The Administrative Structure of Johor

When Johor gained ownership of Johor in 1855, the vast state was undeveloped and underpopulated, and it was a constraint to administer the state efficiently due to the lack of communication. So, Abu Bakar devised a state administration method by creating two divisions, each headed by his siblings as his Official Representatives. The Western Division comprising the provinces of Johor Bahru, Muar, and Batu Pahat, was headed by Ungku Abdul Majid bin Daeng Ibrahim. The Eastern Division that covered the provinces of Segamat and the eastern seaboard were under the care of Ungku Abdullah bin Daeng Ibrahim. These four original provinces are symbolised as the four stars embedded in the white shield of the state crest.

Each Mukim is further divided into Villages (Kampungs) with a Village Head (Ketua Kampong) as its leader. The 680 village heads are answerable to the Penghulus.

Among Abu Bakar's first strategies to stem the British forward movement was the introduction of internal reforms to the administrative machinery. Towards this end, the various government departments were restructured for efficiency and placed under the leadership of his ministers. In 1873, he established a Council of Ministers comprising 12 Malay intellectuals. The Council possessed executive authority and acted as an advisor to Abu Bakar.

In the same year, he established the State Council, comprising 34 members of the Council of Ministers and two members from the Chinese community. Which included, Mejor Cina Dato' Tan Hiok Nee, the Kangcu of Kangkar Tebrau, and Kapitan Cina Seah Theng Hye, the Kangcu of Skudai, to ensure the Chinese community was not marginalized. The establishment of the Councils marked the beginning of a democratic government.

The Council of Ministers and the State Council became a forum where the members could discuss freely and enacted rules and regulations without outside interference. Many of the Council of Ministers members were his contemporaries at Keasbery College. Abu Bakar honoured the members for their contribution, dedication and loyalty by conferring upon them the ascribed honorific title of Dato', as in Dato' Menteri Besar Jaafar bin Mohamad, Dato' Bentara Luar Mohamad Saleh bin Perang, Dato' Bentara Dalam Ibrahim Abdullah Munshi.

The Council of Ministers was serviced and assisted by a State Secretariat comprising Malay officers of high calibre under the leadership of the State Secretary. In 1895 Dato' Sri Amar Diraja Abdul Rahman Andak, who was sent by Abu Bakar for further education in London, was appointed the first State Secretary.

Abu Bakar's second strategy was the establishment of the Johor Advisory Board in London in 1885. The Board, comprised of retired top and influential British civil servants, was an indirect conduit whereby Abu Bakar was able to obtain views and advice on the colonial policies and plan for counter strategies.

Even though Johor accepted British interference in its administration in 1914, Sultan Ibrahim was steadfast in defending its independence and was adamant in preserving ownership of Johor. Vested with authority in the appointment of Menteri Besar and the Executive Council, he insisted that the post of the British administrator be termed as General Advisor and not British Resident Advisor as in other states. He further commanded the British officers to put on the Johor tunic for official functions, the Union Jack to be flown only at the residence of the General Advisor, Malay officers to be accorded similar treatment as British officers, the Johor Military Forces to remain, the Malay as the official language, and the Jawi script be used for all official correspondence between the palace and the government.

The democratic system of government was enhanced with the Johor State Constitution proclaimed on 14 April 1885. The Constitution based on Islamic family laws and feudal codes and regulations legitimized the appointment of the ruler, the mechanics of succession to the throne, the empowerment of authority to the ruler and the state's administration. Johor was the first state in Malaya to have an official and written constitution. It was initiated by the Council of Ministers, drafted in Malay in the Jawi script, and later translated into English.

Abu Bakar's primary objective of the constitution is to ensure and preserve ownership of the throne, and the state of Johor remains forever in the hands of his heirs and successors. Secondly, he envisioned the constitution as a defence of the sovereignty and independence of Johor. This is in line with Articles 15 and 16 of the Constitution, which forbid the ruler, the Council of Ministers, or any of its members from alienating or ceding Johor or any part of Johor to any foreign power. As a result, Abu Bakar was able to protect the sovereignty and independence of Johor for 33 consecutive years.