'Albatross file' with details of top-level talks before Singapore separated from Malaysia to be declassified, released publicly

Parts of the Albatross file on display at a special exhibition at the National Museum of Singapore in 2015. 

Raj Nadarajan/TODAY

• The Government has agreed to declassify and release documents in a file known as the "Albatross file" compiled by the late Dr Goh Keng Swee
• The file relates in part to the discussions between Singapore and Malaysia leading up to the Separation Agreement in August 1965
• Contrary to popular perception that Singapore was expelled from Malaysia, it presents a more nuanced picture of events
• Some of the file's declassified documents are to appear in a book on separation to be published later this year

JUSTIN ONG

February 28, 2023


SINGAPORE — The Government has agreed to declassify and release documents in Dr Goh Keng Swee’s "famous Albatross file", Minister of State for Communications and Information Janil Puthucheary said in Parliament on Tuesday (Feb 28).

This is a file that the late Dr Goh, who is considered one of Singapore's founding fathers, kept in the run-up to Singapore’s separation from Malaysia in August 1965.

Aside from being an important record of a pivotal moment in Singapore's history, the Albatross file provides insights into top-level discussions among the leaders of Singapore and Malaysia in the weeks leading up to the separation.

Some of the contents of the Albatross file have been made public in various historical accounts over the years.

Contrary to popular descriptions of Singapore having been "expelled" by Malaysia, the file — part of which has previously been exhibited at the National Museum — offers a more nuanced look at how Singapore's leaders themselves played a part in proposing and facilitating the separation, alongside Malaysian leaders.

Dr Puthucheary, who was speaking in Parliament at the debate for his ministry's budget, said that some of the Albatross documents will be released in a book on the Separation Agreement, which is to be published later this year.

He said that the process of declassification began "some time ago" and took some time given the complexity of the material.

"A subset of the material was part of a public exhibition, and a larger set of declassified documents will be released in a book on separation to be published later this year," Dr Puthucheary added.

This will include cabinet papers, and Dr Goh's notes of his conversations with Malaysian leaders.

Dr Goh was finance minister before Singapore's separation from Malaysia, and held various ministries afterwards, rising to the position of deputy prime minister in 1973. He retired from politics owing to ill health in 1984 and died in May 2010, aged 91.

WHAT IS THE ALBATROSS FILE?

According to information published by the National Library Board, the Albatross file is a secret file which offered insights into the negotiations leading up to separation from Malaysia in 1965.

The negotiations, which also involved Singapore's founding Prime Minister Lee Kuan Yew and then-Malaysian Prime Minister Tunku Abdul Rahman, culminated in the decision for Singapore to leave Malaysia on Aug 9,1965.

The first time that the existence of the file was revealed to the public was in an interview in 1980, where Dr Goh stated that the "Albatross" referred to Malaysia.

According to the publication, Dr Goh had said: “By that time, the great expectation that we foolishly had – that Malaysia would bring prosperity, common market, peace, harmony, all that – we were quickly disillusioned. And it became an albatross round our necks”.

The Ministry of Communications and Information began the pilot phase of declassifying files under its purview in late 2013 with a team of researchers, which included retired senior public officers. This was the first-ever systematic declassification project undertaken in Singapore.

In 2015, parts of the top-secret document were showcased at the National Museum of Singapore.

DECLASSIFICATION OF RECORDS AN ONGOING PROCESS

Responding to a question by Sengkang Group Representation Constituency Member of Parliament (MP) He Ting Ru on whether archival material can be made more accessible, Dr Puthucheary said that the National Archives of Singapore (NAS) has been working with government agencies to declassify and make available more government records.

Metadata of around 780,000 records are publicly accessible on archives online, and this has been increasing over the years, he said.

[Note: "Metadata" of these records are accessible. Not the files/records itself. Metadata refers to file names, references, dates, and other metadata, not the contents of the files itself.]

"In addition, since 2016, Government agencies have reviewed more than 7,000 government records that were not yet declassified," he added.

This was in response to more than 2,130 requests by members of the public.

In all, 83 per cent of these records have been approved for access, and in total, about 68,000 file records have been declassified and made accessible to the public.

[So actual files declassified is about 68,000. So out of 780,000 records, it's less than 10% of the archived records. To be fair, 780,000 files is a lot of files, and who knows what the process of declassification is like? From Minister's statement that "since 2016, 7000 records have been reviewed", that's 7 years, and 7000 files, so... 1000 files a year? So with 780,000 files, it will take... 780 years!!! And during those 780 years, MORE FILES would be added! ]

"We are committed to ensuring greater access to Government records, so that they can be a reference for the public to research and obtain information on Singapore," said Dr Puthucheary.

Speaking in Parliament, Leader of the Opposition Pritam Singh praised the move to release the Albatross file.

Referencing a commentary by TODAY about Singapore's founding fathers, Mr Singh said: "I think the release of these documents... is important for the nation, as it is part of the nation building process." 

ON CLASSIFIED INFORMATION FOR RESEARCH PURPOSES

Mr Singh also asked if the Government is prepared to release classified information that has already been extended for research purposes to all sitting MPs.

Dr Puthucheary said that Mr Singh’s question was referencing his request to an agency where the information sought had yet to be transferred to the NAS for preservation.

“To be clear, the file in question is not available for public access and remains classified,” said Dr Puthucheary.

This is distinct from public archives which are public records that have been transferred to NAS and can be requested for inspection by any person for the purposes of reference or research.

He added that for records that remain classified and are not part of the public archives, agencies may grant access to specific information for specific purposes, such as writing a book.

This will be subject to conditions such as complying with the Official Secrets Act and submitting the information to be quoted for vetting prior to release, he added.

“As a matter of policy, the Government does provide researchers access to information for legitimate research purposes, but doing so does not mean that the entire record has been declassified, nor that it is generally available to the public,” said Dr Puthucheary.

“If someone has a specific reason to access closed records, a request can be made and the request will be assessed by the Government on its merits.”

He added that if Mr Singh would like more information on background thinking or the rationale behind the government policy, there are several routes he can take.

One would be to approach the relevant ministry to provide further details and clarification.

Mr. Singh and other MPs also have the option to file a parliamentary question and receive a formal reply from the government, Dr Puthucheary said.