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The Politics of Union and Citizenship: the Evolution Of THE POLITICS OF UNION AND CITIZENSHIP: THE EVOLUTION OF BRITISH CONSTITUTIONAL POLICY TOWARDS MALAYA AND SINGAPORE 1942 - 1948 A thesis submitted to The School of Oriental and African Studies in candidacy fo r the degree of Doctor of Philosophy Department o f History by ALBERT LAU KHOONG HWA May 1986 [ Ll ProQuest Number: 11010658 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a com plete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. uest ProQuest 11010658 Published by ProQuest LLC(2018). Copyright of the Dissertation is held by the Author. All rights reserved. This work is protected against unauthorized copying under Title 17, United States C ode Microform Edition © ProQuest LLC. ProQuest LLC. 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106- 1346 2 ABSTRACT World War II, by unleashing new forces, had precipitated a reappraisal of B ritis h policy towards Malaya; i t also afforded B ritis h planners an opportunity to rationalise the pre-war structures which had kept Malaya constitutionally disunited and racially divided. Isolated in their offices in Whitehall, Colonial Office officials devised the Malayan Union p o licy, embracing in a "union" a ll the Malay States and including, from the Straits Settlements, Penang and Malacca but excluding Singapore, which developed as a separate constitutional entity although the possibility of a future "fusion" with the proposed Malayan Union was not discounted; the new arrangements envisaged also the creation of a form o f "common citizenship" that would confer political rights to Malaya's non-Malay population. When the war ended, the B ritis h proceeded, as planned, to implement the Malayan Union scheme in April 1946 only to replace it with the Federation of Malaya in February 1948; the provisions for citizenship were also significantly "tightened" by 1948 to include only a smaller number of non-Malays. The decision to scrap the Malayan Union, however, was taken by early July 1946, barely three^months a fte r its inception. This study traces the origins of the Colonial Office's plans for "union" and "citize n ship ", examines the assumptions which had guided B ritis h planners and how these had been overturned by post-war developments, and discusses the interaction of historical forces which led eventually to the demise of the Malayan Union and the creation of the Federation in 1948. I t analyses also the separate p o litic a l development o f Singapore and the attempts to unite the Island with the Mainland, a process which succeeded, in retrospect, only b rie fly in 1963 and only then to result in separation again in 1965. 3 CONTENTS Abstract 2 Contents 3 L is t of Tables 4 Acknowledgements 5 Abbreviations 7 INTRODUCTION 9 CHAPTER I THE ANGLO-MALAY TREATIES AND POLITICAL DEVELOPMENT IN MALAYA TO 1941 17 CHAPTER II THE COLONIAL OFFICE AND THE EMERGENCE OF THE "MALAYAN UNION" POLICY 39 CHAPTER I I I THE CREATION OF MALAYAN UNION CITIZENSHIP 79 CHAPTER IV CABINET'APPROVAL AND PLANNING FOR THE NEW CONSTITUTIONS OF THE MALAYAN UNION AND SINGAPORE 96 CHAPTER V "NEGOTIATING" THE TREATIES 117 CHAPTER VI REACTIONS TO THE JANUARY WHITE PAPER 145 CHAPTER VII CONSTITUTIONAL NEGOTIATIONS: APRIL TO JULY 1946 176 CHAPTER V III THE ANGLO-MALAY WORKING COMMITTEE: JULY TO DECEMBER 1946 216 CHAPTER IX THE ROAD TO FEDERATION: DECEMBER 1946 TO FEBRUARY 1948 242 CHAPTER X CONSTITUTIONAL DEVELOPMENT IN SINGAPORE AND THE ‘ UNION’ QUESTION: 1945-1948 289 CONCLUSION 309 BIBLIOGRAPHY 319 4 LIST OF TABLES 4:1 Population Distribution in Seven Areas 8:1 Malay Proposals fo r the Composition o f the Legislative Council 8:2 Revised Composition of O ffic ia l Membership in the Legislative Council 8:3 Revised Composition of U nofficial Membership in the Legislative Council 8:4 Final Revised Composition of U nofficials in the Legislative Council 9:1 Composition of U nofficial Membership in the Legislative Council proposed by the Consultative Committee 9:2 Comparison o f the Recommendations of the Seven Members o f the Consultative Committee and the Two Chinese Members fo r the Composition o f the Legislative Council 9:3 Revised Composition of U nofficial Membership in the Legislative Council proposed by the Working Committee 5 ACKNOWLEDGEMENTS My research would not have been possible without the award o f a Commonwealth Academic S ta ff Scholarship from the Commonwealth Scholarship Commission in the United Kingdom, fo r which I am most g rate fu l. I wish also to express my appreciation to the B ritis h Council fo r administering the award, and the National University of Singapore fo r the sponsorship and the study leave. In Singapore I wish to thank Professor Ernest Chew fo r his kind support and warm encouragement during my research. Professor Yeo Kim Wah was most helpful in clarifying some aspects of British policy in the 1920's and 1930's when he was in London on study leave during the summer of 1985. I am indebted also to Professor Eunice Thio, whose liv e ly enthusiasm during lectures inspired my own interest in history as an undergraduate. I am grateful also to Dr. Cheng Siok Hwa for securing the sponsorship of Professor Khoo Kay Kim fo r my fie ld - tr ip to Malaysia. Dr. Edwin Lee never failed to cheer me up with a card at Christmas. To the late Professor Wong Lin Ken, who f ir s t suggested that I be despatched to London, I shall always be thankful. I shall remember Professor Wong's assistance with deep gratitude. In London I owe a debt of gratitude to my supervisor, Dr. Ralph B. Smith, who guided my research and w ritin g with much patience and diligence. His breadth of perception, valuable comments and suggestions contributed greatly to ensuring the coherence of the thesis. I am also grateful to Dr. Smith, Dr. A.J. Stockwell and other members of the Seminar on the Recent History of South East Asia at SOAS for widening my understanding and interest in the region. I would like to acknowledge also my thanks to the staff of the Public Record O ffice (London), the Arkib Negara (Kuala Lumpur), the Archives and Oral History Unit (Singapore), and of the lib ra rie s of the Royal Commonwealth Society, Rhodes House, School of Oriental and African Studies, London School of Economics, National University of Singapore, and the Institute of Southeast Asian Studies. Their friendliness and helpfulness contributed immensely towards making the task of research a very pleasant experience indeed. My thanks go also to Helen Abbott fo r typing th is 6 manuscript with such speed and efficiency. Throughout my research my fiancee, Lee Mei, has been an unfailing source of support and encouragement. Her love, prayers, and letters always lightened the load during the many months of w ritin g . She is indeed a wonderful team-mate. Above a ll, th is dissertation would not have been completed without the grace of my Lord Jesus C hrist. I t is with deep gratitude that I remember His goodness and faithfulness during these years of research and writing. When I remember Thee on my bed I meditate on Thee in the night watches, For Thou has been my help, And in the shadow of Thy wings I sing for joy. ‘ My soul clings to Thee; Thy rig h t hand upholds me. Psalm 63: 6-8. May 1986 A.K.H.L. 7 LIST OF ABBREVIATIONS ACCC Associated Chinese Chambers of Commerce ALFSEA Allied Land Forces, South East Asia AMCJA A ll Malaya.Council of Joint Action BBC British Broadcasting Corporation BMA British M ilitary Administration CAB Cabinet Papers CCAO Chief Civil Affairs Officer CJA Council of Joint Action Cmd Command Paper CO Colonial Office CWC Constitutional Working Committee DCCAO Deputy Chief Civil Affairs Officer FMS Federated Malay States FO Foreign Office GLU General Labour Union HMG His/Her Majesty's Government IOLR India Office Library and Record JICH Journal of Imperial and Commonwealth History JMBRAS Journal of the Malayan Branch of the Royal Asiatic Society JSEAS Journal of Southeast Asian Studies KMT Kuomintang MCP Malayan Conmunist Party MCS Malayan C ivil Service MDU Malayan Democratic Union MIC Malayan Indian Congress MNP Malay Nationalist Party MPAJA Malayan People's Anti-Japanese Army 8 MSS Malayan Security Service NEI Netherlands East Indies PIJ Political Intelligence Journal PMCJA Pan-Malayan Council of Joint Action PP Progressive Party PREM Prime Minister's Files PUTERA Pusat Tenaga Ra'ayat SCAO Senior Civil Affairs Officer SEAC South East Asia Command SOAS School of Oriental and African Studies SOE Special Operations Executive UMNO United Malays National Organization UMS Unfederated Malay States WO War O ffice 9 INTRODUCTION In one sense, the story of the Malayan Union policy “ has been to ld " J The ground was broken in 1967 with the publication o f J. de 2 V. A llen's pioneering monograph, The Malayan Union, followed in 1974 3 by Mohamed Noordin Sopiee's From Malayan Union to Singapore Separation and a major study by A.J. Stockwell: British Policy and Malay------------------------ Politics during the Malayan Union Experiment, 1942-1948 in 1979. B ritis h wartime deliberations which spawned the Malayan Union policy have also been considered in two articles published in 1974: Stockwell's "Colonial Planning during World War II: the case of Malaya"^ and C.M.
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