511.4A2/31b

The Secretary of State to the American Representative on the Preparatory Committee ( Neville 78)

Sir: The United States has been invited to send a representative to attend the meetings of a Preparatory Committee at Geneva, Switzerland, which has been called by the League of Nations to prepare a draft program for the Narcotics Conference in November, 1924. You are instructed to proceed to Geneva, Switzerland, and attend these meetings in a consultative capacity.

There are enclosed certain suggestions, the international adoption of which, this Government believes, would be of material value in lessening the world-wide traffic in harmful drugs. You are authorized to bring these suggestions to the notice of the Preparatory Committee and to explain that the suggestions are tentative in character and are intended to serve as a basis for discussion.

You will be careful to avoid any attempt to commit this Government in your discussion, as the Department understands that the work of this Committee is purely suggestive and not final. Any recommendations or conclusions which may be reached by the Committee will, therefore, not be binding on the Governments which are represented there.

It is assumed that much of the work will be of a technical character and will involve discussion of the narcotics laws of many nations [Page 94] of the world. The Department has, therefore, requested the Treasury Department to allow an officer from the Narcotics Section who is familiar with the actual operation of the several Statutes of the United States on this subject to proceed with you. That Department has also been requested to authorize the presence of the Treasury agent in Switzerland at Geneva during your stay there, as it is probable that the discussions will involve questions affecting the shipment, trans-shipment and bonding practices of the nations concerned. In view of the questions of hygiene which may arise, the Department is requesting the Public Health Service to authorize the Surgeon in charge at Paris to proceed to Geneva in case of necessity.

I am [etc.]

Charles E. Hughes
[Enclosure]

Suggestions of the United States To Be Presented to the Preparatory Committee

The Resolution calling the Narcotics Conference reads as follows:

“The Assembly, having noted with satisfaction that in accordance with the hope expressed in the fourth resolution adopted by the Assembly in 1922, the Advisory Committee has reported that the information now available makes it possible for the Governments concerned to examine with a view to the conclusion of an agreement, the question of the limitation of the amounts of morphine, heroin or cocaine and their respective salts to be manufactured; of the limitation of the amounts of raw opium and the coca leaf to be imported for that purpose and for other medicinal and scientific purposes, and of the limitation of the production of raw opium and the coca leaf for export to the amount required for such medicinal and scientific purposes.

“Requests the Council, as a means of giving effect to the principles submitted by the representatives of the United States of America and the policy which the League, on the recommendation of the Advisory Committee has adopted, to invite the Governments concerned to send representatives with plenipotentiary powers to a Conference for this purpose, to be held, if possible, immediately after the Conference mentioned.

“The Assembly also suggests for the consideration of the Council, the advisability of enlarging this Conference so as to include within its scope all countries which are Members of the League, or Parties to the Convention of 1912, with a view to securing their adhesion to the principles that may be embodied in any agreement arrived at.”

It is assumed that all suggestions for the practical application thereof should be in accordance with its terms.

The Government of the United States believes that the following suggestions should be considered, but does not commit itself thereby to a definite plan, reserving the right to add to, alter or propose other suggestions in the light of proposals from other Powers.

[Page 95]

A. Production

1.
The cultivation of the opium poppy and the coca leaf plant to be reduced to the amount required for the production of opium and coca leaves sufficient for medicinal and scientific requirements only, as determined by proper authority. As a preliminary measure no increase of poppy or coca leaf plant to be permitted, and those nations in whose territory these articles are not produced to prevent their introduction.
2.
No encouragement to be given to poppy or coca leaf cultivators by the State.
3.
The acceptance of the principle that no state should rely upon the revenue from the control of opium and the coca leaf for purposes of operating the Government, beyond the expenses incident to controlling the narcotics traffic.
4.
Consideration of difficulties arising out of treaty obligations which prevent certain states from raising increased revenues from Customs taxes as a substitute for the tax on opium or coca leaf and their derivatives.
5.
The provisions of Articles 1, 2, 3, 4 and 5 of the Hague Opium Convention to be applied to coca leaves.

B. Transportation

1.
Opium to be exported only upon license from the importing country which must be party to The Hague Opium Convention, issued upon prescribed rules and regulations showing that it is imported either for purposes temporarily permissible under Chapter II of the Convention or for medicinal purposes. The exportation of opium of less than 9% morphine content, or for purposes under Chapter II of the Convention to cease after a fixed period, say ten years.
2.
Coca leaves to be exported only upon permit issued upon prescribed rules and regulations for medicinal purposes, from the importing country, which must be party to the Hague Opium Convention.
3.
Derivatives or preparations of opium and the coca leaf to be exported solely for medicinal or scientific purposes.
4.
No vessel or other common carrier to receive for transport any opium, coca leaf or derivative of either, which is not accompanied by a certificate from the country of destination showing that it may be lawfully imported, and, by a document from the country of export showing that it may lawfully be exported. Reciprocal right of search on the high seas in regions agreed upon from time to time, to enforce this provision.
5.
Transshipment and bonding privileges to be restricted, to the end that, as a general rule, there shall be no re-export of opium, coca leaf or their derivatives and preparations.

C. Manufacture

1.
The provisions of Articles 9, 10, 11, 12 and 13 of The Hague Opium Convention to apply to all derivatives or preparations of opium and coca leaf with suitable exceptions for small quantities in medicines.
2.
Countries with well developed chemical and pharmaceutical facilities to prohibit the importation of narcotic drugs, derivatives of opium and the coca leaf, permitting only raw opium and the coca leaves to be imported, except small quantities for scientific purposes.
3.
The export of manufactured drugs preparations or derivatives of opium or the coca leaf to be permitted only to nations which are party to The Hague Opium Convention and which have adequate systems of domestic control, except that medicines in small quantities may be exported.

D. Administration

1.
A consideration of the administrative features of the Convention with a view to prescribing definite powers for a permanent central organization.
2.
Annual Reports to be submitted by all Powers party to the Convention. The reports should show the amount of opium and coca leaves produced, imported, exported or used for local consumption; the amounts of derivatives or preparations made therefrom, imported, exported or used for local consumption, and should cover the same periods of time.
3.
Illegal possession of opium coca leaf or their preparations or derivatives to be a penal offense.

E. General Provisions

1. The foregoing provisions to be applied to all drugs which might, after generally recognized scientific investigations give rise to similar abuses and result in the same injurious effects.

Management of Conference

1.
Day for hearing petitions and suggestions.
2.
Order of business.
3.
Place of Conference.
  1. Edwin L. Neville, consular officer, representative on Advisory Board to U. S. Federal Narcotics Control Board, 1922.