INTRODUCTION
1. The idea of a political association between Malaya, Singapore and the three Borneo territories of North Borneo, Sarawak and Brunei has been discussed many years.
2. On the 27th May, 1961, the Prime Minister of the Federation of Malaya, Tunku Abdul Rahman, in a speech at a Press luncheon in Singapore, spoke favourably about the practical possibility of such an association. Tunku Abdul Rahman's constructive proposals were welcomed by the British Government, and it was announced on the 13th October that he had accepted an invitation to come to London in November 1961 for discussions with the object of reaching an understanding on the broad issues and to prepare the way for consultation with the Borneo territories without which no commitment could be entered into.
3. In the meantime, on the 23rd August, 1961, broad agreement had been reached in principle between the Prime Ministers of the Federation of Malaya and Singapore for a merger of the two territories. A Memorandum setting out Heads of Agreement for the proposed merger was published as a Singapore White Paper[1] on the 15th November, 1961.
4. The London discussions were held from the 20th—22nd November, 1961, and a Joint Statement by the British and Malayan Governments was issued on the 23rd November, 1961.[2] An extract from the text of the Joint Statement is reproduced below:
“In a series of meetings in London this week British and Malayan Ministers examined the proposal to create a 'Federation of Malaysia' which would embrace the Federation of Malaya, Singapore, North Borneo, Sarawak and Brunei.
2. In the light of a full study of the problem which has been going on for some months, the British and Malayan Governments are convinced that this is a desirable aim.
3. The Ministers took note with satisfaction of the Heads of Agreement recently negotiated between the Goverments of Malaya and Singapore for the merging of the State of Singapore with the Federation.
4. Before coming to any final decision it is necessary to ascertain the views of the peoples of North Borneo and Sarawak. It has accordingly been decided to set up a Commission to carry out this task and to make recommendations. The Commission will be composed of a Chairman and four members, two nominated by the British Government and two by the Malayan Government. In the light of the Commission's report the two Governments will decide what further steps should be taken. (The terms of reference of the Commission are attached at Annex A.[3])
