CO882-10 — Page 294

PUBLIC RECORD OFFICE

Is b b b L

C.O.

Reference :-

882 /10

PUBLIC RECORD OFFICE, LONDON |

ALLY WITHOUT PERMISSION OF THE BE REPRODUCED PHOTOGRAPHIC-

COPYRIGHT PHOTOGRAPH-NUT TO

NOTES

ON A

POLICY IN RESPECT OF THE UNFEDERATED

MALAY STATES.

1. When, in July, 1895, the four States of Perak, Selangor, Negri Sembilan and Pahang, entered into a Treaty of Federation, they were the only Malay States under British protection. The British Treaty with Johore was one of alliance and friendship, and the States of Kedah, Perlis, Kelantan and Trengganu were under Siamese suzerainty. The position has now changed, for by a Treaty dated May, 1914, Johore has accepted a British official as "General Adviser," and has promised to follow his advice; and by the Anglo-Siamese Treaty of 1909 the suzerainty of Kedah, Perlis, Kelantan and Trengganu has been transferred from Siam to Great Britain.

All the Malay States in the Malay Peninsula, south of the Anglo-Siamese frontier, are now under British protection. The compact block of the Federated Malay States" occupies the central position: Johore is at the extreme south of the peninsula, and the other four States lie to the north, Kedah and Perlis being on the western, and Kelantan and Trengganu on the eastern, coast.

2. Before we can consider the problem of the four federated and the five unfederated States, it is necessary to know something of why and how the four States formed themselves into a federation. In the early States of Perak, Selangor, Negri Sembilan and Pahang were showing rapid develop- "nineties" the four protected ment. In each State the British Resident, though nominally only an adviser to bis Sultan, was really the sole Administrator. He was subject to the instructions of the Governor of the Straits Settlements, and applied to him for directions in matters of importance. In certain matters, such as land alienation, for instance, general instructions were laid down. But, inevitably, each Resident worked on his own lines. Apart from that, each State had not only ita separate " Civil Service" proper, but also its separate Professional Services (e.g., Medical, Survey, Public Works, Railways, Police, Posts and Telegraphs, &c., &c.). Promotion from one Service to the other was rare. In Pahang and Negri Sembilan, the entire European staff of officials was very small, and a Department might only have one or two Europeans in it. Each State kept aloof from its neighbours. between Singapore and the Malay States was slow and difficult, and not only did Transport the Governor find it almost impossible to make the tours of inspection that were desirable, but even found his official correspondence with the four Residents took much time in going and coming.

3. The suggestion that the four States should be federated was made in 1899 by the Marquess of Ripon, then Secretary of State for the Colonies. It was welcomed by the Governor (Sir Cecil C. Smith) on the grounds that it would lighten the work of the Governor, and that the administration of the States required co-ordination. It is noteworthy that there was no consideration of the question whether the Sultans or the people of the four States would desire to federate. In 1895, Sir C. Mitchell sent a further despatch to the Secretary of State, putting forward the arguments in favour of federation. He also forwarded for approval the draft of a Treaty to be signed by the various Rulers, and an outline of a scheme for the general adminis- tration of the federation.

4. The Secretary of State (Mr. J. Chamberlain) approved generally of the scheme of federation, and desired that :-

་

no pains should be spared to safeguard the position and dignity of the "Native Rulers, to invite them to co-operate as fully as heretofore with their British Advisers in promoting the advancement of their respective terri- tories and subjects, and to give them the assurance that such changes as "shall be made are solely intended to promote strength by combination,

uniformity of policy and harmony of purpose."

288

Mr. Chamberlain accepted, as sound and judicious, the views expressed by Sir Charles Mitchell, that at first the Federal Council should be only a consultative body; that the legislative powers of the separate State Councils should not be inter- fered with; and that separate State Treasuries should be maintained. He con- sidered that the growth of the federation should be gradual, because attempts to hurry on prematurely a closer union would probably excite suspicion and distrust. 5. In the same despatch, Mr. Chamberlain approved the terms of the draft Treaty of Federation, and Mr. (now Sir) F. A. Swettenham was at once sent by the Governor on a special mission to each State in order to obtain the concurrence and signature of its Ruler. Mr. Swettenham was instructed to point out to the Rulers that "in binding themselves and their States by this agreement, the Rulers will not, "in the slightest degree, be diminishing the powers and privileges which they now possess, nor be curtailing the right of self-government which they now enjoy." He was also to explain that the object of the federation was to advance the common good of the States as a whole by the aid and countenance which the richer States will be able to afford the poorer in the development of their resources, so contributing to the common welfare "; that matters of common interest would receive the benefit of the knowledge and experience of all the Rulers; that the powers of the States in the administration of justice, for the suppression of crime, for defence against aggression, and for the establishment of the means of communi- cation would be strengthened; that advantages would accrue from the annual meetings of the Rulers; and that the expenses of carrying the scheme into effect would be met by the States in shares proportionate to their several revenues.

"

C

"

"

6. Mr. Swettenham's mission did not take long. In his official report upon its success, he noted that the cheerful rapidity with which the Malay Chiefs have in this instance accepted Your Excellency's advice, is as remarkable as the ease and rapidity with which it is now possible to travel in the Malay States." was indeed remarkable.

The rapidity

In the same report, he records that :--

The Sultan of Perak signed and sealed the Treaty at once;

The Datoh Bandar (on behalf of himself and the Datoh Klana) signed after

half-an-hour's interview;

The Datoh Jelebu also took half-an-hour to decide;

The Sultan of Selangor took an hour;

The Yam Tuan of Sri Menanti, and the Datohs of Johol, Rambau and

Tanpin (whom Mr. Swettenham saw together) took three hours;

And lastly, the Sultan of Pahang, who took longer than anyone else,

returned the executed document within four hours.

So far as I am aware, the fact that not one of these Rulers even made an attempt to consult his State Council has not yet received official comment. It has not escaped

native comment.

Mr. Swettenham knew, fully as well as the Rulers, that in this respect the Rulers had signally failed in their duty to their people.

The

7. There is another point which requires attention in connection with any consideration of a scheme for extending the scope of the present federation. scheme was a profound secret until it had become an accomplished fact. There had been no sign of any desire or feeling amongst the Rulers or the people of the Malay States that combination in certain respects would enure to their common welfare; there had been no public discussion of the subject: it had not even been mentioned in any of the local newspapers. But this is not all. The Treaty was signed in July, The secret was not given out until the 23rd August, 1895, when the Treaty was published in the "Straits Settlements Gazette." The appointment of Mr. F. A. Swettenham as Resident-General was not gazetted until the 3rd July, 1896. A noti- fication in the "Straits Settlements Gazette " of the 5th June, 1896, proclaimed that the Treaty would come into effect on the 1st July, 1896, which was about a year after its execution. The only reason for this delay must be that the Treaty was premature, and that the Government was unable to carry it into effect.

1895.

8. The first of the "annual meetings of the Rulers" took place in Kuala Kangsar (Perak) in 1897. The second did not take place until six when it was held in Kuala Lumpur (Selangor). It was noteworthy for a statement later (1903). years made therest by the Sultan of Perak. In a set speech (speaking in Malay) he referred

(30168—8) W1, 36798--800 30 27/11 1.11 0.1

!