Temenggong (1862–1868) Abu Bakar assumed office as the
Temenggong of Johor within three days of his father's death and moved his residence to
Tyersall. At the time of his succession, Johor was facing a political threat from the deposed sultan,
Mahmud Muzaffar Shah. The Sultan was pursuing his sovereignty claims over Johor and Pahang and aimed to overthrow the Sultan of Terengganu with the backing of Siam. Mahmud Muzaffar Shah established an alliance with Tun Ahmad, half-brother and rival of the Bendahara
Tun Koris. The alliance caused Abu Bakar concern that the fall of Tun Koris in Pahang would threaten his own political position in Johor. Abu Bakar signed a treaty of friendship with Tun Koris in June 1862, and sent a small expeditionary force to Pahang to support Tun Koris when war broke out in August 1862. During the first two years of his reign, Abu Bakar expanded the
Kangchu system pioneered by Daeng Ibrahim. He issued Western-style contracts (termed as
Surat Sungai in Malay, literally "River Documents") to the
Kapitan Cina (Chinese leaders) who had established riverside plantations along the
Johor River. Letters of authority (
Surat Kuasa) were issued when the first Chinese leaders began settling in Johor during the 1850s. Abu Bakar quickly established good relations with the Kapitan Cina; a Malay administrator who could speak the
Teochew Min (the language spoken by most Kapitan Cina) and read Chinese was employed for these purposes. He also employed the service of a Chinese contractor from
Toisan,
Wong Ah Fook, to oversee the construction of the
Istana Besar. Various Chinese dialect groups began to compete for commercial interests in the 1850s and 1860s. This led to communal violence. Abu Bakar and the Kapitan Cina in Johor (who were mainly migrants from
Chaozhou) tried to assimilate Chinese entrepreneurs of non-Teochew origin. Abu Bakar gave official recognition and support for the Johor branch of the
Ngee Ann Kongsi, which was seen as a secret society in Singapore at that time. As Johor prospered from the large revenue generated from the
gambier and
pepper plantations managed by the Kapitan Cina, Abu Bakar gave generous provisions to the Kapitan Cina in recognition for their contributions to Johor; among his beneficiaries was long-time family friend, Tan Hiok Nee, who was given a seat in the state council. The plantations operated relatively independently of Johor's government, and Abu Bakar was worried about the possible danger to the plantations in the event of an economic crisis. Shortly after a financial crisis broke out in Singapore in 1864, Abu Bakar imposed new regulations on these plantations, as many of them were owned by Chinese businessmen from Singapore. The Kapitan Cina and the Singapore Chamber of Commerce were particularly disturbed by the new regulations, and accused Abu Bakar of attempting to impose a trade monopoly over Johor. The British government pressured Abu Bakar to retract the regulations, which he did in January 1866. In addition, the Kapitan Cina also faced considerable difficulties in securing new agreements with Abu Bakar. The crisis was only resolved in 1866 after Abu Bakar designated five new ports for the registration of cargo, and the British softened their animosity against Abu Bakar. Abu Bakar's relationship with the ruler of
Muar, Sultan
Ali Iskandar was strained. Soon after Abu Bakar succeeded his father, he sent a letter to Ali Iskandar asserting Johor's sovereignty over Segamat, which Ali Iskandar had hoped to exert political influence over. In addition, Ali Iskandar, who had borrowed a large sum from an Indian moneylender in 1860, became a source of irritation for Abu Bakar. Facing difficulties in repaying his debt, Ali Iskandar asked Abu Bakar to pay Ali's monthly pension to the moneylender; but he alternated asking for payment to himself and to the moneylender. In 1866, when the moneylender lodged a complaint with the British government, Ali Iskandar tried to borrow from Abu Bakar to repay his outstanding debts. As a result of these constant irritations, Abu Bakar persuaded the
Straits Governor to sign an agreement to terminate Ali Iskandar's pension. Abu Bakar made revisions to Johor's Islamic code in 1863, after the Sultan of Terengganu revised his state's Islamic judicial system to be more closely aligned with
Sharia law. In a letter to the Straits Governor, Abu Bakar expressed hope that his revisions would suit more comfortably with European ideas. He founded an English school in Tanjung Puteri in 1864. Two years later, Abu Bakar moved the administrative headquarters to Tanjung Puteri, and officially renamed it as
Johor Bahru. A new administration was set up, which was modelled after European styles and certain elements of traditional Malay government. He recruited some of his close relatives and his classmates from the Teluk Blanga Malay school into the bureaucracy, and also set up an advisory council which included two Chinese leaders. In the early 1870s, Straits Governor Sir
Harry Ord said of Abu Bakar (who became a Maharaja in 1868) that he was the "only Raja in the whole peninsula or adjoining states who rules in accordance with the practice of civilized nations."
Maharaja (1868–1885) During a state visit to England in 1866, Abu Bakar was commonly addressed as the "Maharaja" of Johor and led him to realise that the Malay title of temenggong poorly known in the
Western world. He contemplated changing his title, which led him to send his cousin, Ungku Haji Muhammad and the Dato Bentara,
Dato Jaafar to meet the Bugis historian,
Raja Ali Haji who was residing in
Riau. Raja Ali supported Abu Bakar's cause, after they did a cross examination and concluded that the past office holders had wielded actual control over the affairs of Johor, rather than the sultans of the Bendahara dynasty. In addition, questions pertaining to Abu Bakar's pursuits to clamour for recognition were also sidelined as he was able to trace his ancestry to the first sultan of the Bendahara dynasty, Sultan
Abdul Jalil Shah IV by his patrilineal ancestors. The Sultan of
Lingga, gave his approval for a formal recognition of Abu Bakar as the Maharaja of Johor, after Ungku Haji and Dato Jaafar travelled to Lingga and presented their claims. Abu Bakar also secured approval from the Governor of the Straits Settlements for his change in title, and was officially proclaimed as the Maharaja of Johor on 30 June 1868. Shortly after his proclamation as maharaja, Abu Bakar laid plans for the construction of a wooden railway between Johor Bahru and Gunung Pulai after some Europeans had raised proposals to set up a retreat and sanatorium. Construction of the railway started in July 1869 and construction of the first phase was completed in 1874, which ran between
Skudai and Johor Bahru. The construction project was later halted after an accident which saw a locomotive falling off the tracks as a result of termites in the wooden tracks within the Skudai portion and a shortage of funds. In the mid-1870s, the Straits Governor,
William Jervois contemplated making Maharaja Abu Bakar overlord of the chiefs in
Negeri Sembilan after the British failed to quell the sectarian violence in
Sungai Ujong. Abu Bakar's client, Tunku Antah was placed as the Yam Tuan of the Sri Menanti confederacy (comprising several small states within the region), and Abu Bakar was made the adviser of Negeri Sembilan (except Sungai Ujong) in 1878. Abu Bakar was believed to have had expansionist ambitions, which was suggested by his involvement in the Pahang Civil War between 1857 and 1864. A later governor,
Frederick Weld, aspired for stronger British control over the Malay states and was weary of Abu Bakar's influence. The chiefs were lukewarm to the prospect of Johor's
sphere of influence over Negeri Sembilan, and in 1881 Weld convinced the chiefs within the Sri Menanti confederacy to deal directly with Singapore rather than with Abu Bakar. British officers were also appointed to oversee the affairs in 1883 and 1887, and were gradually given the powers similar to that of a
British Resident. After Sultan
Ali Iskandar's death in 1877, the
Raja Temenggong of Muar and its village chieftains voted in favour of a merger of
Muar with Johor following a succession dispute between two of Ali Iskandar sons. His oldest son,
Tengku Alam Shah, disputed the legitimacy of the chieftains' wishes and staked his hereditary claims over Muar. Alam Shah instigated the 1879
Jementah Civil War in a bid to reclaim Muar, but was quickly crushed by the Maharaja's forces. During the 1880s, Abu Bakar actively encouraged the Chinese leaders to set up new gambier and pepper plantations in Muar. Meanwhile, Weld's continued efforts to keep Abu Bakar's political influence in check and relations between Johor and Singapore became increasingly strained. Abu Bakar was reportedly said to be increasingly reluctant to accept advice from the British-appointed state lawyers, and increasingly turned to his private lawyers. Weld voiced his intent to place a Resident in Johor, which prompted Abu Bakar to make a trip to England in August 1884 to negotiate new terms with the British Colonial Office. The Assistant Under-Secretary of the Colonial Office, Robert Meade, conceded to Abu Bakar's request for an absence of a British Resident in Johor, although Abu Bakar gave an in-principle acceptance for a British adviser in Johor (though none was appointed until 1914). An agreement was drawn up, and Abu Bakar was promised control over internal affairs in exchange for British control over foreign affairs pertaining to the state.
Sultan (1885–1895) The Bendahara of Pahang,
Wan Ahmad, was proclaimed Sultan of Pahang in 1881. Abu Bakar, who was weary of the increasingly hostile political environment imposed by Weld, considered the importance of the superior
moral authority that was accorded to a "sultan" than to a "maharaja". In 1885, Abu Bakar instituted the creation of a state postal and judiciary system modelled along British lines, as well as a military force, the
Johor Military Forces (JMF, ) upon his return to Johor. Abu Bakar also founded the state advisory board in London, which was intended to oversee state interests in London. Several retired officers from the Colonial Office, including William Fielding and Cecil Smith were personally appointed by Abu Bakar to oversee the board's administration. The formal recognition of Abu Bakar by the British as the Sultan of Johor quickly drew criticisms among the Malays in Johor. A
pantun circulated among the Malays in Johor, which made fun of Abu Bakar's background, became very popular. Many Malays were reluctant to accept Abu Bakar as their paramount ruler, as they were sceptical of Abu Bakar's
temenggong political origins and
Buginese heritage. Furthermore, his affinity with Western culture did not go down well with the culturally-conservative Malay subjects of his time. A proclamation ceremony was held on 13 February 1886, where Abu Bakar made an official announcement on his adoption of the title "sultan" in place of "maharaja". In the same year on 31 July, Abu Bakar instituted the first state decorations, the
Royal Family Order of Johor () and the
Order of the Crown of Johor (). Abu Bakar employed the service of a Chinese contractor and long-time acquaintance,
Wong Ah Fook, to oversee the development of Johor Bahru. The Johor Archives showed that Wong was the largest building contractor at that time and had been involved in at least twenty public works projects between 1887 and 1895. In addition, Wong was contracted to oversee the construction of the
state mosque and several palaces including the
Istana Tyersall under the direction of Abu Bakar. As gratitude to Wong's contributions to the state, Abu Bakar granted him a plot of land in the heart of Johor Bahru in 1892. Wong then oversaw the construction of a village, Kampong Ah Fook, as well as a road,
Jalan Wong Ah Fook on the land he was granted. Abu Bakar created the Johor State Constitution (
Malay:
Undang-undang Tubuh Negeri Johor), drafted by
Abdul Rahman Andak, on 14 April 1895. The state's constitution was seen as a turning point by many as a step in laying the groundwork for the administration of Johor. It was suggested that Abu Bakar, who was fearful of his possible imminent death in light of his failing health, created the state constitution with the intent of preserving the state's independence in the light of growing British political influence in the Malay states. ==Foreign relations==