The Malay Rulers and the Conference of Rulers

Once a year, nine state monarchs and four Governors gather in a meeting room in Kuala Lumpur to make decisions that Parliament cannot make — among them, choosing who will become the Federal King. That assembly is the Conference of Rulers, and the state monarchs who sit on it are known as the Malay Rulers.

Who are the Malay Rulers?

“The Malay Rulers” refers to the nine hereditary monarchs of Malaysia’s Malay states. Each state has its own title for its ruler, so the term “Ruler” here means the head of a monarchical state in a general sense, not a single uniform title.

The nine monarchical states and the titles of their rulers are:

State	Title of ruler
Johor	Sultan
Kedah	Sultan
Kelantan	Sultan
Pahang	Sultan
Perak	Sultan
Selangor	Sultan
Terengganu	Sultan
Negeri Sembilan	Yang di-Pertuan Besar
Perlis	Raja

The four other states — Melaka, Penang, Sabah and Sarawak — do not have monarchical rulers. Instead, these states are headed by appointed Governors (Yang di-Pertua Negeri). Together, these two groups — the nine Rulers and the four Governors — form the Conference of Rulers.

What is the Conference of Rulers, and why is it different from the Yang di-Pertuan Agong?

The Conference of Rulers is the official institution where the Rulers and Governors meet and deliberate. It is enshrined in Article 38 of the Federal Constitution, with its detailed functions listed in the Fifth Schedule.

An important distinction needs to be made. The Yang di-Pertuan Agong is an individual — the Federal King who, under Article 32(3) of the Federal Constitution, is elected by the Conference of Rulers for a single five-year term. The Conference of Rulers, by contrast, is a collective body. It is this Conference that elects the Yang di-Pertuan Agong and the Deputy Yang di-Pertuan Agong from among the nine Malay Rulers, following the procedure in the Third Schedule of the Constitution, as detailed by the Office of the Keeper of the Rulers’ Seal. In other words, the Yang di-Pertuan Agong is one of the members of the Conference who is elevated to hold the highest office of the Federation.

According to the Office of the Keeper of the Rulers’ Seal, only reigning Rulers may take part in the election of the Yang di-Pertuan Agong; a Ruler may not send a representative to vote on his behalf.

How did this institution come about?

The roots of the Conference of Rulers can be traced to the first Durbar on 13 July 1897 in Kuala Kangsar, attended by four Malay Rulers from Perak, Pahang, Selangor and Negeri Sembilan.

The Conference in its modern form was formally established in 1948, replacing the Meeting of the Rulers of the Federated Malay States (the Durbar). It was created under the Federation of Malaya Agreement, which came into force on 1 February 1948, and its first meeting was held on 18 February 1948.

The Conference’s membership grew as the country changed:

• 1948–1957: Comprised the nine Malay Rulers, who deliberated and advised the British High Commissioner on the administration of the Federation of Malaya.
• After 31 August 1957: The Governors of Penang and Melaka joined the Conference following independence.
• After 16 September 1963: The Governors of Sabah and Sarawak also became members of the Conference with the formation of Malaysia.

What are the functions of the Conference of Rulers?

The Conference of Rulers carries several constitutional functions held by no other institution. Among them:

• Election of the head of state. Electing the Yang di-Pertuan Agong and the Deputy Yang di-Pertuan Agong.
• Assent concerning royal privileges. No law touching the privileges, position, honours or dignities of the Rulers may be passed without the Conference’s agreement.
• Religious affairs. Agreeing or disagreeing to any religious act, observance or ceremony extending to the whole of the Federation.
• Special position. Being consulted before any policy change under Article 153, relating to the special position of the Malays and the Bumiputera.
• Deliberation on national policy. Being able to deliberate on questions of national policy and any other matter it thinks fit, under Article 38(2).
• Appointments. Advising on certain appointments requiring the Conference’s agreement, as well as appointing members of the Special Court under Article 182 and representatives to bodies such as the Armed Forces Council and the Board of Governors of Dewan Bahasa dan Pustaka.
• Power of pardon. Granting pardons, reprieves and respites in certain cases.

According to the records of the Malaysian Bar, the Constitution also provides for the power to remove the Yang di-Pertuan Agong under Article 38(6) — a power that, according to those records, has never been used.

How does the Conference operate?

The Conference meets three times a year, and may also convene at the request of the Yang di-Pertuan Agong. According to the Office of the Keeper of the Rulers’ Seal, its chairmanship rotates among the nine Malay Rulers.

The Conference’s secretariat is the Office of the Keeper of the Rulers’ Seal, established in 1948 in conjunction with the first meeting. The Keeper of the Rulers’ Seal acts as secretary to the Conference. Among its most publicly recognised roles is announcing the start of the Ramadan fast as well as the dates of Aidilfitri and Aidiladha; for the purpose of sighting the new moon, a total of 29 locations across Malaysia have been designated.

Matters commonly discussed at the Conference’s meetings include appointments, defence, national security and religious issues.

How is the Conference’s role understood?

The place of the Conference of Rulers within Malaysia’s constitutional monarchy is a subject of discussion among legal scholars and commentators. Some emphasise its role as a constitutional counterbalance — for instance its power to withhold assent to certain laws, and its right to be consulted on important appointments and national policy. The Malaysian Bar, in its records, describes the Conference’s deliberative function under Article 38(2) as a form of check that could potentially encourage transparency.

Debate over the extent to which these powers are exercised, particularly those involving discretion, continues within constitutional discourse. This article takes no position on that debate; it merely notes that differing views exist and are discussed openly.

What’s next

To understand Malaysia’s royal institutions more fully, the next step is to read about the institution of the Yang di-Pertuan Agong — the office elected by this Conference — as well as the provisions of the Federal Constitution that establish it. For official and up-to-date references on the Conference’s membership, history and procedures, the website of the Office of the Keeper of the Rulers’ Seal (majlisraja-raja.gov.my) is the primary source.

Note: This is an AI-assisted draft that has not undergone human review. All figures and facts should be re-verified against official sources before use.