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Samoa Under the Sailing Gods

Appendix vii

page 295

Appendix vii

Exhibit No. 9 from "The Report of the Royal Commission on the Administration of Western Samoa, 1927" Alcoholic Liquor in Western Samoa 16th May, 1927.

His Excellency, General Sir George S. Richardson, K.B.E., C.B., C.M.G., Administrator of Western Samoa.

Your Excellency,

A reference made by Your Excellency at a meeting of heads of Departments prior to your visit to the New Hebrides to the subject of liquor in Samoa has been taken by us to indicate the possibility of your bringing before the Hon. the Minister of External Affairs a proposal for a change of the law on this subject, if you were satisfied that such a change is for the benefit of Samoa. Accordingly, since that meeting, we, your departmental heads, being ourselves satisfied that a change is desirable, have met again, with official permission, to discuss privately and formulate proposals which have the concurrence of us all and which might be of some assistance to Your Excellency. The object which we have had in mind in framing the proposals now submitted herewith is not a selfish one. It is, in short, to help Your Excellency make this Territory a happier one for both Natives and Europeans. That object, we think, can be accomplished by an amendment of the law in the following directions:

First, to ensure the more effective prevention of the supply of intoxicating beverages to the Natives, as required by Article 3 of the Mandate.

As it at present stands the law, though in intention a good one, is ineffective to prevent either Natives or Europeans from obtaining and consuming intoxicating liquor. It permits the manufacture of liquor containing up to 3 per cent. of proof spirit. This is the outstanding weakness. By the use of a concoction called "All-In-One," which has for some time been imported into Samoa in huge and increasing quantities, it is easy, with the addition of sugar and water only, to make an intoxicating liquor resembling beer, locally called fa'a mafu. page 296Unless the amount of sugar is carefully regulated the percentage of alcohol in this fa'a mafu beer rises above the legal 3 per cent. The addition of extra sugar ensures an excess of alcohol and gives the drink a "kick," which is its only recommendation among its devotees. The manufacture of fa'a mafu beer from "All-in-One" not being prohibited by law, the police cannot interfere with it except on those rare occasions when they are able to obtain samples exceeding the legal percentage. This is generally possible only after, and as a result of, cases of drunkenness coming under their notice. It is practically impossible in outlying districts. We have no doubt whatever that, in spite of the efforts of the police, a great deal of over 3 per cent. fa'a mafu beer is habitually made and consumed, particularly by the young half-caste population. In proof of this we refer Your Excellency to the figures of the importation of "All-In-One" for the year 1926—viz. 485 cases. It is estimated that it is sufficient to brew 28,875 dozen quart bottles of fa'a mafu beer. The total white population of the Territory, as Your Excellency knows, is about 446, and this concoction is not a favourite one among them.

We also quote the report of the Collector of Customs, who on his inspection of trading-stations last year found that "All-In-One" was stocked in the majority of stores throughout Samoa, including those situated in places where there were no whites living in the vicinity. "All-In-One" is used for no other purpose than the manufacture of fa'a mafu beer.

The prohibition of the importation of "All-In-One" would not alone suffice to prevent brewing, as other products of the country can be, and sometimes are, used in substitution for it. Spirits also can be, and are, manufactured from paw-paws and cocoa, though the difficulty of distillation and the efforts of the police have prevented the manufacture of spirits becoming a menace. The only course, therefore, to ensure that the spirit of the Mandate will be carried out effectively in the future seems to be to prohibit absolutely, as we suggest in the following proposals, the brewing or preparation of any fermented or alcoholic liquor whatever.

Secondly, by allowing a more liberal and reasonable, though a strictly controlled, use of alcoholic liquor by those persons of European and mixed race who can use it without detriment, to overcome the hostility to the Administration and its activities which the present law arouses.

page 297

The law is, rightly or wrongly, regarded by many people as a just grievance. If it were amended to allow them to obtain a quantity of liquor sufficient, but no more than sufficient, for their own personal and reasonable consumption, it would command the support of these people, and the Administration would receive from them more co-operation in its efforts for the good of the Territory, and particularly in its efforts to prevent drinking among the Natives and others to whom it is detrimental.

We draw Your Excellency's attention to the fact that under our proposals the total permits issued by the Board would probably be under four hundred. The General Report for 1926, page 26, shows the European population to be 637. Of this number probably at least one hundred would not apply for permits, they having no taste for liquor; a further fifty or so would be rendered ineligible by their police and Court records; and another one hundred at least would be lacking in the qualifications set out in clause 5 of the proposals.

In conclusion, and in order to show our sincerity in the matter, we would impress on Your Excellency the necessity for clause 9, which refers to penalties for offences. These we consider are sufficiently drastic to deter would-be offenders from taking risks in trading in alcoholic liquor of any kind. We have made no mention of penalties in connection with brewing, feeling satisfied that this will be dealt with by the Law Department in the event of any change being made in the present system.

Attached herewith please find schedule of before-mentioned proposals.

I have, etc.,

R.J.C.,

For Heads of Departments of the Samoan Administration.

Suggested Scheme by Heads of Departments of the Samoan Administration for the Issue and Control of Alcoholic and Fermented Liquor in the Territory of Western Samoa

1.Brewing.—That the brewing of any fermented or alcoholic liquors whatsoever be absolutely prohibited throughout the whole Territory of Western Samoa, except by special licence, and that the importation of preparations primarily intended page 298for the manufacture of alcoholic beverages be absolutely-prohibited.
2.System of Issue.—That the method of procuring liquor be by permit only.
3.Board of Control.—That a permit Board of Control, consisting of official members of the Administration, or official and non-official members, be set up for the purpose of issuing and controlling permits. The members of the Board to be appointed by the Administrator and to hold office during his pleasure. Non-official members to receive remuneration as decided by the Administrator.
4.Liquor Controlled by Permit Board.—That the Permit Board have control of spirituous and fermented liquors within the Territory of Western Samoa, with the exception of liquor required for medical purposes, and that the maximum amount which the Board shall have power to grant shall be the equivalent of 2 reputed quarts of spirits per week; and for purposes of this clause 1 of spirits = 3 of wine = 9 of ale or stout.
5.Eligible Persons.—That every person registered and living as a European with one-half European blood or more and who is twenty-five years of age or over shall be eligible for consideration by the Board, but not ipso facto entitled to a permit. For the purposes of this Act the term "European" does not include Chinese coolie labourers.
6.Medical Permits.—That the Medical Department continue to issue medical permits at their discretion.
7.Tourists and Overseas Shipping.—In the case of tourists the following shall apply:
  • (a) Round-trip passengers, no permit whatsoever.
  • (b) Stay-over tourists and visitors to be issued with reasonable requirements by and at the discretion of the Collector of Customs, who will report his actions in the matter to the Board at its next regular meeting.
  • (c) The officers and crew of overseas shipping remaining in port for more than three days to be supplied by the Collector of Customs with reasonable requirements out of the ship's stores for consumption on the ship only.

No liquor to be supplied to the members of any crew from Government stores for consumption ashore. Liquor issued for consumption on the ship on no account to be brought ashore.

8.Control and Importation of Liquor.—That the Collector of page 299Customs be the authorized person for the control and importation of liquor under the authority of the Board.
9.Penalties for Offences.—That any person found supplying liquor to Natives or unauthorized persons shall, upon conviction by the High Court, be imprisoned without the option of a fine for a minimum of twelve months; and any Native or unauthorized person receiving liquor shall receive the like punishment; and any person convicted by the High Court of any offence committed whilst under the influence of liquor shows himself to be an unfit person, and that the record of the conviction shall be reported to the Board, who will take such action as it may think fit.
Importations of "All-in-One" into Western Samoa, Period 1922-26.
("All-in-One" was first imported June 1, 1922.)
Year. Cases. Value.
£
1922 57 192
1923 311 950
1924 292 876
1925 385 940
1926 482 1,071

Note.—These figures are official. Apparent anomalies may be due to fluctuation in price.

N. A. R.