Britain, siam, and malaya 1875 1885

1. Britain, Siam, and Malaya: 1875-1885
Author(s): V. G. Kiernan
Source: The Journal of Modern History, Vol. 28, No. 1 (Mar., 1956), pp. 1-20
Published by: The University of Chicago Press
Stable URL: http://www.jstor.org/stable/1875783
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2. THE JOURNAL OF
M O D E R N H I S T O R Y
VolumeXXVIII MARCH 1956 NumberI
BRITAIN, SIAM, AND MALAYA: 1875-1885
V. G. KIERNAN
BETWEEN 1875 and 1885 Europe en- posts of Malacca and Penang on the
tered on its great modern period western coast of the Malay Peninsula
of empire building. Three already made up the "Straits Settlements." Lo-
establishedempires,British, French,and cal wealth, such as the coal of Tonking
Russian, were expanding their limits, and the tin of Malaya, lured them on,
while two new prospectors,Germanyand and in the backgroundwas the powerful
Italy, were appearingon the scene. Per- magnet of the markets of south China.
haps the most strikingsingle episodewas Neither rival couldmake a move without
Britain's occupation of Egypt in 1882; the other trying to forestallor counterit.
but the biggest area of competitionlay in Thus the British occupation of Upper
the Far East. Here a whole series of criti- Burma in 1886 was partly a reply to the
cal situations arose. There was a Russo- French seizure of Tonking, partly a
Chinese crisis in 1880, a Russo-British measureto keep French influenceout of
crisis in 1885. France,not yet the ally of Mandalay. From then on Siam was left
Russia but equally the enemy of Britain, as the only buffer state between them,
by entering Tonking involved herself in and the graveAnglo-Frenchcrisisof 1893
the undeclared war of 1883-85 with was not far away. But a keen competition
China, which at times threatened to for influenceat Bangkok had been going
involve Britain also. on for years before this.
In the vast region of Indochina the Siam was a country whose chances of
rivalry between Britain and France in- survival were still uncertain when King
tensified as their spheres of influence Mongkut, who had started it on the road
crept closer to each other. France, estab- to modernization,was succeededin 1868
lished since 1862 at Saigon, was pushing by his son Chulalongkorn.Apart-from
out westward and northward from Co- the domesticproblemsof an ill-knit and
chin-China and strengthening the pro- still largely feudal kingdom, there was
tectoratesshe had gained over Cambodia the pressureof France on the undefined
in 1867 and Annam in 1874. Britain's frontiersto the east, soon to be followed
bases were, on the west, Rangoon with by British pressure, less menacing but
Lower Burma, annexed in 1852, and on still unwelcome,on the south. Here Sia-
the south, Singapore,which with its out- mese suzerainty extended far down into
1

3. 2 V. G. KIERNAN
the Malay Peninsulawith its congeriesof become in 1896 the "Federated States"
small, feeble principalities. Where ex- of British Malaya.) Finally, at the bot-
actly it ended was hard to say, and when tom lay the big Malay state of Johore,
British ascendancy began to expand whichthroughits proximityto Singapore
northward from Singapore friction was had been coming under a degree of Brit-
bound to ensue. In addition, British ish influencesince the fifties.
Burma like Siam extended downward French colonial activity after 1871
into the peninsula; it incorporated the may be seen as a struggleto make up for
western coast as far as the narrowest ground lost in Europe to the Germans.
point, the Kra Isthmus. If Siamese British activity may be seen as connected
claims below this point should ever be fundamentallywith the trade depression
eliminated,it would be possible for Ran- that marked the closing decades of the
goon and Singaporeto be joined by one century. From 1874 to 1880 a Conserva-
continuousstretch of British territory-a tive governmentin England was moving
result that was never in fact to be quite toward the new philosophy of imperial-
achieved. ism; its successor,the Gladstoneministry
Apart from British possessions, the of 1880 to 1885, continued in the same
peninsula as it was about 1870 can be direction, though with more hesitation
divided for convenienceinto five zones. because liberalism believed in principle
Beginningfrom the north, along the east in the peaceful coexistenceof all nations
coast adjoiningthe British territory and great and small. Egypt provided the
then acrossthe whole width for some dis- grand test; but there were many others,
tance south of Kra was a region com- includingthe question of whether or not
posed of fiefs and provinces, such as to advance in Malaya. New Guinea of-
Senggora, essentially Siamese in alle- fered an analogous problem. Farther
giance and for the most part in culture. south in the Pacific the Australianswere
Next on the south came two states of a putting forward demands for annexa-
mixed Siamese and Malay characterbut tions that Lord Derby, colonialsecretary
under Siamese tutelage: Kedah, with its from 1882 to 1885, thought "mere rav-
dependancy of Perlis, on the west coast ing."' Gladstone agreed with him and
and Petani on the east. Thirdly, south- put the brakes on the annexationists
ward from Petani lay Kelantan and whereverhe could. But the men on the
Trengganu, Malay states regarded by spot were often too strong for the men in
the Siamese as being likewise subject to Downing Street. It was always the trump
them and by the British, or someof them, card of the former to show that some
as independent. (In 1909 Kedah, Perlis, other powerhad designson the area they
Kelantan, and Trengganu were to be- wanted to take; by this means the most
come, with Johore, the "Unfederated barren desert could be made irresistibly
States" of British Malaya.) Fourthly attractive. In the case of Malaya the
came a groupof four Malay principalities "otherpower" was easy to find.
which couldfairly be viewed as independ- Much of the peninsula underits petty
ent and could therefore be encroached 1 P. KNAPLTJND, Gladstone'sforeign policy (New
upon by Britain without direct injury to York, 1935), pp. 103-5, 107. Lord Derby, like Lord
Siam: on the east coast Pahang, and on Carnarvon, had resigned from the Tory adminis-
tration in 1878 as a protest against its adventurous
the west Perak, Selangor, and Negri foreign policy. One of his maxims was: "We don't
Sembilan. (These four were destined to want any more black men."

4. BRITAIN, SIAM, AND MALAYA: 1875-1885 3
chieftains was in a chronic state of dis- merchants to take the initiative and set
orderliness, easily depicted by critics as out to turn pipe dreams into realities.
"anarchy" which it would be a service to They were often keen young men like
civilization to step in and suppress. It Frank Swettenham, who came out in
was among the merchants of Singapore 1870 as a cadet and ended thirty years
that a desire for action of this kind first later as governor, men with a genuine
awakened. When they agitated for ad- appreciation of the qualities of the
ministrative separation from India-this Malay people, men who saw them-
was granted in 1867-one of their griev- selves as knights-errant ridding the land
ances was that the Indian authorities of feudal dragons.5 In his 1942 auto-
showed too little concern about Malaya. biography, near the close of a long life,
By the seventies there was much talk of Swettenham maintained that the Ma-
improving and expanding rubber cultiva- layan policy embarked on in 1874 was
tion there.2 The "Heaven-sent Chinese not inspired by mercantile greed but was
coolie" was iiT-great supply,3 and it was a genuinely "new departure" aimed at
no use for heaven to send him if there the well-being of the native peoples.6
was no one's pocket but his own for him There was enough truth in this view for
to fill. On the other hand, the business- it to be held sincerely by such men at the
men of Singapore were not proposing to time. Another of them, Major McNair,
invest in Malaya until their path was wrote in 1878: "It may be taken for
made straight for them by their govern- granted that amongst the more enlight-
ment. They were looking for guarantees ened Malays there is a disposition to wel-
of profits without risks, such as their come the English."7
unpopular Governor Ord brusquely re- There were obvious evils in the old
fused to give them in 1872. "British capi- Malaya, some of which could be put an
talists declined to risk even small sums in end to quickly by orderly administra-
the Malay States till years after the en- tion. Nonetheless, belief in a "civilising
terprise and industry of the Chinese had mission" always has its dangers, and
established and developed the mines, and keen young officers at Singapore, like
the Government had, in their experi- their cousins at Saigon, were not immune
mental plantations, proved the capabili- from the professional impulse to enlarge
I Swettenham was assistant resident in Selangor
ties of the soil." 4
(1874), secretary for Malay affairs (1877), resident
It was left then to off.cials rather than in Selangor (1882), resident in Perak (1889), resi-
2 See W. MAKEPEACE, G. E. BROOKE, and R. St. dent-general (1896), and governor of the Straits Set-
tlements (1901). On the oppressiveness of the old
J. BRADDELL(eds.), One hundredyears of Singapore
Malay society see B. LASKER, Human bondage in
(London, 1921), II, 91-96. Gutta-percha. had pre-
southeastAsia (Chapel Hill, 1950), pp. 99-102; and
ceded rubber and still drew much interest; see
for an American traveler's favorable impression of
J. CAMERON, Our tropical possessions in Malayan
Selangor in the early days of British tutelage, W. T.
India (London, 1865), pp. 157-60, and L. WRAY,
HORNADAY, Two years in thejungle (London; 1885),
"Gutta-producing trees," in Journal of the Royal
p. 310.
Asiatic Society, Straits Branch (hereafter cited as
6 Footprints in Malaya (London, 1942), pp. 30,
J.R.A.S.S.B.), XII (1884), 207. But tin and gold
were still the chief attractions; cf. D. D. DALY, 81; cf. Sir R. 0. WINSTEDT, Malaya and its history
"Metalliferous formation of the peninsula," ibid., II (London, 1950), pp. 64-65: complaints from Chinese
(1878), 195. merchants in the Straits, "not any grasping imperial-
ism," brought about the new policy.
3 Sir F. A. SWETTENHAM,British Malaya (Lon-
7F. McNAIR, Perak and the Malays (London,
don, 1906), p. 292.
1878), p. 415. He had gone to Perak as chief com-
4 Ibid., p. 262. missioner in 1875.

5. 4 V. G. KIERNAN
their sphere of action and multiply the brought under British control; it was
posts within their reach. Their ideas did welcomed by the big Chinese merchants
not pass unchallenged. In 1878 Sir P. of the colony, a factor of some weight, as
Benson Maxwellpublishedhis trenchant well as by the British.10
pamphlet, Our Malay conquests. ar- He Clarke himself was no fire-eater. He
gued that the alleged anarchy of the was to express a strong distaste for the
peninsulawas being exaggeratedin order "useless, expensive and demoralising
to inspirein new governorsof the Straits small wars" too often started by British
a sense of "a divine mission to improve administrators." Still, he had inserted
the Malays." And what was the motive the thin end of a long wedge. The French
behind all this restless meddling? "To took due note. When he paid a visit to
suppose that the country or Parliament Bangkok, the French consul there, Gar-
desired accretions to our Empire from nier, suspected him of angling for a rich
the mangrovesof the Malays is too ab- tin concession in Kelantan and Petani for
surd to raise a smile": it was simply the an English company. "Sir Andrew
cupidity of local interests and the ambi- Clarke," Garnier reported to Paris, "... a
tion of local officersthat were at work.8 reussi, pendant son sejour de moins de
Stamford Raffles, who started Singa- deux ans a Singapore, a faire passer sous
pore on its career,had been interestedin le protectorat de l'Angleterre, grace a
Malaya too, but this interest seemed to des dissensions intestines habilement ex-
have disappeared with him, and for many ploitees, quatre petites provinces ma-
decades knowledge of Malaya remained laises jusque-la ind'pendantes."'2 To the
scanty and indistinct. "But," a later en- governor of Cochin he wrote that the pol-
thusiast was to write, "though for a icy of Singapore was to swallow up the
while in the background,the dream of whole of Malaya.'3 Britain had now at
Raffles, the purpose of his successors, all events put herself in contact with the
was still alive. All that was requirednow Siamese sphere of influence, and Clarke's
was the man.... Good fortune sent Sir successor, Sir William Jervois, began by
Andrew Clarke."9This new governor, inviting T. G. Knox, British consul-gen-
appointed in 1873, came with instruc- eral at Bangkok, to visit Singapore for a
tions from the colonialofficeto take into discussion of Malayan affairs.
considerationthe disordersprevailing in Knox's report to London of this dis-
various of the states above Johore. The cussion reads oddly in the light of some
plan he adopted, in 1874, was to install of the official writings of a few years
residents-with not very clear advisory later. "As the Provinces tributary to
functions-in Negri Sembilan, Selangor, Siam especially those on the East coast
and Perak.His move was hailedwith sat- contrast favourably so far as good order
isfaction by the Straits chamberof com- and the material interest of their in-
merce, which declared that all the "so- 10 SWETTENHAM,British Malaya, p. 102; Lieu-
called independent states" ought to be tenant-General Sir Andrew Clarke, The Straits Set-
8 Sir P. Benson
tlements ("British Empire Series," Vol. I [London,
MAXWELL, Our Malay conquests
1899]), pp. 453, 460'.
- (London, 1878), pp. 5, 7, 51, 109-11. He had been
chief justice of the Straits Settlements. Cf. Lord 1CLARKE, pp. 451-52.
12 Archives des Affaires etrangeres, Paris, Direc-
Stanley of Alderley's protest against encroachments
in Malaya in the house of lords, May 19, 1874 tion politique, Siam, Vol. VII, No. 23, Consul Gar-
(Great Britain, 3 Hansard, CCXIX [1874], 467-78). nier to the Duc Decazes, Jan. 6, 1875.
9 MAKEPEAcE et al., I, 97. 13
Ibid., Garnier to Duperre, Mar. 25, 1875.

6. BRITAIN, SIAM, AND MALAYA: 1875-1885 5
habitants are concerned with those now Garnier, and details forwarded to Paris.)7
under British protection, His Excellency The Siamese government, for its part,
agreed with me that there was no neces- did not yet show much concern. When
sity to interfere with them." Knox did Knox requested on behalf of Singapore
no more than persuade the Siamese to that the states tributary to Siam and
alleviate some cramping trade monopo- bordering on Perak should be forbidden
lies in those regions.'4 Consul Garnier, to supply arms or-he admitted that
who was keeping his eye on the Straits Britain had no right to ask for this-give
Times organ of the Singapore business refuge to Britain's enemies, he was in-
community-and finding it alarmingly formed that orders to this effect had al-
annexationist, misinterpreted Knox's ready been issued by the kralahome.i8
journey: he took it for a move in a for- This great dignitary, a kind of Lord
ward policy fully endorsed by London. High Everything Else, was minister of
He had been told, he said, by the foreign war and of marine, and had charge of the
minister at Bangkok that Siam was fully western and peninsular provinces; Knox
aware of the British designs and deter- was inclined to give him the credit for
mined to resist them. Garnier was also what he regarded as the satisfactory con-
collecting information about the east dition of the latter.
coast states and heard that some of them Jervois' action in Perak was not ap-
had been flattered by Jervois' coming to proved by London; and after corre-
visit them early in his period of office. In spondence with him in 1876 Lord Car-
Trengganu the chief merchant was the narvon, the colonial secretary, refused to
sultan; Senggora was ruled by a Siamese enlarge the policy of influencing the na-
official, hereditary as Siamese officials tive states into one of occupying them.
tended to be, whom the British miscalled His final instructions were that residents
a "rajah." "Le Rajah de Kalantan, vieil- must confine themselves to giving ad-
lard spirituel et d'humeur joviale, inter- vice. At Singapore his attitude was felt to
dit a ses sujets le jeu et les combats de be absurdly academic: these instructions,
coqs."'5 the only ones ever issued from London
In the area where British residents had on the duties of residents, amounted-as
been posted and where several of them Swettenham was to complain-to telling
were awkwardly situated among warring a single man to reduce a turbulent state
factions, Jervois seems to have been in-
clined to go further and faster than 160n the episode of Birch's death and the Perak
Clarke; and when Birch, the resident in war see: Great Britain, Parliamentary papers, 1875,
Vol. LIII, Cmd. 1320; 1876, Vol. LIV, Cmd. 1505,
Perak, was murdered near the end of Cmd. 1510, and Cmd. 1512; 1877, Vol. LXI, Cmnd.
1875, Jervois sent a strong punitive ex- 1709, "Further correspondence as to the affairs of
pedition.'6 This affair too was noted by certain native states in the Malay peninsula." See
also Fraser's magazine, Dec. 1875, "The Malay out-
14 break" (unsigned; strongly interventionist); SWET-
Public Record Office, London, Foreign office
TENHAM, Footprints in Malaya, chaps. viii, ix;
records, Class 69, Siam, Vol. LXII (hereafter cited
A. WRIGHT and T. H,. REID, The Malay peninsula
as F.O. 69/62), No. 31, Knox to Lord Derby, Aug.
(London, 1912), pp. 130 ff.; V. PURCELL, The Chi-
24, 1875. Swettenham (British Malaya, p. 310) ad-
mits that Kedah at least was doing well. For an im- nese in Malaya (London, 1948), chap. v.
pression of its able ruler at that time see J. THOM- '7 Garnier to Decazes, Nov. 27, 1875, lOc. cit.,
SON, The straits of Malacca, Indo-China and China No. 34.
(London, 1875), p. 26. 18 Knox to Derby, Dec. 28, 1875, F.O. 69/62,
11Garnier to Decazes, Aug. 14, 1875, loc. cit. No. 41.

7. 6 V. G. KIERNAN
to order by pure tact."9In practice resi- Robinson, who never visited a Malay
dents took the risk of a reprimand,and state duringhis tenure of office,and then
set out to acquire effective control. By Frederick Weld, who held office from
1880Sir RichardTemple, a lately-retired 1880to 1887.He proved himselfthe man
governorof Bombay, was expecting that Singaporehad been waiting for. He de-
friction in Malaya between the "wild voted himself essentially to the Malayan
aborigines"and civilizationmight at any question and spent much time touring
moment lead to a fresh call, as in 1875, the peninsula. He would sometimes be
for Indian troops,20those maids-of-all- kept waiting for hours to interview a
workof the empire.The zealous Swetten- rulerwhile the latter finisheda gambling
ham was by this time convincedthat fur- bout.24This, and the gout he suffered
ther measureswould have to be taken in from, may have helped to fan his ardor
Perak, where the sultan who had been for a new dispensationin Malaya.
set up was not toeing the line.21
Swetten- The first new issue that drew his at-
ham was thinking about Siamese as well tention concerned Kedah. This state,
as Malay complications,since he was de- Perak's northernneighbor,had been in-
veloping the view-which he always vaded by the Siamese in 1821. At that
clung to later-that Siam's game was to time the East India Company, which
make up for her eastern losses to France earlierhad obtained Penang Island from
by pushing further south into Malaya, Kedah, did nothing to protect the state.
reckoning that Britain would not stop Some had consideredthis a betrayal, but
her for fear of France taking advantage Siam seemed formidablein those far-off
And French economic
of the situation.22 days: Anderson, the E.I.C. representa-
enterprise, usually more sluggish than tive, spoke of Siam's ruler as a Louis
British, showedsymptomsof unwelcome XIV.25Late in 1879 the rajah of Kedah
activity. A French "scientific mission" died, and Siam at once assertedher suze-
was on the scene in 1881, and one of its rainty by sending certain relatives of the
members wrote with enthusiasm about dead man to take chargeof the adminis-
Perak's minerals.23 Next year a French tration. Out of regardapparentlyfor the
company began tin mining. faint old British connection, the krala-
After Jervois there had been Sir C. F. home told Vice-Consul Newman at
'9 SWETTENHAM, British Malaya, p. 214; cf. H. L.
Bangkok that these individuals would
HALL, The colonial office.A history (London, 1937), consult with him on the affairsof Kedah,
pp. 240-43. See also in Parliamentarypapers, 1878-79, and explainedthat their function was to
Vol. LI, Cmd. 2410, "Instructions to the British resi- act as "protectorsand advisers" to the
dents and other papers relating to the protected
Malay states." On the progress of these states tunder Ths incident would seem to have
state.26
the residency system, which was soon felt in London 24 SWETTENHAM, Footprints in Malaya, p. 80; and
to be producing excellent results, see ibid., 1881, Vol.
LXV, Cmd. 3095, "Papers relating to the protected see the copious extracts from Weld's diaries and
letters in Alice M. FRASER (Lady Lovat), The Life
Malay states," and their continuations (1884, Cmd.
4192; 1887, Cmd. 4958; 1888, Cmd. 5566; 1889, of Sir Frederick Weld, a pioneer of empire (London,
Cmd. 5884). 1914).
26 Anderson's report is reproduced in a memoir of
20 Sir R. TJEMPLE, India in 1880 (Lonidon, 1880),
p. 418. 1882 by Swettenham, "An account of the origin and
21 "Some account of the independent states," in
progress of Siamese influence in the Malay peninsula
1785-1882," pp. 3-44, in F.O. 69/82.
J.R.A.S.S.B., VI (1880), 161 fF. 26 Newman's correspondence on this affair with
22SWETTENHAM, British Malaya, p. 324.
the kralahome and with the Straits government is in
23 DE LA CROIX, in J.R.A.S.S.B., VII, 1. F.O. 69/75.

8. BRITAIN, SIAM, AND MALAYA: 1875-1885 7
been in Weld's mind when he raised the relations instead of through the Siamese
whole question of peninsularpolicy in a consul at Penang. Thirdly, the Malays
dispatch to the colonial office in 1880. feared and resented this Siamese pres-
There were, he said, only three alterna- sure, though since the Kedah affair of
tives: to withdraw little by little from 1821 they had distrusted England's
Malaya, to annex, or "gradually and power or will to protect them from it.
gently" to acquire further influence. It Fourthly, Trengganu must be reckoned
was the third course that he advocated, an independent state, as Governor Cave-
andthe colonialofficeagreed:"moreinti- nagh had laid down in 1862-63; because
mate friendship"with the states was de- at that time Britain had made an armed
sirable, though no radical change should demonstration there without reference to
be pressed for, and there should be no Siam. Governor Ord was in error in 1867
interferenceunless the peace of Malaya in viewing Trengganu as a vassal of
were in jeopardy.27 Siam; the same applied to Kelantan and
By 1882 the time seemed ripe for an- Petani.28
other installment of friendship.Early in Weld asked W. G. Palgrave, who was
that year the ruler of Trengganu died; now the agent and consul-general at
the nobles elected one of his sons to suc- Bangkok, to protest against Siam's inter-
ceed him and notified Bangkok, and a ference in Trengganu, on the ground that
Siamesecommissioner was sent to induct the triennial offering from the state did
their nominee. This was regarded at not imply any political subordination.29
Singaporeas a challenge, and in March Palgrave made a visit to Singapore,
Swettenham, as secretary for Malay af- where he was not much impressed either
fairs, produced a classic memorandum, by what he heard or by Swettenham's
whichwas forwardedto Londonby Weld memoir, which he criticized freely in two
with high praise. Its argument may be dispatches to the foreign office on April
reduced to a few basic points. First 26. The king, he said, had lately told him
(though not most convincing) was the that Trengganu was "autonomous but
contention that the tribute offering of dependent," its foreign relations being
Bunga Mas [golden flowers] to Siam at controlled by Siam. To act as Weld de-
various times by Kedah, Perak, Treng- sired would deeply offend the Siamese.
ganu, Kelantan, and Petani did not More important still, these Malay states
prove vassalage on their part, for Siam were not strong enough to stand on their
herselfused to make the same offeringto Own, and if Britain ousted Siamese au-
China.Second,Siam had lately been tak- thority she would have to protect and
ing measuresto assert herselfin the west- ultimately to annex them herself. She
ern states and would have to be watched would thus be Dlaving the same game as
in the eastern states also, especially in 28 Swettenham's memoir (n. 25 above), and Weld
view of the Kra Canal project. Siamese to Kimberley, Confidential, Mar. 14, 1882, in F.O.
power was now absolute in Kedah, with 69/82. On Cavenagh's small bombardment of Treng-
ganu, see WRIGIIT and RiDm,pp. 146-48; and on the
which until lately Britain had had direct panic caused by it at Bangkok, M. M. LANDON,
27 Lord Kimberley (colonial secretary 1880-82) to Anna and the king of Siam (New York, 1943), chap.
Weld, Confidential, Feb. 11, 1881, copy with colonial xvii. French schemes for a canal across the Kra
office to foreign office, June 30, 1881, F.O. 69/82. Isthmus were among the complications of this period
Weld's dispatch to Kimberley, dated 21 Oct., 1880, which there is no space here to discuss.
is printed in A. M. FRASER, pp. 312-18. Weld had 29 Palgrave to Lord Granville (foreign secretary
lately visited Kedah. 1880-85), Apr. 26, 1882, F.O. 69/81, No. 30.

9. 8 V. G. KIERNAN
France-the press of Saigon was clamor- By this time a fresh and much more
ous, and Consul Harmand at Bangkok complicated and- vexatious issue had
was using "a tone of menacingdictator- arisen, that of the Perak boundary
ship"- and throwingaway the chanceof claim.
gaining Siam's confidence.30These ideas, Perak, first assistedby Britainin 1826,
passed on by the foreign office to Lord was no sooner brought under British
Kimberleyat the colonial office, carried tutelage in 1874 than it began asking for
conviction. Weld was informed that no help in recovering a piece of territory
protest was to be made about Trengganu, lost, it alleged,througha gradualdrifting
and nothing was to be done to disturb across the frontier of people from the
good relations with Siam.3" neighboringstate of Reman, which was
Bunga Mas continued to find its way part of Petani and was under Siam.33 At
from Trengganu to Bangkok. It ex- first this claim had not been taken very
pressed a form of political relationship seriously at Singapore.It was incapable
which had many analogies in the Far of verification, for, though immense
East-for instance in the connectionbe- pains werelater to be lavished on archae-
tween Korea and China-but which did ologicalevidence,the early boundariesof
not lend itself to Westernmodes of clas- the Malay states were not fixed lines; it
sification.Meanwhileon the British side would be as easy to draw maps of the
the incidenthad causedsomeunpleasant- sea's waves. By 1882the atmospherehad
ness because Palgrave's language when changed,and Singaporenow felt a call to
he was at Singaporeleft Weld laboring champion the rights of Perak-in much
underthe belief that they were in perfect the same way as Saigonwas championing
accord, and feelings were strained when the shadowy claims of Cambodiaon the
this proved to be a delusion. In Decem- easternmarchesof Siam.Perak'srevenue
ber Palgrave was writingprivately to an and population were rapidly expanding
acquaintance in the foreign office, with under British protection, and in the dis-
an aside from Tennyson about "venom- puted territory were valuable tin mines,
ous worms":"Ever since I frustrated Sir first opened it was said by a Malay of
F. Weld's attempt on Tringannu,he and Perak and since then the cause of much
his subordinates . .. have let go by no faction-fighting,largely among Chinese
opportunity of annoying me." The for- miners.There was also gold; and some at
eign office thought Palgrave to blame Singaporeconsideredthat to supportthe
and censured the disrespectful tone of Perak claim would be the simplest way
some of his letters to Weld;32Palgrave of getting at these minerals.34
was a person notoriously erratic and When, therefore, in April 1882 the
awkwardto deal with. rajah regent of Perak put the boundary
30Palgrave to Granville, F.O. 69/81, No. 30; and claim before Hugh Low, the distin-
No. 31, Confidential, Apr. 26, 1882. Visits to Singa- guished resident from 1877 to 1889, and
pore were also made by several Siamese princes
about this time (FRASER, pp. 336-42). 33 SWETTENHAM, British Malaya, pp. 313-14. As
31 Kimberley to Weld, Confidential, June 30, originally understood at London the Perak com-
1882; copy with C.O. to F.O., June 30, 1882, F.O. plaint was that Siam had never withdrawn as far as
69/82. she ought to have done under the treaty of 1826:
32 Weld to Kimberley, Confidential, Aug. 18,
Granville to Palgrave, Aug. 22, 1882, F.O. 69/80,
1882; copy with C.O. to F.O., Oct. 6, 1882, F.O. No. 51.
69/82; Palgrave to Jervoise, Dec. 22, 1882, ibid.; 34 W. E. MAXWELL, "Journey on foot to the
Granville to Palgrave, Nov. 14, 1882, F.O. 69/80, Patani frontier in 1876," in J.R.A.S.S.B., IX (1882),
No. 79. 1-69.

10. BRITAIN, SIAM, AND MALAYA: 1875-1885 9
Low took up the matter with alacrity, tin.""8 Even the canny investors at
GovernorWeld at once wrote to the colo- Singapore must have pricked up their
nial office requesting that tactful repre- ears at this.
sentations be made at Bangkok.35The With 1884, feelings began to be more
foreign office was approached in turn, seriously ruffled.In January the foreign
and in August it instructed Palgrave, in minister of Siam rejected Perak's claims
cautious terms, to smooth out the dis- in toto; they amounted by now to 2,300
pute and ascertain what frontier line square miles, and would enlarge Perak
Siam claimed. At the same time the for- by one third.89 Weld complainedloudly,
eign office admitted that the encroach- though he told Perak not to try to re-
ments alleged by Perak seemed to be occupy the area unless Siam's actions
antique and time-honored.36 should make this necessary. Low pre-
Palgravewas sailingfor home in Janu- pared a memorandum,urging that the
ary 1883, enfeebled in health and under area had been so misgovernedthat only
an official clkbud,leaving in charge the a bare thousand souls remainedin it. He
staid old Vice-ConsulNewman; and dur- and a member of the ruling family were
ing this year the Perak case made little about to make a pilgrimage to London
headway. Newman, who was primed with their evidence.4" Siam broughtup a
with data by Weld, reported that Siam new countercharge, that it was really
was trumping up a counterclaim along Perak subjects who were encroachingon
the Krian River on behalf of her protege tin mines in Reman.4' Weld, denying
Kedah against Perak. The king told him this, remarkedto the colonial officethat
in confidence,during an elephant drive, Siamese arguments must be received
that he meant to give way over the issue, with skepticism, as they had never had
but that he wouldhave to move carefully a resident officer in the area. "I lay no
for fear of encouragingsimilar demands stress at all," he added significantly,"on
from the French. Newman tried to meet the fact that it is rumoured that the
the difficulty by suggesting arbitration, Siamesehave spent money with a view to
with the governor of the Straits as um- create disturbances in Perak through
pire; not unnaturally the Siamese re- Chinese societies." On March 21 he for-
jected this as "a most dangerousprece- warded another ponderous broadside
dent." Later on, Bangkok announcedits from Low and emphasized the "very
intention of sending a commission, in- great importance"of the question.42 He
cluding an English employee named had brought out an eminent cartogra-
McCarthy, to survey the ground.37 An- pher, De Morgan-a Frenchman,rather
other surveyor,Mr. Drew, was being dis- curiously-to map the Perak valley.
patchedby Low to find a routefor a high- 38 A. T. DREW, "Exploring expedition,"
way to "tap the disputed territory" J.R.A.S.S.B., XIX (1887), 105 ff.
when recovered.Drew set off with thirty 3gNewman to Granville, Jan. 24, 1884, F.O.
porters through unknown labyrinths, 69/89, No. 5.
where he saw streams "simply a mass of 40 Weld to Satow (British agent at Bangkok),
Mar. 11, 1884; copy with Satow to Granville, Mar.
35Weldto Kimberley, No. 222, June 3, 1882; 20J 1884, F.O. 69/89, No. 8.
copy with C.O. to F.O., July 26, 1882, F.O. 69/82. 41 Satow to Granville, Mar. 20, 1884, F.O. 69/89,
36 Granville to Palgrave, Aug. 22, 1882, F.O. No. 9.
69/80, No. 51.
e Weld to Derby, Mar. 10, 1884, No. 91, and
87Newman to Granville, June 13, 1883, F.O. Mar. 21, 1884, No. 103; copies with C.O. to F.O.,
69/84, No. 49. Apr. 17 and 26, 1884,F.O. 69/92.

11. 10 V. G. KIERNAN
Weld himself was going to England, cating the same line as earlier, the advo-
leaving his colonial secretary. C. C. cacy of the man now in charge there was
Smith, as acting governor.On June 8 he bound to have much greater weight than
conferredat the foreign office with two that of the irresponsible and unbearable
senior permanent officials: Sir Julian Palgrave. Satow reached Bangkok on
Pauncefote, permanent under-secretary, March 6, fresh from a remarkable period
and Philip Currie,assistant under-secre- of service in Japan. He had especially ap-
tary, who was being put in charge of the plied for this new post, though inclined
A
case.43 suggestioncame up that a little to regret responsibilities that partly cut
ready cash might help to adjust things- him off from his darling studies.47 In his
"Perak can pay a handsome sum to new work Malayan complexities ap-
grease the Siamese wheels in yielding pealed to him more than anything else,
their claim."44 These confabulations and he was exactly the right man to cope
were broken in upon in July by a dis- with them.
patch from the new agent at Bangkok, He had leisure to master their details,
Ernest Satow. The latter was dubious as because the Perak case was moving slug-
to whetherPerak's losses could be shown gishly. Low reached London and on Au-
to have taken place since 1826, the date gust 9 conferred with the Siamese minis-
of the Anglo-Siamesetreaty relating to ter, whom he found evasive.48 He filled in
Perak. Was it even safe, he asked, to go his time by composing fresh memoranda,
back beyond 1874? Would not such full of antiquarian zeal, in a handwriting
"shadowy" and "antiquated" claims as impenetrable as a Malay jungle.
stimulate French claims in the name of Weld, now also in England, wrote in Oc-
Cambodia,and would they not seem to tober from Yorkshire to Lord Derby at
the Siamese to herald the partition of the colonial office: "I attach very great
their country?45 these queries the co- importance to this question, as the Ma-
To
lonial office rejoinedthat it could see no lays look upon it as a test of our power
connectionbetweenits policy and French and willingness to protect them, and the
revendications added that it did not measure of our influence must greatly de-
but
seek extreme measures and that Perak pend upon its solution."49 At the foreign
would pay full compensation.A6 office maps and documents were being
While the Bangkok agency was advo- assiduously compiled. Satow's views,
43 Note from Pauncefote to Currie, July 15, 1884,
however, continued to develop in the
F.O. 69/92. Sir Cecil Smith succeeded Weld as gov- contrary direction; and in December
ernor in 1887. after a visit to Singapore he wrote pri-
44 Memorandum by the Hon. R. H. Meade (as- vately to Currie:
sistant under-secretary at the C.O.), undated, F.O.
69/92. Cash compensation to Siam had been dis- I couldsee that generally
amongthe colonial
cussed first in 1883 by Low and Weld. officials there is a disposition to dispute the
46Satow to Granville, June 9, 1884, F.O. 69/89,
rights of Siam to the Malay peninsula, which
No. 35; copy sent with F.O. to C.O., Immediate and they justify by the apprehensions they have of
Confidential, July 23, 1884, F.O. 69/92. Cf. Satow's
letter to Weld of June 21, 1884, remarking that 46 CO. to F.O., Immediate and Confidential,
French claims in the name of Cambodia had led him July 25, 1884, F.O. 69/92.
to study the Perak claim afresh: "I cannot help com- 47 B. M. ALLEN, Right Hon. Sir Ernest Satow; a
ing to the conclusion that there is a close parallel memoir (London, 1933), p. 114.
between the two cases" (Public Record Office, Class 48 Memo
P.R.O., No. 30/33, the private papers of Sir Ernest by Low, and Low to Currie, Sept. 22,
Satow, Part 2 [hereafter cited as P.R.O. 30/33 (2)]). 1884, F.O. 69/93.
Satow was promoted to minister in 1885. 49 Weld to Derby, Oct. 1884, F.O. 69/93.

12. BRITAIN, SIAM, AND MALAYA: 1875-1885 11
Frenchencroachments there. Sir F. Weld in par- some of the members of council (at
ticular thinks the French are hankering after Singapore) want to turn us out of the
Siam proper, and fears that when they have
swallowed her up, they will forestall us in the Malay peninsula." Thereupon he sent
Peninsula. However, from all I have read and off another long private letter to Currie.
heard, I think that France does not contem- He wrote:
plate annexing the valley of the Menam. They I am not far wrong when I say that Sir F.
always recognise that our interests are too Weld looks to the ultimate absorptionof Siam
strong here. What they do want is to take the by France, and thinks it would be politic to
valley of the Mekong.... I consequently be- forestall them in any possible designs on the
lieve Sir F. Weld's apprehensions to be un- Malay States of Siam; that we ought in fact to
founded, at least as far as the present is con- secure the reversion of that part of the in-
cerned,and that we need be in no great hurry to heritance. For my own part I do not believe the
snatch at our share of the spoils. It is more im- French would touch Bangkok if they were not
portant I venture to think that we should en- provoked. Siam proper they will keep their
deavour to inspire Siam with confidencein our hands off, unless they want to quarrelseriously.
intentions.If the policy is to keep her as a buffer Our trade here and that of the Germansis very
between ourselvesand Asiatic France, it would large. Much larger than what the Annual Re-
be suicidal to nibble at her territoryor weaken turns show, owing to the systematic underrating
her prestige with her tributaries. I find Singa- of imports. I see that Lord Kimberley wrote
pore disposedto contest the Suzeraintyof Siam very strongly to Singaporein formeryears, dis-
over Kelantan and Trengganu in the Malay approvingof attempts at furtherextension,but
Peninsula, and may perhaps have to write of- despatchesare easily forgotten,and they want a
ficially, if the representationsI have privately reminderdown in the Straits. Colonial people
made to the Acting Governor and Colonial all over the world seem to be bitten with the
Secretaryhave no effect.50 mania of annexingat the expense of the British
Singapore was unrepentant. Another taxpayer, and even the general at Hongkong
took an opportunity the other day when Sir
of its side lines at present was Pahang, Geo. Bowen was away of advising the annexa-
where Cecil Smith and Swettenham were tion of a good slice behind Hongkong.52
trying to get the ruler to swallow a treaty
with Britain.5' They had made a conces- Next day, on the twenty-third of Jan-
sion to Siam this year by agreeing not to uary 1885, Satow put his views into an
let gunpowder be exported to Siamese official dispatch by agreement with
territory without license from the Sia- Smith who was also writing to London
mese consul; now, asserting once more about gunpowder and Trengganu, so
that Trengganu was independent, they that the government could have both
decided that gunpowder could be sold to sides of the case before it. Smith's view
that state without restriction. Satow of it was simple. Did we want to see
found that the Siamese were "sore" Siamese influence in Malaya strength-
about this, and while he was at Singapore ened or did we not? "In the cause of hu-
he fruitlessly urged the authorities to manity and good order in the Peninsula,
give way over this issue. After his return, it will be prudent to weaken and not
King Chulalongkorn's private secretary 52Satow to Currie, Jan. 22, 1885, F.O. 69/99.
Lord Kimberley had been colonial secretaryin 1870-
remarked to Satow that "Mr. Smith and 74 as well as 1880-82. Cf. Satow's remark in a later
dispatch about the debates of the Singapore legisla-
'0 Satow to Currie, Dec. 23, 1884, F.O. 69/90. tive council being published in the local press and
61 The ruler of this state was not brought into "eagerly scrutinized by those members of the Sia-
line until 1887; see text of agreement of Oct. 8, 1887, mese government who are acquainted with the Eng-
in Parliamentarypapers, 1888, Vol. LXXIII, Cmd. lish language, in orderto discover anything that may
5352, and W. LINEHAM, "History of Pahang," in appear to affect the interests of the King" (Satow to
Journal of the Royal Asiatic Society, Malayan Salisbury, Feb. 22, 1887, Confidential, F.O. 69/115,
Branch, Vol. XIV (1936), Part 2, pp. 102-57. No. 18).

13. 12 V. G. KIERNAN
strengthenthat influence."Siamesecom- dependent.This is a policy which admits
missionerswere "corruptto the highest of no half-measures. cannotbe success-
It
degree," and sooner or later their rule fully carried out by supporting Siam in
must provoke revolts. He enclosed a one directionand by endeavouring the
at
letter from a subordinate, which made same time to undermineher in another."
the point that steamships were enabling Many Siamese functionariesin Malaya
Siam to intermeddlein Malayan affairs might indeed have been corrupt, but
more frequently than in earlierdays.53 they had all been underlingsof the for-
Satow, whom Smith had suppliedwith mer regent, and if the royal reforms in
a copy of his dispatch, wrote: "I under- Siam prospered, administration in the
stand that it is not desired by Her Ma- peninsularprovincesalso wouldimprove.
jesty's Indian Government that the Kelantan and Trengganu, he ended by
frontiers of Her Majesty's Indian Em- repeatingonce more, belongedto Siam.54
pire should become coterminous with Whilst the rival theses were on their
those of French Indo-China and that way to London, the Siamese minister
consequently the maintenance of Siam there lodged a complaint about the gun-
as an independentpoweris of paramount powder business and said that a great
importance,in comparisonwith the ex- quantity of powder was finding its way
tension of British influenceover the Ma- through the Petani hills, and into Pa-
lay States interveningbetween Province hang, for no good purposes.55 Bangkok
Wellesleyand LowerBurmah.The latter followed this up at the end of February
operation would indeed alone become by announcingthat it meant to forbid,
feasible by the disruptionof the Siamese as it was authorizedby treaty to do, all
Kingdom, with which certain of these imports of arms and powder into Siam.
States are absolutely incorporated."If England did not relish this reprisal but
Siam was to survive she must consolidate did not try to obstruct it;56 and when
her influenceover her dependencies;this Satow's dispatch arrived, a suitable im-
she could not do unless Britain took up a portance was attached to it, as the min-
benevolent attitude. Siamese leaders, utes on it show, and consultation was
naturally supposingthe policy of Singa- opened with other departments.A fresh
pore to be the policy of London, had blast of the Singapore trumpet was
grown distrustful; particularlythe anti- soundedby Weld (who had now reached,
progressive wing lately headed by the Dorset) in a letter of March 12 to the
formerregent. The king himself was still colonial office. He insisted that in 1821
sound, but even in his entourage sus- by failing to protect Kedah Britain had
picion of Britain was rife. Smith ap- acted "weakly and I might almost say
peared to think that motives of human- "Ibid.; cf. Satow to D. M. Wallace, private sec-
ity requiredthe British to take chargeof retary to the governor-general of India, Mar. 14,
Trengganu: the same excellent motives 1885: "I want Siam to feel that she is quite safe on
the side of Great Britain.... I look on Siam as an
might very well prescribethe taking over important outwork, and consider it would be dis-
of Siam altogether. But the British gov- astrous to withdraw within our own lines and to give
ernment, "I venture to think, desire up the hope of defending her" (P.R.O. 30/33 [2]).
rather to see Siam strong, united and in- 55H. R. H. Prince Krom Mun Naresrajawararid-
hi (who had succeeded Prince Prisdang at London at
63 Satow to Granville, Confidential, Jan. 23, 1885, the end of 1883) to Granville, Feb. 4, 1885, F.O.
with copy of Smith's dispatch, F.O. 69/99, No. 13; 69/102. He was one of the king's many brothers.
cf. Smith to Satow, private, Jan. 5, 1885, P.R.O. 6Satow to Granville, Feb. 28, 1885, F.O. 69/99,
30/33 (2). No. 27, and June 16, 1885, F.O. 69/100, No. 56.

14. BRITAIN, SIAM, AND MALAYA: 1875-1885 13
treacherously," and unwisely also, for of the classical policy, minuted: "When
the omission was still rememberedand I wrote against further annexations the
condemnedby Malay opinion.If Britain French did not threaten Siam. Speaking
failed now to protect Perak for fear of generally I should now be disposed to
driving Siam into the arms of France, it argue with Sir F. Weld and to securethe
would be the same over again. The In- reversion.I have no faith in Siam being
dian empire was drifting into the same kept long out of French hands." And in
state as the continental powers, always April he wrote formally on behalf of the
armedto the teeth yet always in dreadof India office that, while appreciatingthe
attack; keen vigilance was necessary. advantage of keeping Siam independent,
Three years before, he recalled, he had he judged it inexpedient to strengthen
pointed to movements of French and the Siameseconnectionwith Malaya. He
Russian warships in Malayan waters, would not offend Bangkok just now by
which were calculated to impressnative upsetting the status quo, but on the
opinion. Britain must establish such a whole he was on the side of Singapore.58
grip on the peninsula that the French Five days later was received a confi-
could not dream of dislodging it even if dential report on Indo-China for which
they absorbedSiam. Of what use was it the foreignofficehad asked Holt Hallett,
to talk of propping up Siam? Britain a fellow-explorer the well-knowntrav-
of
could do nothing for Siam unless by eler (and all-roundannexationist) A. R.
"makingit an Eastern Afghanistan,and Colquhoun.Hallett gave it as his opinion
further,by going to war, if necessary,"to that the four Malay states still tributary
protect it. Failing that, it was inconceiv- to Siam could not expect any real help
able that Siam, and whatever Siam from her. "Annexation is becoming a
might have held on to in the peninsula, rage in this part of the world, and any
shouldnot fall underFrance."Moreover, day these States might be annexed by
in 'backing'Siam, we are backing one of Germany or France." If Britain took
the weakest, and, in its outlying Malay them it would be usefully linking up
Provincesat least, one of the most corrupt, British Burma with the Straits and
tyrannical and profligate Governments thwartingthe Frenchhope of interposing
in the world." To give way over Perak, a Kra Canal.At present they were "hav-
he wound up, would lose Britain the re- ing their fetters tightened by Siam," if
spect of Siamese as well as of Malays; only "graduallyand slyly." Hallett was
they would have more regardfor French surveying much wider horizons than
vigorthan forBritish gentleness."Be just these. He proposedthat England should
and firm,"was his policy with backward dictate a generalpartition of Indo-China
peoples. "Such is the result of my study on lines that would give it nine million
of native races."57 had studied them
(He new subjects and France only one and a
chiefly during his dealings, military and half millions-"It is better to keep the
otherwise,with the Maoris, while minis- possible French recruiting-ground in
ter for native affairsin New Zealand.) Indo-China as small as we can." Thus
Weld did not stand alone. Lord Kim- the far eastern armies of Russia and
berley,consultedabout his old statement Francewould be kept apart; the war, in-
evitable if France attacked Upper Bur-
E7 Weldto Derby,Mar. 12, 1885;copy with C.O.
to F.O., Confidential,
Mar. 19, 1885, F.O. 69/103. 58 Minute by Kimberley (secretary for India,
"Justandfirm'} recurs the eulogyof Weldin G. H. 1882-85), Mar. 25, 1885, F.O. 69/99; and India
in
A
Scholefield's dictionary New Zealand
of biography. office to foreign office, Apr. 15, 1885, F.O. 69/103.

15. 14 V. G. KIERNAN
ma, wouldbe averted;and Britain would Siamese as far down as Ligor. That the
be left with the only good route into non-Malaystates of those regions,at any
South China. rate, were subject to Bangkok was per-
Hallett's call was, in short, for "a firm fectly certain. Weld was anxious to have
and complete policy." For such policies enough control over the peninsula to be
whenpracticedby other countrieshe had able to warn off the French if they took
quite a differenteye. "Let us hope for the Siam. But since part of Siam properlay
sake of all parties," he told the London in the peninsula to keep out the French
chamber of commerce, "that the insane in that case nothing less than a full pro-
earth-hunger the Frenchin this part of tectorate would be needed. To gain this,
of
the worldwill now be quelled,and a deaf Britain would have to do what France
ear turned to the misleadingsongs of the was suspected of meaning to do. "It is
officialsirensof FrenchCochin-China."59 we who are to inaugurate a policy, the
It was a good instance of the inability of only result of which will be the partition
empirebuildersto see themselvesas they of Siam." The claims made on behalf of
saw one another. Perak would not meet Britain's alleged
On May 6 the colonial office ranged need for security: they left hundreds of
itself alongside of the India office, and miles of the northern peninsula still
the foreignofficethen formulatedits de- unaccountedfor. Those miles could not
cisions in a dispatch to Satow of May be covered without a good deal of local
25.60 It was desirable, it laid down, to fighting.Even Britain'spresent status in
keep Siam independentand friendly,but Perak had required"a little war." "Our
Britain in view of her "specialinterests" past experiencemust lead us to believe
in the peninsulacould not allow the con- that English administrationis not every-
nection between Siam and any Malay wherewelcomedwith enthusiasmby the
state to strengthenitself; and while there native inhabitants. If we have been so
was no intention at present of disturbing fortunate as to obtain their consent in
the status quo, the programof Weld and the first instance by pacific methods, we
Smith was the one to be pursued. have always had to encounter their
Controversymight now have been ex- armed resistance afterwards,to conquer
pected to end; but Satow, though iso- their obedience and to chastise them
lated, was undaunted, and when a copy sorely before they have accepted the
of Weld's letter of March was sent to good we intended for them.'' Besides all
him he answeredit in a lengthy and mas- this, it would be an errorto supposethat
terly commentarywhich showshis quali- Siam would "quietly submit to see some
ties at their best. of her subjects transferred to another
It was, he began by pointing out, a power." And every step taken would be
delusion to describeeverything between followedby a step on the part of France,
British Burma and the Straits as "Ma- until the two nations fell into a race for
lay." North of Satun, along the west territory. Satow went on:
coast, the population was more Chinese
For my part, if this thing is to be done at all,
than anything else; on the east it was I see no reason why we should content ourselves
59Report, and copy of speech (printed in Chacm- with the Peninsula, which beyond its tin de-
berof commercejournal, Supplement of May 5, 1885), posits possesses no resources of importance..Its
in F.O. 69/103. population is so small that without the influx of
60 C,O, to F.O., May 6, 1885, F.O. 69/103; a large number of Chinese, the country can
Granvilleto Satow,May 25, 1885, F.O. 69/98. never be properly developed. Experience teaches

16. BRITAIN, SIAM, AND MALAYA: 1875-1885 15
us that the peopling of tropical lands under our currence of the officials of British Bur-
rule by Chinese tends more to the enrichment of mah and the Straits Settlements is neces-
the Yellow Races than to the advantage of the
European.. The delta of the Menam river, sary."61
on the other hand, extending for hundreds of Weld replied to this in his turn, pro-
miles in every direction round Bangkok, is ex- testing with a shade of unreality that
tremely fertile and thickly populated, is capable Satow was only looking at the Perak
of yielding an enormous surplus of rice, to say claim from the standpoint of utility, he
nothing of other produce, and the river itself is
the highway by which the teak-rafts of the north of justice. To keep the French off Ma-
are floated down to the sea.... If we are to laya, he maintained,no full protectorate
look forward to a division of Siam and her sub- would be required. They would never
ject territories between England and France, have let Britain meddle in Tonking,
why should we abandon the most valuable por- where they had much less than a pro-
tion to our rivals, and allow our extensive trade
to be exposed to the burdens which would be tectorate to justify them. And was it
imposed on it by the commercial jealousy of really the case that so much resistance
another nation? The difficulty of annexing the need be fearedfrom the natives we were
Menam valley as well as the Peninsula would going to protect? "It is true that some
not be much greater than that of the latter
alone, and the Northern Laos states would also
years ago we had a 'little war' in Perak.
become ours by natural gravitation. We should but that was when the Malays did not
thus be making a really valuable acquisition, know us." Tact and careshouldno doubt
instead of abandoning to others the profitable be practiced,but after all the British had
portion of the carcass, while reserving to our- their Sikhs and their mountain guns to
selves nothing but the offal.
fall back on. Satow, again, was unfairly
He made it clear that he was not pro- contrasting the material possibilities of
posing, as Weld seemed to think, a Brit- Siam and Malaya: Perak alone had a
ish guaranteeof Siam. There could be no bigger trade than all Siam.62Weld re-
guaranteeingunknown frontiers, and to ceived from Smith a paper composedby
embarkon any such plan wouldmake an- the Straits attorney-general, Hon. T.
nexation only a question of time. "The Braddell, who had been out since 1843.
Siameseshouldnot, in my opinion,be led Senggora, according to Braddell, might
to expect from us more than a merely indeed be reckoned a Siamese province,
moral support in their relations with and Petani had lately been reduced to
other foreign powers. The King should one. There Siameseinfluenceshould end;
learn that 'every herring must hang by and the best plan would be a partition
its own head,' and I have reason to be- into -two spheres, leaving all the purely
lieve that he is contented to rely on his Malay regions of the peninsula to Brit-
own efforts."France,for her part, would ain.63 Singapore,Smith was earmark-
At
long be occupiedin Tonking. What was ing $2,500.00 in next year's budget for
requisitewas simply that Britain should exploringunknownMalaya.64
gain the confidenceof the Siamese gov- 61Satow, memo on the Malayan question,June
ernment, keep in touch through it with 20, 1885, F.O. 69/103.
the progressof Frenchdesigns,and so be 62Memo on the foregoing,with C.O. to F.O.,
always ready for action. "The policy I Pressing,Oct. 29, 1885, F.O. 69/104.
advocate is that of carefully avoiding 63 Braddellto Swettenham,Mar. 12, 1885;with
C.O. to F.O., July 8, 1885,F.O. 69/104.
any step that might lead the King to
64 Smith to ColonelStanley (colonialsecretary),
suspect that we desire to deprive him of Confidential,Sept.30, 1885;copywith C.O.to F.O.,
territory , . , and in this the hearty con- Nov. 10,1885, F.O. 69/104.

17. 16 V. G. KIERNAN
While the controversy raged, there ney their English Secretarywho is a silly
was still the Perak boundarycase to add mischievousfellow encouragesthem. On
its complications. Perak State, with the whole I think a little bullying would
British support, was still pressing for do them good." Yet now when it came to
restitution of the territory said to have the point, he could not help wondering
been taken from it by Siamese-protected whether the issue was important enough
Reman. On April 8 the foreign office in to warrant a quarrel with Siam that
London wrote to Prince Nares, the Sia- would afford France so useful a prece-
mese minister, that it was desirous of a dent. What decided him in favor of tak-
friendly settlement as soon as might be; ing the risk was the shibboleth of pres-
on July 10 he had an interviewwith Lord tige. Weld had persuaded a good many
Salisbury,who had lately replacedLord people that in taking up Perak's case
Granvilleas foreign secretary.65 Au-
On Britain had staked her prestige in the
gust 11 the colonial office expressed the peninsula: there could be no drawing
opinion that it was time to insist: Siam back.68
mustgive up the territory,but by way of Nares went on stonewalling; and at
compensationfor it, since it had been oc- Bangkok, when the foreign minister
cupied for so long by her vassal Reman, Prince Devawongse was asked to accept
Perak should offer to pay a lump sum. a cash payment from Perak and restore
Nares was accordinglyinvited to discuss the territory claimedby the latter, "His
with Low, the Perak resident who had Royal Highness answered that they
come to Englandto press the matter, the would not be able to consent to the pro-
amount of money that Siam might ac- posal as it would be a bad example to
cept from Perak on behalf of Reman in France." Satow tried to counter this by
returnfor the restitution of the disputed remarking that Kergaradec, who was
territory.66Four days later Low called on now the French representativeat Bang-
the prince,whom he found not at all dis- kok, disclaimedany designs on Siamese
posed to have matters thus unceremoni- territory;to which Devawongse rejoined
ously settled. An Englishemployeeof the that the ministry of the moment in Paris
legation, Edgecumbe, gave Low to un- might have no evil designs, but things
derstand that Siam was fearful lest might easily changeagain.69Low went on
Frenchencroachments shouldfollow and trying to shake up Nares. and Currie
wouldlike a quidpro quoin the shapeof a went on calling for action: he had
promise of British support.67 adopted Weld's conviction that the Sia-
Currie,the foreignofficeman in charge mese would respect Britain more if it
of the case, reflected that Nares would took a firm line, and he wanted Lord
apparentlyhave to be pressedhard and Salisbury to tell Nares that an immedi-
madeto realizethatBritainintendedto get ate settlement was essential if good rela-
what it wanted: "The Siamese have got tions were to be preserved.70
very presumptuousof late and Mr. Ver-
68Memo by Currie, Aug. 27, 1885, F.O. 69/104.
65Granville to Prince Nares, Apr. 8, 1885, F.O. 69Nares to Salisbury, Sept. 30, 1885, F.O. 69/102;
69/102; memo by Nares, ibid. Satow to Salisbury, Oct. 3, 1885, F.O. 69/100, No.
66 C.O. to F.O., Aug. 11, 1885, F.O. 69/104; Salis- 86.
bury to Nares, Aug. 22, 1885, F.O. 69/102. 70 Low to Currie, Oct. 16, 1885, F.O. 69/104;
67Note by W. A. C. [Cockerell], Aug. 26, 1885, minute by Currie on enclosures with C.O. to F.O.,
F.O. 69/104. Oct. 29, 1885, KO. 69/104.

18. BRITAIN, SIAM, AND MALAYA: 1875-1885 17
Salisbury declined this advice, pre- altered:"Thegameis up," he commented
ferring to wait and see how the new philosophically,"andthe Boundaryques-
French government would behave over tion is one of those cases of which the
Malaya. He had already refused to take present generation of officials will hear
Currie'stalk of prestige very seriously, nothing further."74 Smith was being
showinga robust indifference what the transferred to Ceylon; Weld was less
to
"wildaborigines"of Malaya might think ready to admit defeat. He returned to
about Britain. Also, he had foreseen his post late in 1885, and in February
ticklish diplomatic encounters with the 1886visited Perak and had one of his fits
French in Upper Burma and wanted to of gout. On March 14 when he inter-
get these cleared out of the way rather viewed the kralahome,who was also on a
than "fight over this bit of desert.""7His visit to the peninsula, Weld complained
attitude was reinforcedin Septemberby loudly about alleged ill-treatment of
a remarkablechange of front on the part some Perak traders.75 had much to He
of the Indiad ofice. Lord Randolph say in his dispatches about these and
Churchill, who was now in the saddle other Siamese "outrages,"which he said
there, had been putting himself abreast might provoke a Malay rising.76He
of affairs and while doing so had come maintainedthat Britain had been put in
across Satow's memorandumof June 20 "a most contemptible position," and
and been deeply impressed by it. He that the Perak question must not be al-
asked the foreign office to addressan in- lowed to slumber.77
quiry to the India officeas to whetherits By this time the Liberalshad returned
views were the same as before the fall of to power.The colonialoffice,now headed
the Liberal ministry iD June. He then by Lord Granville, rejected Weld's sug-
formally pronouncedthat he considered gestions of active measures and warned
Satow to be right and that Siam ought to him to "observethe utmost discretion."78
be given a general support and not 74Smith to Satow, Private, Oct. 30,1885, P.R.O.
threatened with any loss of territory.72 30/33 (2).
Next the foreign office inquired from 71 C.O. to F.O., Apr. 26, 1886, F.O. 69/112, en-
the colonial officewhether it still wished closes Weld's report of the interview, dated Mar. 17,
to insist about Perak. Colonel Stanley, 1886, and C.O. memoranda on it. Satow pointed out
that the kralahome was inclined to be obstructive in
the new minister, stood by the former peninsular matters because he was on bad terms
line, though he added-without explain- with the king and disliked the royal policy of cen-
ing how it was to be done-that the tralization (Satow to Weld, Nov. 14, 1885, P.R.O.
30/33 [2]).
Perak problem ought to be kept apart
76 Weld to E. H. Trench, acting charg6 at Bang-
from the general'question of Malayan kok, Confidential, Mar. 17, 1886, P.R.O. 30/33 (2).
policy.73 But Smith at Singapore was Some of Weld's letters of this year are printed in
quick to realize how much things had A. M. Fraser (pp. 383-87). An instance of how far he
carried his conviction of Siamese villainy was his be-
71Minutes by Salisbury on those of Currie re- lief that they poisoned first the son of the rajah of
ferred to above. In April 1885 the expansionist Reman, and then the old rajah himself, for being too
French government headed by Jules Ferry fell, friendly to the British; see Weld to Newman, Dec.
owing to a reverse in Tonking, and the more pacific 31, 1883, and Weld to Satow, Jan. 24, 1887, in
Freycinet became foreign minister. P.R.O. 30/33 (2).
72I.O. to F.O., Confidential, Sept. 17, 1885, F.O. 77 Weld to Satow, Private, Mar. 25, 1886, P.R.O.
69/104. 30/33 (2).
73 C.O. to F.O., Pressing, Oct. 29, 1885, F.O. 78 Granville to Weld, Confidential, Apr. 30, 1886;
69/104. copy with C.O.to F.O.,May 19, 1886,F.O. 69/112.

19. 18 V. G. KIERNAN
It did however propose to take up the that Swettenham "appears sensible and
Perak claimafresh,and, when the foreign moderatein his views, and does not con-
officeshowedreluctance,emphasized that sider the claim of Perak a very strong
its general opinion on the case was still one.... He confirmed my impression
unchanged.79 Part of the foreign office's that Sir F. Weld and Sir H. Low were
unwillingness to go further must have rather inclined to try and bring matters
been inspiredby distrust of Weld, whose to a crisis, which he thought unwise."83
language was too often inflammatory. So of course did Satow, who warned,
Satow reportedthat he had to take care Weld that the Frenchchargeat Bangkok..
not to let Weld and the Siameseknow of would be delighted to see the Perak
one another's more violent utterances, claim enforced because that would give
and Lord Rosebery as foreign secretary Francea pretext for similaraction. "The
noted: "Sir F. Weld is evidently an in- Siamese," he added, "believe that it is
temperate official, and is not to be your policy, as they-havefrequentlysaid
trusted to carry on negotiations. He to me, to turn them out of the Malay
should be snubbed by the C.O."80 Told states. That is why they will resist to the
of this unofficiallythe colonial office re- uttermost the first beginnings.'84
plied that Weld was indeed intemperate, Captain Verney of the Siamese lega-
"but we have already pulled him up tion in London suggested in talks with
short . . . he by this time has got our Swettenham that. the disputed area
plain directionsto keep a civil tongue in might be administeredby Perak under
his head."'81The foreign office was fur- Siamese sovereignty, much as Cyprus
ther assured that the culprit would be had been abandonedby Turkey to Brit-
kept well in hand and not allowed to go ish administration.88 Before the end of
on fromPerak to furtherexpansionism at 1886 Satow was:trying to get Siam to
Siam's expense.82 agree to lease the territory to Perak for
Low had returned to Malaya, and twenty years in return for money pay-.
Swettenham replaced him as Perak's ments. Prince Devawongse talked dis-
spokesman in London. Currie reported couraginglyof French repercussions and
79 C.O. to F.O., Apr. 6, 1886; F.O. to C.O., Con- of the bad habit of British-leased areas
fidential, May 8, 1886; C.O. to FO., Confidential, like Penang of turning into British pos-
May 20, 1886, F.O. 69/112. sessions.King Chulalongkorn not re-
was
80Satow to Rosebery, Confidential, May 19,
1886, No. 42, and minute, F.O. 69/109.
assuredby the precedent of Cyprus and
81 R. H. Meade to Currie, Private, July 19, 1886, was evasive when Satow interviewed
F.O. 69/109. Meade added: "I have been anxious him.86 councilmeetingpresidedover by
A
not to supply Satow and Weld too freely with copies the king in March 1887was adverse,and
of each other's despatches so that these Potentates
might not quarrel more than is necessary from the
Satow told Devawongse how much he
high positions they respectively occupy." But the regretted that friendly relations "should
private letters between Satow and Singapore were in thus be endangeredby the unwillingness
a more good-humored vein. Smith was on cordial
terms with him as well as with Weld, and even the 83 Memo by Currie, Apr. 28, 1886, F.O. 69/112.
latter could scribble playfully in the margin of a dis- 84 Satow to Weld, July 20, 1886, P.R.O. 30/33 (2).
patch informing Satow that he was about to visit
Malaya: "I will do nothing to embarrass the Siamese 85 C.O. to F.O., May 31, 1886, with memoranda
(so don't be alarmed!!)" (May 30, 1886, P.R.O. from Swettenham, F.O. 69/112.
30/33 [21). 88Satow to Lord Iddesleigh (foreign secretary),
82 Meade to Currie, Private, Sept. 16, 1886, F.O. Nov. 14, 1886, No. 82, F.O. 69/110, and Dec. 2,
69/113. 1886, No. 85.

20. BRITAIN, SIAM, AND MALAYA: 1875-1885 19
of the Siamese Governmentto come to to the parallelproblemof the petty Shan
terms."87 states whose allegiancewas disputed be-
In April Siam relentedand accepted in tween Bangkok and Mandalay. In 1891
principle the idea of a lease, on concli- Currieand Swettenham, now residentin
tions to .be further discussed by Deva- Perak, took up the boundary case once
wongse in London.88 was going there
He more, but Siam was as tenacious as ever
to attend the Queen'sJubilee, and Satow of its rights in the peninsula and kept
went with him, having been granted politely out of reach.93Not until 1909,
leave on account of his health. Swetten- when the Anglo-Siamese treaty gave
ham and Satow now went over the ques- Britain the protectorateover the neigh-
tion together in detail and drew up a boring states, was the flag of Perak at
protocol.89Next Currie invited Deva- last hoisted over the long-disputed re-
wongse to a conference, after artfully gion.94
suggestingto Lord Salisbury (now again It seems on the face of it curiousthat
foreignsecretary):"Perhapsa K.C.M.G. the change from a Liberal to a Tory ad-
might be hinted at as the rewardif the ministrationin 1885 should have slowed
Prince settles the question."90Whether down a movementof imperialexpansion.
or not such a hint was dropped.when the The fact is that the men who took office
conferencetook place on July 1 Deva- in June 1885 were graspingat more, not
wongsedisgustedthe Englishnegotiators less, than the Singaporeparty. This ap-
by declaring that he must "absolutely plies particularly to Lord Randolph
refuse"the lease arrangement.When re- Churchill, who was soon preparing for
minded of his consent to it in April he the annexationof Burma and who cher-
took refuge behind the rajah of Reman, ished a grandioseconceptionof Britain's
who he said was "old and very ob- role as paramountpower in Indo-China.
stinate" and had come to Bangkok to Weld, as regards Siam, was ready to
protest against any lease.9' throw in his hand. He saw Bangkok as
Nothing was left, since the idea of us- the destined prey of France. So widely
ing force had been abandoned, but to does this view appear to have been
declare that the Perak case "must re- shared on the British side that it seems
main open to be dealt with whenever a possible the Frenchwould not have met
favourable opportunity arises.''92 Atten- much opposition if they had had the
tion was shifting northward, following audacity to seize Siam and leave Britain
the annexationof Upper Burma in 1886, to content itself with Burma. Churchill
and Satow did not share Weld's pessi-
87 Satow to Salisbury (foreign secretary), Mar.
22, 1887, F.O. 69/115, No. 28.
mism, the former because he was ready
88 Satow to Salisbury, Apr. 11, 1887, F.O. 69/116,
to resist any French advance at any
No. 40. time, the latter because he thought the
89 C.O. to F.O., June 7, 1887, with enclosures Frenchwould be too busy with Tonking.
from Swettenham, and memoranda by Currie on
these, F.O: 69/119. 93SWETTENHAM, Footprints in Malaya, pp. 100-
101.
90 Memo of June 23, 1887, F.O. 69/118.
94 See account by E. W. BIRCH in J.R.A.S.S.B.,
91C.O. to F.O., July 18, 1887, with memoranda LIV (1909), 137 ff. Sir J. Crosby (in Siam: the cross-
by Swettenham, F.O. 69/120; Salisbury to E. B. roads [London, 1945], pp. 57-58) maintains that
Gould, acting charg6 at Bangkok, July 7, 1887, F.O. "there was no irredentist feeling discernible against
69/114, No. 40. us on the part of the Siamese" until it was stirred up
92 F.O. to C.O., July 7, 1887, F.O. 69/120. thirty years later by Japan.

21. 20 V. G. KIERNAN
It was howeverquite in the cards that if not going too fast. "Il faut reconnaltre
Weld got his way in Malaya Siam might d'ailleursque l'action des agents britan-
put itself under French protection. To niques s'est exerceejusqu'iciavec autant
obviate this London was prepared to de prudence que de perseverance;pour
make "sacrifices."In 1885 the potential chaque pas en avant, ils ont su attendre
wealth of the peninsulawas of coursenot avec patience le moment favorable."95
fully recognized;its later emergence as Six years later came the Anglo-French
the world'srichest colony makes Satow's crisis of 1893 over Siam; and in 1894 the
picture of it as the "offal" of the Sia-
"new policy" of 1885 was restated in the
mese inheritancelook odd. Another mo-
instructionsgiven to the new representa-
tive for restraint after 1885 was, per-
haps, the long-drawn-outguerrillafight- tive then being posted to Bangkok. He
ing in Upper Burma to which the policy was told that Britain wished Siam to
of occupationled. subsist as a bufferstate and that, so long
The best testimony to the success of as no other powerwas allowedto set foot
Britain'snew strategy may be found in a in the peninsula,Britain had no desireto
dispatch to Paris from Kergaradec,con- subvert whatever remainedthere of Sia-
sul at Bangkok, in May 1887. He dis- mese authority.96 The Anglo-Siamese
cussed at length the growth of British treaty of 1909 marked a change; but by
influence in the peninsula, dwelling on then England and France were allies.
the Perak case and saying that the new UNIVERSITY OF EDINBURGH
ambitions which had sprouted at Singa-
pore since 1874 were likely to end in the 95Kergaradec to Flourens, May 24, 1887, No. 52,
Archives des Affaires ftrang&res, Siam, Vol. X; cf.
complete annexation of Malaya. With No. 72, Oct. 21, 1887, ibid., and the lecture given by
equal insight he pointed out Siam's fears De Morgan to a patriotic body in Paris (printed copy
that to give way over Perak would be the in F.O. 69/113) in 1886, on exploration in Malaya,
dwelling on Britain's ambitious and successful ac-
signal for many similar demands both tivity there and jealousy of France.
from Britain and from France, and from 96 E. T. S. DUGDALE, Maurice de Bunsen (Lon-
this he guessed at Britain's purpose in don, 1934), p. 117.