Jambunathan K writes:
> If I am not mistaken, you are talking about release tar and not the ELPA
> tar.  They are not the same.

I know.

> Run rgrep like so.
>     (rgrep "pkg" "*.mk" "~/src/org-mode/" nil)
>
> and I see no references to 'org-pkg.el'.  (Note the `-pkg.el')

It's not pushed to the orgmode repository yet.  Please have a look at
the ELPA tar produced with the following patch (after including
UTILITIES/server.mk from your local.mk):