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A Thesis Submitted for the Degree of PhD at the University of Warwick
h ttp ://g o .w a r w ick.a c.u k/w r ap /411 3
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j
British Colonial Policy on Social \Yelfare in lalaya:
Child Welfare Services 1946-1957
by
!"iah Shaffie
# thesis s!$1nitted in f!lfil%ent of the re&!ire%ents for the de'ree of
(octor of Philoso)hy in Social Wor*
+ *t!$er ,6
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.issin' )a'es are !navaila$le
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TABLE OF CONTENTS
Content
/0S 2 #B/3S
/0S 2 03S
/0S 2 #BB380#02S
/2SS#Y
#C2W/3(3.3
(3C/##02
#BS#C 4
;l
..#$%
;l\
(ata #nalysis E-?
.ethodolo'ical 0ss!es that 3%er'ed fro% the St!dy E5
0rchi(al wor/ in alayia and )*
E5
0cceibility3 a(ailability and contraint of data in the )*............ E6
0cceibility3 a(ailability and contraint of data in alayia E7
0dminitrati(e and technical ie in alayian archi(e.. -1
4ote on the inter(iew........................................................ -
5ther contraint in(ol(ed.................................................... -/l
Concl!sion 95
CHAPTER
"ALAYA
0ntrod!ction 97
eneral (escri)tion 9E
he Bac*'ro!nd of Colonial #d%inistration 1
he 0%)act of British Colonisation ltl0
6hefiormation oif a plralociety............................%%%%%%%%%%%%%%..
1
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Content Paoe
111
$$$
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Content
6he ocial ytem ...
Health444444444444444444444444444444444444 # $$$ GGGGGGGGGGGG #% # $$ # $$$ GGGGGGG # $$$$$ GG
9dcationGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGG# $$$ GGG #% # $$$$ # $$$
6he role of indi(idal and (olntary agencie in health and
Paoe
113
11-+
115
edcation................................................................................. 116
he Ha)anese 2cc!)ation
1
(isc!ssion2222222222222222222222222222222222222 0 0 222 0 22222222222222222222222222 122
6he economic importance of2alaya........................................ 822
6he 9mergency and ethnic dit!rbance................................... 123
Concl!sion222222222222222222222222222222222222222222222222222222 0 ....................... 1,5
CHAPTERSSOCIAL WELFARE SERVICES
0ntrod!ction
he Be'innin' of the State
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Content Paoe
CHAPTER&
COLONIAL DEVELOP"ENT AND 'VELFARE POLICY
0ntrod!ction 155
# e= Colonial Policy: (evelo)%ent and \8elfare156
6he end of the ency.................................................. 17
Children depri(ed of a normal home life..
171
Colonial Princi)les 172
Colonial (evelo)%ent and Welfare #cts 174
Concl!sion 1,
CHAPTER (
CHILD "#$% FARE SERYICES) PART I
0ntrod!chon 1S4
!ost War 55 I6t&$t.'lrt::-11 $ss!es
0S4
!he 5!phan.IIIIIII IIIIIIIIIIIIIIIIIII
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Content Paoe
\4
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Content
alntrition.......................... ................ # $$$$ GGGGGGGGGGGGGGGG# $$ #%
Services Provided $y the (SW 4
Creche and infant?child welfare centre ...................................
ent children ...
Repatriation of detainee ...
;agrancy ....................................................................... .
Children of prioner ......................................................... .
:eper ettlement .............................................................. .
Reettlement...
1mmzgratzon .................................................................... .
lSCSSl2n44444444444444444444444444444444444444444444444444444444444444444444444444444
Concl!sion
CHAPTERS
CHILD WELFARE SERVICES) PART II
0ntrod!ction
he (evelo)%ent of Children
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Content
.alacca H!$ilee Boys< Do%e4
Clb etablihment............................................................
70 ....1
Clb admiion 2222222222222222222222222 0 2222222222222222 2B2
Clb adminitration and maintenance ...........................
Serendah Boys< Do%e I School
Home etablihment G # $$$$$$$$$$$$$$ GGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGGG 2B
Home admiion............................................................... 2B
Home adminitration and maintenance..................................... 2B"
6raining and edcation......4 2BE
Selan'or Children
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Content
800
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Content Paoe77
:egal pro(iion in colonial territorie....................................... ::8
:egal pro(iion inalaya...... ,57
/e'islation 0nvolvin' Children in K\0alaya ,59
i tai +8FBB, :8-
Children and Gong eron 5rdinance +CG5, +8F7,... &2"2
lace of #afety Rle +8FE, :&&
0doption 5rdinance +8F2,... :0,
rainin' of Social Welfare Wor*ers ,71
Colonial principle of training............................................... 272
6raining need................................................................. 27
6raining in the U;............................................................. ,E1
6raining inalaya............................................................ 2
(isc!ssion 2 F
Concl!sion ,9>
CHAPTER+OCONCLUSION OF THE STUDY
0ntrod!ction :t00
.id'ley
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\F
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Content Pa!e
6he etent of diffion......................................................... F +l
#do)tion of Colonial Welfare 0deas and Practices >1
#da)tation of British Welfare 0deas and no=led'e >1,
elfare matter................................................................ B1,
6raining of wor/er...
B1>
B1-?eflections on the esearch Process >15
/i%itations of the St!dy >16
0%)lications of the St!dy >1E
#ocial welfarepro(iion......................................................... >1E
;olntary bodie and ocial welfareer(ice.............................. >19
Child welfare er(ice andpolicy........................................... B2E
Welfare and Protection of Children in .alaysia B22
!t!re St!dies >,7
inal e%ar*s B2F
B0B/02#PDY >>1
#PP3(0C3S >5E
15
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/0S 2 #B/3S
a$le 1.1
a$le ,1
a$le >1
a$le 41
a$le 51
a$le 5,
a$le 5>
a$le 61
a$le 6,
a$le 6>
a$le 71
a$le 74744a$le E1
a$le E,
a$le ,.3
0 a$le E4
a$le 91
a$le l
nacce)ta$le and acce)ta$le ter%inolo'ies
eat!res of resid!al and instit!tional %odels of social=elfare ...............................................................
Phases and sites of field=or*
!%$ers of children in .alaya $et=een -14 years old in
1947IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIII
#rea Welfare 2fficer and State elief 2fficer
d!ties
he (SW relocation
S!%%ary of cases dealt =ith $y Children
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LIST OF FICRES
F,-./e
i'!re ,1
i'!re 41
i'!re 4,
i'!re 51
i'!re 71
2vervie= of .id'ley
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/0S 2 #BB380#02:\S
# Based on .alay /an'!a'e +
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DC2 Di'h Co%%issioner
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LOSSARY
0dat erpatih .atrilineal e'eri Se%$ilan 1\/llay c!sto%ary la=
@awi #ra$ic al)ha$et !se in .alay =ritin'
*ampong # villa'e
adraah ? %odernist 0sla%ic school
afa/at # %ethod =hich called !)on all fa%ily %e%$ers to %eetto'ether io disc!ss Ntny )ro$le% at hand and col*ctively
decide on the $est =ay to tac*le the)ro$le%
i tai an !n%arried Chinese fe%ale do%estic servant =hose
a'e =as less than ei'hteen years
/im #n ad%inistrative !nit \8ithin a district
enghl Dead%en ad%inistrative head of a m?..8m or s!$district
lace of afety #ny instit!tion a))ointed !nder Section 3/E +a of theCYP2 +1947 that is an or)hana'e hos)ital ho%e
instit!tion
ondo/ ?
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\t8
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ACKNOWLEDGEMENTS
his thesis has evolved into its )resent for% thro!'h the *ind assistance of %any )eo)le
and =itho!t their s!))ort this &!est =o!ld have seen no end 0 a% inde$ted to r. #
Withnall one of the s!)ervisors d!rin' %y first year )artic!larly for her '!idance and
enco!ra'e%ent d!rin' the !)'radin' )rocess o =ords co!ld tr!ly eL)ress %y endless
'ratit!de to %y s!)ervisors (r 8 White of the School of Dealth and Social St!dies
and Prof C Steed%an of the Distory (e)art%ent niversity of War=ic* for their
)ainsta*in' s!)ervision as $ vent!red thro!'h %y &!est to reach Athe end of the
t!nnelA heir caref!l co%%ents criticis%s and s!''estions =ere of 'reat val!e to %e
.oreover =itho!t the scholarshi) 'ranted $y @abatan er/hidmatan 0wam
alayia and f%ancial assistance fro% niversity tara .alaysia +. the )ro'ress
of the st!dy =o!ld not have $een realised +the st!dy =o!ld not have $een co%)leted
ot for'ettin' the Socio-3cono%ic and eneral Plannin' esearch nit of the Pri%e
.inister
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De0+a/at,on
0 certify that this is %y o=n =or* and it has not $een s!$%itted for a de'ree at
another !niversity
)55$
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#BS#C
he )!r)ose of this st!dy is to ill!strate the eLtent to =hich colonial =elfare ideas and
)ractices sha)ed social =elfare in .alaysia =ith )artic!lar reference to child =elfareservices 0n )artic!lar the st!dy eL)lores the sco)e in =hich social =elfare services =asesta$lished and develo)ed $y the colonial 'overn%ent the de'ree of the colonial'overn%ent
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CD#P31
02(CC02
2 D3 SC(Y
he
St!dy
(avis (olin' and Nainal +, contend that the colonial
'overn%ent d!rin' the i%%ediate )ost-=ar )eriod co%$ined efforts
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=ar co-o)erative
efforts< +(avis et al.3 ,: 9 he 'overn%ent %ade s!ch
coo)erative efforts $eca!se of the a$sence of a traditional syste%
!)on =hich the colonial 'overn%ent co!ld rely on
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the for%ation of the l\/llayan nion +\0 in 1946 she \\ lS a se)!ate colony
S%'a)ore l%ly H2inedJ\ talaysia in Rl+l and then se)arated fro% the $tter in 1965
+see Cha)ter -1
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Chaplt'r 4
he s!$Oect of Distory and
(evelo)%ent of Social Welfare Services is one of the core s!$Oects
in the Social
Wor* Pro'ra%%e desi'ned s)ecifically to i%)art *no=led'ea$o!t the co!ntry this )ro'ra%%e =as offered at the (e)art%ent of Social Wor* in
the ac!lty of D!%an and Social (evelo)%ent> Co%)ared to the other !niversities in .alaysia . is the only !niversity thatoffers a )ro'ra%%e
core co!rse for the Bachelor
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5.apter I
history of social =elfare fro% vario!s )ers)ectives s!ch as the state
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he researcher
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Chapter 1
co%%ent is th!s indicative of a 'a) in the literat!re )ertainin' to children
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St!dy #i%s
he c!rrent st!dy has three overarchin' ai%s:
1 to deter%ine the social )olitical and econo%ic circ!%stances that tri''ered
the e%er'ence of social =elfare services in .alaya d!rin' the )eriod of
1946-1957
11 to analyse the British colonial develo)%ent and =elfare )olicy d!rin' the
)eriod of 1946-1957
111 to eLa%ine the British colonial )olicy on child =elfare services in .alaya
d!rin' the )eriod of 1946-1957
heoretical ra%e=or*
his st!dy eLa%ines social =elfare )ractices for the .alayan )o)!lation d!rin' British
colonialis% $t investi'ates the a))lication of colonial ideas and )ractices of social
=elfare d!rin' the )eriod of 1946-1957 and the =ay in =hich these ideas and )ractices
=ere diff!sed in the )rovision of =elfare !rther%ore this st!dy ai%s to eLa%ine the
colonial 'overn%ent a))roach to =elfare in )artic!lar child =elfare services instit!ted
in .alaya d!rin' the )eriod of st!dy
.id'ley +19E4a 19E7a 19E7$ 1995 a scholar of hird World social =or*
social )olicy and social =elfare )oints o!t the lac* of research on the ori'ins of social
=elfare social =or* and social )olicy in the develo)in' nations .id'ley
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Chapter 1
'overn%ent to=ards social =elfare )rovisions and the Adiff!sion theoryA +.id'ley
19E4a 19E7a 19E7$ 1997 =hich eLa%ines the eLtent of the a))lication of colonial
social =elfare ideas and )ractices for%s the '!idin' fra%e=or* for this st!dy and is
disc!ssed f!rther in Cha)ter , he c!rrent st!dy also disc!sses the eLtent to =hich the
state shares the res)onsi$ility of child =elfare =ith other a'encies that is %issionaries
and vol!ntarr$odies
T1e Pe/,o2 Un2e/ St.
.alaya =as a British colony fro% 17E6 !ntil 1941 =hen it then ca%e !nder Ha)anese
occ!)ation =hich lasted !ntil 1945 0n 1945 it =as r!led once a'ain $y the British !ntil
its inde)endence in 1957 +see Cha)ter 4 he st!dy enco%)asses a ti%e )eriod of
a))roLi%ately t=elve years fro% 1946 to 1957 =hich the researcher refers to as the
)eriod of transition to inde)endence $eca!se this =as an era in =hich .alaya
eL)erienced a chan'e in the co!rse of 'overn%ental ad%inistration Within this )eriod
the $asic str!ct!re of the social =elfare syste% in .alaya =as laid do=n $y the colonial
ad%inistrators he British d!rin' this ti%e faced a different sit!ation =ithin .alaya
fro% =hat they had )revio!sly eL)erienced )rior to the Ha)anese occ!)ation +see
Cha)ter 4 he British no= had the res)onsi$ility of tac*lin' the iss!es of the
after%ath of the =ar +(avis eta?.3 , h!s the researcher =o!ld li*e to eLa%ine
=hether the colonial 'overn%ent
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he year 1946 is si'nificant for this st!dy $eca!se a)art fro% %ar*in' the
$e'innin' of the British re-occ!)ation of .alaya after World War =o the (SW =as
esta$lished in .alaya as a %aOor 'overn%ent a'ency a!thorised to )rovide social
=elfare services he 1946-1957 ti%e fra%e also covers a si'nificant develo)%ent in
social )olicy =ith re'ard to childrenJ for instance child le'islation and ed!cation have
their ori'ins in the early t=entieth cent!ry +see Cha)ters 4 and 9 he circ!%stances of
the co!ntry
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Chapter 1
+a in any case of a )erson e%)loyed or en'a'ed to ta*e )art % any )!$lic
entertain%ent a )erson !nder the a'e of siLteen yearsJ and
+$ in the case of a transferred child a fe%ale !nder the a'e of fo!rteen yearsJ and
+c in other cases a )erson !nder the a'e of fo!rteen years (!"1 CYP2 +1947
Section , +1
0n the #do)tion 2rdinance +195, the ter% AchildA refers to an
!nder the a'e of t=enty-one and incl!des a fe%ale !nder that a'e =ho has $een
divorced< +#do)tion 2rdinance +195,
hro!'ho!t this st!dy the ter% AchildA %eans a )erson !nder the a'e of siLteen
years +CPW3/17947 =ho needs )rotection and care for hisher =elfare has no
)arent +is an or)han or '!ardian or =hose )arent or '!ardian is !nfit to eLercise care
and '!ardianshi) or =ho has $een the victi% of a n!%$er of offences s!ch as
a$andon%ent ill treat%ent ne'lect a))ears to $e destit!te or =ho has $een !sed for
$e''in' or receivin' al%s +CPW3/17947J PP31 CYP2 +1947J C2 E,E5 $t
also enco%)asses any child livin' in children
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Child welfare
his st!dy foc!sses on children across all ethnic 'ro!)s +.alays Chinese and 0ndians
and 'enders Within the st!dy the ter% Achild =elfareA relates to those services for
children rendered $y the (SW after the Second World War fro% the )ers)ectives of
social =elfare health and ed!cation $t enco%)asses the services )rovided in three
children> 0t also
refers to trainin' for social =elfare =or*ers
1&
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Chapter 1
Definite child welfare policy
he ter% Adefinite child =elfare )olicy
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11 o =hat eLtent did the colonial 'overn%ent intervene in child =elfare services
in .alayaT
iii Was there a definite )olicy of child =elfare dra=n !) $y the colonial
'overn%ent for .alaya d!rin' the )eriod of 1946-1957T
By tac*lin' these &!estions the %ain iss!es in children
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Chapter 1
#s indicated in the title the foc!s of this thesis in on the years 1946-1957 his
is the *ey )eriod in the co%%ence%ent and eL)ansion of British colonial =elfare
)rovisions in .alaya o !nderstand the esta$lish%ent and develo)%ent f!lly it is
necessary to loo* at the $ac*'ro!nd of .alaya aro!nd and d!rin' this )eriod h!s
Cha)ter 4 investi'ates the develo)%ent of social =elfare services =ithin this )eriod 0t
ill!strates the de%o'ra)hy early history and the social str!ct!re of .alaya his
cha)ter also eL)lains the i%)act of colonisation on )olitical and econo%ic str!ct!re and
the si'nificant chan'es that affected social =elfare )rovision
Cha)ter 5 centres on the $e'innin' of state =elfare )rovision =ithin .alaya
he %ain co%)onent of this cha)ter is to el!cidate the reasons for esta$lishin' the
Chinese Protectorate and the /a$o!r (e)art%ent $t also o!tlines the esta$lish%ent of
the (SW he cha)ter also disc!sses )ost-=ar social =elfare )olicy and constraints to
=elfare =or* faced $y the (SW d!rin' its esta$lish%ent years
he Colonial 2ffice in /ondon =as res)onsi$le for the )lannin' and
develo)%ent of =elfare )olicy in its colonies his is eLa%ined in Cha)ter 6
)artic!larly =ithin the )ost-=ar )eriod he disc!ssion centres on the esta$lish%ent of
the Social Services (e)art%ent in the Colonial 2ffice Colonial Social Welfare
#dvisory Co%%ittees +CSW#C Child and Yo!th Welfare S!$-Co%%ittee +CYWSC
and the Colonial (evelo)%ent and Welfare #ct as a %echanis% for i%)le%entin'
social =elfare in the colonies
he detailed analyses of child =elfare services =ithin the )eriod of 1946-1957
are divided into three )arts and are )resented =ithin three *ey cha)ters +7 E and 9
Part 0 +Cha)ter 7 eLa%ines child =elfare services arisin' fro% the end of the Second
19
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Cr...:.:#ller I
World War Based on the availa$ility of %aterials collected other
serJices )ro\Iided $y the (SW are also eLa%ined Part 00 +Cha)ter
E concentrates on the 'ro=th and develo)%ent of children
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:
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Chapter&
CD#P3,
3803W 2 3/#3( /03#3
0ntrod!ction
Colonial ad%inistration involved a relationshi) =ith the colony that i%)lied the
eListence of ad%inistrative le'islative and social control +.acPherson 19E, .alaya
eL)erienced colonialis% that stretches $ac* to the siLteenth cent!ry Colonialis% is an
a))ro)riate and !sef!l conteLt for the analysis of historical )rocesses lin*ed to the
'ro=th of social =elfare services in .alaya Do=ever it is not the intention of this
cha)ter to eL)o!nd !)on .alaya
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Chapter&
social =elfare in colonial .alaya 0ss!es in child =elfare =hich
constit!te the central foc!s of this st!dy =ill $e )resented $efore the
cha)ter concl!sion
S
ocialWelfare
$n %ost 3n'lish-s)ea*in' co!ntries- the Canada e= Nealand
#!stralia and the nited States- the ter%s social =elfare and social
service ca%e into eListence shortly $efore the o!t$rea* of the irst
World War follo=in' earlier notions of charity and correction
)hilanthro)y and )oor relief +Cha%$ers 19E6J /ei$y 1995J
raha% and #l-rena=i ,1 (e$ate on the relationshi) $et=een
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social =elfare and other disci)lines still contin!es +Nastro= ,
evertheless it is a))ro)riate =ithin the c!rrent st!dy to )rovide a
conce)t!al definition of the ter% Asocial =elfareA $eca!se
!nderstandin' of its characteristics is necessary to ena$le analysis of
its develo)%ent
he ter% =elfare has $een defined fro% different )oints of
vie= and at different levels of a$straction $n its si%)lest %eanin'
)artic!larly a%on' lay)eo)le it refers to so%ethin' in the for% of
%oney food or clothin' that is 'iven to !nfort!nate )eo)le +Sa!$er
19E>: 1E4 and is ne'atively associated =ith )overty he
definition of
J
S*id%ore hac*eray and arley +1994J eor'e and Pa'e 1995J
Nastro= , he ter% is often conf!sed and so%eti%es !sed
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synony%o!sly =ith the ter%s Asocial =or*A and Asocial )olicyA 0n
fact social =elfare has a $road definition coverin' a variety of
o$Oectives in the =ide
22
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Chapter 2
areas of social services $t incl!des
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ot only are the AneedsA and Asit!ationsA different $!t they aredifferently seen this )eriod has =itnessed the e%er'ence and 'ro=thof those for%s of state intervention =hich $y c!sto% and co%%on
a))roval have co%e to $e called Athe social servicesA he servicesthe%selves develo)ed in sco)e and ran'e the ter% Asocial serviceA hasco%e to $e a))lied to %ore and %ore areas of collective )rovision forcertain AneedsA
+it%!ss 195E: 4
Conferrin' =ith it%!ss +195E (oyal and o!'h +1991 and 3rs*ine +,, contend
that needs are socially and historically deter%ined differ at different ti%es in different
societies and in different c!lt!res eeds also refer to the sorts of )ro$le%s =hich
)eo)le eL)erience and the res)onse to a )ro$le% has to $e seen in the conteLt of the
society in =hich the )ro$le% occ!rred +S)ie*er 1995 State intervention in the for%
of Asocial servicesA $e'an to develo) in order to %eet certain needs of the )eo)le his
state intervention is disc!ssed later in this cha)ter
his st!dy eLa%ines social =elfare and the role of the state d!rin' the colonial
ad%inistration h!s it involves loo*in' into the history of social =elfare he ter%
Asocial =elfare historyA is s!$se&!ently disc!ssed
Social Welfare Distory
Social =elfare historyQ is a co%)rehensive +/ei$y 1995J Nastro= ,J raha% and
#l-rena=i ,1 and
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%entally handica))ed< and alsoQ
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Chapter&
B!rden +199E and Baldoc* .annin' .iller and 8ic*erstaff +1999 vie= the
tenn Asocial )olicy
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0n the case of Britain Willia% Beverid'e has often $een referred to as the
architect of a A=elfare stateA +Walsh et al.3 , #s a res!lt of the Beverid'e re)ort
re'ardin' )re-=ar and =arti%e conditions of )overty lo= ed!cational standards and
adverse social conditions a =elfare )rovision called Afro% cradle to 'raveA =as
introd!ced in Britain to s!))ort financial F$!rden of fa%ilies =ith children +Br!ce
1966 he econo%ic theories of Hohn .aynard eynes =ho $elieved in econo%ic and
social intervention thro!'h )lannin' =ere =idely ado)ted and )rovided O!stification for
the state intervention in the econo%y and society +eor'e and Pa'e 1995J .id'ley
1995 h!s d!rin' the British colonialis% in .alaya Britain =as )ractisin' a
!niversal a))roach to =elfare in =hich )rovision of $enefits covered every citi"en
Whether or not the British had a))lied a si%ilar a))roach of =elfare )rovision )eo)le in
.alaya )artly constit!tes the foc!s of the c!rrent st!dy
So0,a+ We+4a/e an2 So0,a+ Po+,0
he 19Es sa= a 'ro=in' a=areness a%on' vario!s researchers of international +that is
not necessarily confined to 3!ro)e iss!es in their st!dies incl!din' the develo)%ent of
fra%e=or*s for social =elfare and social )olicy osta 3s)in'-#ndersen
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their citi"ens< social needs he role of de-co%%odification $ehind
the str!''le of the =or*in'-class to=ards a O!st society is e%inent in
the theory
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+3s)in'-#ndersen 199: ,7 he third re'i%e-ty)e is the
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3ast and So!theast #sian Welfare Syste%
Beca!se of their re%ar*a$le econo%ic achieve%ent 3ast and So!theast #sian co!ntries
have attracted considera$le attention When 3!ro)ean scholars $e'an to loo* into 3ast
#sian social =elfare syste%s they fo!nd that 3ast #sian 'overn%ents =ere not
s)endin' very %!ch on =elfare By the 199s several st!dies atte%)ted to analyse 3ast
and So!theast #sian =elfare syste%s +e' /in 1991J Hones 199>J ood%an and Pen'
1996J ood%an White and =on 1997J =on 1997J (olin' and Hones iner ,1
?n atte%)t =as %ade $y ood%an and Pen' +1996 to )lace the 3ast #sian
=elfare syste%s into a =elfare re'i%e %odel a%on' %ainly Chinese-s)ea*in'
co!ntries co%)risin' Sin'a)ore ai=an Don' on' and So!th orea hese
co!ntries are nor%ally referred to as the
$elieves that 3ast #sian =elfare syste%s share si%ilarities =ith conservative-cor)oratist
3!ro)ean =elfare re'i%es $!t she also $elieves that they do so
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=ay the state o)erates and sanctions the eL)ansion of )ro'ra%%es )erceived to o))ose
val!es of %!t!al s!))ort filial )iety social har%ony and hard =or* Uan' 1996
8al!es c!sto%s c!lt!re and $eliefs are still stron' a%on' 3ast #sian )eo)le
and %any still refer to )rivate s!))ort fro% relatives for social services +ood%an
White and =on 1997#dditionally the central role of fa%ily is evident =ithin these
#sian societies +Wal*er and Won' ,5 #sian fa%ilies are an i%)ortant so!rce of
assistance =hich is in the for% of =or* cash and *ind +o!'h ,a and
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Chapter 2
esearch into social =elfare in the 3ast and So!theast #sian re'ion has dra=n
eLtensively on Western a))roaches to characterise and classify the social =elfare
)ro'ra%%e =ithin this re'ion ar'!e that the
state role in .alaysia has $een
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vie= that the =elfare syste% in .alaysia >
State res)onsi$ility can $e identified as confor%in' either to a A)roviderA or to
a Are'!latorA %odel ;=on 1997 0n the re'!lator %odel =on vie=s that the
delivery of social =elfare %ay $e entirely )rivate and for the social =elfare syste% to
$e valid financial reso!rces fro% the 'overn%ent are not a necessary condition $n the
)rovider %odel one =ay for the 'overn%ent to f!nction effectively as a )rovider is $y
i%)osin' heavy taLes on the )eo)le his =ill inevita$ly ca!se the% to de%and efficient
and co%%ens!rate social services $eca!se a 'reat )ortion of their inco%e or assets is
$ein' channelled to=ards the syste% he 'overn%ent has to %ana'e and s!stain its
role as )rovider to %eet the de%ands of the )!$lic =on +1997 stresses that in %ost
co!ntries today social =elfare syste%s contain different co%$inations of the state as
)rovider or re'!lator h!s dra=in' !)on the afore%entioned assertions of eor'e and
Pa'e +1995 .id'ley +1995 and =on +1997J this st!dy intends to eLa%ine =hether
or not the 'overn%ent )layed an i%)ortant role as the %ain )rovider of =elfare in
.alaya =ithin the )eriod of 1946-1957
Social )olicy !ndertoo*
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Chapter&
Scholars have also i%)lied that a si'nificant restr!ct!rin' in social =elfare has
res!lted in a %odification of the state role in social =elfare he develo)%ent of social
=elfare in recent years a%o!nts to a reali'n%ent of a))roaches in =hich the role of the
state has $een retrenched +.id'ley 1997 he chan'in' trend in the state involve%ent
in =elfare is disc!ssed neLt
he State 0nvolve%ent in Welfare
enerally the idea that =elfare co!ld or sho!ld $e the res)onsi$ility of the state $e'an
to e%er'e in 3!ro)e $et=een 1EE and the early 194s (!rin' this )eriod %any
ind!strialised co!ntries )artic!larly in the West =ere conventionally seen as $ein' in a
)eriod of =elfare state advance%ent Bis%arc* laid one of the %ost i%)ortant
fo!ndation stones - the first %ode% social ins!rance sche%e -in er%any in the 1EEs
+eor'e and Pa'e 1995 Social ins!rance =hich =as !s!ally financed thro!'h
co%)!lsory !niversal contri$!tions =as a f!nda%ental feat!re of the =elfare state in
%ost ind!strialised nations 2ther 3!ro)ean co!ntries soon follo=ed introd!cin' social
sec!rity )ro'ra%%es and eLtendin' state )rovision into s!ch sectors as health
ed!cation ho!sin' and )ersonal social services +eor'e and Pa'e 1995 )artic!larly
introd!cin' sche%es li*e %aternity )ay%ents and child allo=ances +.id'ley 1995
he ter% AclassicA =elfare state has often $een !sed =ith reference to the )eriod
fro% 1945 to 1975 4
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nations ollo=in' a )eriod of a$o!t thirty years of relative sta$ility after the Second
World War the =elfare state had $een eL)eriencin' a )eriod of ra)id chan'e =here$y
the role of the state had increased
he de$ate concernin' the eLtent of the state involve%ent and re'!lation of
social =elfare )rovision has also $een the )olitical foc!s in %any Western co!ntries
#))roaches to =elfare )rovision have tended to $e lin*ed to the left-ri'ht s)ectr!% of
)olitical vie=)oints =ith the e= i'ht a))roach to social )olicy $ein' identified as a
)olitically ri'ht-=in' a))roach and adical socialis% as a )olitically left-=in'
a))roach he e= i'ht $elieves that the 'overn%ent involve%ent in re'!latin'
individ!als< lives sho!ld $e avoided he tendency is to differentiate $et=een
individ!als =ho AdeserveA =elfare services and those identified as A!ndeservin'A 2n
the other hand to the radical socialist the state sho!ld )lay the %aOor role in dealin'
=ith social iss!es and )rovidin' s!ita$le social circ!%stances to ens!re that )eo)le
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Chapter 2
So%e co!ntries s!ch as rance S=eden and er%any retain a stron' $elief in
the res)onsi$ility of central 'overn%ent to f!nd and %ana'e $asic =elfare )rovision
and )!$lic !tilities +Dall and .id'ley ,4 $n the case of the for instance the
e= i'ht
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=elfare syste% Do=ever
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Chapter 2
esid!al and 0nstit!tional
So%e acade%ics =ho have researched the 'overn%ent Do=ever : ,
he instit!tional conce)tion of social =elfare E
and social =elfare services are needed as )art of the fa$ric of society it%!ss +1974
$elieved that the state is the %ost effective collective instit!tion for the )rovision of
=elfare in co%)leL societies his vie= advocates that =elfare )rovision $y the state
caters for the )o)!lation as a =hole and ass!%es that econo%ic )olitical reli'io!s and
fa%ilial str!ct!res cannot deal ade&!ately =ith the )ro$le%s of individ!als
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%ode% life and in need of )rotective or thera)e!tic services< +(o=ns .cadden
.icha!d and Costin ,4: 16
0n contrast the resid!al vie= of =elfare E esid!alis% s!''ests that
=elfare services are )rovided only for those =ho cannot )rovide for the%selves and
that fa%ily reli'io!s )olitical and econo%ic instit!tions )ro%ote the 'eneral =elfare
s!ally )olicies and )ro'ra%%es $ased on this latter conce)tion see the 'overn%ent as
)layin' an i%)ortant $!t %ini%alist role in =elfare )rovision 0n other =ords a)art
fro% seein' the fa%ily as the a))ro)riate so!rce of assistance for %ost contin'encies
the state is re'arded as a last resort )rovider as co%)ared to vol!ntary or'anisations or
)rivately f!nded instit!tions Whilst vol!ntary or'anisations carry a lar'e share of the
$!rden of social =elfare 'overn%ental ad%inistration deals %ostly =ith certain social
)ro$le%s s!ch as cri%e delin&!ency and )rostit!tion he resid!al vie= of social
=elfare i%)lies that the %ain )riority of )olicy is to assist Av!lnera$le 'ro!)sA or the
needy s!ch as the )oor or %ainly lo=-inco%e 'ro!)s =hich re&!ire a concentration of
reso!rces !)on the% =hereas the instit!tional vie= i%)lies that in the event of a crises
the res)onsi$ility to assist rests =ith the state
esid!alis% th!s e%)hasises the )rovision of )ro'ra%%es and services only
after the )ri%ary 'ro!) that !s!ally f!nctions is no lon'er ca)a$le of f!nctionin'
+(o=ns eta?.3 ,4 $n the field of child =elfare for instance traditional child =elfare
services s!ch as child )rotective services and foster care 9
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only after the fa%ily syste% has $ro*en do=n and are therefore classified as resid!al
services< +(o=ns eta?.3 ,4: 16
it%!ss +1974 considered =elfare services in the conteLt De inte'rated
Wilens*y and /e$ea!L
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Chapter
co!ntries incl!din' .alaysia #dditionally Wilens*y and /e$ea!L$e ada)ted to de)ict +=hat i$) the nat!re of =elfare arran'e%ents in ca)italist society> +.air 1944J Dardi%an and .id'ley 19E,$
/i%ited re%edial social =or* services residential care and )oor-la= ty)e social
assistance )rovisions =ere introd!ced in %any colonies +.id'ley 19E1 19E4$ he
'ro=th of !r$an n!isances s!ch as $e''in' O!venile delin&!ency and destit!tion
44
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Chapter 2
occasioned a res)onse fro% the colonial 'overn%ents that so!'ht to s!))ress these
)ractices rather than a%eliorate their root ca!ses U.id'ley 19E4$ Concern a$o!t
'ro=in' cri%e and va'rancy a%on'st yo!th in !r$an areas led to the esta$lish%ent of
)ro$ation services and the $!ildin' of O!venile co!rts re%and ho%es and refor%atories
in the 194s +.id'ley 19E1R
Reidal
So%e researchers +e' odney 197,J Dod'e 197>J .id'ley 19E1J 19E7$J 199J
.acPherson 19E,J 19E7$J Dardi%an and .id'ley 19E,aJ Dar)er 1991 sho= that
social )olicies and =elfare services in the colonies =ere li%ited in sco)e and =ere
characterised $y a resid!al nat!re .id'ley
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.id'ley +19E7$ 1995 clai%s that colonial 'overn%ent =as %ore )ri%arily
concerned a$o!t la= and order =ithin the colonised co!ntry and the eL)loitation of the
co!ntry
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Chapter 2
the develo)%ent of social =elfare instit!tionsthro!'h the eLchan'e of infor%ation and vie=s
$et=een )olicy %a*ers or the ado)tion of the=elfare )olicies or )ractices of one co!ntry $y )olicy%a*ers in anotherJ it %ay res!lt in the discernin'ada)tation of forei'n eL)erience or the !ncriticalre)lication of alien =elfare)olicies
+.id'ley
19E4a: 17
.id'ley
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different =ays
he role of diff!sion in trans%ittin' social )olicies has never
$een )ro)erly assessed +.id'ley 19E4
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Chapter 2
and =orthy of e%!lation< +.id'ley
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colonial .alaya =ere ori'inally !r$an-$ased hos)ital-centred and elitist servin' first
British officers and other colonists he first hos)ital =as $!ilt to serve the needs of the
British officers and their troo)s hose at a distance fro% 3!ro)ean settle%ent =hose
illnesses =ere least li*ely to affect colonial econo%ic life or the health of others had
little acces to %edical and hos)ital services +.anderson 1996
# fe= st!dies atte%)t to re%ar* on the develo)%ent of social =elfare in the
colonial co!ntries )rior to the Second World War +!rnivall 1941J .air 1944 or
eLa%)le !rnivall
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Chapter 2
on-'overn%ental or'anisations +2s =hich are active in social =elfare in
3ast #sia and in Don' on' for instance deliver vario!s =elfare services ran'in' fro%
child and yo!th centres to instit!tions for )eo)le =ith %ental health )ro$le%s and
residential centres hese 2s have roots in the colony
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19E1J !"iah 199, and social history iss!es +#"%ah ,1 s!ch as the .alay society
in 'eneral +e' !llic* 19E7J hoo 1991 or the social lives of the 3!ro)ean
co%%!nity +B!tcher 1979 in .alaya and the socio-econo%ic i%)act of the Ha)anese
occ!)ation +ratos*a 199E
here have $een atte%)ts to deal =ith colonial ad%inistration and )olicy in
relation to =elfare a%on' econo%ic and )olitical iss!es +e' ate 1979J .ahani
,> evertheless historical st!dies dealin' =ith colonial )olicy and its infl!ence on
social =elfare in .alaya have received very little attention fro% scholars +Sayed
ah%an 199EJ (avis et al.3 ,
/ocal and forei'n scholars =ho st!died .alaya =ithin the sa%e )eriod of st!dy
+1946-1957 =ere concerned =ith or foc!ssed %ore on )olitical iss!es in .alaysia
#%on' these )olitical vie=s =ere to na%e a fe= .alay nationalis% +off 1967J the
Co%%!nist ins!r'ency d!rin' 194E to 196 +Cl!tter$ac* 1967J atna% 1967J and the
str!''le for inde)endence $et=een 1945 and 1957 +hon' 19E4 Stoc*=ell +1979 and
2on' +, )rovide a si'nificant )ict!re of British colonial )olicy in relation to ethnic
)olitics a%on' .alays and Chinese /eon' +1999 eLa%ines socio-econo%ic and
)olitical deter%inants that sha)ed the develo)%ent of the la$o!r %ove%ent and trade
!nionis% in colonial .alaya $et=een 19> and 1957
Several scholars )resented $rief sections on social =elfare =hich descri$e
vario!s iss!es s!ch as health la$o!r and ed!cation +Hones 195>J Central 2ffice of
0nfor%ation 1957J ennedy 196,J ate 1979 or eLa%)le SW Hones
=or* =hich foc!ses on the develo)%ent of )!$lic ad%inistration in .alaysia has
li%ited covera'e of social =elfare he Central 2ffice of 0nfor%ation +1957 also
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Chapter
$riefly disc!sses =elfare of the $lind children
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#!thority ai%s to sho= ho= the colonial
instit!tion develo)s and contin!es to eL)and into the )resent )ost-colonial sit!ation She
ar'!es that social =or* in .alaysia $e'an =ith the colonial )rovisions of services for
estate and %inin' =or*ers )artic!larly the Chinese and the 0ndians after the Second
54
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Chapter 2
World War She tries to eL)lain in $rief so%e of the le'islation
and )rotection in relation to =elfare services to =or*ers
#ccordin' to her the colonial 'overn%ent introd!ced the
first social =elfare services in .alaya in 1E77 to the Chinese
=or*ers and to the 0ndian =or*ers in 1EE4 She descri$es the
=elfare of the i%%i'rant =or*ers !ntil the year 194> =hen the
#dvisory Co%%ittee on Social Welfare for the colonies =as
esta$lished She also eL)lains $riefly the services rendered $y the
(SW and the or'anisation of the .inistry of Social Welfare
#ltho!'h her =or* hi'hli'hted so%e si'nificant as)ects of the
earliest social =elfare services =ithin .alaya she failed to s!))ort
her research thro!'h the !se of archival so!rces in her st!dy
ai +19E7 concentrates on the develo)%ent of health
services and intensively analyses the evol!tion of the str!ct!re and
f!nctions of health instit!tions and )ro'ra%%es in .alaya and
Sin'a)ore in the colonial and )ost-colonial )eriods +1E67-
196 ai
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c!rrent st!dy $eca!se as .air +1944 clai%s health is one as)ect
of colonial =elfare services 0n fact ai
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Chapter&
acco!nt of decolonisation it is an eLercise in So!theast #sian social history< +Dar)er
1991: ,
#ltho!'h Dar)erJ Steed%an 1995 Before 19 children needin' care in Britain =ere loo*ed after
$y the Poor /a= +Dol%an 19EE or $y vol!ntary or'anisations s!ch as Barnardo
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stressed $y lennerster +1975: 79 =ho notes that in Britain
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Chapter 2
he i%)act of $o%$in' and evac!ation had dra%atically eL)osed certain chronic
social )ro$le%s s!ch as child )overty and %aln!trition Certain iss!es )ertainin' to
child care =ere hi'hli'hted $y the =ar eL)erience or eLa%)le Dendric* +1994
esta$lishes that the =ar ca!sed:
the disinte'ration of %any fa%ilies as a res!lt of a$sent fathers $lit"ed
ho%es dead relatives de%o'ra)hic %ove%ent into hostile co%%!nities
ille'iti%acy and the str!''le to re$!ild relationshi)s on the ret!rn to
nor%ality the evac!ation eL)erience de%onstrated =hat a))eared to$e the eLtraordinary tenacity and resilience of the fa%ily as %others and
children 'rad!ally ret!rned fro% the rece)tion areas to their old ho%es2Dendric* 1994: ,,1
he =ar ca!sed si'nificant chan'es concernin' de)rived children as over three %illion
children had $een evac!ated overn%ent officials )ost!lated that
children =ere seen as $ein' of $oth body and mind' 2Dendric* ,>: 5 #ltho!'h the
evac!ation )rocess in Britain =as socially si'nificant : 6
(!rin' this )ost-=ar )eriod Bo=l$y +195, in his )rofo!ndly infl!ential theory
of A%aten1al de)rivationA ca!tions that children =ho =ere o!tside their fa%ilies =ere
5E
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hi'hly )ro$a$le to $eco%e either e%otionally dist!r$ed andor cri%inal delin&!ents
Bo=l$y
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Chapter 2
ahn and a%er%an +19E: 6, $elieve that
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19E7J .acPherson 19E7a and
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Chapter&
area in =hich very fe= st!dies have $een cond!cted nfort!nately %!ch of her =or*
=as not derived fro% archival so!rces
St!dies related to colonial )olicy on child =elfare in .alaysia are diffic!lt to
co%e across d!e to the ne=ness of social =elfare iss!es a%on' social science scholars
in .alaysia /ac* of st!dies on children in .alaysian social science research %ay $e
d!e to the fact that researchers are %ore inclined to )!rs!e to)ics =ith %ore availa$le
so!rces and accessi$le data
Con0+.6,on
Within this cha)ter =e have revie=ed relevant literat!re that hi'hli'hts the %eanin' of
the ter%s related to the st!dy Child =elfare is not easily defined and the ter% is
conteLt!al in nat!re $t has to $e )artic!larly considered =ithin the co!ntry
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=elfare )olicy has $een reached in the conteLt of colonial settin's $eca!se for %ost
develo)in' co!ntries a)art fro% social =elfare $ein' a recent idea it is only after the
Second World War that %any territories $eca%e )olitically inde)endent nation-states
$n s)ite of its failin's the state re%ains the sin'le %ost vital )olicy instit!tion
+Dall and .id'ley ,4 Within a =elfare state eLtensive social services are )rovided
$y the 'overn%ent to its citi"ens Do=ever of late there are vie=s that the state sho!ld
intervene less and f!nction %ore as a facilitator of $alanced social develo)%ent
)rovidin' a favo!ra$le conteLt and concentratin' f!nda%entally on s)ecific areas
co%%ens!rate to its role =hich incl!de )rotectin' the )oor and the v!lnera$le
+.id'ley 1997
here is c!rrent trend to refor%!late the role of the state in the conteLt of social
=elfare )rovision =ith the tendency of incor)oratin' the role of )rivate and non
vol!ntary or'anisations and =or*in' to'ether =ith the% to enhance =elfare )rovision to
the )eo)le So%e Western social )olicy thin*ers are considerin' the characteristics and
the 'ro=th of social =elfare =ithin the 3ast and So!theast #sian co!ntries in =hich the
states a))arently s)end less on social =elfare )rovision and *inshi) role in =elfare
re%ains si'nificant
#%on' the %aOor force in the history of develo)in' co!ntries has $een the
i%)act of colonialis% to=ards the =elfare of societies 'overn%ent ad%inistration
+ad%inistrative field econo%ic and social develo)%ent +health and ed!cation #
stri*in' discre)ancy is a))arent $et=een the literat!re )!$lished d!rin' the 194s and
in the early ,s )ertainin' to the idea of social =elfare )rovision in develo)in'
co!ntries With the eLce)tion of .acPherson
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Clzpter B
=elfare in the hird World child =elfare services d!rin' the colonial )eriod have $een
ins!fficiently eL)lored in literat!re and hence a need to identify certain =elfare
)rovisions offered in develo)in' co!ntries is noticea$le
Social )olicy scholars devoted less attention to colonial )olicies and the 'ro=th
of social =elfare in .alaya onetheless Hones
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CD#P3>
3S3#CD .3D2(2/2Y
0ntrod!ction
his cha)ter o!tlines the doc!%entary and &!alitative %ethodolo'y !sed in this st!dy
he follo=in' t=o sections foc!s on historical research %ethod in social =or* and the1
for Phase 000 and Phase 08 eLtensive data collection =as carried o!t at all the sites of
field=or* he researcher decided to search thro!'h the sco)e of ho%es that
acco%%odated children only $t sho!ld $e $orne in %ind that there =ere so%e =elfare
ho%es =here the %aOority of residents =ere a %iL of the elderly and children s!ch as
the Bedon' Welfare Do%e in edah $t =as indeed diffic!lt to identify the residents in
=elfare ho%es $eca!se the reasons for ad%ission into these ho%es incl!ded cases li*e
le)rosy or a father
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Chapter B
Serendah Boys< Do%e =as first r!n $y the Save the Children !nd +SC =hich later
received 'rant-in-aid fro% the 'overn%ent
Phase (!ration Sites of ield=or*
0 2cto$er ,1 - .arch ,, P2
D!ll niversity /i$rary00 H!ne ,,- .alaysia
H!ly ,, #. !ala /!%)!r
States #rchives +Penan'H edahKPerlis
000 #!'!st ,, - .ay ,> P2
hodes Do!se /i$rary2Lford niversityD.C
S2#S08 H!ne ,>- .alaysia
#!'!st ,> States #rchives+edahPerlis
#. !ala /!%)!r
(SW !ala /!%)!r0ntervie= sessionsniversity .alaya/i$rary !ala /!%)!r. /i$rary edah
S. /i$rary Penan'v Se)te%$er ,>
H #!'!st ,4 P2
a$le >1: Phases and sites of field=or*
#nother iss!e the researcher faced =as the scarcity of %aterials re'ardin'
vol!ntary or'anisations in .alaya d!rin' the )eriod of 1946 to 1957 his =as
)artic!larly evident as the )rocess of researchin' ca%e to=ards an end .oreover the
titles of the files )rovided in the /ist of (escri)tive =ere $rief $t needs to $e noted that
the availa$ility of doc!%ents in the files =as very %!ch de)endent on =hether or not
7'2
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the a'encies concerned had sent the% to the archives he safety of the doc!%ents sent
to the archive =as '!aranteed $!t the safety of the doc!%ents *e)t in the ori'inal
offices =as not +#rchive 2fficer +#2 ,> (es)ite this ass!rance not all offices had
sent the doc!%ents to the archive
.ost re)orts in the 0r/ib 4egara alayia +#.1 only $riefly %entioned
children and this %ade the tas* of ac&!irin' eLact data on children rather diffic!lt he
search =as %ade increasin'ly diffic!lt d!e to the fact that iss!es on children =ere
!s!ally s!$s!%ed !nder other headin's s!ch as =elfare of %others and yo!n'
children =o%en and 'irls and fa%ily =elfare #dditionally the records in these files
co!ld not $e relied on since other irrelevant %atters =ere also incl!ded or eLa%)le
the disc!ssion in the %in!tes of %eetin' of the Central Welfare Co!ncil +CWC =ere
%ainly a$o!t:
1 Welfare =ee*-ho= to collect %oney ho= %!ch collectedJ
! Children
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Chapter B
constraints the researcher decided to collect as %any %aterials as
)ossi$le a$o!t children livin' in three chosen children stresses that there is a
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d
i
n
'
d
o
%
:
1 P!$lic ecords 2ffice +P,
and Distorical.an!scri)t Co%%ission
+
D.
C
11 hodes Do!se /i$rary>
niversity of 2Lford
111 2ther li$raries
.
a
l
a
y
s
i
a:
1 #.
11 he (SW eso!rce oo%4
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111. 2ther local !niversity li$raries
,
ro% #)ril ,> the P2 =as Ooined to'etherF =ith the D.C to for% the ational #rchives Do=ever thro!'ho!t this thesis the researcher =ill !se the =ord
P2> Pa)ers of Creech Hones and .ar'ery Perha% for instance incl!de %ore on iss!es)ertainin' to colonial
)olicy fro% the )olitical andecono%ic )ers)ectives
he eso!rce oo% located at the (SW Dead 2ffice in !ala /!%)!r =asesta$lished in ,1 $t is
the )rinci)al so!rce of infor%ation for researchers loo*in' for %aterials in the area
of social =or* and social =elfare in .alaysia $t *ee)s a co%$ination of old and
ne=c!rrent %aterials he old %aterials =ere o$tained fro% its ori'inal )lace in the(SW rainin' 0nstit!te in !ala !$! Selan'or
74
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Chapter B
.ost of the field=or* to cons!lt ori'inal so!rces =as cond!cted in a variety of li$raries
and archives in Britain and .alaysia $et=een ,1 and ,4 as sho=n in a$le >1
he researcher =ent $ac* to .alaysia t=ice to carry o!t data collection he first ti%e
=as fro% > .ay to >1 H!ly ,, and the second =as fro% ,, H!ne to > #!'!st ,>
Distorical records )ertainin' to .alaysia are fo!nd in a$!ndance overseas $!t
they are scattered in several co!ntries +Dassan 19E1%
esearch =or* in the =as
essential for the revie= of historical %aterials since %aOor so!rce doc!%ents reflectin'
'overn%ent )olicies d!rin' the colonial )eriod are %ainly availa$le in the P2 +P2
)a%)hlet6
$o(ernment docment& alaya
here are vario!s .alay state ad%inistrative files of fore%ost si'nificance and
!sef!lness to research relatin' to social =elfare services hese ran'e fro% ro!tine
re)orts re'ardin' de)art%ents co%%ittees and co!ncils ann!al re)orts s)ecial re)orts
corres)ondence %e%oranda letters %in!tes of %eetin's and 'overn%ent 'a"ettes
.ost data =ere derived fro% infor%ation circ!lated %ainly =ithin .alaya s!ch as
district re)orts and de)art%ental )!$lications
or data on =elfare services d!rin' the i%%ediate )ost-=ar )eriod the
researcher loo*ed into the .alayan nion +. files7
the British .ilitary
I he $i''est collections are *e)t in Britain Dolland and Port!'al hey are also fo!nd in 0ndia Ha)an
rance hailand and #!stralia +Dassan 19E1"
Besides the P2 and the hodes Do!se /i$rary the %ost i%)ortant instit!tions that have .alaysianrecords in their holdin's in the are the 0ndia 2ffice ecords and the British /i$rary7 he . Secretariat records %eas!rin' sli'htly %ore than E5 linear feet cover the . )eriod 1946-
194E hey contain in the %ain corres)ondence $et=een Dead of (e)art%entJ esident Co%%issionersJ#ltanJ overnor eneralJ Secretary of State /ondon he =hole )eriod =as of reconstniction
75
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Chapter B
#d%inistration +B.# files and the ederal Secretariat +S files
#dditionaly there =ere files containin' internal doc!%ents 'enerated
=ithin 'overn%ent de)art%ents ran'in' fro% the Selan'or State
Secretariat +SS to the Di'h Co%%issioner
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'overn%ent files =ere destroyed $efore or d!rin' the Pacific War
al%ost all States Co!ncil %in!tes have s!rvived hese SS files
re)resent the %ost co%)leted indeLed collection of 3n'lish and
.alay records in .alaya +P#. , and th!s
faci
lita
ted
the
st!dyE
indin' aids s!ch as accessions lists descri)tive lists of
corres)ondence files and 'eneral indices co%)iled $y the archive
staffs assisted the researcher in locatin' relevant doc!%ents
Do=ever $eca!se of the !nevenness of in-de)th research on so%e
reha$ilitation and reor'ani"ation of and the 'overn%ent de)art%ents and this the%e
=as reflected in these records +Satina% !ndatedE
he #. has )rod!ced a fe= indices he S ecord ro!) of 0ndeL contains a
list of the S 2ffice
files dated fro% 19>5 !ntil 1957 he files are divided into t=o 'ro!)sJ the ftrst'ro!) holds !) to >4 $oLes containin' flies dated 1941-194E and the second 'ro!)
holds !) to 5E $oLes containin' flies dated1949-1957
76
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Chapter B
states< (SW and d!e to lac* of file indices and inco%)lete or destroyed file series data
for so%e states in .alaya =ere dealt =ith ina %ore 'eneral %anner in this st!dy
$o(ernment docment& )*
0n /ondon the P2 ho!ses Colonial and orei'n 2ffice files )l!s s!ndry other )ri%ary
so!rce %aterials Colonial 2ffice files reveal a %ore 'eneral o!tloo* concernin' the
decisions to ad%inister an e%)ire .ost often /ondon
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Chapter B
,1 esearchin'
ne=s)a)ers is th!s essential since it can handle a vast &!antity of
infor%ation directly $ased on daily =ee*ly or %onthly activities $t
also
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r
i(
a
t
e
p
a
pe
r
(!rin' visits to #. and the hodes Do!se the researcher also
too* the o))ort!nity to loo* into )rivate )a)ers .aterials in s!ch a
collection varied nor%ally consistin' of $oo*s %a'a"ines
ne=s)a)ers fil%s files )hoto'ra)hs )rivate and official
corres)ondence articles diaries etc +Dassan 19E1 Do=ever in the
researcher
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78
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Chapter B
or/ing with the reorce
he collection of data in this st!dy involved searchin' for $oth )ri%ary and secondary
so!rce doc!%ents Secondary so!rces incl!ded $oo*s Oo!rnals dissertations and
theses he st!dy also incor)orated oral history +intervie=s Both the secondary
so!rces and intervie=s )rovided val!a$le s!))le%entary %aterials for the st!dy his
=as indeed a la$orio!s tas* involvin' !se of a s!$stantial $ody of data 'arnered fro% a
=ide ran'e of so!rces
Pri%ary so!rces co%)rised a variety of official archive %aterials ran'in' fro%
official doc!%ents to )eriodicals 'overn%ent doc!%ents ne=s)a)ers and )rivate
)a)ers of =hich %ost =ere in 3n'lish
#d%inistrative records of the 'overn%ent social a'ency can $e !sed for data
collection +Da*i% 199> in research he !se of ad%inistrative records and doc!%ents
as the %ain so!rce of data can )rovide val!a$le infor%ation a$o!t the history of an
i%)ortant 'overn%ent social a'ency or social =elfare instit!tion +Pad'ett 199E as
=ell as individ!als 'ro!)s and co%%!nities +/eashore and Cates 19E5 o!r ty)es of
reso!rce %aterials =ere eLa%ined incl!din' ad%inistrative files of the .alay state
'overn%ents British colonial doc!%ents conte%)orary ne=s)a)ers and )rivate
)a)ers
he researcher
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Chapter B
%aterial and co%)are %aterials o$tained fro% other reso!rce centres
in order to eL)and the data $nother =ords as Dill +199>: 67 )oints
o!t archival research is
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he researcher had to follo= certain re'!lations to cond!ct
research in .alaysia as set !) $y the Socio-3cono%ic and eneral
Plannin' esearch nit +S3P of the Pri%e .inister
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Chapter B
hatred en%ity or conte%)t $et=een or to=ards any ethnic or reli'io!s 'ro!)< +3P
1999 o a$ide $y the re'!lations %entioned a$ove the researcher had to $e %indf!l of
not !sin' or analysin' the data in a =ay that co!ld aro!se racial senti%ent a%on' the
different ethnic 'ro!)s evertheless this does not %ean that !se of research =ithin
ethnic 'ro!)s in .alaysia is )ro$le%atic as lon' as the researcher is )artic!larly
ca!tio!s =hen disc!ssin' iss!es relatin' to each ethnic 'ro!)
(!e to the hi'hly $!rea!cratic nat!re of .alaysian 'overn%ent a'encies an
a))lication for% for cond!ctin' this st!dy to'ether =ith the research )ro)osal =as
s!$%itted to the S3P t=o %onths $efore the first field=or* +see a$le >1 Phase
00 he researcher o$tained )er%ission =as iss!ed a esearch Pass and =as re'istered
as an a!thori"ed researcher $y the #. 2n co%)letin' her st!dy the researcher is
re&!ired to s!$%it three co)ies of her final re)ort to the S3P he re'!lation also
states that sho!ld it $e dee%ed necessary the researcher is re&!ired to )resent and
disc!ss the findin's to the S3P
Do=ever in relation to accessi$ility of archival %aterials in the no s!ch
for%ality =as i%)osed eLce)t that )roof of identity or =ritten re&!est =as re&!ired in
advance he researcher then had to fill in a))lication for%s $efore she =as 'iven a
eader Pass
1nter(iew eion +oral hitory,
Distorical data %ay $e derived fro% oral intervie=s +raha% and #l-rena=i ,1
he $est historical research st!dy is $ased on an eL)loration of )ri%ary so!rces that
)rovide the eLact =ords of the =itnesses or first recorders of an event +St!art 19EE 0n
E1
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Chapter B
fact as St!art +19EE f!rther ar'!es de)endence on archive data $linds
the researcher to inacc!racies %is)erce)tions o%issions and $iases
of the colonial state 0ntervie=s often )rovide the researcher =ith
data not availa$le in =ritten so!rces =hich are of hel) in fillin' so%e
'a)s !rther%ore thro!'h intervie=s the researcher o$tained
f!rther evidence to s!))ort the archival %aterials $y co%)arin' each
)iece of evidence =ith all other )ieces and deter%ined the eLtent of
a'ree%ent
# researcher %!st have a$ility to assess the a))ro)riateness
of a )artici)ant in contri$!tin' to the st!dy Seid%an +1991
e%)hasises that the %aOor criterion for this a))ro)riateness is =hether
the s!$Oect of the researcher
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they =anted to say a%)lify facts or add details so as to %a*e their
story interestin' as =as the case =as =ith one of the infor%ants
0n this st!dy the researcher identified five )artici)ants =ho
=ere *ey )eo)le =ho had )ersonal eL)erience of =or*in' at the (SW
d!rin' the British colonial )eriod he )artici)ants co%)rised three
fe%ale and t=o %ale res)ondents hey =ere chosen fro% a list of
na%es of )ersons re'arded as )ioneers of social =or* in .alaysia
)rinted in a )!$lication $y the .alaysian #ssociation of Social
Wor*ers +.#SW +!ndated 0 6ribte to ioneer Gear of
#ocial or/ alayia in conO!nction =ith the 3th anniversary of the
.#SW he res)ondents< $ac*'ro!nd of eL)eriences and
&!alifications is 'iven in #))endiL > #nother )artici)ant an
eL)erienced officer at the
82
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Chapter B
#. =as also intervie=ed to find o!t a$o!t the accessi$ility of
archival %aterials he researcher =as =ell a=are of the very ti'ht
sched!le of so%e of the )artici)ants and at one ti%e a tele)hone
intervie= =as even cond!cted1
enerally d!rin' all intervie=s the )artici)ants =ere 'enero!s ini%)artin'
*no=led'e and sharin' vie=s and o)inions )ertainin' to their
eL)eriences of social =elfare services and social =elfare =or* d!rin'
the colonial )eriod his data co!ld not )ossi$ly have $een collected
if the st!dy had $een carried o!t thro!'h other %ethods he
intervie=s )rovided data =hich eLtended the researcher
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V #rchive 2fficer
#emi-trctred
inter(iew
# se%i-str!ct!red intervie= sched!le +see #))endiL > desi'ned $y
the researcher =as !sed to '!ide her in foc!sin' on relevant iss!es
d!rin' the intervie=s hree of the intervie=s =ere carried o!t
d!rin' office ho!rs in the )artici)ants< offices and t=o =ere carried
o!t in the )artici)ants< residence constit!tin' the li*ely sit!ation in
=hich intervie=s can occ!r as )ointed o!t $y BlaLter eta?. +,1
he intervie=s lasted fro%
1J or instance intervie=in' a )erson s!ch as 3L-Welfare 2fficer +3W2 4challen'ed the researcher
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Chapter B
one ho!r to one and a half ho!rs .ost intervie=ees conversed in a
%iLt!re of 3n'lish and .alay
#ll the intervie= sessi2ns =ere a!dio ta)ed and f!lly
transcri$ed =hich$enefited the researcher even tho!'h transcri$in'
the intervie=s =as ti%e-cons!%in' he transcri)tion allo=ed the
researcher to relia$ly =or* =ith the =ords of the)artici)ants
#dditionally recordin' of the intervie=s =as $eneficial $eca!se
the researcher had the ori'inal data
(ata#
n
al
ys
i
s
#c&!irin' data 1n historical research is not an easy tas* 'iven
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that it involves syste%atic o$Oective data collection and analysis
Content analysis is the a))roach !sed to analyse doc!%ents +Pad'ett
199E in this st!dy When a))roachin' or eLa%inin' a so!rce a%on'
the &!estions that the researcher al=ays $ore in %ind =ere =ho
=rote this doc!%ent and for =hat )!r)oseT and ho= does this
doc!%ent relate to the )revio!s oneT +Dill 199>J Hones 1994J
Hordanova ,J BlaLter eta!.3 ,1
Processin' the data involved collectin' classifyin' eval!atin' andinter)retin'
the %aterials availa$le he researcher had to select and identify the
necessary %aterials and so!rces to $e analysed he researcher strove to
foc!s on so%e of the lin*in' events to eL)lain the circ!%stances
relatin' to the develo)%ent of social =elfare services for children
#%on' the events =ere the i%)acts of British colonialis% the
after%ath of the War the re-esta$lish%ent of British colonial
ad%inistration and the road to inde)endence hese events
clarified ho= the colonial 'overn%ent too* res)onsi$ility
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E4
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Chapter B
in res)onse to those chan'es $y for%!latin' social =elfare servicesfor children in
.alaya i%)le%entedthro!'h the (SW
#nalysis of the data =as carried o!t $y siftin' thro!'h files and
se)aratin' the% accordin' to s)ecific the%es s!ch as early social
=elfare services colonial =elfare )olicy services for children and
)olicy to=ards children !rther%ore the researcher needed so%e
*no=led'e of 'overn%ent ad%inistration and related events in the
)eriod of st!dy h!s the researcher searched for and not only !sed all
)ertinent %aterials $!t tried to $e i%a'inative =ith re'ard to
infor%ation that %i'ht a))ear in so!rces accordin' to the research
&!estions !nder st!dy +/eashore and Cates 19E5
enerally the researcher or'anised her findin's $y !sin'
the%atic and chronolo'ical )resentation +St!art 19EE: >5E Several
researchers have e%)loyed a historical %ethod +ai 19E7J Dar)er
1991J /eon' 1999J 2on' , !sin' a chronolo'ical a))roach +ai
19E7 and a the%atic a))roach +Dar)er 1991 in their st!dies
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3%)loyin' the strate'y of ill!strative style as s!''ested $y .ay
+1997 the researcher =as a$le to select data that co!ld ill!strate
'eneral the%es and s!))ort s)ecific eLa%)les
.ethodolo'ical 0ss!es that 3%er'edfro% the St!dy
0rchi(al wor/ in
alayia and )*
$t sho!ld $e noted that co%)arin' reso!rce centres $et=een .alaysia
and is li*e co%)arin' Athe land =ith the s*yA +a .alay )rover$
since one has to loo* at vario!s an'les to find si%ilarities and
differences 3ach co!ntry has its o=n =ay of *ee)in' their records
safe its o=n history of or'anisational set !) and %ana'en1ent syste%s
$n
E5
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Chapter B
the case of the #. esta$lish%ent )rior to the Second World War no action =as ta*en
to for%!late a syste%atic )rocess of esta$lishin' the archives #fter the s!rrender of the
Ha)anese the 'overn%ent =as o$li'ed to concentrate its attention on %any )ressin'
iss!es connected =ith reha$ilitation and later =ith the 3%er'ency #s a res!lt the
esta$lish%ent of the archives =as delayed he =ides)read destr!ction of official
doc!%ents all over .alaya d!rin' the Ha)anese occ!)ation f!rther contri$!ted to the
i%)ression that the archival iss!e =as of lo= )riority +P#.,
Whilst %ost of the reso!rce centres in the are searcha$le via online
catalo'!es ena$lin' doc!%ents to $e ordered $efore a visit to the site the #. is only
O!st %ovin' to=ards this .aterials sent over to the #. after 1997 are $ein'
electronically entered into the syste% Do=ever the )ro'ress of co%)!terisation for
older %aterials is sli'htly delayed $eca!se the archive staffs have to )hysically identify
the contents of each file +#2 ,> =hich is very ti%e cons!%in'
0cceibility3 a(ailability and contraint of data in the )*
#s )revio!sly indicated )rivate )a)ers =ere also loo*ed into Do=ever the )rivate
)a)ers in the are located at vario!s li$raries and are not centralised at one archive as
the researcher discovered =hen she =anted reso!rces a$o!t colonial officers< )rivate
I)a)ers listed in the catalo'!e availa$le at the Distorical .an!scri)t Co%%ission
+D.C
.!ch of the %aterials in the Colonial 2ffice records in P2 =ere or'anised
accordin' to co!ntry and the relevant record series for the co!ntry re&!ired =ere
relatively easy to deter%ine Do=ever this =ay of or'anisation =as not of %!ch hel) to
86
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the researcher $eca!se =hen loo*in' for A.alayaA as a co!ntry several 'eneral records
=ere )resented he researcher then so!'ht to cross chec* =ith vario!s na%es and
s!$Oect searches !sin' AcolonialA as the *ey=ord and then the )eriod aro!nd 1946 to
1957 he researcher accessed records !sin' the Colonial 2ffice +C2 indeL shelved
=ith the C2 catalo'!es or $y searchin' the na%e of the co!ntry in online catalo'!es
o the researcher the online catalo'!e altho!'h not necessarily co%)rehensive =as a
!sef!l %eans of searchin' for $oth s!$Oect series and advisory co%%ittee records
he P2 also holds records of the British 'overn%ent relatin' to the British
3%)ire hese constit!ted an inval!a$le reso!rce for the st!dy of British )olicy on
.alaya and the $roader history of British )olitical social and econo%ic )olicies
Do=ever the availa$ility of the %an!scri)ts de)ended on colonial officials =ho =rote
a$o!t %atters considered to $e vital fro% their o=n )ers)ective
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+1946-57 the %ost relevant lists =ere the /ist of #ccession 1957-1967 and the /ist of
#ccession 196E Do=ever at the s!''estion of the archive staff the researcher had to
loo* at the c!rrent lists +lists after 196E as =ell or altho!'h the state archive offices
=ere $!ilt %!ch later this does not %ean that the earliest records of the state can $e
fo!nd at the #. Dead&!arters in !ala /!%)!r $t de)ended as )revio!sly
indicated lar'ely on =hether or not the office or the 'overn%ent a'encies =ho =ere
re&!ested to send the old records as soon as the ?C> =as esta$lished in 1957 had
co%)lied on ti%e So%e de)art%ents sent their records later than the stated date =hile
so%e had sent older records s!ch as fro% the 194s to'ether =ith those fro% a %!ch
later date for eLa%)le in 197 h!s records dated aro!nd the 194s can also $e fo!nd
a%on' those fro% the 197s #nother iss!e is that the contents of the /ist of #ccessions
are al=ays %iLed !) d!e to their not $ein' chronolo'ically arran'ed +#2 ,>
Contents of the o)ened files 'enerally concerned the %in!tes of %eetin's letters
and %e%os nfort!nately so%e of the %in!tes of %eetin's =ere fo!nd to $e
inco%)lete %issin' or e%)ty +e' (SW ,911
or instance the researcher co!ld not
access the #nn!al e)ort of .alaya 1957 =hich res!lted in a red!ction in the a%o!nt
of data es)ecially =hen analysin' the contin!ity of the re)ort #nother eLa%)le the
free %eals for school children iss!e =as re)orted in the %in!tes of %eetin's fro% 1946
to 195> $!t the re)orts after that )eriod =ere not in the file Do=ever no )artic!lar
reason =as 'iven $y the archive staff for it $ein' %issin' h!s the researcher decided
11 #ccordin' to the /ist of (escri)tion the file (SW ,9 entitled Selan'or Children
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Chapter B
not to rely on these %in!tes $eca!se of %issin' )a'es or they are not arran'ed %
order1
0n one case d!rin' the second field=or* data collection in .alaysia +see a$le
>1 Phase 08 so%e of the files fro% the Kederal #ecretariat *mplan *eda 8LL-
8F7 co!ld not $e $orro=ed $eca!se they =ere in the )rocess of $ein' $ar-coded =hich
constit!ted a f!rther constraint to the accessi$ility of data1>
#nn!al re)orts of de)art%ents re)resent the %ost i%)ortant so!rce of reference
$eca!se they record in detail all activities and statistics a$o!t the or'anisation !nder
st!dy (!rin' the )eriod of st!dy ederation of .alaya #nn!al e)ort +.#
eListed $!t its content =as sli'htly different fro% that of the de)art%ent ann!al re)ort
he .# stated concisely all the activities and statistics fro% vario!s 'overn%ent
a'encies incl!din' the (SW Do=ever the researcher only %ana'ed to 'et hold of the
#nn!al e)ort of the (SW since its esta$lish%ent in 1946 to 194E e)orts $et=een
the years 1949-1957 =ere not availa$le So%e of the (SW# fo!nd in #etiaaha
*erajaan +S file =as inco%)lete ca!sin' a 'a) in the re)ort 0nevita$ly the
researcher had to rely only on the .# for data d!rin' the )eriod of 1949 !ntil
195714
1,(!rin' the ti%e of data collection the %aterials at P2 =ere chronolo'ically arran'ed Pa)ers in the
file =ere $o!nd !sin'
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here =ere a n!%$er of 'a)s in the doc!%entation of .alaysian history ca!sed
in )art $y =hite ants +ter%ites the cli%ate and also destr!ction of files that too* )lace
d!rin' the Ha)anese occ!)ation =hen lar'e &!antities of official doc!%ents )rinted
re)orts and other records =ere destroyed #dditionally %any records have $een
destroyed and da%a'ed $eca!se of )oor stora'e conditions 18 his f!rther O!stifies =hy
the )eriod $e'innin' in 1946 =as chosen in the )resent st!dy
$n the British colonial ad%inistrative str!ct!re the SS =as one of the %ost
i%)ortant re)ositories of doc!%ents $t contained co%%!nications =ith hi'her
a!thorities state-level disc!ssion iss!es and )erha)s %ost i%)ortantly a lar'e a%o!nt
of local details re)orted $y the districts %!ch of =hich =as trans%itted to the Di'h
Co%%issioner or if at all in s!%%ary to /ondon he SS files are one of the %ost
fr!itf!l so!rces a social or econo%ic historian can !se Do=ever the SS did not only
hold or contain %aterials a$o!t a )artic!lar stateJ it also at ti%es incl!ded re)orts of
other states #ltho!'h the #nn!al e)ort of the Settle%ent of .alacca 1949 and of
other states eListed as =ell these collections =ere re'retta$ly $adly da%a'ed d!rin' the
Ha)anese occ!)ation eLce)t for those of the states ofedah and Selan'or or eLa%)le
files co%)lete =ith card s!$Oect indeL and re'ister $oo*s fro% 199 to 194, can still
$e fo!nd in edah +P#., !ndated
15
(!rin' his to!r to .alaya in 1957 D Bla*iston an archive eL)ert fro% the P2 of /ondon fo!ndthat 'overn%ent files =hich for%ed the $!l* of the records of %ost de)art%ents =ere only rarely *e)tin
asatisfactory condition .any =ere da%a'ed $y da%) insects and rats and old files =ere often rele'ated
to the floor of co%)any storeroo%s =ith old tyres and scra) iron 8al!a$le records =ere fo!nd collectin'
d!st and scattered in attics 'ara'es and alon' corridors of the 'overn%ent offices #t that ti%e there
=erl< no 'eneral r!les for the dis)osal of val!eless doc!%ents +Dassan 19E1
9
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Chapter B
0dminitrati(e and technical ie in alayian archi(e
While %ost archives =ere o)ened to the )!$lic on =or*in' days and so%e archives
)rovided eLtended ho!rs andor =ee*end access so%e =ere closed d!rin' local
festivities 0n ter%s of %an)o=er so%e archives did not have s!fficient staff to deal
=ith researchers and to retrieve doc!%ents fro% the re)ository +Da$i$ah 19E7 h!s
the availa$ility of doc!%ents =as restricted to a s)ecified ti%e 0n so%e archives d!rin'
l!nch $rea* ne= a))lications for doc!%ents =ere not acce)ted he constant s=itchin'
of staff on d!ty also affected the a%o!nt of ti%e ta*en to )hotoco)y %aterials
So%e archival instit!tions )laced restrictions on the a%o!nt of records to $e
%ade availa$le or instance researchers =ere restricted to $orro= one $oL or five
ite%s at a ti%e he ti%e ta*en to find )ertinent doc!%ents =as aro!nd > %in!tes +at
P2 and so%eti%es lon'er if the archive
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Both Britain and .alaysia have si%ilar ri'hts of access to archives for their
citi"ens 0n .alaysia !nder the ational #rchives #ct o 44 of 1966 records that are
over ,5 years =hich have $een revie=ed for )er%anent )reservation at the #. are
o)en for cons!ltation to every researcher Do=ever so%e of the records re&!ested $y
the researcher co!ld not $e accessed $eca!se they =ere still recorded AconfidentialA
and $eca!se of certain technical )ro$le%s or instance the #. staff said that they
had 'iven so%e doc!%ents to the res)ective 'overn%ent de)art%ents to certify )!$lic
access nfort!nately the doc!%ents =ere not ret!rned to the #. When the #.
staff tried to find o!t =hat had act!ally ha))ened it =as discovered that the doc!%ents
=ere no lon'er at that office h!s the records of the a'encies are still considered
AconfidentialA and not accessi$le to the )!$lic !ntil they are ret!rnedtransferred $ac* to
the #. +Da$i$ah 19E7J #2 ,>
17
4ote on the inter(iew
he researcher did not strictly follo= the se&!ence of &!estions in the intervie= '!ide
d!rin' intervie=s $eca!se the )artici)ants co!ld not )rovide o$Oective ans=ers =ithin
the fra%e of se%i-str!ct!red &!estions he researcher felt the disc!ssion co!ld $e %!ch
%ore relaLed and the )artici)ants =o!ld $e %ore res)onsive if she )!rs!ed the iss!es
and sit!ations the )artici)ants raised #t the sa%e ti%e the researcher %ade an effort to
foc!s on the iss!es raised d!rin' the disc!ssions as Seid%an +1991: 69 re%inds !s
17 3ven tho!'h there =as a s)ecifi#ct to )reserve the %aterials so%e of the archive staffs =ere not
a=are of its eListence he %aterials intended for )reservation sho!ld have $een selected ftrst $y the
#. Do=ever s!ch a Oo$ =as not assi'ned to anyone
-
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Chaprer B
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intervie=s and =as o$vio!sly $!sy =ith hisher o=n involve%ent % the on
'overn%ental or'anisations +2
5ther contraint in(ol(ed
Cond!ctin' archival field=or* =as ti%e cons!%in' and it did affect )erfor%ance
d!rin' the data collection )rocess #s osh +, s!''ests there is a need to loo* into
this )ro$le% serio!sly since research !sin' )ri%ary so!rces can $e )ainf!lly slo=
Davin' a research assistant =o!ld have hel)ed as ti%e s)ent in $ro=sin' the catalo'!es
or indices co!ld have $een reallocated to other vital =or* s!ch as scannin' the %aterials
fo!nd in selected files $t is =orth notin' that s)endin' a lot of ti%e and o)enin'
h!ndreds of files at the archives did not '!arantee the researcher to ac&!ire as %!ch
data as re&!ired
#ltho!'h %aterials collected fro% the archives =ere a$!ndant the researcher
had to learn =hat historians call the Aslash and $!rnA techni&!e that is %a*in'
decisions as to =hat is relevant and =hat to thro= a=ay a techni&!e !nfa%iliar to %ost
sociolo'ists and social scientists +Steed%an ,> evertheless it =as act!ally a
)ainf!l decision to leave o!t so%ethin' that had $een so diffic!lt to ac&!ire O!st$eca!se
it =as not relevant he researcher also learnt ho= to cross-reference $et=een different
*inds of doc!%ents and so!rces +Steed%an ,> =hich is considered an i%)ortant
ste) in historical %ethod
he researcher antici)ated )ro$le%s =ith the a%o!nt of ti%e this research
de%anded as =ell as the hi'h cost of travellin' )hotoco)yin' and ad%inistrative =or*
involved (!e to ti%e and financial constraints the researcher =as !na$le to visit all
94
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Chapter B
state archives % .alaysia or to )rolon' the search for val!a$le %aterials s!ch as
ne=s)a)ers1E
o $e involved in a social =or* a ne= field for the researcher at . and to
!se historical %ethod to research children
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in their st!dy esearchin' archives has revealed coherent and !sef!l infor%ation that
)rovided ans=ers to &!estions )artic!larly those that confir% the ori'in of an event or a
)heno%enon he historical doc!%ents !sed in this st!dy )rovided s!$stantial data for
Cha)ters 6-9 Before analysis of these doc!%ents is considered =e =ill loo* into the
$ac*'ro!nd of .alaya as the conteLt of the st!dy in the neLt cha)ter
96
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Chapter
CD#P34
.#/#Y#
0ntrod!ction
his cha)ter descri$es a 'eneral acco!nt of .alaya and the society d!rin' )re-colonial
and the colonial )eriod of British ad%inistration1
0t foc!ses on the colonial
ad%inistration and hi'hli'hts the eListence of a %!ltiethnic society d!rin' the British
r!le that res!lted in the ens!ed societal co%)leLity he cha)ter considers the i%)act of
colonisation on the traditional .alay society
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"
$%"UT=
C D 0 &I
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K8en
e/a
+De60/,9t,on
he lIcdcration of .alaya coverin' an area of a))roLi%ately 5E5
s&!are %iles \\as sit!ated in the so!thern section of the ra
Penins!la =hich )rotr!ded fro% the so!th- eastern con1er of #sia
$et=een 0ndia and China $t =as %ade !) of eleven states: Perlis
cdah Penan' Pcra* Sclan'or +=ith the %< ederal Ca)ital erritory
of !ala /!%)!r *la*a Hohor Se%$i ian Pahan'
ercn''an! and clantan located in
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Chapter
Penins!lar .alaysia +see i'!re 41BS and t=o states of Sa$ah and Sara=a* on the
northern coast of Borneo 0sland #$o!t fo!r-fifths of the s!rface ofthe)enins!la is still
covered $y dense tro)ical O!n'le in =hich co%%!nication is rendered diffic!lt $y
%o!ntains and rivers he )rinci)al feat!res of the .alayan cli%ate are co)io!s rainfall
hi'h h!%idity and !nifor%ity of te%)erat!re that rarely varies d!rin' the day $y %ore
than fifteen de'rees +PP. +3 1
he total )o)!lation of .alaya in 1947 =as 49E %illion and it increased to
6,79 %illion in 1957 +.chee 1964>
he total n!%$er of .alay children in the a'e
'ro!) of 6-1, =as a))roLi%ately 4>1 in 1947 he total school enrol%ent for
.alay $oys in 194E =as 1757E =hile 447E7 'irls enrolled in school that sa%e year
+C2 E59,,5,J C2 99716 he fi'!res in a$le 41 sho= the children
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#ccordin' to the 195> re)ort children over siL and $elo= thirteen years of a'e
n!%$ered a))roLi%ately 1141 +PP. > K0R3 8FB,. Do=ever this re)ort only
indicates children $et=een the a'es of 6-1> years h!s the children see%s to )rovide an indication of the n!%$er of children d!rin' the
)eriod of st!dy
T1e Ba0:/o.n2 o4 Co+on,a+ A7,n,6t/at,on
he invasion of .alaya $y several )o=ers na%ely the Port!'!ese the (!tch the
British and the Ha)anese $e'an in the %iddle of the siLteenth cent!ry he fall of the
.alacca S!ltanate to the Port!'!ese in 1511 indicated the $e'innin' of the eL)ansion of
the forei'n )o=ers and their infl!ence in .alaya Do=ever d!rin' this )eriod other
.alay states +Perlis edah elantan Pahan' Pera* eren''an! e'eri Se%$ilan
Selan'or and Hohore =ere ad%inistered $y the nine .alay s!ltanates =hich r!led their
o=n states and indeed %ade .alaya a))ear li*e nine co!ntries +hoo 1979
(irect British r!le =as first esta$lished in the Straits Settle%ents consistin' of
Penan' +17E6 Sin'a)ore +1E19 and .alacca +1E,6 he ta*eover of the
ad%inistration of the .alay states $eca%e even %ore active =ith the si'nin' of the
Pan'*or reaty in 1E74 in Pera* =hich %ar*ed the $e'innin' of direct interference and
eLtension of British r!le in .alaya he chaotic sit!ation in Selan'or e'eri Se%$ilan
and Pahan' f!rther o)ened the )ath for the British to interfere and this led to the
for%ation Iof the .S in 1E96 edah Perlis eren''an! elantan and Hohore =ere
then referred to as the nfederated .alay States +.S By the %iddle of the
1
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Chapter.!
nineteenth cent!ry the British infl!ence had eLtended to .alaya
Sin'a)ore Sara=a* and orth Borneo
#s stated in Cha)ter 1 the o))ort!nity to r!le .alaya
after the Ha)anese s!rrender added ne= res)onsi$ilities for the British
ad%inistration incl!din' re$!ildin' of the British infl!ence after an
a$sence of %ore than three years # ne= te%)orary %ilitary
'overn%ent =as then for%ed the British .ilitary #d%inistration
+B.# =hich o)erated fro% Se)te%$er 1945 !ntil .arch 1946
Do=ever it =as a short ad%inistration d!e to staff inca)a$ility s!ch as
lac* of eL)erience inefficiency and corr!)tion +De!ssler 19E5J .ohd
0sa ,,
he .alayan nion +. =hich =as esta$lished in #)ril
1946 consisted of all nine .alay states and the settle%ents of Penan'
and .alacca called for a constit!tional !nion of .alaya and t