September, when the Malaysian Federation was formally created. In Indonesia, the response to the frustration of their plans to prevent the Federation's birth was serious and violent. A mob converged upon the British embassy in Jakarta, smashing windows and doors in protest. Sukarno authorised stronger raids by Indonesian regular forces, and even launched seaborne attacks into peninsular Malaysia. The raiding would continue for the duration of the conflict. Operation Claret The British had numerous issues in dealing with the expanding crisis. A defensive battle had been proven unsound by the immense amount of time and resources expended pursuing a similar course during the twelve year Malayan Emergency that had ended only a few years before, as well as Dutch efforts to quell the Indonesian rebels during the Indonesian War of Independence, but launching an offensive into Indonesian territory to take the initiative would bring the conflict into an all-out war, and this was unacceptable to Cabinet policy-makers. At the same time, an effective solution had to be found that did not cede Malaysia to the Communists, a move that many feared would be the beginning of the 'domino effect' in Asia. The proposal selected as the most effective was presented to the Cabinet in January 1964 by Richard Austen Butler, who recommended that Britain continue fighting without declaring war, with the conflict contained in Borneo, a strategy designed to weary the Indonesians of battle until the necessity of economic reform overcame them and peace was made. The actual implementation of this strategy was left to the commander on site, Major General Walter Walker, a veteran of the Burma Campaign of the Second World War who had learned the hard lessons of the Malayan Emergency. Walker realised that a defensive strategy would leave all British forces tied down defending their bases, and instead determined to take the initiative from the aggressive Indonesians. Walker ordered that one-third of a unit should be left defending its base, which would be one of many along the border, while the remainder patrolled the jungle, foraying into Indonesian territory and attempting to keep them tied down at their headquarters instead. Thus, the British would attempt to control the jungle through guerrilla warfare. In implementing this idea, Walker was presented with a considerable dilemma. His instructions, similar to most colonial commanders, ordered him to use 'minimum force' so as not to provoke Sukarno into escalating the conflict.