The peasant was subject to gross oppression and undefined exaction: our object was to remove his oppressor, and to limit demand to a fixed and reasonable rate of contribution. He was liable to restraints on the freedom of inland trade, to personal services and forced contingents: our object was to commute them all for a fixed and well-known contribution. The exertions of his industry were reluctant and languid, because he had little or no interest in its fruits: our object was to encourage that industry, by connecting its exertions with the promotion of his own individual welfare and prosperity. Capital could not be immediately created, nor agricultural skill acquired; but by giving the cultivator a security, that whatever he accumulated would be for his own benefit, and whatever improvement he made, he or his family might enjoy it, a motive was held out to him to exert himself in the road to attain both. Leases, or contracts for fixed rents for terms of years, in the commencement, and eventually in perpetuity, seemed to be the only mode of satisfying the cultivator, that he would not be liable, as formerly, to yearly undefined demands; while freedom from all taxes but an assessment on his crop, or rather a fixed sum in commutation thereof, would leave him at full liberty to devote the whole of his attention and labour to render his land as productive as possible.
In conformity with these views, an entire revolution was effected in the mode of levying the revenue, and assessing the taxes upon agriculture. The foundation of the amended system was, 1st. The entire abolition of forced deliveries at inadequate rates, and of all feudal services, with the establishment of a perfect freedom in cultivation and trade: 2d. The assumption, on the part of government, of the immediate superintendence of the lands, with the collection of the resources and rents thereof: 3d. The renting out of the lands so assumed to the actual occupants, in large or small estates, according to local circumstances, on leases for a moderate term. In the course of the following years (1814 and 1815) these measures were carried into execution in most of the districts under our government, with a view to the eventual establishment of a perpetual settlement, on the principle of the ryotwar, or as it has been termed on Java, the tiáng-álit system.
The principles of land rental and detailed settlement were few and simple[48]. After mature inquiry, no obstacle appeared to exist, either in law or usage, to the interference of government, in regulating the condition of the peasantry; and it was resolved, therefore, that it should take into its own hands the management of that share of the land produce which was allowed to be its due, and protect the cultivator in the enjoyment and free disposal of the remainder. The undue power of the chiefs was to be removed, and so far as they had a claim for support, founded either on former services or deprivation of expected employment, they were to be remunerated in another way. The lands, after being surveyed and estimated, were to be parcelled out among the inhabitants of the villages, in the proportions established by custom or recommended by expediency. Contracts were to be entered into with each individual cultivator, who was to become the tenant of government, and leases specifying the extent and situation of their land, with the conditions of their tenure, were to be granted for one or more years, with a view to permanency, if at the end of the stipulated term, the arrangement should be found to combine the interest of the public revenue with the welfare and increasing prosperity of the occupant. If that was not the case, room was thus left for a new adjustment, for a reduction of rate, or for any change in the system which might adapt it more to the interests and wishes of the people, without prejudice to the rights of government.
This experiment hazarded nothing, and held out every prospect of success; it committed no injustice, and compromised no claim. The peasantry could not suffer, because an assessment less in amount, and levied in a less oppressive manner than formerly (all rents, taxes, and services included), was required of them: the chiefs could not complain, because they were allowed the fair emoluments of office, and only restrained from oppressions which did not so much benefit themselves as injure their inferiors. Most of the latter were not only allowed an equivalent for their former income, but employed in services allied to their former duties,—the collection of the revenue, and the superintendence of the police. As the cultivator had acquired rights which the chief could not violate, as the former held in his possession a lease with the conditions on which he cultivated his farm, no infringement of which could be attempted on the part of the latter with impunity, no evil could result from employing the chiefs in collecting the revenue of districts, while, from their practical knowledge of the habits and individual concerns of the peasantry, of the nature of the seasons and the crops, they were the fittest persons for the office. For these services it seemed most expedient to pay them, either by allowing them a certain percentage on their collections, or by allotting them portions of land rent free. The village constitution (which will be more particularly noticed in treating of the institutions of the country) was preserved inviolate; and the chiefs or head men of the villages, in many instances elected by the free will of the villagers, were invariably continued in office as the immediate collectors of the rents, and with sufficient authority to preserve the police, and adjust the petty disputes that might arise within them; the government scrupulously avoiding all unnecessary interference in the customs, usages, and details of these societies.
In looking at the condition of the peasantry, and in estimating the fertility of the soil, the wants of the people, and the proportion of produce and industry that they formerly were accustomed to pay for supporting the establishments of government, it was thought reasonable to commute all former burdens into a land rent on a fixed principle; all sáwah lands being estimated by the pári, or unhusked rice, they could produce, and all tégal lands by their produce in maize. The following (as stated in the eighty-third article of the Revenue Instructions) was considered as the fairest scale for fixing the government share, and directed to be referred to, as much as possible, as the general standard:
| For Sáwah Lands. | ||
|---|---|---|
| 1st sort | One-half | of the estimated produce. |
| 2d do. | Two-fifths | ditto. |
| 3d do. | One-third | ditto. |
| For Tégal Lands. | ||
| 1st sort | Two-fifths | of the estimated produce. |
| 2d do. | One-third | ditto. |
| 3d do. | One-fourth | ditto. |
"Government," it is said in the eighty-fifth section, "think it necessary to declare explicitly, that they will be satisfied when the land revenue shall be productive to them in these proportions, determining at no future period to raise the scale; so that the inhabitants, being thus exactly acquainted with what will form the utmost demand on them, and resting in full confidence that government will not exact any thing further, may in that security enjoy their possessions in undisturbed happiness, and apply their utmost industry to the improvement of their lands; assured that, while they conduct themselves well, that land will never be taken from them, and that the more productive they can render it, the more beneficial it will be for themselves."
The government share might either be received in money or in kind from the sáwah lands; but the tégal produce, though estimated in maize, was always, if possible, to be commuted into money at the lowest price in the market; and as cultivators generally held portions of both, this rule, it was conceived, could not be considered generally as a hardship.
In the first settlement, leases were only granted for a year, or at the utmost three years, and were given to intermediate renters; but in the more detailed settlement of 1814, after sufficient information had been collected on the state of the country, government determined to act directly with the individual cultivator, and to lay the foundation of a permanent system. By this latter period, the experiments have been tried to a certain extent, and had succeeded beyond the most sanguine expectation. Difficulties met us in the way, but they were by no means insurmountable; there were at first imperfections in the system, but they did not affect its principle, and were easily removed. By the zeal, the ability, and industry of the various officers entrusted with the execution of the duty, whatever was practicable in furtherance of the object in which they felt deeply interested, was accomplished. In the course of the years 1814 and 1815, the new system was introduced into Bantam, Chéribon, and the eastern districts, over a population of a million and a half of cultivators, not only without disturbance and opposition, but to the satisfaction of all classes of the natives, and to the manifest increase of the public revenue derivable from land. In several journies which I undertook into the different provinces, for the purposes of examining in person the effect of the progressive system of reform which I had the happiness to introduce, and of lending the sanction of official authority to such modifications of it as local circumstances might render advisable, I was a pleased spectator of its beneficial tendency, and of the security and satisfaction it universally diffused. The cultivator, protected against all vexatious exactions, and no longer at the beck of a tyrannical chief who made unlimited demands upon his personal services, was beginning to feel additional stimulants to his industry, to acquire a superior relish for property, and to acknowledge that government and power were not always the enemies of the lower ranks of society, or as they modestly call themselves, the little people (tiang-halit). The British administration of Java, with all its agents, having watched the progress of the amended system at first with vigilant anxiety, at last saw it nearly completed with success, and rejoiced in its beneficial operation on the prosperity, improvement, and happiness of the people. During the two years that we retained possession of the island, after the greatest part of its arrangements were carried into effect, we had daily proofs of the amelioration they were producing. The cultivation was extending, the influence of the chiefs appeared to be progressively weakening, and the number of crimes, both from the superior industry of the people now become interested in the result of their labours, and from the contented tranquillity produced by an increase of the means of subsistence, as well as from the amended system of police (mentioned in another part of this work), was gradually diminishing. Without troubling the reader with further details, I may mention that, in the beginning of December 1815, a few months before I left the island, not satisfied with my own observation or the vague report of others, I circulated specific queries to the different residents, on the comparative state of cultivation in the different provinces, before the introduction of the detailed settlement, and at the latest date to which an answer could be returned, and on the comparative number of crimes at the same two periods, and the return was as gratifying to humanity and benevolence as it was corroborative of the opinions previously formed. I shall quote a few extracts from these reports. The Resident at Chéribon "cannot, from certain data, tell what progress has been made in extending the cultivation of that province, but thinks it has been considerable;" and adds, "I have no doubt but that a few years of the amended system of government would render the district of Chéribon, so notorious for crimes, one of the most flourishing and valuable in any part of the island." The Resident of Tégal is nearly in similar circumstances with regard to authentic documents, but gives a very favourable opinion, both with regard to the increase of industry and the reduction of crimes. The return from Kedú is more definite: it states a positive increase of tégal land to the amount of thirty-six jungs, but a much greater increase of produce from improved culture. The revenue afforded a sufficient proof of the latter fact. The same favourable account is given of the state of police and the diminution of crime. No data are given in the report from Pakaláng'an to ascertain the additional quantity of rice lands brought into cultivation; but an opinion is expressed, that it has increased; and an assurance is afforded, that the culture of indigo and tobacco has sensibly extended. As an evidence that the means of subsistence are raised in greater abundance than formerly, their price has very considerably diminished.
A commission which was appointed to inquire into the state of the revenue, report from Japára the great facility there was in collecting the revenue under the amended system, and certify its beneficial effects in extending cultivation, securing tranquillity, promoting industry, and diminishing crimes. The same commission conclude their report of Grésik with similar assurances of the happy results of the revenue, and judicial arrangements for the prosperity of that province. The Resident of Rembáng gives an increase of cultivation of fifty-two jungs of sáwah and about thirteen of tégal land, and accounts for the smallness of this increase from the comparative sterility of the soil, and the precarious supply of water. Indigo had not increased, but tobacco had to a great degree. The vigilance of the police, and the ameliorating effects of the revenue settlement, are seen, it is said, in the improved state of morals. In Surabáya it is stated, that during the time the amended system had been in action, there had been an increase of three hundred and twenty government jungs, making upwards of two thousand English acres. In the residency of Pasúruan there is an increase of cultivation to the amount of three hundred and six jungs: this, however, does not comprehend the whole advantage that the new system produced in that province, for industry had been so much promoted by it, as to obtain two crops within the year, on many of the lands where the cultivator was formerly content with one. It is needless to enter into any further particulars, to shew the advantages of the regulations adopted with regard to the settlement of the landed revenue.