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Articles

‘A very salutary effect’: The Counter-Terror Strategy in the Early Malayan Emergency, June 1948 to December 1949

Pages 415-444 | Published online: 26 Jun 2009
 

Abstract

The counter-insurgency lessons commonly drawn from the Malayan Emergency ignore strategy in the opening phase or dismiss it as characterised by mistakes committed in a policy vacuum. This article argues that the British army pursued a deliberately formulated counter-terror strategy until circa December 1949, aiming to intimidate the civilian Chinese community into supporting the government. Mass arrests, property destruction, and forced population movement, combined with loose controls on lethal force, created a coercive effect. The consequences of these policies were mounting civilian casualties, which the government allowed to continue because its intelligence assessments suggested they were militarily effective.

Acknowledgements

An earlier version of this paper was given at the ‘Intelligence, Strategic Culture and Counterinsurgencies’ workshop, National Defense University, Washington DC on 11 June 2008. Thanks to Patrick Cronin and Huw Davies for arranging the event, and the participants for their remarks. Thanks to Manuel Bollag, Paul Dixon, David French, Karl Hack, Georgina Sinclair and Christian Tripodi for their comments on subsequent drafts. Errors remain the author's responsibility.

Notes

1Examples include: David Ucko, ‘Countering Insurgents through Distributed Operations: Insights from Malaya 1948–1960’, The Journal of Strategic Studies 30/1 (Feb. 2007), 47–72; John Nagl, Learning to Eat Soup with a Knife: Counterinsurgency Lessons from Malaya and Vietnam (London: Univ. of Chicago Press 2005).

2Ivan Arreguín-Toft, How the Weak Win Wars: A Theory of Asymmetric Conflict (Cambridge: Cambridge UP 2005), 202; Alexander Downes, ‘Draining the Sea by Filling the Graves: Investigating the Effectiveness of Indiscriminate Violence as a Counterinsurgency Strategy’, Civil Wars 9/4 (Dec. 2007), 440.

3The tradition runs from Robert Thompson to Thomas Mockaitis to John Nagl. For a critique, see: Richard Popplewell, ‘“Lacking Intelligence”: Some Reflections on Recent Approaches to British Counter-insurgency, 1900–1960’, Intelligence and National Security 10/2 (Summer 1995), 336–52.

4Karl Hack, ‘“Iron Claws on Malaya”: The Historiography of the Malayan Emergency’, Journal of Southeast Asian Studies 30/1 (1999), 99–125.

5Stathis Kalyvas, The Logic of Violence in Civil War (Cambridge: Cambridge UP 2006), 6–7.

6A helpful overview is contained in: Kalyvas, Logic of Violence, 52–86.

7Richard J. Aldrich, ‘“Grow Your Own”: Cold War Intelligence and History Supermarkets’, Intelligence and National Security 17/1 (Spring 2002), 135; Richard Aldrich, ‘Policing the Past: Official History, Secrecy and British Intelligence since 1945’, English Historical Review CXIX/483 (2004), 929.

8Manuel Bollag, ‘“For What and For Whom?” British and French Servicemen during the Wars of Decolonisation in Malaya and Indochina, 1945–1960’. PhD thesis (in progress), King's College London; Martin Thomas, ‘Insurgent Intelligence: Information Gathering and Anti-Colonial Rebellion’, Intelligence and National Security 22/1 (2007), 155–63; C.C. Chin and Karl Hack, Dialogues with Chin Peng: New Light on the Malayan Communist Party (Singapore: Singapore UP 2004).

9See Hack, ‘Iron Claws on Malaya’, for the periodisation.

10Colonial Office law and order files for 1948–49 were believed destroyed until recently. A.J. Stockwell, ‘Chin Peng and the Struggle for Malaya’, Journal of the Royal Asiatic Society 16/3 (2006), 290.

11Michael Howard, ‘Military History and the History of War’, in Williamson Murray and Richard Sinnreich (eds.), The Past as Prologue: The Importance of History to the Military Profession (Cambridge: Cambridge UP 2006), 13.

12Hack, ‘Iron Claws on Malaya’, 102.

13Stockwell, ‘Chin Peng’, 291.

14Anthony Short, The Communist Insurrection in Malaya 1948–1960 (London: Frederick Muller 1975), 161.

15It is difficult to find an account omitting Batang Kali. Some examples: Richard Stubbs, Hearts and Minds in Guerrilla Warfare: The Malayan Emergency 1948–1960 (Singapore: Oxford UP 1989), 73; Christopher Bayly and Tim Harper, Forgotten Wars: The End of Britain's Asian Empire (London: Allen Lane 2007), 449–53; Kumar Ramakrishna, Emergency Propaganda: The Winning of Malayan Hearts and Minds, 1948–1958 (Richmond-upon-Thames, UK: Curzon 2002), 63.

16For example, Bayly and Harper, Forgotten Wars, 455.

17Short, Communist Insurrection, 160. The emphasis on legality is also evident in Keith Jeffery, ‘Intelligence and Counter-Insurgency Operations: Some Reflections on the British Experience’, Intelligence and National Security 2/1 (Spring 1987), 119.

18Short, Communist Insurrection, 160.

19Kumar Ramakrishna, ‘“Bribing the Reds to Give Up”: Rewards Policy in the Malayan Emergency’, War in History 9/3 (2002), 336; Kumar Ramakrishna, ‘Transmogrifying Malaya: The Impact of Sir Gerald Templer, 1952–54’, Journal of Southeast Asian Studies 32/1 (2001), 82.

20Karl Hack, ‘Screwing down the people: the Malayan emergency, decolonisation and ethnicity’, in Hans Antlöv and Stein Tonnesson (eds.), Imperial Policy and Southeast Asian Nationalism (London: Curzon 1995), 87; Hack, ‘Iron Claws on Malaya’, 102; Karl Hack, ‘British Intelligence and Counter-Insurgency in the Era of Decolonisation. The Example of Malaya’, Intelligence and National Security 14/2 (Summer 1999), 126; Stockwell, ‘Chin Peng’, 290; Ramakrishna, ‘Transmogrifying Malaya’, 82; Richard Stubbs, ‘From Search and Destroy to Hearts and Minds: The Evolution of British Strategy in Malaya 1948–60’, in Daniel Marston and Carter Malkasian (eds.), Counterinsurgency in Modern Warfare (Oxford: Osprey 2008), 116; Short, Communist Insurrection, 162.

21A.J. Stockwell, ‘“A widespread and long-concocted plot to overthrow government in Malaya”? The Origins of the Malayan Emergency’, Journal of Imperial and Commonwealth History 21/3 (1993), 85.

22Stubbs, ‘Search and Destroy’, 115–16.

23Hack, ‘British Intelligence’, 125; Ramakrishna, ‘Bribing the Reds’, 335.

24John Coates, Suppressing Insurgency: An Analysis of the Malayan Emergency, 1948–1954 (Oxford: Westview Press 1992), 149.

25Stubbs, ‘Search and Destroy’, 115.

26Ramakrishna, ‘Bribing the Reds’, 336; Ramakrishna, ‘Transmogrifying Malaya’, 82.

27Hack, ‘Screwing down the people’, 87; Hack, ‘British Intelligence’, 127–8; Coates, Suppressing Insurgency, 34.

28Stubbs, ‘Search and Destroy’, 116.

29Short, Communist Insurrection, 136; Hack, ‘Screwing down the people’, 87; Coates, Suppressing Insurgency, 38–9.

30Short, Communist Insurrection, 120.

31Coates, Suppressing Insurgency, 146; Hack, ‘Iron Claws on Malaya’, 123.

32Hack, ‘Screwing down the people’, 87; Short, Communist Insurrection, 161–6.

33Short, Communist Insurrection, 162.

34Hack, ‘British Intelligence and Counter-Insurgency’, 127–8; Riley Sunderland, Antiguerrilla Intelligence in Malaya, 1948–1960 (Santa Monica, CA: RAND 1964), 3–10.

35Georgina Sinclair, At the End of the Line: Colonial Policing and the Imperial Endgame 1945–80 (Manchester: Manchester UP 2006), 189.

36Richard K. Betts, ‘Analysis, War, and Decision: Why Intelligence Failures are Inevitable’, World Politics 31/1 (1978), 61.

37Bayly and Harper, Forgotten Wars, 429; Hack, ‘British Intelligence’, 127.

38[Kew, United Kingdom, The National Archives] CO [Colonial Office papers] 537/3692: Comment by Dalley, 5th meeting of the British Defence Coordination Committee (Far East) [BDCC(FE)], 24 June 1948.

39Leon Comber, ‘The Malayan Security Service (1945–1948)’, Intelligence and National Security 18/3 (Autumn 2003), 128, 135.

40Brian Stewart, ‘Winning in Malaya: An Intelligence Success Story’, Intelligence and National Security 14/4 (Winter 1999), 270.

41Comber, ‘Malayan Security Service’, 136; Sunderland, Antiguerrilla Intelligence in Malaya, 4.

42CO 537/3692: Minutes of the 9th meeting of the BDCC(FE), 23 July 1948; CO 717/171/3: Combined Intelligence Staff Summary [CISS] 5, week ending 12 Aug. 1948.

43CO 537/4746: Minutes of the 11th Commissioner-General's conference, 21 Jan. 1949.

44Karl Hack, ‘Corpses, Prisoners of War and Captured Documents: British and Communist Narratives of the Malayan Emergency, and the Dynamics of Intelligence Transformation’, Intelligence and National Security 14/4 (Winter 1999), 215; Daniel Marston, ‘Lost and found in the jungle: the Indian and British Army jungle warfare doctrines for Burma, 1943–45, and the Malayan Emergency, 1948–60’, in Hew Strachan (ed.), Big Wars and Small Wars: The British Army and the Lessons of War in the Twentieth Century (London: Routledge 2006), 84.

45Sunderland, Antiguerrilla Intelligence in Malaya, 13; Short, Communist Insurrection, 78.

46Betts, ‘Analysis, War, and Decision’, 64.

47Bayly and Harper, Forgotten Wars, 443.

48T.N. Harper, The End of Empire and the Making of Malaya (Cambridge: Cambridge UP 1999), 151; Ramakrishna, ‘Bribing the Reds’, 336.

49CO 717/171/3: CISS 3, week ending 29 July 1948.

50CO 717/171/3: Federation of Malaya Police Summary [FMPS] 22, week ending 9 Dec. 1948.

51CO 537/4752: Letter from Creech Jones (Colonial Office) to Gurney (Malaya), 5 Dec. 1949.

53CO 717/170/1: FARELF situation report [sitrep] 2, week of 12–19 July 1948.

52CO 537/5068: Memo on organisational lessons of the Emergency, circa July 1949; Stewart, ‘Winning in Malaya’, 268.

54CO 717/170/1: FARELF sitrep 4, 28 July–10 Aug. 1948.

55CO 717/171/3: CISS 4, week ending 5 Aug. 1948.

56CO 537/3692: Minutes of the 10th meeting of the BDCC(FE), 6 Aug. 1948.

57CO 717/171/3: FMPS 8, week ending 2 Sept. 1948.

58WO 208/4838: Telegram FARELF to War Office, 4 Sept. 1948.

59CO 717/170/1: FARELF sitrep 10, 13–19 Sept. 1948.

60CO 717/170/1: FARELF sitrep 11, 19–25 Sept. 1948.

61CO 717/171/3: FMPS 13, week ending 7 Oct. 1948.

62CO 717/170/1: FARELF sitrep 14, 10–16 Oct. 1948.

63CO 717/171/3: FMPS 14, week ending 14 Oct. 1948.

64CO 717/170/1: FARELF sitrep 16, 24–30 Oct. 1948.

65CO 717/171/3: FMPS 16, week ending 28 Oct. 1948.

66CO 717/171/3: FMPS 17, week ending 4 Nov. 1948.

67CO 717/170/1: FARELF sitrep 18, 5–11 Nov. 1948.

68CO 717/171/3: FMPS 24, week ending 23 Dec. 1948.

69CO 717/171/4: FMPS 26, week ending 6 Jan. 1949.

70CO 717/170/2: FARELF sitrep 29, 21–28 Jan. 1949.

71CO 717/171/4: FMPS 29, week ending 27 Jan. 1949.

72CO 717/170/2: FARELF sitrep 30, 28 Jan.–3 Feb. 1949.

73CO 717/171/4: FMPS 57, week ending 11 Aug. 1949.

74CO 717/171/4: FMPS 44, week ending 12 May 1949; CO 717/170/2: FARELF sitrep 48, 3–9 June 1949; CO 717/170/2: FARELF sitrep 63, 24–30 Sept. 1949.

75CO 537/3692: Telegram from Malcolm MacDonald to Secretary of State for the Colonies, 26 June 1948.

76CO 537/5068: Minutes of the 9th Commissioner-General's conference, 22–23 Jan. 1949; Hack, ‘Corpses, Prisoners of War and Captured Documents’, 215.

77Betts, ‘Analysis, War, and Decision’, 70.

78Marston, ‘Lost and found in the jungle’, 97; Short, Communist Insurrection, 136; Stubbs, Hearts and Minds in Guerrilla Warfare, 70.

79Barber, War of the Running Dogs, 62; Stubbs, Hearts and Minds, 71.

80Karl Hack, ‘British and Communist Crises in Malaya: A Response to Anthony Short’, Journal of Southeast Asian Studies 31/2 (2000), 392; Bayly and Harper, Forgotten Wars, 441; Charles Townshend, ‘Martial Law: Legal and Administrative Problems of Civil Emergency in Britain and the Empire, 1800–1940’, Historical Journal 25/1 (1982), 168; Sinclair, At the End of the Line.

81CO 717/210/3: Minutes of the Commissioner-General's conference, 20 June 1948.

82CO 537/3692: Minutes of the fifth meeting of the BDCC (FE), 24 June 1948.

83CO 537/3692: Telegram from MacDonald to Secretary of State for the Colonies, 26 June 1948.

84CO 717/170/1: FARELF sitrep 1, 12 June–12 July 1948.

85WO 208/4838: Telegram from FARELF to Ministry of Defence, 28 June 1948.

95CO 717/171/3: CISS 4, week ending 5 Aug. 1948.

86CO 717/210/3: Telegram from MacDonald to Sec. of State for the Colonies, 6 July 1948.

87CO 537/3692: Letter from Creech Jones to A.V. Alexander, 8 July 1948.

88WO 208/4838: Telegram from Ministry of Defence to GHQ FARELF, 14 July 1948.

89CO 537/3692: Minutes of the ninth meeting of the BDCC (FE), 23 July 1948.

90WO 208/4838: Telegram from GHQ FARELF to Ministry of Defence, 9 Aug. 1948.

91CO 537/3692: Telegram from MacDonald to Sec. of State for the Colonies, 10 Aug. 1948.

92Bayly and Harper, Forgotten Wars, 436.

93CO 537/3692: Telegram from MacDonald to Sec. of State for the Colonies, 10 Aug. 1948.

94WO 208/4838: Telegram from GHQ FARELF to Ministry of Defence, 9 Aug. 1948.

96CO 537/3688: Local Defence Committee, Kuala Lumpur, ‘A paper on the dimensions and nature of the security problem confronting the government of the Federation of Malaya’, 16 Sept. 1948.

97CO 537/3688: Minutes of the 12th meeting of the BDCC (FE), 27 Sept. 1948.

98CO 537/3688: Letter to J.J. Paskin, Colonial Office, from Ralph Hone, Commissioner-General's Office, Singapore, 15 Oct. 1948.

99CO 537/3688: Local Defence Committee, ‘A paper on the strategical and tactical measures required to deal with the internal security problem in the Federation of Malaya’, 8 Oct. 1948.

100CO 717/170/1: FARELF sitrep 16, 24–30 Oct. 1948.

101CO 717/170/1: FARELF sitrep 19, 12–18 Nov. 1948.

102CO 717/171/3: FMPS 21, week ending 2 Dec. 1948.

103CO 717/170/2: FARELF sitrep 48, 3–9 June 1949.

104Thanks to David French for pointing this out. For a comparative analysis of Emergency Regulations see his forthcoming book: Army, Empire and Cold War. The British Army and British Military Policy, c.1945–1968 (Oxford: Oxford UP forthcoming).

105CO 717/167/3: Federation of Malaya, Regulations made under The Emergency Regulations Ordinance, 1948, together with The Essential (Special Constabulary) Regulations, 1948, incorporating all Amendments made up to the 22nd March, 1949 (Kuala Lumpur: Government Printer 1949).

107CO 537/4753: Statement by the High Commissioner for Malaya, Annexure ‘A’ to minutes of the 16th meeting of the BDCC (FE), 28 Jan. 1949.

106DEFE 70/101: Letter from A.C. Burcher, HQ Provost Marshal, to Ministry of Defence, 16 Feb. 1970.

108Stubbs, Hearts and Minds, 73.

109Bayly and Harper, Forgotten Wars, 449–53.

110Ibid., 455.

111CO 717/173/1: Telegram from Officer Administering the Government of Malaya [OAG] to the Sec. of State for the Colonies, 22 July 1948.

112CO 717/173/1: Telegram from OAG to Sec. of State, 21 July 1948.

113CO 717/170/1: FARELF sitrep 4, 28 July–10 Aug. 1948.

114CO 717/170/1: FARELF sitrep 18, 5–11 Nov. 1948.

115Ibid.

116CO 717/173/1: Telegram from Gurney to Sec. of State, 10 Nov. 1948.

117CO 717/173/1: Telegram from OAG to Sec. of State, 7 Aug. 1948.

118CO 717/173/1: Telegram from OAG to Sec. of State, 9 Aug. 1948.

119CO 717/170/2: FARELF sitrep 33, 18–24 Feb. 1949.

120CO 717/173/1: Telegram from OAG to Sec. of State, 24 Sept. 1948.

121CO 717/170/2: FARELF sitrep 41, 15–21 April 1949.

122CO 717/170/2: FARELF sitrep 43, 29 April–6 May 1949.

123CO 717/170/1: FARELF sitrep 7, 22–29 Aug. 1948.

124CO 717/173/1: Telegram from OAG to Sec. of State, 4 Aug. 1948.

125CO 717/173/1: Telegram from OAG to Sec. of State, 25 Sept. 1948.

126CO 717/170/2: FARELF sitrep 29, 21–28 Jan. 1949.

127CO 717/173/1: Telegram from OAG to Sec. of State, 6 July 1948.

128CO 717/173/1: Telegram from OAG to Sec. of State, 27 July 1948.

129CO 717/170/1: FARELF sitrep 21, 26 Nov.–2 Dec. 1948.

130CO 717/170/1: FARELF sitrep 17, 30 Oct.–5 Nov. 1948.

131CO 717/170/1: FARELF sitrep 19, 12–18 Nov. 1948.

132CO 717/170/1: FARELF sitrep 15, 17–23 Oct. 1948.

133CO 717/170/2: FARELF sitrep 25, 24–30 Dec. 1948.

134CO 717/170/2: FARELF sitrep 27, 7–13 Jan. 1949.

135CO 717/170/2: FARELF sitrep 34, 25 Feb.–3 March 1949.

136CO 717/170/2: FARELF sitrep 37, 18–24 March 1949.

137CO 717/170/2: FARELF sitrep 39, 1–7 April 1949.

138CO 717/170/2: FARELF sitrep 42, 22–28 April 1949.

139CO 717/170/2: FARELF sitrep 44, 7–13 May 1949.

140CO 717/170/2: FARELF sitrep 45, 14–20 May 1949.

141CO 717/170/2: FARELF sitrep 46, 21–27 May 1949.

142CO 717/170/2: FARELF sitrep 49, 10–17 June 1949.

143CO 717/170/2: FARELF sitrep 52, 2–15 July 1949.

144CO 717/170/2: FARELF sitrep 73, 3–10 Dec. 1949.

145CO 717/170/2: FARELF sitrep 59, 27 Aug.–2 Sept. 1949.

146CO 717/170/2: FARELF sitrep 58, 20–26 Aug. 1949; FARELF sitrep 60, 3–9 Sept. 1949; FARELF sitrep 63, 24–30 Sept. 1949.

147CO 717/170/2: FARELF sitrep 67, 22–28 Oct. 1949; FARELF sitrep 71, 19–25 Nov.; FARELF sitrep 72, 26 Nov.–2 Dec. 1949.

148Bayly and Harper, Forgotten Wars, 430.

149CO 537/4246: Telegram from Sec. of State for the Colonies to Commissioner-General in South East Asia, 12 June 1948.

150Hack, ‘Iron Claws on Malaya’, 116.

151CO 825/77/1: Monthly report to the Sec. of State for the Colonies and the Foreign Sec., No. 2, 2 Sept. 1949.

152Rhoderick Dhu Renick, Jr, ‘The Emergency Regulations of Malaya: Causes and Effect’, Journal of Southeast Asian History 6/2 (1965), 21.

153John Weldon Humphrey, ‘Population Resettlement in Malaya’ (PhD thesis, Northwestern Univ. Evanston/Chicago, IL 1971), 81.

154Renick, ‘Emergency Regulations’, 5; Hack, ‘Corpses, Prisoners of War and Captured Documents’, 216.

155Renick, ‘Emergency Regulations’, 9.

156Humphrey, ‘Population Resettlement in Malaya’, 67.

157Bayly and Harper, Forgotten Wars, 448.

158Stubbs, Hearts and Minds, 73; Short, Communist Insurrection, 154.

159CO 537/4239A: Telegram from Commissioner-General for South East Asia to Sec. of State for the Colonies, 12 July 1948.

166CO 717/171/3: FMPS 15, week ending 21 Oct. 1948.

160For example, the attack recorded in: CO 717/173/1: Telegram from OAG to Sec. of State, 21 July 1948.

161CO 717/173/1: Telegram from OAG to Sec. of State, 17 Aug. 1948.

162CO 717/173/1: Telegram from OAG to Sec. of State, 18 Aug. 1948.

163CO 717/170/1: FARELF sitrep 4, 28 July–10 Aug. 1948.

164CO 717/170/1: FARELF sitrep 10, 13–19 Sept. 1948.

165CO 717/170/1: FARELF sitrep 13, 3–9 Oct. 1948.

167CO 717/170/1: FARELF sitrep 16, 24–30 Oct. 1948.

168CO 717/170/2: FARELF sitrep 34, 25 Feb.–3 March 1949.

169CO 717/170/2: FARELF sitrep 35, 4–10 March 1949; FARELF sitrep 40, 8–14 April 1949.

170CO 717/170/2: FARELF sitrep 37, 18–24 March 1949.

171CO 717/171/3: FMPS 39, week ending 7 April 1949.

172CO 717/170/2: FARELF sitrep 42, 22–28 April 1949.

173CO 717/170/2: FARELF sitrep 52, 2–15 July 1949.

174CO 717/170/2: FARELF sitrep 56, 6–12 Aug. 1949.

175CO 717/170/2: FARELF sitrep 58, 20–26 Aug. 1949.

176Hew Strachan, ‘British Counter-Insurgency from Malaya to Iraq’, RUSI Journal 152/6 (Dec. 2007), 11.

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