THE FORMATION OF MALAYSIA

THE FORMATION OF MALAYSIA

By 1961 the Federation of Malaya had been independent for four years. Malaya had a stable government and there was economic and social progress. Singapore had obtained full internal self-government since 1959, but its foreign affairs and defence were still controlled by Britain.
British North Borneo (Sabah) and Sarawak had been British Crown Colonies since 1946. There was little economic and political progress in these two states. Meanwhile Brunei was ruled by its Sultan with British protection.
Then in 1961 a merger between Malaya, Singapore, Brunei, Sarawak and North Borneo was proposed.




PROPOSALS FOR MALAYSIA


REASONS FOR THE PROPOSALS


THE PAP GOVERNMENT AND A MERGER WITH MALAYA

The People’s Action Party (PAP) government in Singapore had been anxious for a merger with Malaya since 1959.
There were many Communists working against the government. Britain was afraid the Communists or any foreign enemies. The PAP government thus found it difficult to obtain full independence for Singapore as long as there was a Communist threat to take over the government.
Mr. Lee Kuan Yew and his government realized that a merger with Malaya was the only way Singapore could hope to get full independence early. It would benefit both countries economically as they were linked together historically, geographically and economically.
A merger would also help to prevent the Communists from taking over Singapore. A central government would then be able to keep the Communists under control.




THE MALAYAN GOVERNMENT WAS AGAINST MERGER

At first Tengku Abdul Rahman and the Malayan government did not want a merge. This was because the people in Singapore were mainly Chinese. If Singapore united with Malaya the Chinese would outnumber the Malays. The Chinese would then become the main political power.
Moreover, the Malayan government regarded Singapore as a centre of Chinese Communist activities. The Malayan government was afraid that if they united, Communist activities would spread to Malaya from Singapore. The PAP government stated that a merger would not lead to Chinese control in the country. Instead, it would prevent the Communists from taking over Malaya. But the Malayan government was still not keen on a merger.




THE COMMUNIST THREAT

However, Malaya’s attitude against a merger changed. The Communist supporters had broken away from the PAP in 1961. They did so because they were afraid that a merger would weaken their political position. They formed the Barisan Socialis (the Socialist Front) which became a strong opposition party against the government. It seemed likely that the Barisan Socialis might take control of Singapore at the next elections. This made the Malayan government realize that a merger would benefit both sides.
The Tengku realized that the PAP government under Mr. Lee would be better and safer than the threat of a Communist Singapore. The security of Malaya depended to some extent on Singapore. Should Singapore be taken over by the Communists, it could become a danger to Malaya. A merger, however, would enable the central government to check the danger of Communists seizing power in Singapore.



THE MALAYSIAN PLAN PROPOSED

The Tengku put forward the idea of a “Malaysia Plan” during the meeting of the Foreign Correspondents’ Association of Southeast Asia in Singapore on 27th May 1961. He declared that Malaya could not stand alone and proposed a federation of Singapore, North Borneo, Sarawak, Brunei and Malaya.
North Borneo, Sarawak and Brunei still depended on the British to run their countries. Thus they would not be strong enough to stand alone. North Borneo and Sarawak would have little chance to get their independence early. If these territories agreed to the Malaysia Plan they would get their independence early. Political and economic cooperation between all the territories would be brought closer together. The more developed states would be able to help the backward states. The living standard of the people would rise.
The Malayan government wanted the Borneo territories to join the merger. If they did the Chinese would not outnumber the Malays. The two racial groups would balance each other. Moreover, the new government of Malaysia would check Communist activities in the Borneo territories.




REACTIONS TO THE PROPOSALS



BRITAIN

The British government knew that it had to give independent to Singapore, North Borneo and Sarawak sooner or later. It realized that the Malaysia Plan would give these territories independence, security, prosperity and democracy. Britain would also be able to continue to maintain the defence of these areas. Britain therefore welcomed the proposals.


SINGAPORE

Mr. Lee and his government welcomed the proposals. However, the Barisan Socialis and other opposition parties opposed them. The Singapore Communists wanted Singapore to remain as a separate country. In this way they hoped to make Singapore a centre of Communism in Southeast Asia.
However, the majority of the people in both Singapore and Malaya were favour of Malaysia. Several meetings were then held to discuss the terms on which a merger between them could be achieved.




THE BORNEO TERRITORIES

During the Second World War North Borneo suffered a great deal of destruction. It still depended on the British government to rule the country and restore its economy. There was no political progress and no system of elections.


SARAWAK

Sarawak had also suffered during the war. After the war the British government had concentrated on restoring its economic and social progress. Sarawak had more political progress than North Borneo. However, it had only held its first elections to the district councils in December 1959. Moreover, the 24 elected members of the Council Negri of 45 were chosen by the five divisional councils, not by direct elections. Thus political progress in Sarawak was still low.



BRUNEI

Brunei was the richest among the three Borneo states. The Sultan of Brunei was in favour of the Malaysia Plan but the most important political party in his government was against it. The party was more interested in an association of Brunei, British North Borneo and Sarawak.




THE MALAYSIA SOLIDARITY CONSULATITIVE COMMITTEE



THE PURPOSE OF THE COMMITTEE

In July 1961 a regional conference of a Commonwealth Parliamentary Association was held. After this a Malaysia Solidarity Consultative Committee was set up. It consisted of representatives from Malaya, Singapore, Sarawak and North Borneo. Brunei was allowed to send five observers to the Committee. The Committee’s main purposes were:

(a) to collect and compare carefully views and opinions concerning the formation of Malaysia in the territories concerned.
(b) to spread information about the Malaysia Plan.
(c) to begin and encourage discussions on Malaysia.
(d) to encourage activities that would help bring about the formation of Malaysia.



THE FINDINGS OF THE COMMITTEE

The committee met four times to discuss the prospects of the Malaysia Plan. It held its first meeting at Jesselton (Kota Kinabalu) in August 1961.
Some of the Borneo representatives were against Malaysia. They were afraid that the Tengku’s plan for Malaysia would bring their territories under Malay control. They did not want to exchange British colonial rule for Malay rule. A few of them wanted their territories to become independent first before uniting with Malaya and Singapore.
The Governors of North Borneo and Sarawak, and the High Commissioner of Brunei also advised that the three Borneo states should establish closer relationship before joining Malaya and Singapore.



POLITICAL DEVELOPMENT IN THE BORNEO STATES



BRITISH NORTH BORNEO

The introduction of the Malaysia Plan caused political parties to grow up in North Borneo by the end of 1961. Among them was the United National Kadazan Organisation (KDZO) which represented North Borneo’s largest racial group. It was led by Mr. Donald Stephens.
At first Mr. Stephens was against Malaysia. Later he realized that Malaysia would give his state the chance of getting independence early. North Borneo would also get security, economic and social progress, and political stability. The UNKO thus became in favour of Malaysia.
Gradually the other parties in North Borneo began to favour the Malaysia Plan. Finally all the parties in North Borneo united to form the Sabah Alliance. The Sabah Alliance became the only political party in North Borneo. It was led by Mr. Stephens. Its main aim was to bring about the formation of Malaysia.



SARAWAK

There was more political progress in Sarawak. The Sarawak United People’s Party (SUPP) was the first political party in Sarawak. It was founded in 1959. It was also the best organized. Most of its members were Chinese with some Communist ideals. The party was against the Malaysia Plan. The newly formed Sarawak National Party (SNAP) was also against Malaysia.
The Party Negara Sarawak (PANAS) which consisted mainly of Malays supported Malaysia. But it wanted Sarawak to join Malaysia as a separate unit only after the colony had become independent. Another party, the Barisan Rakyat Jati Sarawak (BARJASA), consisted of Malays and Ibans. It was against Communism. However, it had not made up its decision on the Malaysia Plan.



THE PEOPLE AGREED TO THE MALAYSIA PLAN

The Malaysia Solidarity Consultative Committee helped greatly to change the minds of the territories concerned. It helped to obtain the people’s agreement to the Malaysia Plan. This was mainly due to its Chairman, Mr. Donald Stephens. As a result the Sarawak Alliance was formed to bring about the formation of Malaysia.




EARLY NEGOTIATIONS


THE SINGAPORE WHITE PAPER OF 1961

Meanwhile discussions were held between the Singapore and Malayan governments. Their agreement for a merger was published as a Singapore White Paper on 15th November 1961. It was then approved by the Singapore government.
Singapore would become a state within Malaysia. It was to have 15 representatives to the Federal House of Representatives and two to the Senate. The Singapore government was allowed to retain control of labour and education. It would also be given more powers than any of the other states of Malaysia.


OPPOSITION IN SINGAPORE

There was opposition, especially from the Barisan Socialis. It was afraid of Federal control over internal security. Its activities would be suppressed. But finally the majority of the people was in favour of Malaysia.


BRITAIN APPROVED THE MALAYSIA PLAN

The Malayan government then obtained approval for the Malaysia Plan from the British government in November 1961. They agreed to set up a Commission to make certain the views of the people of North Borneo and Sarawak before any final decision was made. The views of the Sultan of Brunei were also to be sought. If Malaysia was formed the Defence Agreement between Malaya and Britain would also be given to the other new states. Britain was to be allowed to maintain military bases in Singapore.



THE COBBOLD COMMISSION


THE COMMISSION OF INQUIRT APPOINTED

In January 1962 the Malaysia Solidarity Consultative Committee met for the 3rd time in Kuala Lumpur. At the same time the British government appointed a Commission of Inquiry to North Borneo and Sarawak to fid out the views of the people on the formation of Malaysia.
Lord Cobbold, a former governor of the Bank of England, was appointed the Chairman of the Commission. The Commission also consisted of two other members nominated by Britain and another two by Malaya. The two Malayan members were Dato Wong Pow Nee and Tan Sri Muhammad Ghazalie bin Shafie.


WORK OF THE COBBOLD COMMISSION

Papers were issued to explain to the people the purpose of the Commission and the principles of the Malaysia Plan. The Commission then stated its work from 20th February 1962 to 18th April 1962. They were
(a) to make certain the views of the people of British North Borneo and Sarawak.
(b) to prepare a new Constitution based on the findings of the Commission.
The Commission carried out its work well. It traveled widely throughout the two territories and thoroughly consulted public opinion. It interviewed over 4000 people and received 2200 letters from town boards, district councils, trade unions, religious, political and community leaders, and native chiefs.
Through its work the Commission found that some of the political parties and people were still against Malaysia. This was because the thought their lands would be made colonies of Malaya. The Commission and the Malayan government then assured them that Malaya had no wish to colonize them.
The Cobbold Commission completed its report in June 1962. It reported that the people were unanimously in favour of Malaysia.



THE REPORT ACCEPTED

Talks began between the British and the Malayan governments in London. On 1st August they accepted the Commission’s Report and agreed that Malaysia should be formed by 31st August 1963. Britain would give independence to Singapore, Sarawak and North Borneo on that day.



THE INTER-GOVERNMENTAL COMMITTEE


RECOMMENDATIONS OF THE COBBOLD COMMISSION

An Inter-Governmental Committee was to be set up to work out a new system of government for North Borneo and Sarawak. It was also to work out ways of safeguarding the special interests of the two territories. These were brought about by the great differences in development between eastern and western Malaysia. North Borneo and Sarawak were politically, economically and socially backward.
The development in education was slow. Universities and other institutions of higher learning and the research centres were all in the west. Moreover, the two Borneo territories opposed Islam as the state religion and Malay as the sole official language. The people of these territories wanted their special position as the indigenous people of Borneo to be recognized. They also wanted protection against immigration, especially the Chinese, into their territories.


THE LANSDOWNE COMMITTEE AND ITS WORK

An Inter-Governmental Committee was therefore set up. The Chairman was Lord Lansdowne, the British Minister of State for Colonial Affairs. Tun Abdul Razak, the Deputy Prime Minister of Malaya, was Vice-Chairman. They visited North Borneo and Sarawak to learn more about the people and their problems. They also explained the purpose of the Committee.
In September 1962 the North Borneo Legislative Council and the Sarawak Council Negeri unanimously approved the formation of Malaysia. The Lansdowne Committee published its report in February 1963.
The demands of North Borneo and Sarawak were settled. Their special position would be safeguarded. Immigration would be controlled. There would be no state religion in both states. It was agreed that Malay would be made the national language, but English would remain an official language. North Borneo and Sarawak would have the largest number of representatives in the Malaysia Parliament.




THE SINGAPORE REFERENDUM

Meanwhile in Singapore, the Barisan Socialis was still against the Malaysia Plan. It stated that the Malaysia Plan was a plot to persevere British control in Southeast Asia. The Singapore government decided to put the Malaysia Plan to a direct vote of the citizens.
The voters were allowed to make one of the three choices. They could choose A : merger on the terms of the White Paper: or B : merger as one of the states in the Federation of Malaya; or C : merger on the same terms as the Borneo territories. Blank votes would be taken as votes accepting the government’s decision.
The referendum was held in September 1962. Ninety percent of the voters voted. Seventy-one per cent voted in favour of the Malaysia Plan. Twenty-five per cent were blank votes. This was great defeat for the Communists in Singapore. The Singapore government could now go ahead with its plan for a merger.



THE BRUNEI REVOLT

Brunei had sent observers to the meetings of the Malaysia Solidarity Consultative Committee. The Sultan of Brunei was very interested in the Malaysia Plan. In fact he was in favour of joining it. However, Brunei’s main political party, Party Rakyat, led by Ahmad Azahari was against the Malaysia Plan. He wanted a federation was against the Malaysian Plan. He wanted a federation of the three Borneo states which aimed at independence.
Azahari obtained support from the government of the Philippines and Indonesia, and also the Indonesian Communist Party. On 7th December 1962 Azahari’s followers started a revolt in Brunei. Azahari, who was then, in Manila declared himself Prime Minister of the state of Kalimantan Utara (Northern Borneo). The Sulatan asked for British help so troops were sent from Singapore. They quickly suppressed the revolt.
In spite of the revolt, the Sultan of Brunei was still willing to join Malaysia. But before the Malaysia Agreement was signed he decided not to join Malaysia. Talks broke down over the question of taxation of Brunei’s oil revenue and the right to a senior place among the Malay Rulers


THE MALAYSIA AGREEMENT – JULY 1963


THE MALAYSIA AGREEMENT SIGNED

The Brunei revolt made the Malaysia Solidarity Consultative Committee more determined to see Malaysia formed by 31st August 1963. Meanwhile the Inter-Governmental Committee had published its report and was accepted by Sarawak and North Borneo.
In July 1963 the leaders of all the territories concerned met in London. On 9th July 1963 they signed the Malaysia Agreement. This was the final step in the negotiations towards the establishment of Malaysia.


MALAYSIA TO BE FORMED

By the agreement, the colonies of Sarawak and North Borneo, the state of Singapore and the states of Malaya were to be united to form “Malaysia”. Britain was to give up its sovereignty in Singapore, Sarawak and North Borneo. Britain and Malaya were to help bring Malaysia into being on 31st August 1963. New constitutions were to be given to Singapore, North Borneo and Sarawak.


THE IMMIGRATION ORDINANCE

The Immigration Ordinance 1959 of the Federation of Malaya was to be given to the other states in Malaysia. Large numbers of people from the densely populated areas of Singapore and Malaya were not to be allowed to emigrate to the sparsely populated areas of North Borneo and Sarawak.


THE DEFENCE AGREEMENT

The Defence Agreement of 1957 between Britain and the Federation of Malaya was to be given to the other states. Britain was to maintain its defence bases in Singapore. Britain was to use them to help defend Malaysia and the Commonwealth and to preserve peace in Southeast Asia.
An agreement was to be made between Malaya and Singapore for the setting up of a Malaysian Common Market.



OPPOSITION TO MALAYSIA

The new federation of Malaysia would bring an end to British colonialism in Southeast Asia. It would also preserve the security and welfare of the region. Therefore it was felt that the neighbouring countries in Southeast Asia would welcome Malaysia. However, Indonesia and the Philippines were against Malaysia.


OPPOSITION FROM INDONESIA

Indonesia was at first not against the Malaysia Plan. However, the Indonesian government under the influence of the Communist Party began to oppose the plan. The Party was against Malaysia because it claimed that
(a) Malaysia was a plan to preserve British power in Southeast Asia
(b) Malaysia planned to take over Sumatera.
(c) Malaysia would be weak. It would come under the Chinese and then under Communist rule.
(d) North Borneo and Sarawak were being forced to join Malaysia against the wishes of the people.

It was felt that President Soekarno and his Indonesian government were afraid of the effects upon his people, of the differences between and their economy which was breaking down. So they refused to accept Malaysia.


OPPOSITION FROM THE PHILIPPINES

Meanwhile President Macapagal of the Philippines said Malaysia was a new colonial power. The Philippines thought that the Malaysia Plan would be a failure so the government claimed the sovereignty of British North Borneo.
The Philippines stated that North Borneo had not really been ceded by the Sultan of Sulu. Sulu is now part of the Philippines. So North Borneo now belonged to the Philippines. However, the Philippines could not give any proof for their claim.



CONFRONTATION BEGAN

By January 1963 President Soekarno had started a “Confrontation” against the Tengku and the British government. Indonesian forces began to attack Malayan boats in the Straits of Malacca. Trade between the two countries eventually ended.
Indonesian guerillas went into Sarawak. They began terrorist activities with the help of an underground Chinese Communist organization in Sarawak. The Malayan government took steps to strengthen its defences. British and Malayan troops were sent to Sarawak and British North Borneo.



THE TOKYO SUMMIT MEETING

Tengku Abdul Rahman wanted to settle their disagreements peacefully. He then agreed to meet President Soekarno at a conference in Tokyo in May 1963. On the way Tengku stopped at Manila for talks with President Macapagal. The talks were successful. The Tengku then continued his journey to Tokyo.
At the Tokyo Summit Meeting the Tengku tried to convince President Soekarno that Malaysia was not a danger to Indonesia. They agreed to end the fighting and bitter remarks against each other. They also re-strengthened their friendship. However, there was still tension. After the Malaysia Agreement was signed, President Soekarno continued to oppose Malaysia. He also began the confrontation again.


THE MANILA SUMMIT MEETING

Further steps were then taken to end the tension between Malaya, Indonesia and the Philippines. Finally in April 1963 the Tengku, Prsident Soekarno and Prseident Macapagal held a meeting at Manila. At the meeting the Philippines and Indonesia agreed to end their opposition to the Malaysia Plan.
A United Nations Team was to be sent to North Borneo and Sarawak to find out whether the people were in favour of Malaysia. If they were, Indonesia and the Philippines would recognize Malaysia. The United Nations Team was also to check the work of the Cobbold Commission.
Malaya, Indonesia and the Philippines were to send observers to see the work of the United Nations Team. Malaya agreed to postpone the date for the formation of Malaysia until the UN Team completed its work. They also proposed to set up an association of the three countries called “Maphilindo”. It was to preserve the peace and security of the region.



MALAYSIA

THE WORK OF THE UN TEAM

The United Nations Team arrived in August 1963. Malaya sent two observers. However, there was some disagreement over the number of observers the Indonesia and Philippine governments should send. Nevertheless the UN Team started its work. It was finally joined by the Indonesian and Filipino observers shortly before its work was about to end.
The UN Team carried out its work well. All the people who wished to express their views were allowed to do so. The UN Team checked the elections held by North Borneo and Sarawak, and also the work of the Cobbold Commission. The report of the UN Team was expected to be ready by 14th September 1963.


THE FORMATION OF MALAYSIA

According to the Constitution, it was necessary to proclaim the new date for the formation of Malaysia. Therefore on 29th August, the Tengku proclaimed that Malaysia would be established on 16th September 1963.
By then the UN Team had reported that most of the people of North Borneo and Sarawak were in favour of Malaysia. It also reported that the elections had been properly held and that the report of the Cobbold Commission was true. However, Indonesia and the Philippines refused to accept the report of the UN Team.
They objected to the proclamation of Malaysia Day before the publication of the report of the UN Team. They also stated that the Indonesian ad Filipino observers were not present during the early part of the UN Team’s work. They therefore refused to accept its report.
In spite of these objections Malaya, Singapore, North Borneo and Sarawak finally united to form Malaysia on 16th September 1963. British North Borneo became known as Sabah.



THE CENTRAL GOVERNMENT OF MALAYSIA

THE YANG DIPERTUAN AGONG

The Yang DiPertuan Agong became the Supreme Head of Malaysia. There was also a Deputy Supreme Head of State or the Timbalan Yang DiPertuan Agong. They were elected by the Conference of Rulers for a term of five years. Tuanku Syed Putra ibni Al-Marhum Syed Hassan Jamalullail became the first Yang DiPertuan Agong of Malaysia.



THE PARLIAMENT OF MALAYSIA

The Parliament of Malaysia consisted of two Houses – the Senate (Dewan Negara) and the House of Representatives (Dewan Rakyat). The Senate consisted of 50 members. 28 were elected and 22 were appointed. Each state Legislative elected two Senators. The Yang DiPartuan Agong appointed the other 22 members.
The House of Representatives consisted of 159 elected members. 104 were elected from the 11 states of Malaya, 15 from Singapore, 24 from Sarawak and 16 from Sabah. New elections to the House of Representatives were to be held after five years.
The Yang DiPertuan Agong would appoint the leader of the party with a majority in the House of Representatives as Prime Minister of Malaysia. The Prime Ministers were to be appointed by the Yang DiPertuan Agong on the advice of the Prime Minister. Tengku Abdul Rahman became the first Prime Minister of Malaysia. Tun Abdul Razak became the Deputy Prime Minister.



CONFRONTATION

Indonesia and the Philippines refused to recognize Malaysia. On 16th September they broke off diplomatic relations with Malaysia. Soon afterwards Malaysia’s ambassadors were also withdrawn from Manila and Jakarta.


CONFRONTATION CONTINUED

All travel and trade ended between Indonesia and Malaysia. Confrontation continued. In this way Indonesia hoped to weaken the trade of Singapore and thus the internal unity of Malaysia. Guerilla attacks were made along the East Malaysia-Indonesian border. Landing were made on the coasts of Malaya. Attempts were made to stir up racial tension between the Malays, Chinese and other races within Malaysia, especially in Singapore.
The Malayan forces dealt with the confrontation efficiently. They were helped by troops from Britain, Australia and New Zealand.
Instead of weakening the new federation, the confrontation helped to unite the states of Malaysia. They became more determined to make Malaysia a success.


END OF CONFRONTATION

Attempts were made to stop confrontation but they failed. It was only in 1965 that the pressure of confrontation diminished. In that year the Indonesian armed forces put down a plot by the Indonesian Communists to take over the country. The Indonesians were therefore too busy to carry out confrontation energetically. President Soekarno was soon deposed. General Suharto took over the government.
The new government did not want confrontation. In August 1966 a peace agreement was signed between Indonesia and Malaysia in Jakarta. Confrontation thus came to an end.



SEPARATION
Meanwhile relations between the central government of Malaysia in Kuala Lumpur and the government of Singapore had become strained. Both the governments began to disagree with each other. They had different policies and aims. They also had different ways of carrying them out.
Fierce arguments began between some of the leaders in the Central government and the leaders of the PAP in Singapore. The situation eventually became worse. The Tengku was finally forced to ask Singapore to leave Malaysia. Last minute talks were held to settle their differences. But they failed.
On 9th August 1965 the Separation Agreement was signed. Singapore then became a separate independent republic within the British Commonwealth of Nations. Singapore also became the 116th member of the United Nations. Mr. Lee Kuan Yew became the first Prime Minister of the Republic of Singapore. Tun Yusof bin Ishak became the first President.