# Report of the Commission of Enquiry, North Borneo and Sarawak, 1962/APPENDIX E

London, United Kingdom: The National Archives, Kew, pages 104–111
APPENDIX E
NORTH BORNEO AND SARAWAK GOVERNMENT PAPERS

## 1.—"North Borneo and Malaysia" Published by Authority of the Government of North Borneo. Jesselton. February 1962.

The British and Malayan Governments have agreed that the creation of a "Federation of Malaysia", embracing the 11 States of Malaya, Singapore, North Borneo, Sarawak and Brunei is a desirable aim. They have not gone beyond this. Before coming to any final decision the two Government agreed that it would be necessary to ascertain the views of the people of the North Borneo and Sarawak and decided to set up a Commission of Enquiry to carry out this task and to make recommendations. Within the next few weeks the Commission will be visiting North Borneo for the specific purpose of finding out opinion in this country by an enquiry on the spot. Opportunity will be afforded for all shades of opinion to have their say. It is indeed in everyone's interest to take advantage of this opportunity, as it will be in the light of what the Commission recommends that the final decision will be taken. The people of North Borneo should now think carefully about the future of this country so that they will be ready to express considered views to the Commission when it comes.
2. The declared aim of the British Government is to grant independence to all its Colonial territories as soon as they are ready for it. Hitherto this has been thought of simply as independence for North Borneo standing by itself, or, more recently, in association with Sarawak. But two stark political facts must be faced. These are:
3. Against this background, it is the view of the British Government that, provided satisfactory terms of merger can be worked out, the plan for Malaysia offers the best chance of fulfilling its responsibility to guide the Borneo territories to self-government in conditions that will secure them against dangers from any quarter. This is the overriding political argument in favour of North Borneo and Sarawak joining Malaysia. The British Government is firmly of the opinion that from the standpoint of economic development and in general of the future welfare and happiness of their peoples the best hope of the Borneo territories lies in their forming part of a larger unit. Economically as well as politically, small countries are rapidly becoming out of place in the strenuous conditions of the modern world. Where nations are concerned, combination creates a unit that is much more powerful, more effective, more efficient and more capable of making life better for its members than the sum total of their individual strengths would ever suggest. By itself, or even in association with Sarawak, North Borneo would find it very expensive to exist as an independent territory, and its voice in the councils of the world would be small. The peoples of Malaya and Borneo have cultural, economic and historical ties which make them fit naturally together as a group. Malaysia offers for them all the prospect of sharing in the destiny of what the British Government believes will be a great, prosperous and stable independent State within the Commonwealth.
4. Within recent weeks there has been strong criticism, much of it analytical and constructive, in sectors of the local English and Chinese Press of the concept of Malaysia on the basis of North Borneo joining the Federation of Malaya as a State under the present Constitution of the Federation. As was made clear at the last meeting of the Legislative Council in December, the Commission of Enquiry is not committed to any detailed terms of merger already proposed, and there is no question of its ​acting as a rubber stamp for a decision already taken. In fact, as indicated above, no decision has yet been taken beyond that Malaysia is a desirable aim. Furthermore, Tunku Abdul Rahman, the Prime Minister of the Federation of Malaya, has given a number of assurances that his original proposal that the Borneo territories should enter Malaysia as States equal in status with the existing States of the Federation of Malaya does not represent his final word on the subject. For example, in his speech to the Federal Parliament on the 16th October, he stated that "in our future constitutional arrangements the Borneo people can have a big say in matters on which they feel very strongly, such as immigration, customs, Borneanisation, and control of their State franchise rights". In conversation with members of the North Borneo delegation to the Malaysia Solidarity Consultative Committee he has made it abundantly clear that he has no wish to interfere in the internal affairs of North Borneo and is willing to consider sympathetically any proposals for the management by the people of this country of their own internal affairs.
5. There is clearly, therefore, room for manoeuvre in determining the extent of powers to be vested in the Central Government of the proposed new Federation of Malaysia. However, when considering what form these future constitutional arrangements should take, it is reasonable to take the Constitution of the present Federation of Malaya as a basis from which to start.
6. The present Federation of Malaya comprises 11 States, each of which has its own State Constitution and Government with certain powers reserved to it, the principal of which are control over local government. land, agriculture, forestry and State public works. The Federal Government controls external affairs, defence, internal security, civil and criminal law and the administration of justice, Federal finance, trade, communications, education, health, labour, co-operatives and Federal public works, to mention the most important. There is also a list of subjects on which both Federal and State Governments can legislate but the Federal law prevails if it conflicts with any State law. The list includes social welfare, scholarships, town and country planning, protection of wild life, sanitation, drainage and irrigation. The residual power of legislation rests with the State, i.e., the State retains the power to make laws with respect to any subject not specifically allocated to the Federal Government. Each State has its own Ruler or Governor or Head of State, and its own State public service. In short, the Constitution provides for a strong Central Government where the great preponderance of power rests, and which, in view of its wide responsibility, spends about three-quarters of the total revenues.
7. Assuming that the concept of Malaysia is accepted, the crux of the problem, which it will be the task of the Commission of Enquiry to solve, is to devise terms acceptable both to the Malayan Government and to the peoples of North Borneo and Sarawak for the entry of these two territories into a new Federation of Malaysia. In any event, substantial amendments to the Constitution of the present Federation of Malaya will be necessary to provide for the merger with Singapore, the terms of which have already been broadly agreed between the Governments of the Federation of Malaya and Singapore.
8. It is necessary, therefore, for the people of North Borneo to consider what powers they are prepared to concede in order to bring Malaysia into being. It is understandable that there should be widespread apprehension lest, in practice, Malaysia would mean that the people of North Rorneo would have far less control over their own affairs than they exercise already, and that North Borneo would be relegated to the position of a relatively powerless province of a strong Central Government situated 1.000 milles away. It is natural, therefore, that the first instinct of the people of North Borneo should be to require a much greater measure of local self-government than is afforded to the States of the present Federation of Malaya. To press this too far, however, might not, in the long run, be in the best interests of North Borneo. It is fundamental to the concept of Malaysia that the Federal Government should be endowed with substantial powers; without them it will have no real or enduring strength and will fail in its purposes as indicated in paragraph 3 above.
9. It will be generally conceded that the Federal Government must exercise control over external affairs, defence and internal security. North Borneo would thereby have through the Federation representation abroad, participation in the armed forces ​of the Federation (which in due course would no doubt contain units from North Borneo) and overall Federal authority for the maintenance of law and order. There is, moreover, likely to be little argument regarding the transfer to the Federal Government of control over the Judiciary, which is at present operating as a combined Judiciary for the three Borneo territories, and such departments as Geological Survey, Audit, Health, Posts and Telegraphs. Marine and Civil Aviation (subject to safeguards for regional interests). Far less easy of solution are the subjects at present controlled by the Federal Government of the Federation of Malaya in respect of which there is strong feeling in North Borneo that safeguards need to be imposed and a wide measure of local autonomy assured. These subjects include religion, language, finance, the public service, education, citizenship, immigration and land development. It will be perhaps the most difficult part of the task of the Commission of Enquiry to make recommendations which would reconcile local needs and wishes with what the Malayan Government is prepared to concede. But there is no reason to suppose that the task is insuperable, for, as a demonstration of the sincerity of his intention to interfere as little as possible with the internal affairs of the Borneo territories, Tunku Abdul Rahman has already agreed that immigration to North Borneo from the other States of Malaysia should be a matter over which the North Borneo State Government should maintain control, and the door is clearly not closed to proposals in regard to other subjects. It would, indeed, be against the long-term interest of the Malayan Government to insist on excessive control against the wishes of the peoples of the Borneo territories, which would over the course of the years build up resentment and discontent leading to a repetition within Malaysia of the internal stresses and strains which in recent years have become apparent within the framework of Indonesia, and, more recently still, have culminated in the secession of Syria from the United Arab Republic. It may well be found that, on closer examination, the gap between opposing conceptions is not as wide as might at first sight appear. For example, in practice, many aspects of the present education policy in North Borneo are broadly similar to their counterparts in Malaya, and, while acceptance of education as a Federal subject without strong safeguards clearly presents difficulty, it is hoped that the Commission will be able to hammer out an acceptable solution. Similarly, Malay is the national language of the present Federation of Malaya and it is the "lingua franca" of the Borneo territories. In Malaya English is the main medium of education and is taught in all schools. The Constitution of the Federation of Malaya provides that for 10 years from Merdeka Day and thereafter until Parliament otherwise provides, the* English language may be used for official purposes. It has been explained that this period of 10 years or longer applies only to existing States of the Federation. A longer period could be applied to new States of the Federation of Malaysia if desired. The acceptance of Malay as the national language would not prevent the use, teaching, or learning of any other language nor would it prejudice the right, of any State of the Federation of Malaysia to preserve and sustain the use and study of other languages. The question of language, like that of the other matters listed earlier in this paragraph, is one that will no doubt engage the close attention of the Commission.
10. The deliberations of the Consultative Committee have done much to clarify the position of religion in Malaysia. Islam is the official religion of the Federation of Malaya. Although Malaysia would have Islam as the official religion of the enlarged Federation no hindrance would be placed on the practice of other religions. Complete freedom of religion would be guaranteed in the Federal Constitution. North Borneo, which at present has no established religion, would not be required to accept Islam as its State religion.
11. There has been much concern locally at the prospect of North Borneo losing control of the greater part of its revenues and expenditure and of the rate of economic development being retarded rather than accelerated. The finances and economic aspects of the incorporation of North Borneo into a Federation of Malaysia are complex and will require expert examination beyond the scope of this publication. Just as North Borneo and Sarawak, however, have recently thought it advantageous to conclude a free trade area agreement, so may a larger common market provided by Malaysia be expected to help to produce some economic advantages to all parts of the area. Since Merdeka there has been very extensive capital development in Malaya, which would no doubt continue in Malaysia and from which North Borneo would ​benefit. Malaya is at present engaged in carrying out an intensive and rapid programme of rural development which, with adaptations, seems well suited to the needs of North Borneo and is indeed based on principles similar to those which are being followed here. Development in the Federation of Malaya is a joint subject (i.e., shared by the Federation and the States) and each State has its own development board. With independence, grants from Britain under the Colonial Development and Welfare Act would cease. Britain has, however, been ready to give financial assistance when this has been shown to be necessary to, other Commonwealth territories after independence, and there is no reason to suppose she would not be willing to consider the case of North Borneo in the same way. Aid under the Colombo Plan would continue to be forthcoming as at present. Aid from other sources such as the International Bank of Development and Reconstruction, would still be available for North Borneo as part of the independent Federation of Malaysia. The local and international standing of the currency of North Borneo (the Malayan dollar) rests on the combined strength and viability of all the territories which would make up the Federation of Malaysia, and would not be impaired by their entering into a permanent association.
12. The probability of increased taxation in the event of North Borneo joining Malaysia has also been a target for criticism. But on reflection this will be seen to be a probable corrollary of independence, whether or not North Borneo enters Malaysia and, if she should attain independence on her own, or simply in association with Sarawak, the cost of paying for her own defence and representation abroad would be proportionately heavier. Irrespective of whether Malaysia is brought into being or not, there is a growing demand for improved social services, communications, and development in the rural areas which is not to be denied and must inevitably lead to an increased burden of national and local taxation.
13. Of all the matters that will fall to be considered by the Commission of Enquiry perhaps the most crucial for the future well-being of the country is that of the Public Service. In the present Federation of Malaya there are two civil services, the Federal and the State. That there should be apprehension locally lest Malaysia should lead to Malayans taking over the best appointments in the North Borneo Public Service is understandable: but it has been made clear that these fears are not justified and, while control over the Federal Service would naturally rest with the new Federal Government, in all Federal Service appointments made to the Borneo territories the people of Borneo would be given priority. There would also be opportunities for Borneo Federal officers to serve in other parts of Malaysia and in external affairs posts overseas. It is clearly to the advantage of all that there should not be any breakdown in services caused by staff dislocations, and present serving officers would carry on in their posts. The progress of Borneanisation of the local service would continue. There are special provisions in the present Federation of Malaya's Constitution relating to scholarships, training and civil service posts for Malays. Similar provisions could be made applicable to the indigenous peoples of Borneo. But the process of Borneanisation, however much it is accelerated, cannot be achieved overnight, and the need for overseas staff will continue for many years to come. This is recognised by Tunku Abdul Rahman, who has expressed the hope that they will remain to guide the peoples of North Borneo after independence as they have done in the past. Arrangements will have to be worked out whereby they will be encouraged to remain in their posts while the process of Borneanisation continues on the principles already established.
14. When the Federation of Malaya was formed transitional arrangements were devised to permit the States to join the Federation gradually and smoothly. Similar transitional arrangements, extended perhaps over a longer period, will be necessary with the Borneo territories. The intention would be to cause as little dislocation in the daily life of the people as possible, and drastic immediate changes are not contemplated.
15. The main issue before the people of North Borneo is simply this. They must assess the future advantages of Malaysia; they must weigh up the prospects Malaysia offers of security from external aggression and internal Communist subversion, of stability and prosperity; and they must consider how far they are prepared to give powers to the Central Government of Malaysia to achieve these benefits. The ​Central Government must be strong and provide security; it must have powers sufficient for its purpose. But local aspirations and needs must also be recognised and safeguarded. The State Government must be able to protect vital local interests. Some there are no doubt who prefer no change in the existing order of things; to them the answer is that the "winds of change" are blowing and blowing hard, and no good can come out of refusing to face up to this fact, however unpalatable it may be to them. Some would prefer to achieve self-government first before entering into negotiations over Malaysia; this would indeed be attractive if there was a guarantee that the opportunity now presenting itself would still be there to grasp in a few years' time. But there can be no such guarantee. Events in the outside world are moving fast and unpredictably and the danger is that the opportunity, once missed, will not recur. It may indeed be a case of "And we must take the current when it serves, or lose our ventures". Those who would put self-government before Malaysia would do well to reflect on the consequences if the Malaysian plan should come to nothing. Of one thing they may be certain, that there are forces in the world which will not be slow to take advantage of the situation.
16. It is hoped that this publication will help the people of North Borneo to understand the issues on which the Commission will seek their views. It will be the task of the Commission in the light of those views to work out a plan for Malaysia which will be acceptable to the people of North Borneo and Sarawak. There is no reason to suppose that this cannot be successfully accomplished. The people of North Borneo will be given a fair hearing, and it is hoped that after listening to their representations and assessing what modifications of the present Federal Constitution are necessary to meet local conditions, the Commission will be able to recommend a plan that will be workable, endurable, and acceptable to all the participants, not least the of North Borneo.
Jesselton, North Borneo. 31st January, 1962.

## II.—"MalaySIa and Sarawak". Published by Authority of THE Government of Sarawak, Kuching, January 1962

The British and Malayan Government have agreed that the creation of a "Federation of Malaysia", embracing the 11 States of Malaya, Singapore, North Borneo, Sarawak and Brunei is a desirable aim. The view of the British Government is that, if satisfactory terms of merger can be agreed, the plan offers the best chance of fulfilling its responsibility to guide the Borneo territories to self-government in conditions that will secure them against dangers from any quarter. A Commission will be visiting North Borneo and Sarawak in the near future to ascertain the views of the peoples these two territories on this proposal and to make recommendations. It will be for the Commission, in the light of the evidence they receive, to work out a plan which they believe will be acceptable to the peoples of both territories.
2. The object of this publication is to explain in simple terms what "Malaysia" means and to assist the people of Sarawak in making up their minds what views they should present to the Commission when it comes. There has already been much discussion on this subject in the newspapers, and there have been some very useful exchanges of views in the Malaysia Solidarity Consultative Committee, but there is general demand for a factual and objective exposition of Sarawak's place in the Federation of Malaysia.
3. The declared aim of the British Government is to grant independence to all Colonial territories as soon as they are ready for it. Hitherto this has been thought of simply as independence for Sarawak standing by itself or, more recently, in association with North Borneo. Now an opportunity is provided for independence as part of a larger Malaysian unit. There are obvious advantages in this. In area Sarawak is not much smaller than the Federation of Malaya but its population is under three-quarters of a million compared with 7 million in the Federation. It would find it very difficult and very expensive to stand alone as an independent ​territory. The peoples of Malaya and Borneo have cultural, economic and historical ties which make them fit naturally together as a group. This is universally recognised and at the recent Solidarity Consultative Committee meeting at Kuching all the delegates supported the concept of Malaysia. What is more difficult to is decide in what way Sarawak can best fit into this concept.
4. The first thing to be clear about is that Sarawak is not merely being invited to join the present Federation of Malaya as one of the States equal in states with the other existing States of the Federation. The equal in states with the other existing States of the Federation. The present 11 States of the Federation of Malaya will be merged in the Greater Federation of Malaysia and the Federation of Malaya as a political entity will cease to exist. This has already been partly achieved, to the extent that the Governments of the Federation of Malaya and Singapore have already agreed on the terms on which Singapore will join the larger Federation. The Prime Minister of Malaya has stated that in the "future constitutional arrangements, the Borneo people can have a big say in matters in which they feel very strongly". However, when considering what these future constitutional arrangements should be it is reasonable to take the Constitution of the present Federation of Malaya as a basis for which to start.
5. The present Federation of Malaya comprises 11 States each of which has its own State Constitution and Government certain powers reserved to it, the principle of which are control over local government, land, agriculture, forestry and State public works. The Federal Government controls external affairs, defence, internal security, civil and criminal law and the administration of justice, Federal finance, trade, communications, education, health, labour co-operatives and Fedealr public works, to mention the most important. There is also a list of subjects onwhich both Federal and State Governments can legislate btu the Federal law prevails if it conflicts with any State law—the list includes social welfare, scholarships, town and country planning, protection of wildlife, sanitation, drainage and irrigation. The residual power of legislation rests with the State, i.e., the State retains the power to make laws with respect to any subject not specifically allocated to the Fedearl Government. Each State has its own Ruler or Governor or Head of the State, and its own State public service.
6. This Constitution provides for a strong Central Government where a great deal of power rests and which, in view of its wide responsibility, spends about three-quarters of the total revenues. The first instinct of people in Sarawak will be to require a much greater measure of local self-government than is afforded to the States of the present Federation. This is a natural instinct but it should not be pressed too far. To the extent which Sarawak demands a greater say in its local affairs it will have a lesser say in Federal affairs. This may not, in the long run, be in the best interests of Sarawak. We have been assured that representation in the Federal Legislature will not be based purely on population ratios but that account will also be taken of the extensive size and rural nature of the country. This means that Sarawak will have a larger voice in Federal matters than its population strictly warrants. All matters which it reserves to itself will have to be looked after by itself. Federal matters will be the responsibility of the Federation as a whole and will have the whole Federal resources behind their handling.
7. It is generally agreed that a Federal Government must have control over external affairs, defence and internal security. Sarawak would thereby have, through the Federation, representation abroad, participation in the armed forces of the Federation (which would certainly contain Sarawak units), and the Federal authority for the maintenance of law and order. What other Federal powers would Sarawak like to keep as State powers? The Prime Minister of Malaya has already agreed that migration to Sarawak from the other States of Malaysia is a matter on which the Sarawak Government can maintain control. The method by which this may be achieved can be devised by constitutional experts. If it becomes necessary for the development of the economic potential of Sarawak to have more people from other parts of Malaysia this will be decided by the people of Sarawak themselves.
8. It would be an odd Federation which did not have a common system of administration of justice. Justice is at present administered in Sarawak by a combined judiciary covering North Borneo and Brunei. The extension of this to a Federal judiciary should present little difficulty. ​9. "Communications" is a comprehensive word which covers the transportation of people and goods by land, air and water and the transportation of messages by similar channels. Postal, telegraphic and radio communications are natural Federal subjects, so are air, road and water transportation as between States. Air, road and water transportation within Sarawak might well however, be a matter in which both State and Federal Governments have functions and responsibilities. In other words it would be a joint subject.
10. Education is a subject which greatly exercises the people of Sarawak. It is also the largest single item in the budget of expenditure, and the item which is growing fastest. Education in Malaya is more advanced than in Sarawak but is developing on similar lines. The school-leaving age there is 15 and this year free universal primary education will be introduced. It may be thought that the quickest way to achieve parity, and to accelerate educational advance in Sarawak would be to leave this as a Federal subject with such reservations as local circumstances may require. This would not affect the present Government policy on the language of instruction in schools.
11. Health lends itself naturally into a division between State and Federal administration, as is at present the case in the Federation of Malaya.
12. It would be desirable that labour legislation should be uniform. Generally speaking, Sarawak is less advanced in this sphere than Malaya and could therefore benefit much from Federal experience.
13. The financial and economic aspects of the incorporation of Sarawak into a Federation of Malaysia are complex and will require expert examination beyond the scope of this paper. Just as North Borneo and Sarawak have recently found it advantageous to conclude a free trade area agreement so will the larger free trade area of Malaysia help to develop the economy by providing a bigger home market for local products. A unit of 10 million people is obviously more viable economically than a unit of 1 million. Sarawak is short of capital. There has recently been very extensive capital investment in Malaya which would no doubt continue in Malaysia and from which Sarawak would benefit. At the recent Consultative Committee meeting the Malayan Delegation has stated that the rate of economic and capital development of the Borneo territories as part of Malaysia would be faster than at present. Malaya has an intensive and rapid programme for rural development which, with adaptation, seems well suited to the needs of Sarawak. Development is a joint subject (i.e., shared by the Federation and the States) and each State has its own development board. With independence, grants from Britain under the Colonial Development and Welfare Act would cease. Britain has been ready to give financial assistance, when this has been shown to be necessary, to other Commonwealth territories after independence and there is no reason to suppose she would not be willing to consider the case of Sarawak in the same way. Aid under the Colombo Plan would continue to be forthcoming as at present. Aid from other sources, such as the International Bank of Development and Reconstruction would be directly available to the Federation of Malaysia as an independent territory. It is important for the individual and for businessmen to remember also that the local and international standing of the currency of Sarawak (the Malayan dollar) rests on the combined strength and viability of all the territories which would make up the Greater Federation and would be secured by entering into a permanent association.
14. On the other hand there would be additional expenses. Sarawak would have to bear its share of the cost of Federal representation abroad and of defence—it would have to do that anyway when independent, and it will be less as part of a larger unit than of a small one. Taxation in some categories is higher in the present Federation of Malay than in Sarawak. The probability is that as part of Malaysia national taxes as distinct from State and local taxes in Sarawak would have to go up. The Financial Secretary, in his recent budget speech, has said that this is inevitable even if Sarawak continues for the time being as a colony. Improved services and communications have to be paid for and the price of independence is invariably a bigger budget. ​15. People have wondered whether the fact that Islam is the official religion of the Federation of Malaya would affect religious freedom in Sarawak as part of Malaysia. This has been clarified at the recent Consultative Committee meeting. Although Malaysia would have Islam as the official religion of the enlarged Federation there would be no hindrance placed on the practice of other religions. Complete freedom of religion would be guaranteed in the Federal Constitution. Sarawak has at present no established religion and it would not be required to accept Islam as its State religion.
16. The matter of a national language was also discussed in the Consultative Committee. Malay is the national language of the present Federation of Malaya and it is the lingua franca of this region. The Constitution provides that for 10 years from Merdeka Day and thereafter until Parliament otherwise provides, the English language may be used for official purposes. It has been explained that this period of 10 years or longer relates only to the existing States of the Federation. A longer period could be applied to new States of the Federation of Malaysia if desired. The acceptance of Malay as the national language would not prevent the use, teaching or learning of any other language nor would it prejudice the right of any State of the Federation of Malaysia to preserve and sustain the use and study of other languages.
17. As part of Malaysia there would be two civil services functioning in Sarawak. The State service, over which Sarawak would have complete control, and the Federal service. Control over the latter would naturally have to rest with the new Federal Government but in all Federal service appointments made to the Borneo territories the people of Borneo would be given priority. There would also be opportunities for Bornean Federal officers to serve in other parts of Malaysia and in external affairs posts overseas. Clearly it would be to no one's advantage that there should be any breakdown in services caused by staff dislocations, and present serving officers would carry on in their posts. The progress in Borneanisation of the local service would continue. There are special provisions in the present Federation of Malaya's Constitution relating to scholarships, training and civil service posts for Malays. There could be similar provisions applying to the indigenous peoples of Borneo. The services of overseas officers will still be needed and it will be necessary to devise arrangements whereby they will be encouraged to remain in their posts while the process of localisation continues on the principles already established.
18. The question which the average kampong and longhouse dweller is most likely to ask is "How will I be affected if Sarawak joins Malaysia?" He will not notice any immediate change. When the Federation of Malaya was formed transitional arrangements were devised to permit the States to join the Federation gradually and smoothly. Similar transitional arrangements will be necessary with the Borneo territories. In the long term he may expect to reap the benefits of partnership in a vigorous, young community of independent peoples. If he finds the idea of Sarawak joining Malaysia still too novel he should stop to ask himself a second question, "What is the alternative?" Independence will come to Sarawak within a measurable period of years. This is promised and inevitable. The present state of world opinion suggests that the period will be shorter rather than longer than we anticipate. This opportunity to attain independence by joining Malaysia is unlikely to recur and Sarawak may be left with no other alternative than a perilous existence as a small defenceless country in a large and predatory world.
19. This paper has endeavoured to set out the framework of the Federation and to direct attention to the special interest Sarawak has in such matters as religion, land development, migration, education, language and the civil service, and to indicate an approach to the solution of such problems with the intention of assisting the public to put to the Commission constructive proposals for an acceptable plan.
Secretariat, Kuching, 4th January, 1962.