Foreign Relations of the United States, 1969–1976, Volume E–8, Documents on South Asia, 1973–1976

133. Telegram 4881 From the Embassy in Pakistan to the Department of State¹ ²

Islamabad, June 15, 1973, 1016Z.

Subj:

• Narcotics: Plans for Elimination of Opium Production

Ref:

• Islamabad 4584

1. Summary. New Narcotics Control Board (NCB) planning document estimates total opium production in Pakistan at 237 to 275 mt on 19,000 to 22,000 acres. NCB projects phase-out of settled area production over three years, but notes that elimination could be expedited if adequate economic assistance becomes available. NWFP development bodies, with assistance from GOP Planning Commission, have been tasked with planning eradication programs in merged and tribal areas, but no target dates from eradication are mention in document. Papers lists as elements of possible “compensation” program several items which could be incorporated in projected USAID Barani project for NWFP. End summary.

2. In response to June 11 meeting with Charge (reftel), Qamarul Islam, Deputy Chairman Planning Commission, has forwarded to Embassy Newts completed NCB planning paper entitled “Control on Opium Production and Narcotics Enforcement in Pakistan” (pouched June 15 NEA/PAB). This message deals with portions of paper concerned with production. Document distinguishes between settled areas, where control is said to be “relatively easy” and merged and tribal areas where control is viewed as difficult. Separate operative plans are outlined for each area.

3. Production estimates. Estimates of poppy acreage, on basis of surveys by NWFP authorities and independently by NCB agents, are placed at 19,000 to 22,000 acres, with 6,000 acres in settled areas. Based on average yield of 12.5 kg. per acre, total production of “dry opium” in Pakistan is calculated roughly at 237,000 to 275,000 kilograms.

4. Settled area eradication. Document states that quote steps will be taken with effect from next growing season to start elimination of unlicensed cultivation of poppy. Acreage under licensed areas will be reduced during 1974–75 will be completely eliminated by the end of 1975–76, except for medicinal uses. Total etihination of poppy cultivation in settled areas is administratively possible earlier, provided acceptable compensation and rehabilitation plans for poppy cultivators materialize and funds are available. End quote. Paper states that committee composed of reps of NCB, Economic Affairs Division (Finance Ministry), and NWFP government is being set up to work out detailed plans for elimination of poppy and its replacement with alternate crops.

5. Merged and tribal areas. Document reports recent meetings on elimination of merged and tribal area poppy cultivation with NWFP Chief Secretary, NWFP Development Commissioner, reps of Tribal Development Corporation, and additional Secretary, States and Frontier Region Division (Brig. Mahmud Jan), who have been asked to come up with estimates of poppy cultivation and to formulate plans for rural development in these areas. Planning Commission has agreed to meet costs of surveying and preparing plans.

6. Compensation/uplift projects. In list of plans for poppy farmers, CB includes inter alia provision of small dams, tubewells, connecting roads, subsidies for fertilizer, seeds and implements cattle breeding, fruit orchards, small industries, transport facilities, ag extension services, and “compensation to individuals.”

7. Comment. Most surprising aspect of document is very high estimate of total poppy acreage and total opium production. While figure of 6,000 acres and 75 mt is within range of what we have been estimating for settled areas, acreage and estimated tonnage (160 to 200 mt) for merged and tribal territories is far higher than anything we have previously seen. NCB has indicated we will shortly be provided with breakdown of production estimates by area. Unlike previous narcotics board, which drastically underestimated production, NCB is taking realistic approach to extent of opium production and deserves full credit.

8. Timetable para 4 for settled area eradication is about what we expected GOP to come up with as counter to team recommendation. However, plan leaves door open for expedited eradiction effort, if sufficient resources (e.g. external assistance) becomes available, thus underlining importance GOP attaches to US help on production side. NCB has adopted suggestion made by Embassy to Orakzai for establishment of planning committee, but appears to limit its field of operations to settled areas only. Planning for merged and tribal areas conspiciously omits any reference to timetable for eradication there, a retreat from Orakzai’s observation to Embassy reps June 11 that US team target date for merged areas seemed reasonable. Involvement of Planning Commission in planning for merged and tribal areas is step forward, however.

9. List of compensation/uplift projects includes number of items which team and Mission reps have suggested to GOP over past nine months, such as provision of fertilizer and other agricultural inputs, rural roads, tubewells and substitution of fruit orchards in certain former poppy areas. All these items could fit in very well with projected USAID Barani agriculture program. Reference to “compensation for individuals” may indicate that GOP has in mind in addition compensation payment to individual farmers, an approach which we have disouraged here.

Sober

1. Source: National Archives, RG 59, Central Files 1970–73, SOC 11–5 PAK. Limited Official Use. It was repeated to Kabul, Karachi, and Lahore.
2. The Embassy reported on Chargé Sydney Sober’s meetings with Prime Minister Bhutto regarding the plans of the Pakistani Narcotics Control Board to begin a three-year domestic opium eradication program. The Embassy recommended the use of USAID as a channel for economic “compensation” programs for affected growers.