Henry S. Barlow, Hon. Treasurer, Malaysian Branch of the Royal Asiatic Society
Perak in turmoil
British intervention
Three Commissioners—among them Swettenham—were appointed to settle compensation questions and to arbitrate on the disputes between Larut’s Chinese clans. Swettenham was kept busy arranging for the demolition of blockades set up by the mining factions, to prevent a bloodbath. In his own words some years later: ‘For the most part the means employed were the only ones available – tact and firmness, with an accent on the latter’ (Swettenham, 1907, p.179).
Despite the signing of the Pangkor Engagement, the main problem of Abdullah’s legitimacy as Perak’s sultan among his Malay subjects remained. For them to accept him as Sultan, it was essential to retrieve the Perak regalia from Sultan Ismail. For this purpose, J. W. W. Birch, at the time Colonial Secretary of the Straits Settlements and having previously had many years of colonial service in Ceylon (now Sri Lanka), was sent to Perak from Singapore to try to retrieve the regalia, accompanied by Swettenham as interpreter. They travelled up the Perak River to visit the Malay territorial chiefs and, although they were unable to retrieve the regalia, they did make the acquaintance of, and were impressed by, Raja Yusof, another contender for the Perak crown who had been overlooked in earlier discussions in Pangkor.
Under the terms of the Engagement, British residents were to be appointed, initially to Perak and later to Selangor, Negeri Sembilan, and Pahang as well. Their advice was to be taken on all matters except those relating to religion and Malay custom. Birch, who was keen to become Perak’s Resident, was provisionally appointed to the position on 4 October 1874.
Yet Birch was extremely tactless. So much so that he alone was able to unite the warring factions—but only to agree to his murder, committed on 2 November 1875. In particular he badly mishandled the allowances to be paid to the chiefs in exchange for their agreement not to tax tin ore passing downriver through their territories; acted impetuously and disregarded Malay traditions in attempts to abolish slavery; and, with Swettenham’s support, threatened Abdullah that if he did not sign documents requesting British assistance in the state’s administration, he would be supplanted by Raja Yusof as the British nominee for Sultan.
Birch’s assassination and retribution
On 30 March 1876, it was announced that Swettenham was to be appointed Assistant Colonial Secretary ‘with special responsibility for Native Affairs.’ This ensured that Swettenham in effect, though not in name, became a prosecutor, and could, through this role, ensure that no questions were asked about any possible cover-ups, let alone atrocities by the British forces in the Perak War.
The more senior chiefs who had fled after Birch’s assassination—Maharaja Lela, Pandak Indut, and Dato Sagor—were eventually captured or surrendered and charged, along with four minor chiefs, with Birch’s (and his interpreter Mohamed Arshad’s) murder. On 14–22 December 1876, they were all tried before Raja Yusof and Raja Hussein, with Davidson and W. E. Maxwell serving as the assessors. Swettenham and Colonel Dunlop, the Inspector-General of Police, prosecuted, and the accused were defended by J. D. Vaughan in a trial that lasted seven days. They were all found guilty. The three senior chiefs were hanged in Matang near Larut on 20 January 1877, while the death sentences on the minor chiefs were commuted to life imprisonment.
Based on a decision of a specially convened three-member commission of inquiry that reported in December 1876, Sultan Abdullah, Ngah Ibrahim (the Menteri), the Laksamana, and the Shahbandar were exiled to the Seychelles in mid-1877. Raja Ismail, the principal rival to Sultan Abdullah, was banished to Johor. Swettenham played a material role behind the scenes in arranging these outcomes. These grim precedents in Perak served to ensure that in future the ‘advice’ of Residents both in Perak and elsewhere in the peninsula would not be lightly ignored.
Swettenham as Acting Resident, Perak
In 1877–1882 Swettenham, though not directly involved in Perak’s affairs, continued to work closely with Sir Hugh Low, the successor to Birch as Perak’s Resident, in refining and developing the residential system established at Pangkor. Swettenham was appointed Selangor’s Resident, 1882–1884, and threw himself vigorously into the planning of Kuala Lumpur. Towards the end of March 1884 Swettenham took over as Acting Resident of Perak, replacing Low. The vigour with which Swettenham had handled problems as Selangor’s Resident was matched in Perak.
Hugh Clifford, then aged just 17, came out to Malaya in 1883 and was posted to Perak as a cadet civil servant. He and Swettenham became close friends, cemented in part by a visit by Swettenham in 1884 to Lower Perak, subsequently reported in official prose:
It being imperatively necessary to visit Kuala Slim on the Bernam River, I left Kuala Kangsar in the beginning of September and returned to headquarters after an absence of 30 days. In that time I went down the Perak River to Teluk Anson, visiting all the important riverine villages on the way, inspected the works in progress at the post and then proceeded up the Bidos (Bidor) and Songkei Rivers to Tiang Betara. The rest of the journey was performed on foot over jungle paths (except a few miles on elephants and on horseback in the Kinta district), and convinced me of the necessity of constructing the trunk road (House of Commons [HC], 4958, 1887).
Swettenham had by this time appointed Martin Lister as his private secretary, who accompanied him throughout this trip. At various times during their visit, they stayed with, or were joined by, the young Hugh Clifford. G. Templer Tickell, a Burma-born surveyor and engineer, observed the great flood at the end of 1885, and was later responsible, with Swettenham, for the layout of Kuala Kangsar after it. It was, he revealed, Swettenham who decided that all roads should be named ‘Jalan’.
If Swettenham's expatriate colleagues at this time were in general congenial, the same could scarcely be said of Regent Yusof. His unpopularity had caused him twice to be bypassed in the succession to the Perak throne. Yet he realized that he owed his position entirely to the British. Although Yusof was difficult and obstinate, Low and Swettenham were able to deal with him. By the time Swettenham had become Acting Resident of Perak in 1884, Yusof was growing old, and indeed nearly died. Swettenham no doubt endorsed the advice from Hugh Low that Yusof be elevated from Regent to Sultan: a distinction he was to enjoy only for a few months before his death.
The visit of Cecil Clementi Smith, Acting Governor of the Straits Settlements, in February 1885 to inspect progress of Perak’s first railway from Port Weld to Perak’s tin-mining centres in Taiping no doubt loomed large in Swettenham's calendar. After they inspected the railway line, initiated by Low, the remainder of the visit was taken up by official visits, tent-pegging, parties, and an expedition to Kuala Kangsar. The visit proved successful, and Raja Idris, whom Smith met in Kuala Kangsar, was so pleased 'that he voluntarily expressed the opinion that the other Malay states, especially Pahang, should not delay in asking for a Resident' (HC, 4958:4).
Much of April and May 1885 was taken up with Swettenham's expedition up the Bernam River to explore a way over the mountain range to Pahang. He was accompanied part of the way by George Edward Giles, a military man and a gifted draughtsman. He left the expedition early owing to illness, but clearly stimulated Swettenham’s artistic interests. Swettenham found some relaxation in painting, for it is from this period in his career that most of his watercolours and sketches can be dated. They show skill and an acute awareness of topography, which was particularly important for someone so passionately devoted to building roads and railways.
By July 1885, scarcely more than 15 months after Swettenham had assumed his post in Perak, the beneficial impacts of his work were becoming evident. During a Muslim New Year feast at the Court House in Kuala Kangsar, with Malay chiefs present, Raja Idris, who was back from his visit to London and speaking on behalf of the chiefs, said how much they appreciated British administration. It is possible, though, that Raja Idris, responsible for this initiative in praising Swettenham, had an eye to the succession on the death of the ageing Yusof, when Swettenham's support would be important.
Smith, in his covering letter to Colonel Stanley, the Colonial Secretary, added:
Mr Swettenham has not unnaturally abstained from mentioning the laudatory remarks personal to himself which were made by Raja Idris and the Regent, but it is right I should state my belief that the ability and distinction with which he has discharged the duties of Acting Resident during the past sixteen months have been mainly instrumental in evoking so unprecedented an outburst of native feeling in connection with the Government of the country (Colonial Office [CO], 273/135).
Around that time, Swettenham submitted his Annual Report for Perak for 1884. Smith, forwarding it to Lord Derby in London, commented favourably:
I consider the Government of Perak has been most ably carried on by Mr Swettenham, who has unremittingly devoted his whole time and powers to its service, and whose official training, which has developed high administrative qualifications, has proved of marked advantage in dealing with the system of Government in its varied phases in a new country (Straits Times Daily, 5 June 1895).
The press, however, saw in his behaviour the shadow of future criticisms, which were to become strident in the early 1890s: 'The Resident is very much of an autocrat in his mode of governing.'
Swettenham left Kuala Kangsar on 11 January 1886 with a glowing letter from Low:
I beg to be permitted to express to you how much in my opinion the State of Perak is indebted to you for the manner in which you have advised this Government and conducted its affairs during the 22 months you have acted in my place (CO, 273/139).
Low enumerated Swettenham's achievements: the opening of the eight-mile Port Weld to Taiping railway, and extensive public buildings at Taiping, including commodious residences for the chief officers of government and a large new market. He praised the improvements in the design, the construction of the works, and the reduction in costs from earlier years. The roads in Larut were in good condition:
… and the Pass leading into the valley of the Perak River will form a beautiful and lasting memento of the ability and boldness which induced you to conceive and undertake (for Perak) so difficult and costly though necessary a work. At Kuala Kangsar, the town is of your creation, the foundations of its oldest buildings not having been laid two years ago, it is now a well-built town progressing quite as fast as did Thaipeng [Taiping] ... I cannot therefore but congratulate you on the success of your administration, and it will be a great pleasure to me to bring to the notice of His Excellency, Sir F. A. Weld who appointed you to the duties, the brilliant way in which you have carried out His Excellency's wishes, and the exceptional success of your administration (CO, 273/139).Swettenham reproduced the letter in its entirety many years later. Low continued in the same vein in his 1885 Annual Report on Perak:
The architectural pretensions of all the buildings undertaken by the advice of Mr Swettenham show a very great improvement in taste on those which were erected in the preceding years (HC, 4958:14).Low charitably drew attention to the fact that Swettenham had planned the museum under construction in Taiping, although It seems likely that this was in response to Low's specific instructions before he went on leave. Swettenham in time came to take some pride in the museum at Taiping, for years later as Resident General he strongly discouraged the development of a museum in Kuala Lumpur, on the grounds that the one in Taiping sufficed for the Federated Malay States. The museum at Taiping was to become for many years the outstanding institution of its kind in Malaya, attracting some of the most distinguished naturalists of the late 19th century in Southeast Asia.
I cannot conclude this report without recording the very great care and able manner in which Mr F. A. Swettenham exercised the function of Resident adviser to this Government, while I was absent in England for nearly two years. Although during that time he carried on more extensive works than had ever been undertaken, he left the financial position of the state in a better position by the sum of 302,353.86 silver dollars than it was on 1st January 1884.
When Swettenham was Acting Resident of Perak, 1884–1886, he pressed ahead on Low’s instructions with a new code of Land Regulations, which the State Council approved on 31 January 1885. The 1879 regulations had at least acknowledged, if only as an interim measure, the existence of native tenure, but the 1885 regulations, based on those which Swettenham had introduced in Selangor in 1882, abolished it. The problems that had developed in Selangor were repeated in Perak. The surveys, which were so essential to a lease form of tenure were woefully behind, and when carried out, were poorly done and inaccurate. Preference was given to revenue-producing tin areas. In many cases the survey and demarcation fees absorbed the quitrent for the first one and a half years. Eventually Swettenham admitted that there were cases when the survey fees exceeded the value of the land. The unsatisfactory land regulations that he had established in Selangor and Perak were replaced by the Torrens system of land registration.Personally, I am under the greatest obligations to Mr Swettenham; he ... has made the administration much easier for his successors by the regulations on various subjects which he drew up and caused to be drawn up during his tenure of office, and the order which he successfully introduced in every department (HC, 4958:75).
In my opinion Mr Swettenham is unquestionably the proper officer to succeed Sir Hugh Low. His experience of Perak is more extensive than that of any other officer in the service and I have entire confidence in his ability, powers of administration and discretion (CO, 273/155:429).Back in London, Lucas continued to press Swettenham's claims, and the appointment was in due course made. This exacerbated his rivalry with W. E. Maxwell, who pointed out he was senior and should get the position.
Federation
if it be possible, with the full consent and approval of the different rulers, to constitute a federation of these states, while preserving intact the privileges they possess, including the right of each state to pass its own laws . . . (CO, 273/203:331–3).Swettenham was to be responsible for ‘a most careful’ translation of the Treaty of Federation into Malay:
a task which I feel that I can with perfect safety commit to your care in the full certainty that all ambiguities or doubtful renderings of the English text which may give rise to the future difficulty will be by you avoided (CO, 273/203:331–3).Swettenham headed first for Sultan Idris of Perak: the ruler of the senior Residency, which was by far the most prosperous, and who had worked with Swettenham for the best part of 20 years. His support was crucial if the others were to sign. The Sultan signed at once after assurances were given by Swettenham that his powers would not be diminished. Swettenham then had no trouble in obtaining the agreement of the other three rulers. It was no doubt intentional that the precise details of these negotiations were never spelt out by Swettenham, but it rapidly became clear to Sultan Idris that he had been misled into signing the agreement for Federation, which sharply curtailed his own powers, in direct contravention of the terms of the Pangkor Engagement.
The first durbar, 1897
Nothing can be decided at the Council [of Rulers], which is only one of advice, for no Raja has any voice in the affairs of State, but his own; and this was carefully explained and is thoroughly understood (CO, 273/229:299).There was perhaps a note of relief in this remark, for in the preceding paragraph Swettenham had described Sultan Idris as ‘extremely jealous of his rights as a ruler; and I was surprised to hear the frank way in which, at the Council, he spoke of British Protection, which he did not hesitate to describe as control.' It was a foretaste of worse to come. Swettenham himself characteristically provided a favourable summing up of the first durbar:
From every point of view the meeting has been an unqualified success, and it is difficult to estimate now the present and prospective value of this unprecedented gathering of Malay Sultans, Rajas, and chiefs. Never in the history of Malaya has any such assemblage been even imagined (CO, 273/229:299).Only the previous year, Sultan Idris, as representative of the Federated Malay States at the coronation of King Edward VII, had toyed with the idea of registering his disapproval with developments direct to Joseph Chamberlain, Secretary of State for the Colonies. But this had been forestalled by Lucas visiting him in advance at his London hotel, to enquire 'what he wished to say in his forthcoming interview.' Idris reassured him: 'he [Idris] is not preferring complaints in any way’ (CO, 273/285:249). He realized that any such appeal would inevitably be referred to Singapore, and that Chamberlain would feel obliged to support Swettenham. A more effective protest could be made by addressing Swettenham personally in front of and with the support of his fellow rulers. Such an opportunity had last occurred in 1897. Idris had no intention of missing the next one.
The second durbar, 1903
... the present position of the Malay States under British Protection is to me a source of profound satisfaction. It has entirely justified the counsel of those, who nearly thirty years ago, insisted it was the duty of the British Government to interfere and put a stop to a state of anarchy and oppression which is happily almost inconceivable in view of what we see here and all around us today (HCO), 1404/1904).
I take this opportunity to emphasize a fact which the British Government has not forgotten and is not likely to forget. It is that though the circumstances demanded intervention, we came into the Malay States at the invitation of the Malay Rulers, to teach them a better form of administration (HCO, 1404/1904).
The Malays have in all this been great gainers, and I only regret that their national characteristics make it difficult, though not impossible for them to take full advantage of the opportunities which now come begging at their doors (HCO, 1404/1904).
Now I notice traders can go there with great facility making the journey in a day, reclining at ease in a railway carriage, smoking their cigars, and kept cool by the rush of air caused by the swift motion of the train (HCO, 1404/1904).
These states are now known as the negri-negri bersekutu (united countries) but the matter of union (persekutuan) I do not clearly understand ... which is the helper and which is the helped? A Malay proverb says there cannot be two masters to one vessel: neither can there be four rulers over one country (HCO, 1404/1904).
While I desire to offer my sincerest thanks to the Sultan for his over-flattering picture of the part I have played in the Malay States, I would ask you to remember that Sultan Idris is my personal friend, and in what he has said, he has spoken under the influence of friendship (Swettenham, 1907, p. 291).
A final irony?
Barlow, H. S. 1995. Swettenham. Kuala Lumpur: Southdene Sdn Bhd.
Cowan, C. D. 1951. (ed.), ‘Sir Frank Swettenham’s Perak Journals, 1874–1876’, Journal of the Malayan Branch of the Royal Asiatic Society, 24/4 (157), 1–148.
Lim, C. K. and H. S. Barlow. 1988. Frank Swettenham & George Giles Watercolours & Sketches of Malaya 1880–1894. Kuala Lumpur: The Malaysian–British Society.
Swettenham, F. A. 1907. British Malaya: An Account of the Origin and Progress of British Influence in Malaya. London: John Lane.