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\ United • Nations Unies Nations _, / .' l I \ UNITED NATIONS NATIONS UNIES INTERO!=I=ICE• MEMORANDUM TO: The Date: 19 March 1963 FILE NO.:----------- THROUGH: ~~~ FROM: D. Protitch Under-Secretary for Trusteeship and Information from Non-Self-Governing Territories SUBJECT: Background Notes on the proposed Federation of Malaysia In compliance with your request, I enclose three copies of a background note surveying events which have led to the proposed Federation of Malaysia. It has been attempted to cover in the note the major events which have occurred in the individual Territories concerned and which have emerged from consultations and negotiations among the parties and governments involved. They have been brought as up-to-date as the official and unofficial material at our disposal has permitted us to do. I hope that you will find this note useful and will be glad to provide any further material on the subject that you may require and that may be available in the Department's files. ... DEPAR~NT OF TRUS'lEESHIP AND INFOBMATION FROM NON~LF-OOJERNING TERRITORIES Background notes on the proposed Federation of Ma1aysia In 1953, a standing conference of Sarawak, North Borneo and Brunei later known as the Sarawak-North Borneo-Brunei Conference was established. Its objective was to stu~ and promote consultation and co-operation between the three Territories on matters of mutual concern. It was presided over by the United Kingdom Canmissioner General for South-East Asia and comprised the Govemors of Sarawak and North Borneo and the Sultan of Brunei, each accanpanied by up to three representatives from his Territor,y. In 1958, the Governors of Sarawak and North Borneo proposed, without success, a federation of the two Territories with Brunei.!/ en 25 J~ 1960 the Prime Minister of Sarawak, Mr. Lee Kuan Yew, speaking of his Government's attitude to a merger with the Federation of Malaya, said that the "merger between Singapore and Malaya" was possible as soon as the Governments of the two Territories were agreed upon it. Since, however, the Government of the Federation of Ma.la;ya had not agreed on such a merger at that time, it could not take place as yet or in the immediate future.Y en 30 January 1961, Tengku Abdul Rahman, the Prime Minister of the Federation of Malaya, stated that the Federation of Malaya could not agree to a merger, not because of the Chinese element in Singapore, but because certain elements among the Chinese were 11China minded". Attempts by Singapore to 1/ Canmonwealth Survey, Vol. 7, No. 20, p. 972. y Ibid., Vol. 6, No. 24, P• 1135. - 2- bring about a common market between the two countries had not been success- ful either. However, on a num.ber of occasions beginning in 1957, the Tengku had advocated a wider association not only with Singapore, but also with the British dependencies in Borneo. He said on 27 May 1961 in Singapore that Malaya as a nation could not stand alone and in isolation. Sooner or later she would have to have an understanding with Britain and the peoples of the Territories of Singapore, North Borneo, Brunei and Sarawak. While it was premature for him to say how this closer understanding could be brought about, he considered that it was inevitable, and that a plan would be prepared whereby these Territories should be brought closer together in political and economic co-operation. en 11 July 1962, following a visit to the Bornean Territories, he again spoke in favour of this concept which he tenned "Greater Malaysia". 1/ The Governors of Sarawak and North Borneo and the United Kingdom High Commissioner in Brunei visited Singapore towards the end of June 1961 to have discussions with Lor.d Selkirk, the Camnissioner General for the United Kingdom in South East Asia about the "Greater Mal.a.ysia11 proposal. In a joint statement issued which emerged fran the talks, it was said that the three Borneo Territories should get closer together before the;r made any move to join a Malaysian Confederation. Ho..w ever, the talks had reached no specific conclusions •.Y' Conmenting on the proposals in Kuching on 1 July 1961, the Governor of Sarawak said that Sarawak would be in a !/ Commonwealth Survey, Vol. 7, No. 16, p. 779 • .Y' ~., No. 20, p. 972. .. - 3 - better position to join a confederation after closer links had been established with North Borneo and Brunei. There were many complex questions arising from the differing stages of economic, educational and constitutional development. The priorities and perspectives could not be fully judged until more was known of the form such an association might take and how the general and particular interests of all concerned could best be accommodated.11 In Borneo and Sarawak opinions on "Greater Malaysia" were not una- nim.ous. The Saz:awak United Peoples' Party stated on 8 July 1961 that it would be best to postpone the question until after the country had achieved independence, but it would be prepared to join with others in examining the implications of the plan. On the other hand, the Negara Sarawak Party was of the view that it would be preferable for the country to enter such a merger as an independent Wlit; Sarawak would become a loser if it were first to unite with Borneo and Bl:-unei before joining the greater federation.~ JJ Commonwealth Survey, Vol. 7, No. 20, p. 972. ~ Ibid., p. 973. - 4 - A ~~sian Solidarity Consultative Committee composed of representatives from Mal~a, Singapore and the three Borneo Territories was then formed b,y delegates to a conference of the Mal~a-Borneo Group of the Commonwealth Parliamentary Association, to initiate and encourage discussions and foster other activities for the early realisation of "Greater Malaysia". At the committee's first meeting in Jesselton in August 1961, an assurance was given b,y the leader of the Mal~an delegation that there was no question of bigger units absorbing smaller units in the Mal~sian proposal. Mal~sia would be a new political unit formed b,y the coming together of the fifteen potential members, that is, the eleven States of Malaya, Singapore and the three Borneo Territories1 as individual partners. There would be considerable local auton~ for the States to ensure that their interests were safeguarded. The delegates also discussed such subjects as language rights., freedom of religion., educational polic.y1 land rights, immigration problems and economic relations., but the committee was in no position to commit the countries representedy to specific proposals for the establishment of "Greater Mal.aysia". y Commonwealth Survey, Vol. 71 No. 201 p. 973. - 5- In November 1961 Tengku Abdul Rahman visited London for exploratory t~lks with the British Government about his suggestion for a closer association between the Federation, Singapore and the three Borneo Territories. The Tengku's proposals had been welcomed b,y the BritiSh Government which considered that great possibilities would be offered for the well-being of the Territories involved if the Federation came into being. The object of the discussions in London was to reach an understanding on the broad issues and to prepare the wa:y for consultations with the three Borneo Territories, without which no commitment could be entered into. During tlE discussions, full agreement was reached between the United Kingdom and the Federation of Malaya on the proposed closer association.!/ On 23 November 1961 a joint statement was issued by the Governmentsof the united Kingdom and of the Federation of Malaya concerning the creation of a Federation of Malaysia which would embrace the Federation of ~a, Singapore, North Borneo, Sarawak and Brunei. In the light of a prolonged study of the problem, the two Governments were convinced that this was a desirable aim. Before coming to any final decision, the joint statement envisaged that it was necessary to ascertain the views of the peoples of North Borneo and Sarawak. It had accordingly been decided to set up a commission to carry out this task and to make recommendations. The commission was to be composed of a Chairman and f01.r members 1 two nominated b,y the British Government and two b,y the Malayan Government. Y Commonwealth Survey, Vol.7, No.251 p. 1187. - 6- In the light of the commission's report the two Governments would deci de what further steps should be taken. The joint statement also envisaged at the same time that the views of the Sultan of Brunei would be sought. In regard to defence matters, the Commission decided that in the event of the formation of the proposed Federation of Malaysia, the existing Defence Agreement between Great Britain and Malaya should be extended to embrace other Territories concerned. It was further agreed that the Government of the Federation of Malaysia would afford to the Government of the United Kingdom the right to continue to maintain bases at Singapore for the purpose of assisting in the defence of Malaysia, and for Commonwealth defence and for the preservation of peace in South-East Asia.!/ On 28 November 1961, the British Secretary of State emphasized that the base at Singapore was a British and not a SEATO base, and Great Britain would not be free to transfer control of the base to any other nation or group of nations. The agreement explained the reasons wby Great Britain would be permitted to use the base. In reply to questions from the Opposition, the Secretar.y o£ State said in the House o£ Commons t hat the agreement did not exclude the use of the base to discharge Great Britain's obligations to SEATO to preserve peace in South-East Asia.gj On 1 Deceumer 1961 Tengku Abdul Rahman said that the plan to establish the new Malaysian Federation would have to be accomplished speedily.
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