University of Wollongong Research Online University of Wollongong Thesis Collection University of Wollongong Thesis Collections 2001 Administrative colonialism: district administration and colonial 'middle management' in Kelantan 1909-1919 and the Eastern Highlands of Papua New Guinea 1947-1957 Charles Michael Hawksley University of Wollongong Recommended Citation Hawksley, Charles Michael, Administrative colonialism: district administration and colonial 'middle management' in Kelantan 1909-1919 and the Eastern Highlands of Papua New Guinea 1947-1957, Doctor of Philosophy thesis, Faculty of Arts, University of Wollongong, 2001. http://ro.uow.edu.au/theses/1732 Research Online is the open access institutional repository for the University of Wollongong. For further information contact Manager Repository Services: [email protected]. ADMINISTRATIVE COLONIALISM: District Administration and Colonial ‘Middle Management’ in Kelantan 1909-1919 and the Eastern Highlands of Papua New Guinea 1947-1957 A thesis submitted in fulfilment of the requirements for the award of the degree Doctor of Philosophy from UNIVERSITY OF WOLLONGONG by Charles Michael Hawksley B.A. (Hons) UNSW History and Politics Program December 2001 DECLARATION I, Charles Michael Hawksley, declare that this thesis, submitted in fulfilment of the requirement for the award of Doctor of Philosophy in the History and Politics Program, Faculty of Arts, University of Wollongong, is wholly my own work unless otherwise referenced or acknowledged. This document has not been submitted for qualification at any other academic institution. Charles M. Hawksley 21 December 2001 As one studies the records, the men who founded this corner of the empire, and who wrote these letters, notes and memoranda gradually come to life; and more than that, the thing itself, their handiwork, takes form and substance: one sees the fashioning of Leviathan. J S Furnivall from The Fashioning of Leviathan: the Beginnings of British Rule in Burma (1939) ABSTRACT This study explores the structure of colonial power at the level of the district in Kelantan under British administration between 1909-1919, and in the eastern highlands of Papua New Guinea under Australian administration between 1947-1957. It examines the stated aims and actions of district administrators in two examples of what is termed administrative colonialism, a type of colonial power dependent on regulation and governmentality rather than on physical force, and not based on economic exploitation. In doing so it argues that traditional explanations of imperialism and colonialism are inadequate in explaining the structures of power that underpin these two administrations and advances a typology of colonialism based on four ideal types: extractive, commercial, expansionist and administrative. This study argues that the two cases examined represent administrative colonialism, and uses the annual reports and other records of the regimes to get inside the administrative and bureaucratic mentality. Colonial ‘middle managers’ closed down avenues of resistance through regulation at the same time as they accumulated knowledge and made judgements on which aspects of pre-colonial life would be incompatible with modernity. They eliminated behaviour or actions that would disrupt centralised rule through the creation of structures of colonial power. Each case is examined during the first decade of colonial rule concentrating on the imperial framework, the imposition of the rule of law, the extension of colonial services, the use of land and the use of labour. The results in Kelantan and the eastern highlands suggest that traditional explanations of imperialism and colonialism need to be reconsidered with greater attention paid to district level analysis, regional variation and the structure of colonial government. The use of law and regulation, rather than physical violence, to make people obey marks a development in techniques used to control others. Changes introduced by administrative colonialism, such as the imposition of peace and the partial prohibition of traditional customs, have enabled the people of these and other regions to participate in the economic market of global capitalism. The linking of social life to the administrative structure and institutions of the colonial state was an integral part of this process and this study examines the day-to-day functioning of power in two colonial districts in the first ten years of their administrations. iv ACKNOWLEDGEMENTS This thesis is my own work but a large number of people have assisted me in various ways during its fashioning. It has been a long process and while there are many who will be pleased that it is now over, my pleasure exceeds theirs. Where many doctoral candidates generally have one supervisor, I have been fortunate enough to experience four: Professor Edward P Wolfers; Associate Professor Adrian Vickers; Professor Peter King; and Associate Professor Andrew Wells. I have benefited from their support, encouragement, criticisms and insights and my thanks are due to each of these scholars. In Papua New Guinea the staff of the National Archives in Waigani were very helpful in locating materials and in photocopying a number of reports used in this thesis. In Goroka thanks to Mr Joshua Unua and Mr Kindi Wiwiao of the Eastern Highlands Provincial Government, David Kiso and the staff of the Lutheran Guest House, and Meg Taylor who kindly spoke to me about her father. In Port Moresby, my thanks to Sir John Kaputin for his friendship and for the opportunity to discuss colonialism and independence. In Malaysia my thanks are due to the staff of the Arkib Negara Malaysia, in particular Haji Abdul Halim, and to Zarinah and Sabariah, who processed my many requests for files over six weeks in Kuala Lumpur. Yasuko and Dean Caletti kindly let me stay with them and gave me access to a car, which made my research much easier. I could not have finished this work without the constant support of my friends and family. My mother, Kay, and my father Bob, allowed me to move in and out of home as required, provided top-up funds for field trips at no interest and sometimes with no repayments. Without their help this thesis would never have been written. My friends Dr Milan Voykovic, Kazuhiro Monden and Tim Handley-Garben kept me sane throughout. Lastly, special thanks to Jenni Roberts who has put up with this thesis, and its author, for over five years. Her patience and understanding have allowed me to reach the end of the tunnel. Our baby son Declan has also contributed in ways that he won’t understand until much later, but this one’s for you too Dex! While this thesis has been commented on by many people, the final responsibility for what is submitted and for any mistakes in arguments are mine and mine alone. Charles M Hawksley Wollongong December 2001 v List of Acronyms ADO Assistant District Officer ALP Australian Labor Party ANGAU Australian New Guinea Administrative Unit ANMEF Australian Naval and Military Expeditionary Force ARCHD Annual Report Central Highlands District AREHD Annual Report Eastern Highlands District ASF Department of Agriculture, Stock and Fisheries ASOPA Australian School of Pacific Administration BA British Adviser BAK British Adviser Kelantan BKel Files of the British Adviser to Kelantan CHD Central Highlands District CPO Cadet Patrol Officer DC District Commissioner DDCL Duff Development Company Limited DDSNA Department of District Services and Native Affairs DNA Department of Native Affairs DO District Officer DOPP District Officer Pasir Puteh DOUK District Officer Ulu Kelantan EHD Eastern Highlands District FMS Federated Malay States HFSA Highlands Farmers and Settlers Association HLS Highlands Labour Scheme ICS Indian Civil Service KAR Kelantan Administration Report MBRAS Malaysian Branch of the Royal Asiatic Society MTNG Mandated Territory of New Guinea NAR Native Administration Regulations NCO Non-Commissioned Officer NEA Native Employment Agreement NLGC Native Local Government Councils OIC Officer in Charge PAS Parti Islam Sa-Melayu (Pan Malayan Islamic Party) PNG Papua New Guinea PO Patrol Officer PP Patrol Post RCI Royal Colonial Institute SD Sub-District SDA Seventh Day Adventist SHD Southern Highlands District SMC Bureau of State, Marine and Customs TEC Territory Executive Council UMNO United Malay Nationalist Organisation UMS Unfederated Malay States UN United Nations WHD Western Highlands District vi A NOTE ON CURRENCY Kelantan Prior to 1904 Kelantan used currency of its own, British silver dollars and a variety of other coinage. From 1904 the Straits Settlement dollar was in common usage throughout the Malay peninsula. Any pounds (£) mentioned refer to British pounds sterling. Papua New Guinea Papua New Guinea used Australian imperial currency throughout the period under review. Pounds, shillings and pence were expressed 1/4/10 or 1.4.10. 12 pence (d) to the shilling (s) 20 shillings to the pound (£) Oddities of the imperial system included 1 Guinea being equal to 1/1/- or 21shillings. vii LIST OF PHOTOGRAPHS Kelantan Between pages 156 and 157 1. Visit of King Chulalongkorn of Siam to Kelantan before 1909. Centre is King Chulalongkorn and on his left is Raja Senik. Standing on the right (holding black hat) is Mr H W Thomson, Assistant Adviser. 2. His Highness, The Raja of Kelantan, Tengku Long Senik ibni Almarhum Sultan Muhammad (seated) outside the Balai Besar, Kota Bharu (circa 1908). Between pages 201-202 3. Kota Bharu Club, Kelantan, 1907. Seated (left to