REFERENCE TO THE MALAY STATES OF PERAK, SELANGOR, NEGRI SEMBILAN AND PAHANG,
187
^
191^
BY P , L . BURNS
A THESIS PRESENTED FOR THE DEGREE OF A DOCTOR OF PHILOSOPHY IN THE UNIVERSITY OF LONDON
NOVEMBER 1965
ProQuest N um ber: 11010303
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B r i t i s h R e s id e n ts w ere a p p o in te d t o th e t in - p r o d u c in g S t a t e s o f P e r a k , S e la n g o r and S u n g a i U jong d u r in g l87**-5 and l a t e r t o
N e g ri S e m b ila n and P ah an g . A lth o u g h th e y w ere o n ly s e n t t o p r e s e r v e o r d e r and g iv e a d v i c e , t h e R e s id e n ts so o n fo u n d i t n e c e s s a r y t o
ta k e c h a rg e o f th e a f f a i r s o f t h e s e S ta te s * I n m ost o f th e m in in g d i s t r i c t s M alay a u t h o r i t y h ad c e a s e d t o e x i s t w h ile B r i t i s h
o f f i c e r s fo u n d M alay p o l i t i c a l i n s t i t u t i o n s u n s u i t e d t o im
p le m e n tin g t h e i r a d v ic e * The in d ig e n o u s p o l i t i c a l sy ste m was p r e s e r v e d , h o w ev er, l a r g e l y t o l i g i t i r a i z e R e s id e n t r u l e an d to a l e s s e r e x t e n t t o e n a b le th e B r i t i s h o f f i c e r s t o g o v e rn th e l e s s p r o d u c tiv e d i s t r i c t s . The in d ig e n o u s i n s t i t u t i o n s w ere s u b o r d in a te t o new o n e s w hich w ere c e n t r a l i s e d and b u r e a c r a t i c and o r g a n is e d t o f a c i l i t a t e c a p i t a l i s t e n t e r p r i s e *
The s o - c a l l e d f e d e r a t i o n o f t h e f o u r s t a t e s i n 1895 was d e s ig n e d t o e n c o u ra g e ev en g r e a t e r econom ic d e v e lo p m e n t. The
V
p r o s p e r i t y w hich F e d e r a t io n h e lp e d t o £ c^£ * o n ly i n t e n s i f i e d th e c e n t r a l i s a t i o n o f a u t h o r i t y i n t h e o f f i c e o f t h e c h i e f e x e c u tiv e a u t h o r i t y - t h e R e s id e n t- G e n e r a l - and h i s f e d e r a l o f f i c e r s * B ut t h i s developm ent p ro v o k e d a r e a c t i o n among t h e r u l e r s an d R e s id e n ts who r e s e n t e d t h e i r l o s s o f power and th e i n t r u s i o n o f f e d e r a l
o f f i c e r s i n S t a t e m a t t e r s . I t a l s o r e s u l t e d i n e x c lu d in g th e
H igh C o m m issio n er, a s t h e G ov ern o r was known a f t e r 1 8 9 6 , from any b u t n o m in a l c o n t r o l o v e r t h e a d m i n i s t r a t i o n o f t h e F e d e r a te d M alay S t a t e s . S i r Jo h n A n d erso n * s e f f o r t s a f t e r 190*f t o e f f e c t i v e l y e s t a b l i s h h i s a u t h o r i t y i n t h e F e d e r a t io n p ro d u c e d some im p o r ta n t c o n s t i t u t i o n a l c h an g e s b u t no a p p r e c i a b le e f f e c t £ n th e a c t u a l powers o f th e R e s id e n t- G e n e r a l, o r h i s s u c c e s s o r , th e C h ie f S e c r e t a r y t o Government#
PAGE
PREFACE 3
ABBREVIATIONS 6
TABLE Exchange V alue o f th e S t r a i t s D o lla r 8
CHAPTER I The B ackground and S e t t i n g 9
I I Some F a c t o r s G o v ern in g th e N a tu re o f R e s id e n t R u le
I I I The E s ta b lis h m e n t o f R e s id e n t R ule 83 IV The g ro w th o f Modern Government b e f o r e 139
1895
V The T r e a ty o f F e d e r a t io n 205
VI The Grow th o f F e d e r a l Government 2k6
V II F e d e r a t io n an d th e S t a t e s 271
V I I I S i r Jo h n A nderson*6 Reform s 310
IX C o n c lu s io n 35^
APPENDIXES
A* The P a n g k o re Engagem ent an d a n E n g lis h 359 T r a n s l a t i o n o f th e M alay V e rs io n
B* T r e a ty o f F e d e r a t i o n , 1895» and M alay 365 T r a n s l a t i o n
C# F e d e r a l C o u n c il A greem ent, 1909 368 D* C h ie f S e c r e t a r y * s I n c o r p o r a t i o n 371
E n actm en t
BIBLIOGRAPHICAL NOTE 375
BIBLIOGRAPHY 376
MAP '
- 3 -
PREFACE
A number o f r e c e n t s t u d i e s i n c l u d i n g P r o f e s s o r C.D. Cow an's N in e te e n th C e n tu ry M alay a, (London, 1 9 6 1 ), P r o f e s s o r C.N. P a r k i n s o n 's B r i t i s h I n t e r v e n t i o n i n M alay a, ( S in g a p o r e , 1 9 6 0 ), D r. E. T h io 's
u n p u b lis h e d d o c t o r i a l t h e s i s o f th e U n iv e r s ity o f London, 1956, ' B r i t i s h P o lic y i n th e Malay P e n in s u la , 1880-1909** and D r. D.
M c I n ty r e 's a r t i c l e ' B r i t a i n ' s i n t e r v e n t i o n i n M alaya: th e o r i g i n o f ( 1 )
L o rd K im b e rle y 's i n s t r u c t i o n s t o S i r Andrew C la rk e i n 1873* have d is c u s s e d th e c ir c u m s ta n c e s s u r r o u n d in g th e a p p o in tm e n t o f r e s i d e n t B r i t i s h o f f i c e r s t o th e Malay S t a t e s and th e e x p a n sio n o f B r i t i s h i n t e r e s t s i n th e P e n in s u la t o th e end o f th e f i r s t decade o f th e t w e n ti e t h c e n tu r y . I n t h i s s tu d y an a tte m p t i s made t o c o n s id e r th e k in d o f a d m i n s t r a t i o n w hich d ev elo p ed u n d e r th e B r i t i s h R e s id e n ts d u r in g 187^-191^ w ith in th e c o n te x t o f M a la y a 's m odern c o n s t i t u t i o n a l h i s t o r y .
•M odern' i s u s e d h e re n o t o n ly t o convey a p la c e i n tim e , b u t a l s o to d e s c r i b e th e k in d o f p o l i t i c a l i n s t i t u t i o n s w hich grew up
u n d e r R e s id e n t r u l e - th o s e o f a c e n t r a l i s e d b u r e a u c r a t i c a d m i n i s t r a t i o n b a se d upon E n g lis h n o t io n s o f c o l o n i a l g o v ern m en t. The ^ R e s id e n tia l
S y s te m ', a s some c h a r a c t e r i s e d t h i s d ev elo p m e n t, m ark s, t h e r e f o r e , th e p o i n t o f d e p a r tu r e f o r t h i s s t u d y . W hile 'M a la y a ' i s m eant to in c lu d e th e n in e s u l t a n a t e s w hich form M a la y sia
(1 ) JSEAH, VOL.2 , HO.3 (1 9 6 1 ) pp.**7.
o f to - d a y a s w e ll a s S in g a p o r e , M alacca and Penang, s p e c i a l a t t e n t i o n i s d e v o te d t o th e f o u r s t a t e s o f P e r a k , S e la n g o r ,
N e g ri S e m b ila n an d P ah an g . T hese s t a t e s a r e o f p a r t i c u l a r i n t e r e s t a s a l l l a t e r c o n s t i t u t i o n a l d ev elo p m en ts were c e n te r e d upon them . M oreover, th e f o r t y y e a r s c o v e re d by t h i s s tu d y were c r i t i c a l i n d e te r m in in g th e s t r u c t u r e o f modern p o l i t i c a l i n s t i t u t i o n s i n M alaya. In d e e d , a l l s u b s e q u e n t re fo rm s - p a r t i c u l a r l y th o s e i n s t i t u t e d by S i r L au re n ce G u ille m a rd and S i r C e c il C lem en ti - w e re , i n p a r t , a tte m p ts t o d e c e n t r a l i s e th e •b u r e a c r a t i c
am algam ation* w hich grew up a f t e r 1895-
I n so f a r a s t h i s t h e s i s i s a s tu d y o f c o l o n i a l r u l e , th e f i r s t p a r t i s c o n c e rn e d w ith th e e s ta b lis h m e n t o f R e s id e n t r u l e . I t d e a l s w ith th o s e f a c t o r s w hich sh a p ed c o l o n i a l a d m i n i s t r a t i o n and d e s c r i b e s th e form s c r e a t e d to m a in ta in and l e g a l i z e th e
R e s id e n ts * a u t h o r i t y . The g ro w th o f new p o l i t i c a l i n s t i t u t i o n s i s d is c u s s e d a g a i n s t th e b ack g ro u n d o f th e e x i s t i n g p o l i t i c a l o r d e r . The seco n d p a r t o f th e t h e s i s i s c o n c e rn e d w ith th e g ro w th o f a s u p r a - S t a t e a d m i n i s t r a t i o n a f t e r 1895* I t t r a c e s th e f o r m a tio n o f th e 1F e d e r a t i o n ' and th e grow th o f a 'f e d e r a l * g o v ern m en t.
F i n a l l y , i t c o n s id e r s th e s h i f t s i n power b etw een th e S t a t e and F e d e r a l gov ern m en ts an d th e s t r u c t u r a l m o d if i c a t io n s o f th e s e i n s t i t u t i o n s .
"5*
The sy stem o f M alay s p e l l i n g u se d th r o u g h o u t, e x c e p t w here i t d i f f e r s i n q u o t a t i o n , i s t h a t em ployed by S i r B ic h a rd W in s te d t i n h i s An U n ab rid g ed M alay ~ E n g lish D i c t i o n a r y , t h i r d e d i t i o n ,
(S in g a p o r e , 1959)- E n g lis h p l u r a l fo rm s, h ow ever, have b een u s e d ; th u s th e p l u r a l o f p en g h u lu i s p e n g h u lu s .
ABBREVIATIONS
AR CAB
CO
C o l. S e c . DNB
DOMR
F ed . Co. P a p e r F e d . Co. P r o . mSGG
FMSLR FO
GO IAQR JMBRAS
JSCL
JSBRAS
JSEAH MJTG
A nnual R e p o rt
C a b in e t O f f ic e R e c o rd s, P u b lic R eco rd s O f f i c e r , London.
C o lo n ia l O f f ic e R e c o rd s, P u b lic R e c o rd s, London.
C o lo n ia l S e c r e t a r y , S t r a i t s S e t tl e m e n ts . D ic tio n a r y o f N a tio n a l B io g r a p h y .
D i s t r i c t O f f i c e r ^ M onthly R e p o r t.
F e d e r a l C o u n c il P a p e r .
F e d e r a l C o u n c il P r o c e e d in g s .
F e d e r a te d Malay S t a t e s Government G a z e t t e , ( K uala L um pur).
F e d e r a te d M alay S t a t e s Law R e p o r ts , (K u ala Lum pur).
F o r e ig n O f f ic e R e c o rd s, P u b lic R eco rd s O f f i c e , London.
G e n e ra l O rd er
I m p e r ia l and A s i a t i c Q u a r te r ly R eview , (L o n d o n )•
J o u r n a l o f th e S t r a i t s B ranch o f th e R oyal A s i a t i c S o c i e t y , (S in g a p o re )
J o u r n a l o f th e S o c ie ty o f C o m parative L e g i s l a t i o n , (L o n d o n ).
J o u r n a l o f th e S t r a i t s B ranch o f th e R oyal A s i a t i c S o c i e t y , ( S in g a p o r e ) .
J o u r n a l o f S o u th e a s t A sia n H i s t o r y , ( S in g a p o re )•
M alayan J o u r n a l o f T r o p ic a l G eography, ( S in g a p o re ) •
- 7 -
NSGG N e g ri S em b ilan Government G a z e t t e t (K u a la Lumpur)*
CAG O f f i c e r A d m in is te rin g th e G overnm ent, S t r a i t s S e t t l e m e n t s .
PaGG Pahang Government G a z e t t e , (K u ala L um pur).
PaSC Pahang S t a t e C o u n c il P ro c ee d in g s*
PMS 1 P a p e rs on Malay S u b j e c t s , f i r s t s e r i e s PMS 11 P a p e rs on M alay S u b j e c t s , se c o n d s e r i e s * PGG P e ra k Government G a z e t te , ( T a i p i n g ) . PRO P u b lic R eco rd s O f f i c e , London.
S e c . S t a t e S e c r e t a r y o f S t a t e f o r th e C o lo n ie s .
SGG S e la n g o r Government G a z e t te , (K u a la Lum pur).
S e l . R ec. S e la n g o r R e c o rd s.
S U S t r a i t s Law J o u r n a l , ( S in g a p o r e ) . SSC S e la n g o r S t a t e C o u n c il P r o c e e d in g s .
SSGG S t r a i t s S e ttle m e n ts Government G a z e t te , (S in g a p o re ) SSLC P r o . S t r a i t s S e ttle m e n ts L e g i s l a t i v e C o u n c il P ro c e e d in g s SSLC P a p e r S t r a i t s S e ttle m e n ts L e g i s l a t i v e C o u n c il P a p e r * SSLR S t r a i t s S e ttle m e n ts Law R e p o r ts , (S in g a p o re )*
SUGG S u n g a i U jong Government G a z e t t e , (K u a la Lumpur)*
SUSC S u n g ai U jong S t a t e C o u n c il P r o c e e d in g s .
TABLE
EXCHANGE VALUE OF THE STRAITS DOLLAR*
Y ear S t e r l i n g Exchange R ate
1888 3 s .
1889 3®.
1890 3 s - *fd.
1891 3 s . 2-Jd.
1892 2 s . 10d.
1893 2 s • 6 l / 3 d .
189^ 2 s . 1d.
1893 2 s . 1-Jd.
1896 2 s . 3 / l 7 d
1897 1 s . 11^d.
1898 1 s . 11d.
1899 1 s . 1 1 1/3d
1900 2 s .
1901 1 s . 11d.
1902 1 s . 8-Jd.
1903 1 s . 9 d.
190^ 1 s . 1 0 jd .
1905 2 s .
1906-1936 2 s . 4d.
*From R. fin e rso n , M a la y s ia : a S tu d y i n D ir e c t an d I n d i r e c t R u le , (New Y ork, 1 9 3 7 ).
- 9 - CHAPTER 1
THE SETTING AND BACKGROUND
A ra n g e o f low m o u n ta in s r e a c h in g down from th e n o r t h d i v id e s th e M alay P e n i n s u l a and p r o v id e s a n a t u r a l b o u n d ary b etw een -ith e s t a t e s o f K e la n ta n , T rengganu and Pahang t o th e e a s t a n d , Kedah, P e r a k , S e la n g o r and N egre S e m b ila n i n th e w e s t. I n n o r t h e r n P e ra k a s p u r o f s h a r p l y r i s i n g h i l l s s e t s o f f th e P e ra k r i v e r b a s i n - P e ra k B e sa r - from th e w e s te r n d i s t r i c t s o f L a r u t and K ria n w h ile so u th w a rd s th e m ain ra n g e d im in is h e s i n a l t i t u d e t o th e b o r d e r s o f M alacca d i v i d i n g th e c l u s t e r o f t i n y s t a t e s w hich form modern N e g ri S e m b ila n . B etw een n o r t h e r n L a r u t and N e g ri S e m b ila n ± and s e t a g a i n s t th e f o o t - h i l l s , a r e l o c a t e d M a la y a 's r i c h e s t d e p o s i t s o f t i n - o r e . The p r o d u c tio n and e x p o r t o f t h i s m in e r a l h a s f o r c e n t u r i e s c o n s t i t u t e d an im p o r ta n t e le m e n t i n M a la y a 's economy. A lth o u g h t i n h a s lo n g b een m ined i n th e
P e n in s u la i t was n o t u n t i l th e l a t e n i n e t e e n t h c e n tu r y t h a t l a r g e q u a n t i t i e s w ere e x p o rte d t o E u ro p e. So i n t e n s e was t h i s developm ent a f t e r th e 1 8 3 0 's t h a t i t p r o f o u n d ly e f f e c t e d th e t h r e e p r i n c i p a l tin - m i n in g s t a t e s o f P e r a k , S e la n g o r and S u n g d i U jong, s e v e r e l y s t r a i n i n g th e s t r u c t u r e o f th e p o l i t i c a l sy stem an d a l t e r i n g th e
c h a r a c t e r o f t h e economy. 1
A lth o u g h com plex i n d e t a i l , a g e n e r a l p a t t e r n o f th e p o l i t i c a l econom ic c o n se q u e n c e s o f t h i s developm ent i s d e s c e r n i b l e . I n th e 1870*s th e M alays were s e t t l e d a lo n g th e p r i n c i p a l r i v e r s g ro u p ed i n s m a ll v i l l a g e s ( kam pongs) s u b j e c t to th e a u t h o r i t y o f th e
v i l l a g e headmen ( p e n g h u lu s ) and r e g i o n a l c h i e f s ( d a t o s ) . The pow ers o f th e c h i e f depended upon h i s a b i l i t y t o c o n t r o l th e s o u r c e s o f re v e n u e , from w hich he c o u ld p ro v id e a f o llo w in g t o m a in ta in h i s p o l i t i c a l a u t h o r i t y . Revenue was d e r iv e d from t a x i n g th e p a d i and ju n g le p ro d u ce C u l t i v a t e d an d c o l l e c t e d by th e p e o p le o f h i s own d i s t r i c t and g a in e d i n p a r t i c u l a r from d u t i e s l e v i e d upon th e t r a f f i c which p a s s e d a lo n g h i s s e c t i o n o f th e r i v e r . Some c h i e f s a l s o
g a in e d a s m a ll incom e from p ro m o tin g m in in g v e n tu r e s w ith in t h e i r d i s t r i c t s , e i t h e r by th e m s e lv e s o r i n c o n ju n c tio n w ith C h in ese
c a p i t a l i s t s from th e S t r a i t s S e t tl e m e n ts . D u rin g th e 18^0*s C h in ese p a r t i c i p a t i o n i n c r e a s e d . They s u p p lie d la b o u r an d c a p i t a l to e x p l o i t more i n t e n s i v e l y tin - w o r k in g s o f L a ru t and K in ta i n P e r a k , o f K lan g , Ampang, K anching and L ukut i n S e la n g o r and o f Serem ban i n SungcL U jong.2
1 . Wong L in Ken, 'T he M alayan T in I n d u s t r y t o 1914 w ith s p e c i a l
R e fe re n c e t o th e S t a t e s o f P e r a k , S e la n g o r , S e g r i S em b ilan and P a h a n g ,' U n p u b lish ed P h.D . t h e s i s , 1959» U n iv e r s ity o f London, p p .4 2-77 d i s c u s s e s th e e x p a n sio n o f th e i n d u s t r y i n th e Malay S t a t e s up to 1874.
2 . I b i d . . See a l s o Wong L in Ken, 'W e s te rn E n t e r p r i s e and th e Developm ent o f th e M alayan T in I n d u s tr y t o 1 9 1 4 ,' i n C.D. Cowan,
( E d . ) , The Economic D evelopm ent o f S o u th E a s t A s i a , (London, 1 9 6 4 ), p . 127.
- 1 1 -
Y e t, w h ile t h e e x p a n s io n o f t h e t i n i n d u s t r y b ro u g h t p r o s p e r i t y to th o s e d i s t r i c t s w here th e m ines w ere l o c a t e d , i t t h r e a t e n e d th e v e ry s t r u c t u r e o f th e Malay p o l i t i c a l sy s te m . I t gave r i s e t o th e e s ta b lis h m e n t o f a l i e n com m unities whose p r e s e n c e i n la rfe e num bers c o n s t i t u e d a t h r e a t t o M alay a u t h o r i t y and i t a l s o i n t e n s i f i e d th e d y n a s t ic s t r u g g l e s betw een Malay c h i e f s who so u g h t c o n t r o l o f
l u c r a t i v e t i n d i s t r i c t s th e r e b y d i v id i n g th e p o l i c y s t i l l f u r t h e r . ^ I n P e r a k , L a r u t was th e m ost im p o r ta n t m in in g d i s t r i c t .
Somewhat rem oved from P e ra k B e s a r, i t was f i r s t g r a d u a l ly opened up by a r e g i o n a l t a x - c o l l e c t o r , Long J a ’a f a r . H is s u c c e s s i n d e v e lp p in g L a r u t was re w a rd e d by h i s a p p o in tm e n t a s t e r r i t o r i a l c h i e f i n 1850, and u n d e r h i s so n - l a t e r M a n tri o f P e ra k - Ngah I b r a h im , th e a r e a became th e m ost im p o r ta n t tin - m i n in g r e g i o n i n M alaya. C h in ese c a p i t a l an d la b o u r p o u red i n t o th e d i s t r i c t
th ro u g h o u t th e 1830s and 1860s t o work m ines a t T a ip in g (K e lia n Pauh) and K am unting (K e lia n B a h a ru ). I t s h ig h q u a l i t y o re and p r o x im ity t o Penang made i t a t t r a c t i v e to i n v e s t o r s , e s p e c i a l l y f o r th o s e who w ere a l s o a b le t o s e c u r e th e re v e n u e farm s on opium , p o r k , s p i r i t s , and g a m b lin g . R e c ru itm e n t o f la b o u r and i t s
3* F o r f u r t h e r d ev elo p m en t o f th e econom ic a s p e c t o f th e Malay p o l i t i c a l s y s te m , s e e J.M . G u l l i c k , In d ig e n o u s P o l i t i c a l System s o f W estern M alay a, (L ondon, 1 9 5 8 ), p p . 12*f-31 •
*f, J.M . G u l l ic k , 'C a p t a i n Speedy o f L a r u t , ' JMBRAB, Vol.XXVI, P t . 3 , (1 9 3 3 ), p p . 1 9 -2 2 ; C.D. Cowan, 'S i r F ra n k S w e tte n h a m 's P e ra k J o u r n a l s , 187**—18 7 6 , 1 JMBRAS, Vol.XXIV, P t . 4 , [195l) PP- 13-**;
R.O. W in s te d t, and J . R . W ilk in so n , 'H H is to r y o f P e r a k , ' . JMBRAS, V o l.X I I , p t . 1 , (1 9 3 * 0 , p p . 7 8 -8 1 .
c o n t r o l l e d by th e s e c r e t s o c i e t i e s w ith h e a d q u a r te r s i n Penang.
Two m ajo r s e c r e t s o c i e t i e s o p e r a te d i n L a r u t i n th e 1 8 7 0 's : th e H ai San s o c i e t y ( l o c a l l y c a l l e d Goh Kwans, o r l i v e D i s t r i c t s ) c o n s i s t i n g o f Hakka o r H okkien; and Ghi H ins ( o r S i Kwan, o r Four D i s t r i c t s ) w hich was p re d o m in a n tly C a n to n e se . I n t e n s e r i v a l r y and q u a r r e l s , a r i s i n g o v e r c o n t r o l o f m in e s, w a te r s u p p l i e s , and m in in g la n d , l e d t o v i o l e n t c la s h e s w hich e r r u p t e d i n 1862 and c o n tin u e d i n t e r m i t t e n t l y u n t i l 187*+. M ines were c lo s e d and a t tim e s th e
£
f i g h t i n g ev en t h r e a t e n e d t o e n g u lf Penang. The M a n tr i, Ngah Ib ra h im , and h i s s m a ll b o d y g u ard was u n a b le t o cope w ith th e s i t u a t i o n ; i n s t e a d he p r e f e r r e d t o s i d e w ith th e a p p a r e n t v i c t o r r a t h e r th a n p u rs u e th e more d a n g e ro u s c o u rs e o f s u p p r e s s in g th e w ar.
Even i f th e M a n tri c o u ld have u n d e rs to o d th e i m p l i c a t i o n s o f th e g ro w th o f a l a r g e , p o w e r f u l, a l i e n community i n h i s d i s t r i c t by th e e a r l y 1 8 7 0 's t h e r e was l i t t l e he c o u ld have do n e; a lth o u g h he was
s t i l l r e l a t i v e l y w e a lth y a s th e d i s t r i c t c h i e f , - he was no more than/*6r»*i#ial r u l e r o f L a r u t .
3 . G u l l ic k , JMBRAS, Vol.XXVI, P t . 3 , p p . 23-*+ and W in s te d t and W ilk in so n , JMBRAS, V o l.X I I , P t . 1 , p p . 7 8 -9 0 . F o r a c c o u n ts o f s e c r e t s o c i e t i e s i n L a r u t , s e e I b i d . , p p . 22-*+, 2 8 -3 2 ; V. P i j ^ e l l, The C h in ese i n M alay a, (L ondon, 19*+8), p p . 10*+-8; L. Comber,
C h in ese S e c r e t S o c i e t i e s i n M a lay a , ( S in g a p o r e , 1 9 5 9 ), PP* 15*+-73 and W.A. P i c k e r i n g , 'T h e S t r a i t 6 S e t t l e m e n t s ', IA^R, V o l. 1 A pr.
1896, p p . 9 8 -1 0 0 .
6 . C.D. Cowan, N in e te e n th C e n tu ry M alay a, (London, 1 9 6 1 ), p p . 112-*+.
- 1 5 -
A1 th o u g h n o t d i r e c t l y r e l a t e d t o t h e L a r u t d i s t u r b a n c e s , th e Malay d y n a s tic d i s p u t e s a r e w o rth n o t in g f o r t h e i r im p o rta n c e i n l a t e r e v e n ts* When S u l t a n A b d u 'lla h Muhammad o f P e ra k d ie d i n
1857* he vfas su c c e e d e d by S u l t a n J a fa f a r w ith R a ja A li a s R a ja Muda. B y -p a s s in g R a ja s Y usuf and Mat Amin, th e two s o n s o f S u l t a n Abdu’l l a h who d i s t i n g u i s h e d th e m s e lv e s a t th e ex p en se o f p o p u l a r i t y i n c i v i l w ars f u r t h e r i n g t h e i r f a t h e r ' s r e i g n , one R a ja I s m a il was a p p o in te d R a ja B e n d ah a ra. As he was o n ly l in k e d w ith r o y a l t y
th ro u g h t h e m a te r n a l l i n e , he was n o t c o n s id e r e d t r u l y o f r o y a l b lo o d . S u b s e q u e n tly , when A li became S u l t a n i n 1865* I s m a il rem a in e d B en d ah ara, w h ile a so n o f S u l t a n J a ' a f f a r , A b d u 'll a h , became R a ja Muda*7
The weak r e i g n o f S u l t a n A li gave r i s e to th e g ro w th o f two f a c t i o n s o f c h i e f s . One, l o c a t e d i n th e u lu ( o r up r i v e r ) c e n t e r e d on K u ala K a n g sa r. P r i n c i p a l among th o s e c h i e f s was I s m a i l , c h i e f o f th e t i n ^ r i c h K in ta v a l l e y who was s u p p o r te d by th e M a n tri o f L a r u t . The h i l i r ( o r down r i v e r ) f a c t i o n , s i t u a t e d i n th e r e g i o n o f Kampong B andar and D u rian S e b a ta n g , was g ro u p ed aro u n d th e Laxamana, Mat Amin who c o n t r o l l e d th e t in - w o r k in g s i n B atan g Pandang, and th e R a ja Muda, A b d u 'lla h . A lth o u g h k i n s h i p t i e s te n d e d t o l i n k th e l e a d i n g f i g u r e s o f b o th f a c t i o n s . t h e s e d i v i s i o n s w ere i n t e n s i f i e d a t th e d e a th o f 7* See G u llic k , In d ig e n o u s P o l i t i c a l S ystem s p . 11; Cowan,
N in e te e n th C en tu ry MalayaV p . Mf; W in s te d t & W ilk in so n , JMBRAS, V o l.X I I , P t . 1 , p . 9 3 .
g
S u l t a n A li i n 18?1* Custom demanded t h a t t h e f u n e r a l o f t h e o ld S u l t a n sh o u ld be p r e s id e d o v e r by h i s s u c c e s s o r . How ever, th e R a ja Muda, f e a r i n g th e c o n seq u e n ce s o f v e n tu r i n g i n t o th e u lu , f a i l e d t o a t t e n d . I n h i s a b sen c e th e c h i e f s , upon th e u r g in g o f th e M a n tri * who p ro b a b ly hoped to e s t a b l i s h a p r e c e d e n t w hich w ould pave h i s way to s u c c e s s io n , e l e c t e d I s m a il a s S u l t a n . A b d u 'll a h , who
c l e a r l y had th e b e t t e r c la im , was th e n r e c o g n is e d a s S u l t a n by th e h i l i r c h i e f s . A lth o u g h he had th e b e s t c la im , R a ja Y u su f, S u l t a n A b d u 'lla h Muhammad's e l d e s t s o n , was once a g a in s e t - a s i d e .
U n lik e P e ra k w here one r i v e r p ro v id e d th e b a se f o r Malay s e t t l e m e n t , S e la n g o r was d iv id e d by f i v e r i v e r s w hich gave t h e i r names t o th e p r i n c i p a l a d m i n i s t r a t i v e d i s t r i c t s o f Bernam, S e la n g o r , K la n g , L an g at and L u k u t. By th e 1 8 7 0 's ho w ev er, th e t h r e e r i v e r s o f S e la n g o r , L angat and L ukut t o g e t h e r form ed th e r e g i o n o f g r e a t e s t w e a lth and p o p u la tio n . P o l i t i c a l power o f t h e r u l i n g h i e r a r c h y o f M alays ( o f B ugis d e s c e n t) r e s t e d on t h e i r c o n t r o l o f th e s e r i v e r s and t h e i r a b i l i t y to d e r iv e an income from th e r i v e r t r a f f i c
p a r t i c u l a r l y from d u t i e s on p r o v i s i o n s f o r th e m ines i n th e i n t e r i o r and t i n and t i n - o r e e x p o r te d f o r m e rc h a n ts i n th e S t r a i t s S e t tl e m e n ts . 8 . Cowan, N in e te e n th C e n tu ry M alay at pp* 77-9? W in s te d t, 'N e g r i S e m b ila n :- 'The H i s t o r y , P o l i t y and B e l i e f s o f th e N ine S t a t e s , ' JMBRAS, V o l.X II, P t . 3 , (193ft) p . 93-3*
- 1 5 -
A f te r th e m id d le o f t h e n i n e t e e n t h c e n tu r y , t h e s e t i n - f i e l d s were worked more i n t e n s i v e l y by th e C h in e s e . The o ld w o rk in g s i n L ukut were re o p e n e d w h ile a t K anching i n th e S e la n g o r r i v e r ; o t h e r s i n th e K lang an d Ampang d i s t r i c t s i n t h e K lang v a l l e y were d e v e lo p e d . I n t h e l a n g a t d i s t r i c t s m a ll m ines w ere a l s o worked a t B u k it A rang. 9 The p o l i t i c a l e f f e c t s o f t h i s e x p a n s io n i n th e
t i n i n d u s t r y was more d i r d c t l y f e l t i n S e la n g o r th a n P e ra k B e s a r . L u c r a tiv e r e t u r n s e n c o u ra g e d i n v e s t o r s to s u p p o r t c h i e f s who were p r e p a r e d to c h a lle n g e th e e s t a b l i s h e d h e i r a r c h y by b a s in g t h e i r c la im s upon m y th ic a l o r l e g i t i m a t e h e r e d i t a r y r i g h t s . Such was th e c a se o f th e n o t o r i o u s R a ja Muhdi, whose f a t h e r h a d c o n t r o l l e d K lang o n ly to have i t ta k e n away by S iu ltan Muhammed i n 1855* R a ja M ahdi, c la im in ^ th e v a lu a b le a r e a a s h i s h e r e d i t a r y r i g h t , to o k a d v a n ta g e o f a q u a r r e l betw een th e S u l t a n (A bdu*l-Sam ad, 1 8 5 7-98) and a group o f S u m atran s - M enangkabau, M a n d a lin g s, and Rawangs - who i n h a b i t e d th e i n t e r i o r o f S e la n g o r , and s e i z e d th e d i s t r i c t . 10
9* Won L in Ken, *The M alayan T in I n d u s t r y t o 1914* * p* 57»
G u l l ic k , In d ig e n o u s P o l i t i c a l S y s te m s, p . 2 4 .
10. R.O. W in s te d t, 'A H is to r y o f S e la n g o r,* JMBRAS, V o l.X I I , P t . 111, (1 9 3 4 ), p p . 1 8 -3 2 ; and J.M . M id d le b ro o k , *Yap Ah Loy,*
JMBRAS, Vol.XXIV, P t . 2 , (1 9 5 1 ), PP* 2 5 - 6 .
I n th e c i v i l war w hich f o llo w e d , th e r u l i n g c h i e f s w ere ra n g e d a g a i n s t S u m atran M alay s; th e S u l t a n 's V ic e ro y , Tengku Z i a 'u 'd - d i n , 11 and Yap Ah L oy, 12 th e C a p ita n C hina o f the C h in ese i n Ulu K lan g , s t r u g g l e d t o h o ld th e K lang v a l l e y a g a i n s t S u m atran s u n d e r th e l e a d e r s h i p o f R a ja M ahdi, By th e tim e th e B r i t i s h G overnor i n te r v e n e d , th e war had in v o lv e d Pahang and K edah, a f f e c t e d th e f in a n c e s re v e n u e s o f th e S t r a i t s S e t tl e m e n ts , and d e v a s t a te d and d e -p o p u la te d w ide a r e a s o f c e n t r a l S e la n g o r .13
F u r th e r f/6 s o u th th e g ro u p o f t i n y s t a t e s w hich to d ay
c o n s t i t u t e s th e N e g ri S em b ilan were n o t l i n k e d i n any fo rm a l u n io n . To th e e a s t o f th e low ra n g e o f h i l l s w hich d iv id e d th e a r e a were th e s t a t e s o f J e l e b u , S r i M e n a ti, Je m p o l, T e r a c h i, Gunong P a s i r , Ulu Muar and I n a s , w h ile t o th e w est were l o c a t e d Sungfli Ujong which s h a re d i t s b o rd e r w ith S e la n g o r and Rambau and Tampin which b o rd e re d upon M a lacca. As i n S e la n g o r , t r o u b l e s c e n t e r i n g on 11. Tengku Z i a 'u 'd - d i n , y o u n g er b r o t h e r o f t h e S u l t a n o f Kedah, m a rrie d Tunku C h ik , S u l t a n 1A b d u l11-Sam ad1s e l d e s t d a u g h te r . He was made W akil M utlak ( o r V ic e ro y ) i n 1868, a p o s i t i o n he h e ld u n t i l h i s r e t i r e m e n t i n 1878.
12, Yap Ah Loy became C a p ita n C hina i n 1868 u n d e r th e S u l t a n 's s u r a t K uasa, At a b n u t t h e same tim e he s e c u r e d de f a c t p c o n tr o l o v e r m ost o f th e m ines i n th e i n t e r i o r and i n 1870 j o in e d w ith Tengku Z i a 'u 'd - d i n to p a c i f y th e K lang v a l l e y . H is a u t h o r i t y was re c o g n iz e d by th e f i r s t R e s id e n ts and u n t i l 1880 he c o n tin u e d to e x e r c i s e w ide fo rm a l e x e c u tiv e and j u d i c i a l p o w e rs. He d ie d i n 1885
.
13. C i v i l war i s d is c u s s e d i n M id d leb ro o k , JMBRAS, Vol.XXIV, P t . 2 , Cowan, N in e te e n th C e n tu ry M alay a, p p . 7 ^ - 7 ; 103-9*
- 1 7 -
c o n t r o l o f th e L in g g i R iv e r w hich s e r v e d th e m ines i n S u n g ai U jong became in v o lv e d w ith th e s t r u g g l e f o r p o l i t i c a l pow er.
The L in g g i had two b ra n c h e s - one s e r v i n g th e im p o r ta n t m in in g a r e a o f R asah i n c e n t r a l S u n g e i U jong; t h e o t h e r r e a c n in g from n o r t h e r n Rembau, c o n v erg ed w ith th e w e s te rn t r i b u t a r y a t Sim pang, t o form a p a r t o f M alacca*s w e s te rn b o r d e r .
The c o n tr o l o f th e r i v e r was th e b a s i c c a u se o f th e p o l i t i c a l s t r u g g l e s betw een th e Malay c h i e f s i n b o th S u n g e i U jong and Rembau.
I n S u n g a i Ujong th e de j u r e r u l e r , th e D a to 'K la n a P u t r a , w ith th e s u p p o r t o f Z ia * u * d -d in , was w ith some d i f f i c u l t y m a in ta in in g
c o n t r o l o f th e i n l a n d a r e a o f h i s s m a ll s t a t e a g a i n s t th e a m b itio n s o f th e Dato S h a h b a n d ar, who, s u p p o r te d by R a ja M ahdi, c o n t r o l l e d a lo w e r s e c t i o n o f th e L in g g i. Ik I n Rembau upon th e d e a th o f th e D a to 1Penghulu i n 1872, a s u c c e s s io n d is p u t e e r r u p t e d b etw een H a ji M ustapha and th e D ato * P erb a ( H a ji S a h i l ) o f t h a t s t a t e . 15 Each
had s u p p o r t o f h i s im m ed iate n e ig h b o u r i n S u n g ai U jong. The s t r u g g l e i n b o th S t a t e s l e d t o th e c o n s ta n t i n t e r r u p t i o n o f th e t r a d e p a s s in g a lo n g th e r i v e r and a d v e r s ly a f f e c t e d th e m in in g i n d u s t r y . M oreover th e S t r a i t s o f f i c i a l s , u rg e d by th e C h in ese m in e rs to i n t e r v e n e , became i n c r e a s i n g l y a la rm e d a t th e t h r e a t to 14. See G u l l ic k , In d ig e n o u s P o l i t i c a l S y s te m s , p . 7 8 ; Cowan, N in e te e n th C en tu ry M alay a, p p . 1 0 9 -1 1 2 , 192—19^; J.M . G u l l i c k ,
*Sungie U jong,* JMBRAS. V o l.X X II, P t . 2 , ( 1 9 ^ 9 ) i p p . 2 0 f f ; V /in s te d t, JMBRAS. V o l.X I I , P t . 111, p p . 68- 6 9 .
15* Cowan, N in e te e n C e n tu ry M alay a, p . 19^*
M a la c c a 's s e c u r i t y an d p r o s p e r i t y .16
I n a l l t h r e e S t a t e s o f P e r a k , S e la n g o r and S u n g e i U jong, t h e r e f o r e , th e p a t t e r n o f d y n a s tic d i s p u t e s was i n t e n s i f i e d by t h e d i s r u p t i v e e f f e c t s o f an ex p an d in g t i n i n d u s t r y . The d i s o r d e r s n o t o n ly b ro u g h t th e m ines t o a s ta n d s t i l l , b u t a l s o t h r e a te n e d th e B r i t i s h i n t e r e s t s i n t h e S t r a i t s o f M alacca, i n t e r f e r r i n g w ith th e p r i n c i p a l t r a d e r o u t e to th e e a s tj i n v i t i n g i n t e r v e n t i o n from o t h e r E uropean Pow ers and t h r e a t e n i n g th e S e ttle m e n ts th e m s e lv e s .17
When S i r Andrew C la r k e , G overnor o f th e S t r a i t s S e ttle m e n ts i n 1 8 7 3i
t h e r e f o r e , was c h a rg e d by th e S e c r e ta r y o f S t a t e w ith th e t a s k o f r e p o r t i n g on th e a f f a i r s o f t h e s e S t a t e s and o f recom m ending th e
b e s t means o f r e s t o r i n g 'p e a c e and o r d e r 1 and o f s e c u r i n g 'p r o t e c t i o n ' o f th o s e B r i t i s h s u b j e c t s who h ad em barked on com m ercial v e n tu r e s i n th e Malay S t a t e s , L ord K im berley e s p e c i a l l y w ish ed t o know w h e th er i t m ig h t be a d v is a b le to a p p o in t a 'B r i t i s h O f f i c e r t o r e s i d e ' i n any o f th e S t a t e s . He added t h a t su c h an a p p o in tm e n t c o u ld o n ly be made w ith th e ' f u l l c o n s e n t' o f th e r u l e r s ; th e e x p e n se s o f th e s e o f f i c e r s
16 . Cowan, N in e te e n th C e n tu ry M alay a, p . 19^*
17* See Cowan, N in e te e n th C e n tu ry M alay a, C h a p t. U f o r th e e f f e c t s upon B r i t i s h i m p e r ia l p o l i c y .
-1*9-
w ould h av e t o be b o rn e by th e S t r a i t s S e t t l e m e n t s . 18 Once th e G overnor had c a r r i e d o u t h i s i n v e s t i g a t i o n s he to o k s t e p s im m e d ia te ly , w ith o u t c o n s u l ti n g th e C o lo n ia l O f f i c e , t o s e t t l e m a t t e r s i n P e r a k .
F o llo w in g two day s o f n e g o t i a t i o n s C la rk e s ig n e d two docum ents on 20 J a n u a ry 187^* One was an ag reem en t w ith t h e C h in ese headmen in v o lv e d i n th e L a r u t d i s p u t e s , and th e o t h e r was a t r e a t y w ith th e M alay c h i e f s . The fo rm er p u t a n end t o th e d i s t u r b a n c e s b etw een t h e C h in ese f a c t i o n s i n L a r u t and s e t up a com m ission o f t h r e e S t r a i t s S e ttle m e n ts o f f i c e r s t o s e t t l e d is p u te d m in in g r i g h t s . The ag reem en t w ith th e Malay c h i e f s was th e 1P angkor E ngagem ent1.19
I t s p ream b le e x p la in e d some o f th e r e a s o n s w hich c o m p e lle d B r i t a i h t o c o n c lu d e su ch an a g re e m e n t. The ' s t a t e o f a ^ n a r c h y ' an d 'w an t o f s e t t l e d g o v ern m en t1 had e n d an g e re d th e 'l a r g e num bers o f C h in ese (who h ad b een ) em ployed and l a r g e sums o f money i n v e s t e d i n T in m in in g i n P e ra k by B r i t i s h s u b j e c t s . ' Such c o n d it i o n s made 'B r i t i s h t r a d e and i n t e r e s t s g r e a t l y s u f f e r ' a n d th e p eace o f n e ig h b o u rin g s e t t l e m e n t s th r e a tn n e d . As an e x p la n a tio n o f B r i t a i n 's s p e c i a l 1 8 . F o r th e b e s t a n a l y s i s o f th e o r i g i n o f th e change o f p o l i c y , s e e C.D. Cowan, N in e te e n th C e n tu ry M alay a, and D. M a c In ty re ,
' B r i t a i n ' s i n t e r v e n t i o n i n M alaya: th e o r i g i n o f L ord K im b e rle y 's i n s t r u c t i o n s t o S i r Andrew C la rk e i n 1873i* JSEAH, V o l.2 , No. 3 i
( 1961).
19* 'Engagem ent e n te r e d i n t o by th e C h ie fs o f P e ra k a t P u lo P a n g k o r ,' i s t h e f u l l t i t l e g iv e n i n W.G. Maxwell and W.S. G ib so n , T r e a t i e s an d Engagem ents A f f e c tin g t h e Malay S t a t e s and B o rn e o , (L ondon, 1 9 2 4 ), P- 2 o .
i n t e r e s t , th e p ream b le d e c la r e d th a t^ H e r M a j e s ty 's Government was bound by t r e a t ! s t i p u l a t i o n s t o p r o t e c t th e s a i d Kingdom and t o
a s s i s t i t s r u l e r s . oq I n f o u r t e e n a r t i c l e s i t th e n w ent on t o s u g g e s t
a s e t t l e m e n t o f a t l e a s t f o u r im p o r ta n t s u b j e c t s : th e d y n a s tic d i s p u t e s , th e f u t u r e a d m i n i s t r a t i o n o f P e r a k , th e c l a r i f i c a t i o n o f b o u n d a r ie s and c o n c e s s io n o f t e r r i t o r y t o t h e S t r a i t s S e t tl e m e n ts , an d t h e s e t tl e m e n t o f th e L a r u t d i s t u r b a n c e s . I n th e f i r s t f o u r a r t i c l e s o f th e document a w e l l - i n t e n t i o n e d i f somewhat m isg u id e d a tte m p t was made t o s e t t l e th e d y n a s tic d i s p u t e . ^ A b d u 'lla h was r e c o g n iz e d a s S u l t a n , w h ereas I s m a il w ith a p e n s io n and s m a ll t e r r i t o r y was r e t i r e d and p e r m itte d th e t i t l e o f 'S u l t a n Muda1. 21
A r t i c l e s t h r e e and f o u r c o n firm e d th e a p p o in tm e n t o f 'G r e a t O f f i c e r s ' 2 0 . B r i t a i n 's p o l i t i c a l param ountcy i n th e s o u th e r n M alay P e n in s u la was i m p l i c i t l y r e c o g n iz e d i n th e A nglo-D utch T r e a ty o f 1824
'CO&t&S (M axwell and G ib s o n ,/p . 8 . ) I n 1825 * t r e a t y w ith Siam a s s u r e d th e in d e p e n d e n c e o f P e ra k w h ile B r i t a i n com m itted i t s e l f n o t t o a llo w S e la n g o r t o a t t a c k o r d i s t u r b P e r a k . ( I b i d . . p . 77*) w h ile P e ra k and S e la n g o r p le d g e d i n s e p a r a t e t r e a t i e s n o t t o a t t a c k one a n o th e r . ( I b i d . , p p . 22 and 3 2 .) I n th e f o llo w in g y e a r th e E a s t I n d i a Company f u r t h e r e x te n d e d i t s 'p r o t e c t i o n * t o P e r a k , th e l a t t e r a g r e e in g
n e i t h e r t o se n d th e bunga mas - o r to k e n o f v a s s a la g e - to Siam n o r com m unicate w ith S e la n g o r o r Siam , ( I b i d . , p . 2 4 .) A lth o u g h t h i s t r e a t y was n o t f o r m a lly r a t i f i e d by th e Company, i t was a c t e d upon i n 1844 and 1853 and i s a p p a r e n t l y th e one r e f e r r e d t o i n th e p ream b le o f t h e Pangkor Engagem ent. ( M i l l s , L.A . 'B r i t i s h M alaya, 1 8 2 4 -1 8 6 7 » ' (E d . M. T u r n b u ll) JMBRAS, V o l P t . 5 ,
2 1 . A t i t l e u s e d by th e l a s t S u l t a n o f M alacca an d p r e s e r v e d i n P e r a k . I t s to o d a t tim e s f o r h e ir - p r e s u m p tiv e an d may have d e n o te d g r e a t honour th a n th e t i t l e 'R a ja M uda.1 I s m a il was th e l a s t t o be so s t y l e d ; a c o n s o l a t io n t i t l e g iv e n a t th e s u g g e s tio n o f th e
Lax am a n a Muhammand Amin. (W in s te d t and W ilk in so n , JMBRAS, V o l. X I I , P t . 1 , p . 1 3 4 .)
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raade by I s m a il and th e p o s i t i o n o f th e M a n tri a s c h i e f o f L a r u t . The m ost im p o r ta n t p a r t o f th e t r e a t y , f o r p r e s e n t p u rp o s e , h ow ever, was t h a t c o v e re d by a r t i c l e s f i v e t o These a r t i c l e s , w hich aim ed a t g iv in g P e ra k a b e t t e r sy stem o f a d m i n i s t r a t i o n , d e a l t w ith two i n t e r r e l a t e d s u b j e c t s : th e a p p o in tm e n t o f a B r i t i s h R e s id e n t and th e c o l l e c t i o n o f r e v e n u e .
F o rem o st i n th e a tta in m e n t o f b e t t e r a d m i n i s t r a t i o n was th e c r e a t i o n o f t h e p o s t o f 'R e s i d e n t * . 22 I t was to be f i l l e d by a B r i t i s h O f f i c e r s t a t i o n e d a t P e ra k who would be a s s i s t e d by an 2 2 . The o r i g i n o f th e name i s p ro b a b ly d e r iv e d from th e I n d ia n ex am p le. On s e v e r a l o c c a s io n s S t r a i t s S e ttle m e n t o f f i c i a l s w ith I n d i a n e x p e r ie n c e recommended th e a p p o in tm e n t o f su c h an o f f i c e r t o r e s i d e i n th e M alay s t a t e s . The e a r l i e s t m en tio n a p p e a re d i n a R e p o rt o f t h e •C om m ittee on N a tiv e S t a t e s , ' d a te d 19 May, 1871*
The Com m ittee c o n s i s t e d o f t h r e e m em bers, one o f whom, M ajor F . M acN air, th e C o lo n ia l E n g in e e r who had s e r v e d i n th e I n d ia n Army, p u t fo rw a rd t h e i d e a . The R e p o rt s u g g e s te d t h a t th e o f f i c e r s h o u ld r e s i d e i n th e s t a t e and be p a id from s t a t e r e v e n u e . B e s id e s a d v is in g on g e n e r a l a d m i n i s t r a t i o n , he would a c t a s a l i n k betw een th e M alay S t a t e and S t r a i t s G overnm ent. ( R e p o r t, an O f f i c e r A d m in is te rin g
th e Government t o S e c . S t a t e , 3 Ju n e 1871, C O /273/^7*) I n *■ l e t t e r t o G overnor Q rd , th e a c t i n g L ie u te n a n t-G o v e rn o r o f P en an g , G.W.R.
C am p b ell, (se c o n d e d C eylon O f f i c e r ) p r e s s e d f o r th e 'a p p o in tm e n t o f a R e s id e n t o r P o l i t i c a l O f f i c e r f o r c e r t a i n M alay S t a t e s '
( I n c l o s u r e 3 i n No.1 2 , G overnor t o S e c . S t a t e , 11 Nov. 1872,
CO 809/1 • ) And a g a i n , i n h i s a n n u a l R e p o rt he u rg e d th e a p p o in tm e n t o f a P r e s i d e n t p o l i t i c a l o f f i c e r and p o in te d to th e p re c e d e n c e i n I n d i a . Most n a t i v e - r u l e d S t a t e s i n and a ro u n d I n d i a have su c h o f f i c e r s , and th e v a lu e o f t h e i r i n f l u e n c e i s u n q u e s t i o n a b l e . '
( E x t r a c t from C a m p b e ll's R e p o rt on th e B lue Book f o r Penang an d P ro v in c e W e lle s le y f o r 1 8 7 2 , i n CO. 273/7**» 28 Ju n e 1873*) A ll t h e s e o f f i c e r s u n d e rs to o d th e r o l e o f su c h a p e rs o n t o be p u r e ly a d v is o r y . However, A .E. A nson, i n fo rw a rd in g t h e R e p o rt o f th e
'C om m ittee on N a tiv e A f f a i r s ' c o n s id e r e d th e d i f f i c u l t i e s su c h an o f f i c e r would e x p e r ie n c e i n t h e c h a o t ic c o n d it i o n s o f t h e Malay S t a t e s and p r e f e r r e d th e a p p o in tm e n t o f a ' P o l i t i c a l A g e n t .' (S ee Cowan, N in e te e n th C e n tu ry M alay a, p . 8 3 *) F o r an a c c o u n t o f th e u s e o f R e s id e n ts a s a means f o r m a in ta in in g o r d e r an d s t a b i l i z i n g f r o n t i e r s , s e e W.D. M c In ty re , 'B r i t i s h P o l i c y i n West A f r i c a , th e Malay P e n in s u la and th e S o u th P a c i f i c d u r in g t h e C o lo n ia l S e c r e t a r y s h i p o f L ord
K im berly and L ord C a r n a r v o n ,' U n p u b lish e d Ph.D . t h e s i s , 1959* U n i v e r s i ty o f London, p . 396.
o f f i c e r endowed w ith s i m i l a r pow ers who l i v e d a t L a r u t . 23 The S u l t a n was t o p ro v id e t h e R e s id e n t w ith a 's u i t a b l e r e s i d e n c e ' and th e c o s t s o f b o th o f f i c e r s an d t h e i r e s ta b lis h m e n ts were t o be d e te rm in e d by t h e S t r a i t s S e t tl e m e n ts an d form a ' f i r s t c h a rg e on th e Eevenue o f P e r a k '. 2k The pow ers o f th e R e s id e n t were s t a t e d g e n e r a l l y i n
a r t i c l e s i x , w hich d e c l a r e d t h a t h i s 'a d v ic e m ust be a sk e d and a c t e d upon on a l l q u e s t io n s o t h e r th a n th o s e to u c h in g M alay R e lig io n and C u sto m !' M oreover, a r t i c l e s t e n a s s e r t e d t h a t t h e 'g e n e r a l
a d m i n i s t r a t i o n o f th e c o u n tr y ' was t o b e d e te rm in e d by th e R e s i d e n t 's a d v ic e , an d i t s i n g l e s o u t 't h e c o l l e c t i o n o f a l l R e v en u e s' f o r
s p e c i a l a t t e n t i o n .
T h is and two o t h e r a r t i c l e s a r e c o n c e rn e d w ith th e c o l l e c t i o n o f r e v e n u e . The im p o rta n c e g iv e n th e s u b j e c t i n th e Engagement s u g g e s ts t h a t t h e c o n t r o l o f re v e n u e was c o n s id e r e d o f v i t a l im p o rta n c e i f s u c c e s s f u l a d m i n i s t r a t i o n was t o be s e c u r e d i n P e r a k . S i r Andrew, i n d e fe n d in g h i s a c t i o n a t P a n g k o r, d e p lo r e d th e 'p e r f e c t a b se n c e o f a l l s y s te m ' i n th e c o l l e c t i o n o f re v e n u e and h e ld t h a t i n so f a r 23* C l a r k e 's i n s t r u c t i o n s from th e S e c r e t a r y o f S t a t e a sk e d him t o c o n s id e r w h eth er i t w ould 'b e a d v is a b le to a p p o in t a B r i t i s h b f f i c e r to r e s i d e i n any o f th e s t a t e s . * C l a r k e 's view was t h a t 'n o t h i n g b u t t h e r e s i d e n c e o f a B r i t i s h o f f i c e r can b r in g a b o u t i n any o f th e s e S t a t e s t h a t p a c i f i c a t i o n w hich i s so g r e a t l y n e e d e d .'
(G overnor t o S e c . S t a t e , 2k F e b . 187^* CO. 8 0 9 /1 * )
2 k . C la r k e ’s i n s t r u c t i o n s h e ld t h a t e x p e n se s c o n n e c te d w ith th e s e a p p o in tm e n ts would be d e fr a y e d by th e S t r a i t s G overnm ent.
- 2 3 -
a s b r in g in g a b o u t a good sy stem o f governm ent t h i s w ould be a b o u t 25 I t i s 't h e m ost im p o r ta n t p o r tio n * o f th e R e s i d e n t 's d u tie s *
n o t d i f f i c u l t , t h e r e f o r e , t o u n d e r s ta n d a r t i c l e s f i v e and t e n , w hich d e c la r e d t h a t a l l re v e n u e was t o be c o l l e c t e d and a l l
a p p o in tm e n ts made ( i n t h e name o f th e S u l t a n ) , a s p r o v i s i o n s f o r i n t r o d u c i n g a c e n t r a l i z e d , u n ifo rm sy stem o f re v e n u e c o l l e c t i o n . W ith t h i s i n m ind, th e r e l a t i o n s h i p o f a r t i c l . e n in e t o f i v e and t e n i s more a p p a r e n t. I t c a l l e d f o r a c i v i l l i s t r e g u l a t i n g th e incom es o f th e S u l t a n , B a n d a h a ra , M a n tri an d 'o t h e r o f f i c e r s ' w hich would be drawn from th e r e v e n u e s a f t e r m e e tin g t h e c o s t s o f th e R e s id e n t and h i s e s t a b l is h m e n t . T hese a r t i c l e s , t h e r e f o r e , e v i d e n t l y i n d i c a t e
■that th e im p o r ta n t c h i e f s w ere to l o s e t h e i r power a s a r b i t r a r y
c o l l e c t o r s o f re v e n u e and r e c e i v e r e g u l a r incom es a c c o r d in g t o t h e i r r a n k . T hus, th e s t a t e , f r e e d from th e whims o f a r b i t r a r y t a x a t i o n sis a p p li e d by r e g i o n a l c h i e f s , would be f r e e t o im pose a u n ifo rm sy stem o f c o n t r o l o v e r th e s t a t e ' s re v e n u e and e x p e n d itu r e .
W hile su ch c o n c lu s io n s w ere n o t e x p l i c i t , C la rk e a p p e a rs t o have been i n no d o ubt a s t o th e i n t e r p r e t a t i o n o f th e Engagem ent. In d e e d , i n a l e t t e r t o A b d u 'll a h , 22 A p r i l 1875* he rem in d ed th e S u l t a n
t h a t he and th e o t h e r P e ra k c h i e f s 'b o u n d th e m s e lv e s n o t t o c o l l e c t any ta x e s w h a te v e r, su c h ta x e s and a l l rev e n u e b e in g e n t i r e l y i n 25* G overnor to S e c . S t a t e , 2k F eb . 187^, 8 0 9 /1 .
t h e h an d s o f th e B r i t i s h R e s id e n t.* A lth o u g h th e s e a r t i c l e s f a i l e d t o e q u ip t h e R e s id e n t w ith e x e c u tiv e a u t h o r i t y , th e c l a u s e ,
'a d v i c e m ust be a s k e d and a c t e d u p o n ,' c o u p le d w ith a r t i c l e s f i v e a n d t e n , c o u ld g iv e him th e o p p o r tu n ity t o e f f e c t i v e l y c o n t r o l th e c o u n tr y . The o p e r a t iv e p h r a s e i s , o b v io u s ly , 'a n d a c t e d u p o n .'27
Viewed i n t h i s way, th e o n ly l i m i t a t i o n o f h i s power t o a d v is e was t h e p r o h i b i t i o n from a d v is in g on q u e s tio n s 't o u c h in g Malay R e lig io n an d C u sto m .' I s la m , a s p r a c t i s e d i n th e Malay P e n in s u la a t t h a t tim e , c o u ld g iv e l i t t l e t r o u b l e , b u t custom ( a d a t ) was t o p ro v e a more
c o m p re h en siv e term th a n th e d r a f t e r s o f th e Engagement im a g in e d .28
M o reo v er, t h e r e a p p e a rs t o have b een a Malay t r a n s l a t i o n o f t h e Engagement w hich v a r i e d i n a t l e a s t one im p o r ta n t r e s p e c t .
The d i f f e r e n c e b etw een th e E n g lis h and Malay v e r s i o n s i s a p p a r e n t i n 2 6 . E n q u iry a s t o th e C o m p lic ity o f C h ie f s i n th e P e ra k O u tr a g e , P r e c i s o f E v id e n c e , e n c lo s u r e 5 i n G overnor to S e c . S t a t e ,
14 D ec. 187^ , CO 2 7 3 /8 6 , p . 10. H e r e a f te r r e f e r r e d t o a s P r e c i s . 27* Cowan, N in e te e n th C e n tu ry M alaya, p . 188 Sw ettenham h e ld t h a t
' I t i s e v id e n t t h a t th e c o l l e c t i o n and c o n t r o l o f a l l r e v e n u e , and th e t e n d e r in g o f a d v ic e w hich m ust be a c t e d u p o n , c o v e r a l l e x e c u tiv e a u t h o r i t y . ' (F .A . Sw ettenham , The R e al M alay , (L ondon, 1899) p* 2 1 .) 2 8 . W ilk in so n l i s t s some dozen i n t e r p r e t a t i o n s o f a d a t , o f w hich one s h o u ld be c i t e d h e r e : 'common law o r cu sto m ary i n g e n e r a l w h eth er l o c a l , o r a s d iv id e d by M alay j u r i s t s i n t o : th e law o f th e a u t o c r a t i c s u l t a n a t e e ( a d a t tem enggong) ; th e d e m o c ra tic ( a d a t p e r p a t a h ) ;
( a d a t le m b a g a ); and l o o s e l y a l l l a w . ' ( R . J . W ilk in so n , A M a la y -E n g lish D i c t i o n a r y . (G re e c e , 1 9 3 2 ). ) /
- 2 5 -
t h e c o n t r a s t b etw een th e s i x t h a r t i c l e : E n g lis h V e rs io n
V I. S i x t h . — T h at t h e S u l t a n r e c e i v e and p r o v id e a s u i t a b l e r e s i d e n c e f o r a B r i t i s h O f f i c e r t o be c a l l e d R e s id e n t, who
s h a l l be a c c r e d i t e d t o h i s C o u r t, and whose a d v ic e m ust be a s k e d and a c t e d upon on a l l q u e s t io n s o t h e r t h a n th o s e to u c h in g Malay R e li g i o n and Custom .
Malay V e rs io n ( t r a n s l a t e d )
Item 6— The S u l t a n s h o u ld a c c e p t and b u i l d a s u i t a b l e r e s i d e n t i a l house f o r one o f f i c e r who i s u n d e r th e B r i t i s h G overnm ent whose t i t l e s h a l l be B r i t i s h R e s id e n t o f P e ra k S t a t e and who i s t o be t r u s t e d by th e B r i t i s h G overnm ent. The S u l t a n o f P e ra k s h a l l hav e t o c o n s u l t w ith him on a l l m a t t e r s andtiae w o rk in g o f P e ra k S t a t e e x c e p t t h a t he c a n n o t i n t e r f e r e w ith Muslem r e l i g i o u s
a f f a i r s and M alay c u sto m . 29
The m ost s i g n i f i c a n t d i f f e r e n c e i s i n th e o m is s io n o f th e c o m p e llin g p h r a s e , ^and a c t e d u p o n .^ The e f f e c t on th e f o r c e o f a r t i c l e t e n h a r d l y n e e d s t o b e p o i n te d o u t , f o r th e f a i l u r e t o i n c l u d e th e s e w ords s e r i o u s l y l i m i t e d th e a u t h o r i t y o f t h e R e s i d e n t 's de .jure a d v ic e .
I f th e a r t i c l e s c o n c e rn in g th e pow ers o f t h e R e s id e n t a r e d i s r e g a r d e d , t h e Engagem ent i s a l u c i d docum ent. N e v e r t h e l e s s , i n p r a c t i c e i t f a i l e d to s e t t l e th e s u c c e s s io n d i s p u t e . T h is w e ak n e ss, and t h e v a g u e n e ss o f th e d e f i n i t i o n o f th e R e s i d e n t 's 29* F o r th e p u rp o se o f t h i s t h e s i s th e w r i t e r a c c e p ts th e v a l i d i t y o f t h i s t r a n s l a t i o n a s a f a i r copy o f th e o r i g i n a l . The M alay v e r s i o n was u n c o v e re d by M.A. M a lla l i n t h e c o u rs e o f h i s r e s e a r c h on J.W.W. B ir c h . (M.A. M a l l a l , 'J.W .W . B ir c h : C au ses o f h i s
A s s a s s i n a t i o n ,* u n p u b lis h e d M.A. t h e s i s , 1952, U n i v e r s i ty o f M alay a, and c i t e d i n P a r k in s o n , B r i t i s h I n t e r v e n t i o n i n M alay a, 1 8 6 7 -1 8 7 7 * ( S in g a p o r e , 1960) p . 137* The o r i g i n a l M alay v e r s i o n was by F ra n k Sw ettenham and M unshi Mohamad S y ed . (F .A . S w ettenham , F o o t p r i n t s i n M alay a, (L ondon, 1941) p . 3 3 * ) No M alay v e r s i o n can be fo u n d i n th e P u b lic R eco rd s O f f i c e .
p o w e rs, can p e rh a p s be a t t r i b u t e d t o C l a r k e 1® in c o m p le te in f o r m a ti o n and h i s d e s i r e f o r q u ic k s e t t l e m e n t . 30 No l e s s
s i g n i f i c a n t was th e c irc u m s ta n c e i n w hich th e t r e a t y was n e g o t i a t e d . S i r Andrew, i n a r r a n g in g a s e t t l e m e n t , h a d e x ce ed e d h i s i n s t r u c t i o n s t h a t he sh o u ld m ere ly r e p o r t . 31 The n eed t o p r e s e n t t h e document
a s a n ag reem en t among th e c h i e f s on p u r e ly i n t e r n a l s t a t e - m a t t e r s was t h e r e f o r e p r e s s i n g . H ence, t o h av e endowed th e R e s id e n t w ith more e x p l i c i t and p r e c i s e a u t h o r i t y - th e r e b y in v o lv i n g B r i t a i n to o d e e p ly i n P e ra k a f f a i r s - m ig h t w e ll h av e b ro u g h t a co m p lete r e j e c t i o n o f h i s s e t t l e m e n t by th e C o lo n ia l O f f i c e . I n a sp e e c h t o th e S t r a i t s L e g i s l a t i v e C o u n c il an d i n a l e t t e r t o C h a rle s Cox a t th e C o lo n ia l O f f i c e , he u rg e d th e view t h a t he h a d made •no b a r g a in o r a c c e p te d no o b lig a tio n * and t h a t t h e Engagement was
• e n te r e d i n t o s o l e l y by th e C h ie f s o f P e r a k , b u t I am o n ly a w i t n e s s . 1 ^
The docum ent, i t i s t r u e , b o re th e s i g n a t u r e o n ly o f th e c h i e f s , and C l a r k e 's a s 'w i t n e s s . ' The c a s e m ig h t be made t h a t , a p a r t from a r t i c l e s e le v e n and tw e lv e w hich d e a l t w ith b o u n d a ry q u e s t i o n s , th e Engagement was n o th in g more th a n an ag re em e n t b etw een c h i e f s . The C o lo n ia l O f f i c e , however*was s t a r t l e d by t h i s s u g g e s t i o n , 3 0 . P a r k in s o n , o p . c i t . , ^ p . 138-**0.
3 1 . I n a d d i t i o n to e x c e e d in g h i s i n s t r u c t i o n s by s i g n i n g t h e t r e a t y , he com m itted a b re a c h o f s ta n d in g o r d e r s l a i d down a f t e r G overnor O r d 's a b o r t i v e Kedah T r e a ty , 1868. (Cowan, N in e te e n th C e n tu ry M alay a, p . 2 0 2 .)
3 2 . M inute by Cox, G overnor t o S e c . S t a t e , 16 Ju n e 187*N CO 2 7 3 /7 6 .
- 2 7 -
b e l i e v i n g i t was a t r e a t y i n th e b r o a d e s t s e n s e o f th e word - a view th e G overnor was p le a s e d t o a c c e p t# I f B r i t a i n was n o t a p a r t y t o th e t r e a t y , th e n how was Her M a je s ty * s Government to e n f o r c e th e a c c e p ta n c e o f R e sid e n ts^ th e b o u n d ary d e c i s i o n s , and t h e c o l l e c t i o n o f e x p e n se s? C l e a r l y , th e Engagement w ould amount t o s o much 'w a s te p a p e r i 33 I n r e p l y , th e S e c r e t a r y o f S t a t e
i n s t r u c t e d C la rk e t o in fo rm th e P e ra k C h ie f s t h a t
Her M a j e s t y 's Government w i l l lo o k t o th e e x a c t f u l f i l l m e n t o f th e p le d g e s w hich h av e now b e en v o l u n t a r i l y g iv e n , and w i l l h o ld r e s p o n s i b l e th o s e who v i o l a t e th e engagem ent w hich (h a s b e e n ) so le m n ly a g re e d upon# 3 *+
T hese i n s t r u c t i o n s form ed th e b a s i s o f a P r o c la m a tio n i s s u e d by th e G overnor d a te d 2 November 1873*
F o llo w in g th e s u c c e s s i n P e r a k , C la rk e n e x t tu r n e d h i s a t t e n t i o n to S e la n g o r and S u n g a i U jong. I n S e la n g o r u s i n g a s a p r e t e x t a c a s e o f p i r a c y w hich had b een com m itted th e p r e v io u s November, S i r Andrew was a b le t o r e c o n c i l e th e S u l t a n , 'A b d u 'l-S am a d and h i s V ic e ro y , Z i a 'u 'd - d i n . 36 S ix m onths l a t e r , i n A u g u st, a f t e r he had g a in e d
a p p ro v a l f o r h i s p r o c e e d in g s a t P a n g k o r, C la rk e s e n t F ra n k Sw ettenham to r e s i d e w ith S u l t a n o f S e la n g o r a t L a n g a t, a move d e s ig n e d t o make good th e g a in s o f F eb ru ary # 37 Sw ettenham was so
33* M inute by Cox, G overnor t o Sec# S t a t e , 16 Ju n e 18 7 ^, CO 2 7 3 /7 6 . 3 ^ . Sec# S t a t e t o G o v e rn o r, k Sept# 187**, C . I I I I .
33* Cowan, op# c i t . , p . 190.
36# I b i d # , p p . 206-7*
37* Maxwell an d G ib so n , TREATIES, p . 3 3 .
s u c c e s s f u l i n w in n in g th e c o n fid e n c e o f th e r u l e r t h a t , i n r e p l y t o a l e t t e r from th e G o v ern o r, 'A b d u 'l-S am a d a g re e d to C la rk e * s a s s i s t a n c e i n m aking *a rra n g e m e n ts f o r O pening my c o u n tr y and
■tQ
c o l l e c t i n g i t r e v e n u e . 1 He a l s o a g re e d t o pay Sw ettenham a s a l a r y o f ^ 1 0 0 0 p e r mensum and p r o v id e him w ith a r e s i d e n c e .
W ith o u t d e c l a r i n g i n a t r e a t y th e form t h i s a s s i s t a n c e m ig h t t a k e , t h e S u l t a n e n a b le d th e G overnor t o i n tr o d u c e a R e s id e n t. A
P r o c la m a tio n was th e n p u b lis h e d i n th e S t r a i t s S e t tl e m e n ts on 25 J a n u a r y 1873 by th e G overnor an n o u n cin g th e S u l t a n 's re q u e s t* 38
Two B r i t i s h o f f i c e r s were s u b s e q u e n tly a p p o in te d t o S e la n g o r : J .G . D avidson a s s e n i o r o f f i c e r a t K lan g , and Sw ettenham a s h i s a s s i s t a n t to re m a in a t L an g a t w ith th e S u l t a n . T h u s, sim p ly by an e x e c u tiv e o r d e r , B r i t i s h o f f i c e r s w ere p la c e d i n S e la n g o r . T h e ir t i t l e s were n o t g iv e n and t h e i r pow ers w ere u n d e f in e d . No m e n tio n was made o f e a r l i e r t r e a t i e s , o r o f B r i t a i n 's c o n t r o l o f th e s t a t e ' s e x t e r n a l r e l a t i o n s .
The S u n g ai U jong d i s p u t e s w ere s e t t l e d i n two s t a g e s , I n A p r i l 187^ th e G overnor s i d e d , a s he h ad i n P e ra k and S e la n g o r , w ith one o f th e d i s p u t a n t s , th e D a to 'K la n a P u t r a , i n o r d e r t o k eep th e
L in g g i R iv e r open an d p r e v e n t th e C h in ese m in e rs from t a k i n g s i d e s i n th e c i v i l w ar. The d e c i s i o n was r e c o r d e d i n a t r e a t y w ith th e 3 8 . I b i d . , p . 3 6 .
- 2 9 -
D a to ' and h i s nom inal v a s s a l , th e D ato'M uda o f L in g g i. The D a to 'K la n a e n te r e d i n t o a /# 3 0 ,0 0 0 bond w ith B r i t a i n t o k eep th e r i v e r open and c h a rg e ' f a i r and r e a s o n a b le d u t i e s and t a x e s ' down t o Sirapan. I n r e t u r n , he g a in e d th e 'm o r a l and m a t e r i a l g u a ra n te e and p r o t e c t i o n b f th e B r i t i s h G overnm ent• '
C l a r k e 's gamble was aim ed a t e s t a b l i s h i n g t h e D a to 'K la n a a s de f a c t o r u l e r a s w e ll a s de .jure r u l e r o f S u n g a i U jo n g . However by November th e s t r u g g l e b etw een th e K lan a and t h e D a to ' S hahbandar had resu m ed ; th e K lana t r i e d t o d r i v e th e D a to 'S h a h b a n d a r from th e s t a t e . H is a t t a c k f a i l e d , and th e G overnor was f o r c e d to e n t e r th e f i e l d t o r e s c u e h i s man. The i n t e r v e n t i o n d ro v e th e D a to ' S h ahbandar from th e s t a t e and l e f t th e K lan a th e s o l e r u l e r o f th e t i n y c o u n tr y . Q u ite sh ak en by th e e x p e r ie n c e , th e D a to 'K la n a welcomed a r e s i d e n t B r i t i s h o f f i c e r i n th e p e rs o n o f C a p ta in Tatham . S u n g a i U jong, t h e r e f o r e , by v i r t u e o f th e A p r il T r e a ty , became a p r o t e c t e d s t a t e , and th ro u g h an e x e c u tiv e a c t a l s o g a in e d a B r i t i s h R e s id e n t. ho
As t h e s e e v e n ts s u g g e s t, th e P angkor Engagem ent m arked an
im p o r ta n t d e p a r tu r e i n B r i t i s h c o l o n i a l p o l i c y i n th e Malay S t a t e s . B r i t i s h o f f i c e r s were s e n t t o r e s i d e i n a M alay S t a t e i n o r d e r to s t a b i l i z e a p o l i t i c a l f r o n t i e r and i n tr o d u c e 'g o o d ' g o v ern m en t, and th e p o l i t i c a l i n t e g r i t y o f th e s u l t a n a t e was p r e s e r v e d by th e
3 9 . I b i d . , p . 3 7 .
4 0 . Cowan, N in e te e n th C e n tu ry M alaya, p p . 1 9 2 -7 ; 206- 1 0 ; and G overnor to™ l5ecT"StateT™ 29DecT~lE7T, C. 1320.
