used in the treatment of cattle diseases.
(10) Followers of Vishnu (who do not take liquor) use it on Holi holidays and on other religious and social gatherings.
(11) The selling of bhang at cheaper rate will decrease the number of liquor consumers, who would willingly take to bhang drink.
(12) Bhang is not such a narcotic as to induce the consumer to commit an offence voluntarily. It is taken solely as a beverage and makes the consumer humble and quiet. The above are the results of my observation and experience.
- Evidence of PESUMAL .NARUMAL, Farmer and Merchant, Hyderabad, Sind


58. In my opinion the system is working well. 60. Ganja is not produced in Sind. 61. Charas is not made in Sind. 62. When bhang is cultivated over one or two j irebs, it is cultivated under a license and is under the control of Government. Occasionally hemp plants are sown by cultivators in their fields. If Government controls this occasional planting and puts a stop to it, it will do well. 63. I have no objections to the present system. 64. I have no objection to this question. 65. In my opinion the present taxation should be continued. 66. In my opinion the present system should be continued. 67. I have no objections. 68. In my opinion the present system should be continued. 69. In my opinion shops should be opened where necessary. 70. Those  who import larger quantities than those allowed by law are punished, but no duty is paid in respect of the drugs. - Evidence of AHRUMOL PRITAMDAS, Farmer of Bhang, Charas, Ganja and Opium, Karachi.


58. The system in my opinion is working well. 60. Ganja is not prepared in my province. 61. Charas is not prepared in Sind. 62. When an acre or two of bhang is cultivated, the cultivation is undertaken after obtaining a license and is under Government control. Sometimes cultivators sow a plant or two on the ridges of fields, or seeds fallen by chance on the ground spring up. If Government were to control this growth and order it to be put a stop to, it would be well.
63. I have no objection to the present system. 64. I have no objections to the regulations. The Government orders allowing every man to transport 40 tolas are not objectionable, if transported within the same zilla ; but it is objectionable to transport from one zilla, to another. 65. The present taxation should continue in my opinion. 66. In my opinion the present system should continue. 67. I have no objections. 68. In my opinion the present system should continue. 69. Shops should be opened where necessary. 70. Those who import quantities exceeding the prescribed limit are punished. No duty is paid in respect to them.
 - Evidence of MANGHANMAL ALUMAL, Bhang, Ganja and Charas, and Opium farmer, Karachi.


58. The system is working well. It is not capable of improvement in my opinion. 59. I do not think that there is any necessity of making any improvement in it. 60. Ganja is not cultivated in my province. 61. Charas is not cultivated in my province. 62. Bhang prepared from the hemp plant is well prepared, but it requires to be controlled over. It
is not in Government custody as other narcotics are, and people cultivate it without a license and reap and take it home without permission. This encourages smuggling and leads to increase the use of narcotics. 63. I have no objection. 64. I have no objections; but the quantity, i.e., 40 tolas, allowed to each man to take from one place to another, i.e., from one taluka to another, without a pass, is excessive. He cannot use so much. If allowed to take the above quantity, there is great probability of illicit transport and. of the increase of the use. Therefore the possession of bhang should be reduced to ten tolas and ganja and charas to five tolas each. This is my opinion. 65. The taxation is reasonable, and there appears to be no reason for making any alterations in it. 66. There appears to be no reason for making any alteration in it. 67. I have no objection. 68. There are no such shops, and it is not necessary to have such shops in this province. 69. The wishes of the people are consulted and are considered. 70. There are no such facts. Restrictions and measures against importation and smuggling are in force, and they are sufficient. If any drug is so imported, immediate measures are taken to bring the offender to justice ; and I can offer no further remarks in the matter.
 - Evidence of DAYARAM KISHUNCHAND, Bhang, Charas and Ganja, and Opium Farmer, .Hyderabad.


58. The system is working well, but the rates are dear, which give immense profit to the farmer. 59. The agreement of the farmer should contain a condition that he will sell the drugs at a fixed rate. 60. Ganja is not prepared here. 61. Charas is not prepared here. It is mostly imported from Khorassan and other countries. 62, The cultivation of the hemp plant for the production of bhang is sufficiently taken care of by the cultivators. 63. The farmer sells these drugs at high rates. These should be improved. 61. I have no objections. 65. The practice of drinking bhang prevails chiefly in Sind. The taxation of the same is reasonable, but the farmer sells it dear. 66. I have no objections, 67. No. 68. There are shops in my province. 69. The wishes of the people are not consulted. 70. These drugs are not smuggled from Native. States ; the smugglers, if any, are detected and punished. Duty is really paid on such drugs; these drugs are bought from the shops and used as usual by certain people of all classes, and not by any particular class. - Evidence of DIN MAHOMED, Contractor, Shikarpur.


58. I consider that the present system of excise administration in this part of the province is working well. 60. Ganja is not produced in this part of the province. 61. Charas is neither produced nor used here.
 - Evidence of C. SHAM RAO, Attachè to the Resident at Hyderabad, now at Pusad, Basim District.


58. I am acquainted with the present system of excise administration in the province of Berar. The right to retail sale of hemp drugs is at present sold with that of opium, whereby the revenue from the sale of these drugs cannot be separately ascertained. 59. It is therefore necessary to auction the right to retail sale of the drug separately from that of opium. No other improvement in the present system appears necessary. 60. I think the cultivation of the ganja-bearing plant and the process of its preparation are sufficiently controlled, and the system requires no modification. 61. Charas is not produced in the Buldana district. 62. It is already controlled under the present system of administration. 63. I have no objection to the present system of retail sale of ganja, etc. There is no wholesale sale in the district. The present system appears to be working well. 64. I have no objection to the existing regulations governing the export (which is totally prohibited) and import, etc., of these drugs. 65. The taxation of ganja and bhang is under the present system not separately levied, and therefore it cannot be known whether taxation on ganja and bhang, with reference to each other or to alcoholic or other intoxicants, is reasonable or otherwise. However, the demand of the drugs as compared with alcohol or other intoxicants is so low that a. heavier taxation thereon does not appear necessary. 66. Only fiat ganja is available and used in the district, and therefore no different rates of taxation need be levied. 67. The incidence of the tax on the consumer is not capable of being ascertained under the present system. I cannot therefore say whether I have any objection thereto. 68. There are shops licensed for the sale of these drugs in the district, but the preparations of the drugs are not permitted to be consumed on the premises, and therefore I have nothing to say against these shops. 69. The wishes of the people are generally consulted through the contractor before a shop is opened in any locality. The tahsildar is generally referred to for the purpose. 70. No facts regarding the importation or smuggling of hemp drugs from Native States have ever come to notice. The duty on the hemp drugs used is not fixed by Government. The cost of the ganja used is paid by the contractor at the time of purchasing the same at places from which it is im ported into the district. - Evidence of KRISHNARA0 HARI, Officiatiny Extra Assistant Commissioner, Buldana.



 58. It is capable of improvement. 59. By reduction of number of shops for its sale, separating its sales from those of opium. Increasing the license fees for cultivation and importation and restricting cultivation to certain specified areas. Reducing the quantity that may be sold by retail to 3 tolas. The above would reduce the production and enhance its value, making it more difficult for consumers to obtain, and when obtained, they would have it only in small quantities, sufficient to last for from one to five days according to the habit of consumer. 60. I think the cultivation should be reduced by charging higher license fees and restricting the area where it may be grown. The owner should also be compelled to keep a true account of the quantity of the drugs obtained from his fields, sold, &c.; the drugs themselves being kept in a licensed place open at any time to Government officers. The cultivator should be bound by his license to sell to none but persons licensed to sell these drugs ; we would then have better control over the drugs. 61. No charas is produced in this province. 62. See answer to questions 60 and 61. 63. See answer to question 59. No subletting of the farm should be allowed. 64. The fees should be enhanced, and the import, export, and transport of the drugs should be under passes or permits obtained from special responsible Government officers. This would give less opportunity for smuggling. 65. Too little. Ganja, etc., are too cheap as intoxicants compared with opium and alcoholic drinks. Six pies worth of the drugs, an anna's worth of opium, and four annas worth of spirituous liquor will produce equal intoxicating effects.
66. No.
67. It is too low. 68. No shops or places are licensed for the consumption of the drugs on the premises. If they were allowed, they would become the resort of bad
characters, beggars, and generally those who do not care to work honestly for their living, and the daily meeting together of such characters would tend to organized crime. 69. No ; the people, I think, ought to be consulted. 70. First paragraph—No. Second paragraph —I believe so. Third paragraph—Not to my knowledge.
 - Evidence of MR. A. ARDAGH, Deputy Superintendent of Excise, Ellichpur


58. Yes, it requires improvement. 59. To whole Berar province cultivation of these drugs should be lessened by heavy license fees ; also on import, export, and on wholesale sale ; and for retail sale the maximum quantity should be fixed to the lowest quantity. 60. It should not be allowed to be sold wholesale by any cultivator to any wholesale purchaser without a permit from a competent Government authority, as well as cultivators should not retain the crops without license, and a heavy fee should be levied on cultivators ; also retail sale license to be granted to respectable person or party for each district. 61. No charas is produced in this province. 62. Yes, same as No. 60. 63. Same as answer to No. 59. 61. Same as answer to No. 60. 65. Intoxicating drugs such as bhang, ganja, and charas are cheaper than opium and alcoholic liquor, because one anna worth of liquor would not give satisfaction to a quarter anna worth of ganja and charas consumer ; so there is no objection to taxation being increased on these drugs. 66. No, it should be in equal. 67. In my opinion there is no objection to the present method of taxing. 68. Licensees are not allowed by the license granted to them to allow consumers to consume drugs on the premises, and such method should be continued to prevent facilities for habitual smokers. 69. No, people are not consulted, and they ought to be consulted to know the reason whether in favour of these drugs or against, whatever it may be. 70. No. Yes, duty is paid. No.
 - Evidence of MR. J. C. WATCHA, Excise Inspector, Ellichpur


58.I consider that the present system of excise administration in this province is working well, and I do not think that any modifications are needed therein. 59.As there is no necessity of any improvements in the system of excise administration, the reasons called for are not given. 60.There is no cultivation of ganja in this taluk, and hence there is no management or control over it.
61. Reliable information on this head cannot be supplied. 62.There is no cultivation of ganja in this taluk. 63.I have no objection to the present system of wholesale and retail vend of any of these drugs. 64.I have no objection to the existing regulations in force in this taluk for governing the export and import of any of these drugs. 65.In my opinion the taxation on any of these drugs, viz., ganja and charas, is reasonable and requires no alteration. Ganja should be sold by Government to the contractors by recovering tax thereon instead of selling it by auction. The ganja is sold by auction along with opium, and hence the revenue of ganja alone cannot be supplied; and I suggest that ganja should be sold separately from opium. 66.Reliable information on this head cannot be supplied. 67.I think, in my opinion, that the tax on ganja is very little, and the method of taxing is supplied in answer No. 65 above. 68.There are shops licensed for the sale of any of these drugs in this taluk. It is sold there only and not consumed on the premises. 69.When the shops were stationed first they were stationed with the consultation of the people, and as well as looking to their conveniences. It is fair, I think, that the people should always be consulted in opening these shops. 70.I have not heard of any case of smuggling of any of these drugs from Native States in this taluk. Ganja is always imported on pass after the duty has been really paid. There is no use of untaxed ganja in this taluk. - Evidence of WAMAN GANESH, Tahsildar, Wun.


5S. I do not think that any modifications shouldbe made in the present system of excise administration. 59.No modifications are required. 60.Ganja is not cultivated in this taluk, and the ignorant people have no knowledge how to cultivate it. 61.Charas is not prepared in this taluk. 62.There is no cultivation of ganja in this taluk. 63.I have no objection to the present system of wholesale or retail vend of any of these drugs. 61. I have no objection to the existing regulations governing the import of any of these drugs. 65.This is not properly solved. 66.Flat, round and broken ganja is not imported in this taluk from Bengal. 67.I have no objection to the present method of taxing any of these drugs. 68. Contractors can only sell ganja, in this taluk. 69.Shops are opened with the consent of contractors of these drugs. 70.I have not heard of any case of smuggling of hemp drug from Native States. - Evidence of VICKOOJI NARAIN, Tahsildar, Kathapur


58. The present practice of control is rather satisfactory. For the present the Revenue Officers have been entrusted with powers in these matters ; but if a separate officer be appointed for these matters, the control, etc., will be more satisfactorily exercised than at present. 59. The improvement can be effected by opening a separate department, and also by giving powers to the patels, etc. 60. Information on this head cannot be supplied, as there is no ganja cultivation in this taluk. 61. Charas is not known in this taluk. 62. See answer No. 60 above. 63. No improvements are necessary in the present system of wholesale or retail vend of these drugs. 64. I have no objections to the existing regulations governing the. import of these drugs. As there is no cultivation of ganja in this taluk, there is no exportation of the same. 65 to 67. I am unable to solve these satisfactorily. 68 No houses or shops have been licensed for the sale of these drugs or their preparations where these may be consumed on the premises. 69. The wishes of the people are not consulted
for the opening of shops. The shops are opened from information obtained from the contractors as to the sale of these drugs ; but the public convenience is always looked to in opening them.
70. The ganja is always imported from other provinces on a pass after the duty has been paid. There is no general use of untaxed drugs in this taluk.
 - Evidence of VINAYAK APPAJI KAUR, Brahmin, Officiating Tahsildar, Darwa, Wnn District


58. I am strongly under the impression that when the Government introduced the system of excise administration the main object it had in view was to check the consumption of the drugs from the hemp plant as far as possible. But on consideration of gradually increasing number of consumers I cannot but say that the object aimed at is not likely to be accomplished by the working of the present system. The system is capable of improvement. 59. To improve the system such measures may be taken as would without fail check gradually the use of the drugs or prohibit at once the use except on medical purposes. Under the present system any number of maunds of the drug can be imported to meet the demands of the public, and besides that any number of acres can be brought under the cultivation of the hemp plant for the
same object. In case the use is gradually and certainly to be checked, the number of shops is to be reduced every year and the restrictions in regard to the fixing of such a number of acres to be brought under cultivation of the hemp plant and of such a number of maunds of the drugs to be imported as would suit our purpose under the circumstances, are indispensably to be brought into force. In case the Government thinks the use is to be prohibited except on medical purposes, it is well and good. 62. Vide my answer to question 59. 63. I have no objection to the present system of a wholesale or retail vend of ganja and bhang or preparations of them. 64, Vide my answer to question 59. 69. The wishes of the people are not consulted or considered in any way before a shop is opened in any locality. The number of shops is increased or decreased on consultation of contractors, i.e., indirectly the wishes of consumers are consulted and considered. Local public opinion is to be taken into account before opening any shop. - Evidence of LAXMAN GOPAL DESHPANDE, Brahmin, Naib Tahsildar, Mangrul Taluk, District Basim.


58. I am acquainted with the present system of excise administration in my province, and consider it to be working well.
60. I think it sufficiently well controlled. There are rules on the subject. 68.There are shops licensed for the sale of these drugs and their preparations, but they are very rarely or never consumed on the premises. They do not differ from other ordinary shops.
69.The wishes of the people are not formally consulted or considered, but a good District Officer knows generally where to put and where not to put these shops. If a particular shop is objected to, it is generally removed. Yes, public opinion ought to be consulted. - Evidence of G. S. KHAPERDE, Brahmin, Pleader, Amraoli.


58. It is capable of improvement. 59. In the direction of closer supervision over the cultivator and the seller .
60. Ganja is produced in the province. Greater and closer supervision over the cultivation of hemp is required, there being no separate establishment for this work, which requires a special staff. 61. Not produced . 62. Bhang being comparatively harmless, the only control necessary is to prevent the plant being used for making ganja. This might be accomplished by the aid of a special establishment and restriction of sale of the plant to one licensed vendor. 63. The only objection lies in the fact that the same vendor sells opium. The vendors should be separated for each drug, and hemp sold only in small quantities, say up to one tola per man per diem. A register of sales should be maintained. 67. The farm of vend of hemp should be put up to auction separately from that of opium. 68. None, Consumption on the premises undesirable. 69. People are not apparently consulted, but should be. 70. Smuggling is only carried on for private consumption. Duty is only paid on the cultivation of the plant and when special licenses are applied for. Untaxed drugs are not used. - Evidence of YESHWANT VAMAN DIGHE, Pleader, Basim.


66. It is not necessary to have different rates of taxation for different kinds of ganja.
68. In our province license has to be taken out for selling the said drugs.
69. The people are consulted before a new shop is opened, and it is necessary to consult people is such matters. This is now done indirectly ; but it is necessary to take direct opinions. - Evidence of KHAJA ABDUL BAKI, Money-lender, Mehkar, Buldana District


58. I don’t see that there can be any improvement on the present working system. 60. Ganja is not prepared in this district. 61. Charas is not produced in this district. 62. There is no general cultivation within this district. 63 and 64. No. 65. Yes ; but I think the taxation should be increased on all drugs.
360
66. No; the tax should be the same.
67. No.
68. No; the purchaser must take the drug to his own house or some other place to consume it.
69. No; the Collector may authorize a shop to be opened in any part of his Collectorate. 70. Yes;  there have been 27 persons prosecuted for importing illicit ganja, bhang, and charas, and majum during the past three years.
 - Evidence of MR. G. BENNETT, Abkari Inspector, Ajmere.


63. None whatever. 64. None. 65 and 66. No. 67. None. 68. Yes ; no alteration in the system is required. 69. The opening of a shop in a certain locality is, I believe, generally petitioned for, and if thought advisable, sanctioned. The system is reasonable and. fair. 70.  No. - Evidence of MR. G. W. GAYER, District Superintendent of Police, Ajmere.


62. I think it should be controlled, and it is feasible ; method suggested by me in answering question 35. 65. I think taxation of these drugs would be reasonable if the tax is levied, and that a heavy one. It would not only tend to prevent excessive use of these drugs, but will also prevent several poor people from having recourse to it.
368
66.I think a higher rate of tax should be levied for a more injurious drug.
67.I have no objections to the taxing of the drugs.
68.There are licensed shops in Coorg for the sale of drugs or preparations. 69.No, not to my knowledge. I think local public opinion ought to be considered.
70.I also hear the bhangi is also mixed up in a sweetmeat preparation called " kamier'," or " halwa " (in Hindustani) and sold in sweet meat shops. I also hear that mutton, after it is well boiled, is mixed up with bhangi, condiments, spices, dried cocoanut and kuskus, and is roasted in ghee. It is then eaten with bread, particularly by Muhammadans. This preparation is called " bhangi dhallianha."
 - Evidence of MR. A. BOPPANNA, Planter, Bepunaad, Green Hills, Coorg.


58. The present excise system of the province is working well. 60. Ganja is not grown in this district. 61. Charas is not produced in this district. 62.The cultivation in the district is so very small that no control seems necessary at present. 63, 64 and 68 None 69. The wishes of the people are not consulted - Evidence of MAJOR G. GAISFORD, Deputy Commissioner, Quetta, Baluchistan.


68.Yes.
69.Yes. It is known that workmen will con
sume drugs ; if workmen cannot purchase what they want, they will not come to work.
70.No. Duty is paid on imported drugs. There is no general use of untaxed drugs.
 - Evidence of BABU KEDAR NATH, Head Clerk of the Political Agent, Kalat.


58. Might perhaps (?) be improved. 59. Possession is now punishable with fine or with imprisonment. It should be punishable with rigorous imprisonment only. As a Magistrate, I found imprisonment a much better deterrent than fine, and in awarding it had the whole Burman population with me. 62. Is, and should, continue to be, absolutely prohibited. The annual classification of crops for revenue purposes is a sufficient means of control. 64. No. Import is, and should remain, absolutely prohibited. 70. No. No duty. No general use.
 - Evidence of COLONEL H. R. SPEARMAN, Commissioner, Tenasserin Division


5S. Yes; I think it should be left unchanged. 6S. None are licensed. 69. The wishes of the people are consulted usually before any new excise shop is licensed. Question 59. —I do not see how the prohibition is to be more strictly enforced than at present, because, I understand, the plant grows spontaneously in many places in Upper Burma, and always contains the narcotic properties though it may not be in the form of true ganja. On the other hand, I could not recommend any relaxation of the prohibition, because the obstacles the Government has placed in the way of the Burmans procuring opium would be likely to make them turn to the hemp drug if it were legally procurable.  The obstacles referred to consist in the prohibition to supply opium to any Burman who is not a registered consumer. I do not think a similar measure in regard to ganja would be practicable any more than the measure is likely to be in regard to opium, for an unregistered consumer will be able to get his supply through a native of India, and in the same way a registered consumer will be able to get more than his legal allowance. Even if ganja could not be obtained from the plant as grown in Burma, I should still be averse from licensing its sale, because I consider that the licensing system raises up a class whose interest it is to spread consumption. I think that any licensing system would be far less effectual as regards the Burmese than the present prohibition. - Evidence of LIEUTENANT-COLONEL C. B. COOKE, Commissioner of Pegu.


58. I think it is working well. 59. Probably some more European Excise Inspectors would do good. 60, 61 and 62. Ganja is prohibited here. 63. They are not sold here. 64, 65, 66 and 67, Not allowed here. 68 and 69. No. 70. Cannot say.
 - Evidence of MAJOR B.A. N. PARROTT, Officiating Commissioner, Southern Division.


Question 59.—I do not think the present prohi bition causes any discontent, and that, therefore, it would be unwise to withdraw it without very strong reasons, The Burmese certainly do not feel any discontent, and I think the people of India can get the drug when they want it. This is not satisfactory, it is true. But I cannot make any definite recommendation regarding changing the system, because I have not formed any opinion re garding the harmful effects of the drug. If it were proved that the drug were more harmful than opium, I should probably be in favour of maintaining the present prohibition at all costs. But if it is not sufficiently harmful to justify total prohibition, I would advise what I proposed for opium before the Opium Commission, viz., that possession should only be permitted to licensed individuals without distinction of race, and that part of the revenue should be raised by such licenses. The remainder of the revenue would be raised as before, that is to say, in the case of opium by the fee for the right of selling and the fixed duty on the drug, and in the case of ganja by the right of selling only. The right of sale should be granted on fixed fees, and not by auction. If it were feasible to fix the price of ganja as the price of opium is fixed, my proposal would not be affected. A point, however, to be kept in view would be the equalisation of the wholesale price in different prov inces. Experience shows that in the case of opium differences of price are an inducement to smuggling. I do not think it is likely that the Burmans would ever take to ganja, for they have not taken advan tage of the opportunities, such as they are, which have already presented themselves, though they have taken to liquor and opium readily enough. Amongst the best class of Burmans there are some consumers of liquor and opium. Total abstinence is not in practice a very strong sentiment, though the religious injunction is very strict. - Evidence of MR. A. M. B. IRWIN, Deputy Commissioner, Tharrawaddy.


58. I consider that the present system of locally prohibiting these drugs is working well, and I think that it should not be in any way changed. 70. In the instructions to witnesses it is stated tha tthe Commission are anxious to know whether the consumption of charas and bhang has increased since the prohibition of ganja. There appears to be a misapprehension, as the prohibition of ganja has always included the prohibition also of charas and bhang. Prosecutions for illegal possession of ganja are common enough. But there have been very few prosecutions with regard to either charas or bhang. I cannot say why, as these drugs are common enough. I had no difficulty in procuring a piece of charas from the bazar here for my own inspection through a servant. It is said to sell for its weight in silver. It is quite clear that, notwithstanding the prohibition, these drugs are smuggled into the country to a considerable extent, for they are in common use among natives of India. But it is certain that their use among Burmans is quite insignificant, and I have no doubt that this fact is due in great measure to their use being prohibited by law. - Evidence of MR. H. ADAMSON, Deputy Commissioner, Meiktila


58. Total prohibition, such as is sanctioned for Burma, only system possible. - Evidence of MR. H. G. BATTEN,* Deputy Commissioner, Mergui.


58. Working well. Not capable of further improvement. Very little of the drug is smuggled. The majority of cases are detected and offenders punished. It is impossible to prevent smuggling altogether. 62. The total prohibition now in force is absolutely necessary. Were the use of the drug to be sanctioned, the spread of the habit would be great, and the results lamentable. 64. Import and export totally prohibited in Burma. 68. None.
 - Evidence of MAJOR G. S. EYRE, Deputy Commissioner, Sagaing


58. The absolute prohibition of the production
and consumption of ganja in this province in 1872-74 has had the best results and cannot be improved upon.
 - Evidence of MR. S. H. T. DE LA COURNEUVE, Deputy Commissioner, Pakokku, Upper Burma


35. The Financial Commissioner has asked me to furnish you with the following information :— (i) The smuggling of ganja. (ii) The success of the system of prohibition which has been adopted in Burma. As regards point (i), I am inclined to think after a three years' experience as Deputy Commis -sioner of Rangoon town from May 1890 to June 1893, that smuggling has increased, and that it is
due to the influx of the natives of India from the Madras side, also to the increase of native troops since the events of 1885. The records of cases tried and the experience of the Rangoon Excise and Customs officers will, I think, prove that I am in all probability right. It is now brought in, to some extent, by post, but principally in Rangoon by the crew of the British India Steam Navigation Company's steamers, who put it in floating tins, and as they come up the river some -where about Elephant Point throw it overboard to accomplices who are on the look-out in small boats, or sampans. As regards the (ii) point, I should think, con -sidering the fact that ganja is not used by the indigenous races of Burma, or if it is, only in very solitary instances, that the system of prohibition has, on the whole, been successful ; but it is by no means certain whether the success may not be due to the fact that the use of opium has taken its place. I cannot give any other facts to support my view. The Financial Commissioner has also desired me to give the quantity of ganja smuggled into this district during the past three years. The ap -proximate quantity smuggled is as follows:–
1890-91 . . . 254 tolas. 1891-92 . . . 267 „ 1892-93 . . . 1,018 ,,
58. Hemp drugs are prohibited in Burma. 60. Not produced in Burma, to my knowledge.
68. None in Burma.
 - Evidence of MR. A. L. HOUGH, Deputy Commissioner, Akyab


58 to 69. As the drug is prohibited, no reply necessary. 70. Ganja is smuggled into this province at the seaport towns by lascars and others belonging to the steamers that trade between India and this province. It is also sent by post to sepoys and others in garrison towns and towns in the interior. Question 59.—The prohibition as regards Burmans should be maintained under penalties to both seller and buyer. Sale to natives of India might be permitted, and the drug so used should be heavily taxed. The present system is the cause of a terrible amount of corruption among the police, and oppression by the police. Provided that prohibition is maintained as regards all, except natives of India, I do not think the licensing of the sale to the Indians would cause the Burmans to take to the drug, because the habit has in their case been. eradicated by the prohibition which has existed during the last twenty years. I think the large amount of smuggling which goes on with its accompaniments of corruption and oppression, and the fact that the Indian population is steadily increasing and will have the drug in spite of all restrictions, afford sufficient reason for the introduction of some such measure. The profits which at present go to the smugglersought to go to the revenue.  - Evidence of MR. J. S. D. FRASER, Deputy Commissioner, Pegu.


I have been in Burma since 1853, and my experience of ganja has dated since then. I have been in the Customs Department since then. My jurisdiction extends along the river bank from Pegu river to Kemendine on the Irrawady I was in the country when the prohibition of ganja was issued. I came into Rangoon soon after it was taken. There was no prohibition for twenty years. There was licensed vend. I never heard of Burmans using ganja. I knew that natives of India used ganja ; but we never saw it brought through the Customs House, so I cannot say how it came into the market. Licensed vendors were entitled to bring it There was no import duty ; but I think that there was some kind of prohibition of import. Ganja and opium have always been, to my notion, kind of prohibited articles. I think that import of ganja was punishable. I think the stuff was lawful only for licensed vendors to import. If I had come on a consignment to a licensed vendor, I should have taken no notice. There were such consignments from Calcutta and Madras. Import by any one else would be illegal, but was carried on surreptitiously. I remember some seizures being made. This happened to a considerable extent. These cases used to be dealt with summarily by the Collector of Customs. He would inquire into the case and adjudge the penalty. If the man did not pay he would be made over to the Magistrate, who would enforce the penalty. That procedure has been abandoned, except for small eases, since 1876. Since then all cases of any importance have been left to the Magistrate. I believe the smugglers were people like the ship's crew. They brought the stuff for native traders or shopkeepers, who sold to consumers. The object, therefore, was profit to be realised by surreptitious sale. This profit was large, because the price in India was low and it was high here. This was true of that time as well as this, though the profit is higher now. The importation of ganja was not, I think, materially stopped. by prohibition, because smuggling sltil went on. I think it went on just the same as before. I do not t hink the prohibition made any material difference. I cannot say accurately without statistics whether the importation of ganja was as great as ever, but my impression is that it was : that is, that the illicit ganja imported after the prohibition was not materially less than the licit and illicit ganja formerly imported. I think that since 1873 the importation of ganja has been going on regularly without diminishing. I think that of late years it has increased very much. There are many more natives of India. That would explain increase. In regard to seizures, a sudden drop in the number may be due to a change in the practices of smugglers. Then we would not know how to search for and. detect consignments until we learned their new ways. This would in turn lead. to a rise in the number of seizures till their plans were changed. This is the only explanation I can give of the great drop in 1889-90 and the increase in 1893. I cannot recall any other explanation of the latter, except some information some of our officers got which enabled us to make important seizures. The last two or three months show seizures slack again. Magistrates give rewards. Sometimes half the fine, sometimes the whole of it, is given to the Customs officers who seize the stuff. They pay the informer by private arrangement. It depends on the generosity of the officer. I have had complaints made by informers and have used my influence to get the informers due amount ; for we cannot
work successfully without them. All the seizures mentioned in my memorandum are quite
apart from the police. Officers making large seizures have sometimes complained to me of cases in which smugglers were heavily fined and went to jail without paying. In these cases no fine is realised and no reward given. This is discouraging to officers making seizures. I think some measures should be taken to avoid this. Again, if a conviction is not obtained, no special rewards are given to us. I cannot say whether every one who wants ganja can get it in Rangoon. I know that people
can get it clandestinely ; but I cannot say by whom it is sold and whether everybody can get it. I hear that it costs one rupee a tola, and can be obtained in a quiet way. I hear and believe that there is a great deal of ganja in the country. I have been told by informers that the drug costs a rupee a tola. I heard that only a short while ago.
The preventive establishment working under me consists of four Inspectors and two Additional Inspectors during the busy season (February to May), about twenty-seven preventive officers, and twentyfive "temporary" officers who are kept on all the year round. They get from Rs. 80 to Rs. 150, and the Inspectors from Rs. 150 to Rs. 300. There are also six patrol peons from Rs. 12 to Rs. 14 per mensem directly under me. I do not think that there is any extortion practised by this establishment. There has been no case of this kind.
The average number of vessels that arrived at the port of Rangoon during the last five years is 1203 for each year. Native boats moving about on the river are not looked at, unless they come up to the wharfs and there is inspection of contraband goods. Sea-going craft are systematically overhauled. The trade by native craft from Chittagong, Calcutta and Madras has been almost entirely cut out by the steamer transport. I believe they still trade considerably to Akyab and Moulmein, though not so much as formerly. There is the same preventive system as we have. We used to search such native craft carefully and often found ganja. I do not think that the native craft put in on the coast avoiding the ports. I do not think that contraband traffic is thus carried on. We have never heard of any traders resorting to such places. We would soon come to know if such craft were to visit such places. We have no preventive staff along the coast line. There would not be much difficulty, so far as I see, in native craft running in this way. They also like to do as much coasting as possible.
The smuggled ganja comes principally from Madras, Cocanada, Bimlipatam, and other ports on the Madras Coast. It has not come to my notice that it comes from Pondicherry. We have had no cases. There is not so much smuggling of ganja as of opium from Calcutta. We have had no cases of late. Formerly we had some isolated cases.
We have no dealings with the police in this matter. It is principally Chittagonians and Malabar people who pick up tins of contraband ganja thrown off from ships ; but I know nothing of the police being in sympathy with them.
 - Evidence of MR. R. G. CULLODEN, Assistant Collector and Superintendent, Preventive Service, Rangoon


I am senior Excise Officer in the town of Rangoon and the district of Hanthawaddy. I have been thirty-two years in Burma and. for eighteen years in Rangoon. Before that I was in charge of excise in Thayetmyo for a private contractor when the ganja was prohibited. I left him and joined the police in 1874. From there I joined the Rangoon excise work. I remember the issue of the prohibition of ganja. The drug was largely used by natives of India in Thayetmyo, by men employed in the Commissariat, etc. It was used by natives of Burma, but these
consumers were very few. The source of supply was Upper Burma. After the prohibition I made extensive seizures from Upper Burma in my police capacity. There was no other source of supply then, for there was no railway, and the journey was fifteen or twenty days. There was much ganja over the border. I was stationed in Alimyo, near Minla, and it was easily obtainable. The consumers prefer Madras ganja to local ganja, and elephant-drivers may have brought some up with them when they came up-country. But I made no seizures, and have no facts to show that. The ganja was extensively grown across our old border. I have seen it within ten miles of our old border. There was some cultivation, but it was said that the plant grew wild. I have seen small plots of cultivation—up to half an acre. When the prohibition issued, there was immediate effect on the few Burmans. But it had no effect on the natives of India, who suffered some inconvenience for a few days, but soon got as much as ever. They got it from Upper Burma. It was smuggled across. I left that part in 1875 and came to Rangoon. When I came to Rangoon, I found the drug a saleable article. It is so still. They used to smuggle it by baughy parcel post. I have myself seized hundreds of tins. The tins would weigh from 50 to 200 tolas. There is now a cheek on this smuggling by post, and the smugglers have to take to other means of smuggling, The check is due to so many seizures being made and my getting many of the post peons into my confidence. An order was also issued that parcels for regiments should be opened in presence of the Adjutant. Parcels found to contain ganja were made over to the civil authorities. I understand that this order was issued by Government. The parcels came from Madras post and were addressed to Madras sepoys. Discoveries of smuggled parcels were also made in the hands of merchants in the town. It was difficult to obtain conviction, because they would plead that they did not know what the parcels contained. I used to make discovery of parcels and follow them up. Even if conviction were not obtained, the stuff would be destroyed. If facts did not justify a trial, the magistrate receiving the report would only order destruction. There are, no doubt, returns of these cases in office. I have myself no figures. If I discovered a case through a peon I would share the reward with him by private arrangement. But if the postal authorities discovered a parcel they would get the reward. But they did not make many discoveries—only three or four cases in several years, perhaps from a tin happening to break or something of that kind. This postal smuggling has been much less for the last five years. Now ganja comes over in false-bottomed baskets, beds with ganja in pillows, etc., packed up in fish or meat, and carried on the person. It is dealt with chiefly by the Customs officers. General cargo can pass if every part is not examined ; but I cannot speak definitely as to efficiency of examination. We only deal with the matter, as a rule, when the stuff has eluded the Customs Department. The other day I sent information to Mr. Wiseman at Mandalay about a large consignment of ganja having passed packed with cigars in cigar boxes, and he seized it. This illicit traffic has only come to my notice on steamers and not on native craft. The native craft are well watched at Rangoon. The Customs authorities are very strong on this. But I do not think there is any watch at all on native craft on the coast. I have heard often of sealed tins of ganja being thrown overboard from steamers and picked up by boats. I have caught such cases by following steamers. But we work at great disadvantage, as we cannot fix the spot where such tins are to be thrown. And if we catch a man, he says, "I saw this floating and picked it up. I do not know what it is. " We can then destroy the stuff, but can hardly obtain a conviction. The Customs people board native craft coming into the river at Elephant Point. I think that cargo could be got rid of before reaching that point by dropping it along the coast. There have been a few seizures on Calcutta
ships, but nothing like what have been on Madras ships. Ships are fined too where unclaimed ganja is found ; and I hear that the agents make officers responsible for their own parts of the ship. I have only heard this of Calcutta ships. The Madras smuggling is principally from the French settlement of Pondicherry. Mr. Culloden's figures show increase in seizures. I think this is due to the increase of immigration of natives of India, who use the drug, and also to the extension of the Excise Act to Upper Burma and the recent measures taken to restrict cultivation there. There is a great deal more ganja brought into Burma now. Formerly it was one rupee a tola. Now it is four annas only in the bazar. I am afraid I must say that the prohibition is ineffective in Rangoon. The consumers get their ganja all the same, and hundreds are getting a living by it. It is only in cases of enmity that they inform on each other. My excise agency is one inspector, four sergeants and two peons. This is all for Rangoon and Hanthawaddy. The police have also powers as Excise Officers. They help for the reward. No reward is given when there is no conviction and fine, except in important cases, when special rewards are applied for. I think my establishment quite insufficient to deal with this matter. It has to deal with all illicit practices regarding spirits, opium and drugs, and look after the shops as well. I do not believe that ganja could be stopped even by an army of officials and constant interference with the people. If they could not get it otherwise, they would send small quantities in letters. I do not know what would happen if ganja were not produced elsewhere ; but so long as there is ganja available in India they will have it in Burma. Our preventive measures undoubtedly lead to oppression. False charges are frequent. A small piece of ganja is put under a man's bedding. I have even asked often to have such cases thrown out as false. It is common in case of enmity, as, for example, one policeman against another, especially if there is a woman in the case. Ganja is more frequently used in this way than opium, because it is cheaper. Ganja is not only weight for weight cheaper than opium, but the ganja habit is also a cheaper habit. Two annas' worth of ganja will last a man three days, while one pill or two pills of opium will cost six pice. I think eight pies a day for ganja and three annas for opium represents the ordinary consumer's supply. I do not know the qualities of ganja. I only know the smell. Natives prefer Indian ganja and we seldom now find the fresh or green Upper Burma ganja. There is no smuggling from the East, the Siam direction, into Rangoon. It is difficult to discover the true dealers in. ganja. They keep out of the way and pay the fines for their servants. But I have caught four such dealers. When information is got that such a place is a place of vend it changes, and the consumers alone know where the new place is. When the Burmans in Thayetmyo found their ganja supply stopped they took to opium. Finding it too strong to smoke and too troublesome to prepare, the Chinamen introduced a mixture of dried leaf and opium fried together. The pipe. they use is a foot long with a small tube six inches from the bottom with four inches of water in it. The smoke passed through that. The Burmans learned that. But that is also now prohibited. The Burman consumers, however, were very few. Burmans use ganja for their cattle, not for themselves. The few consumers abandoned the habit on the prohibition. I do not think that the
Burmans would ever take to ganja. During my thirty years' experience I have found that they do not take to it. They take it for their cattle only.
 - Evidence of MR. E. LEWIS, Excise Officer, Rangoon


I am Inspector-General of Police in Burma. The military police are mainly Northern Indians and Gurkhas and also a few Karens. The civil police are almost entirely Burmans, excluding the European officers. In municipal towns we have a few Indians also. I joined the police in 1887 in the supply department or commissariat of the military police. Before that I had been in service in the army. For about a year I was Deputy Inspector-General of Military Police, and for three years I have been InspectorGeneral of the whole force. I think there are about 16,500 military police and about 13,000 civil. The military police have been employed in Lower as well as Upper Burma for about four years. They work over the same area as the civil ; but in Lower Burma and the lower parts of Upper Burma they are used for treasury and other guards and escorts. In Upper Burma, as they are required for sending out columns, they are more numerous than in Lower Burma. I have not much knowledge of the use of ganja by men in the force. I had a case about two years ago of a Gurkha who was reprimanded by his officer for quarrelling in the lines and tried to shoot his officer. He was supposed to be a smoker of ganja. It was reported so by the officers and men ; but there was no direct evidence of his having taken the drug. I think the natives would more readily attribute such an act to ganja than to drink. They distrust a ganja smoker. I cannot say certainly what this Gurkha's character was. I did not take note of that. I do not know whether he drank alcohol. Being a Gurkha, he probably did. He went off to the Kachin hills and was not seen again. So far, however, as I know, the discipline of the force has not been affected by the use of ganja. I do not find the use of the drug alleged as a cause of defects in working or breaches of discipline. If I found a man who smoked I should turn him out, because he would be breaking the law and also because he would be dangerous. I have turned out such men at the end of their three-years' engagement. I think also that there have been cases of dismissal for ganja smoking. I do not think that smuggling of ganja by the military police is common ; and I do not think that the use of the drug is very common in the force. I do not think people not using the drug in India would use it  here. Burma has not proved unhealthy to them. The force has been wonderfully healthy. On the contrary, men using it in India might give it up here owing to the difficulty of getting it. We recruit throughout India, and get, I believe, the same kind of men as join regiments. I do not think there is much smuggling of ganja into Burma. We catch cases sometimes. But I cannot give figures. I should have nothing to do with Customs seizures ; but the police sometimes search on information received. From what I hear I understand that smuggling is constantly going on at the ports and also a little up-country across the border, but not so much of ganja there as of opium. Last year we had orders to go and establish a post at Sima, north-east of Bhamo. We left a garrison of three hundred men there. I heard that they were getting some kind of ganja and making it into a drink and using it. The Kachins found it in the jungles and sold it to the men. We took measures to stop it. The men were Gurkhas I think, and there may have been some Sikhs among them. I think they made a drink of it. That was my impression. We could, no doubt, easily obtain a specimen of the drug. Sima is in the middle of the Kachin country. This is not the only case I know of the cultivation or growth of the plant. I understand the Sima stuff was wild. There was a seizure at Kyaukse, and another at Pakokko (I think) —seizure of stuff cultivated. In the Kyaukse case I think they were growing it round the police station itself. Cases of illicit cultivation would be dealt with by the civil police. It would be one part of their duty to report any plant found growing. But the policeman might not know his duty. We have not established police schools all over Burma ; but there are orders to take up such cases. I cannot say from what date these orders have been in force. If there was special Excise establishment the police would probably leave it to them. I think that an Excise officer is bound to take a police officer with him for a search or seizure ; but I am not sure whether the police would initiate such action. I do not think that the checking of ganja illicit cultivation or smuggling is a matter that has been much pressed. There has been no such evidence of injury by the drugs as to call for much activity in this direction. Our civil police are generally recruited locally and belong to the same classes as the people among whom they serve. I have heard that ganja is cultivated among the Danus. The Danu civil police would be Danus. - Evidence of MAJOR PEILE, Inspector-General of Police.

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Cannabis for Recreational Purposes
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The Business of Cannabis
https://ravingkoshy.blogspot.com/2018/10/the-business-of-cannabis.html

The Economics of Cannabis
https://ravingkoshy.blogspot.com/2018/10/the-economics-of-cannabis.html

The Legality of Cannabis
https://ravingkoshy.blogspot.com/2018/10/the-legality-of-cannabis.html

The Politics of Cannabis
https://ravingkoshy.blogspot.com/2018/10/the-politics-of-cannabis.html

The Social Usage of Cannabis
https://ravingkoshy.blogspot.com/2018/10/the-social-usage-of-cannabis.html