Political Reviews

The Region in Review: International Issues and Events, 2016 nic maclellan

Melanesia in Review: Issues and Events, 2016 alumita l durutalo, budi hernawan, gordon leua nanau, howard van trease

321 The Region in Review: International Issues and Events, 2016

Debates over climate action, West turn bring complex international con- Papua, fisheries, and trade contin- flicts into regional organizations. One ued as a feature of regional affairs in example during 2016 was the debate 2016, often dividing Pacific govern- over self-determination in West Papua, ments and their international partners. which has brought divisions to both The election of Donald Trump as US the Pacific Islands Forum (pif) and president in November set the stage Melanesian Spearhead Group (msg) for these divisions to continue, given that consensus communiqués cannot Trump’s statements during the elec- paper over. tion campaign on climate change and Beyond the human and economic America’s new directions in foreign cost, climate change and natural disas- policy. ters are also contributing to broader Other global events during the strategic changes in the region. After year—including the Brexit referendum Cyclone Winston in Fiji, Australia in June, international movement of and New Zealand deployed warships refugees and economic slowdown in and helicopters for post-cyclone relief, China, Russia, and India—will have China and India provided fund- significant regional implications. ing, and Indonesian soldiers rebuilt Even as vibrant Pacific diplomacy schools, highlighting how environment saw advances on climate, oceans, and issues are interconnected with wider fisheries policy, the new era of interna- geopolitical shifts. tional uncertainty creates problems for Throughout the year, governments, Small Island Developing States (sids). regional organizations, and nongov- Leadership changes in the United ernmental organizations addressed States and Europe are transform- the diverse economic, environmental, ing relations between allies, creating and social impacts of climate change clashes between European Union (EU) with research studies on agriculture partners and sowing doubt about and forestry (spc 2016), coastal and international treaty commitments on oceanic fisheries (Fache and Pauwels trade, climate, development fund- 2016), natural disasters (World Bank ing, and security. That’s bad news 2016), and climate finance (Maclellan for smaller developing nations, as the and Meads 2016). A United Nations proverb suggests: “When the elephants Environment Program report in May fight, it is the grass that suffers.” estimated that the cost of adapting to Although regional organizations climate change in developing coun- found it hard to forge consensus on tries could rise to between us$280 divisive issues, island nations still billion and us$500 billion per year advanced the regional agenda in the by 2050, a figure that is four to five United Nations. Countries like Fiji are times greater than previous estimates increasingly striking their own path (unep 2016, xii, 42). and seeking new alliances, which in As with Cyclone Pam in 2014,

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Cyclone Winston in 2016 brought by Oxfam Pacific as it launched new home the importance of disaster research on “climate finance after preparedness. Overnight on 19–20 Paris,” highlighting the need for pre- February, the category five cyclone hit dictability, coordination, access, and Fiji’s northern Lau Islands after caus- adequacy of funding (Maclellan and ing extensive flooding in Tuvalu and Meads 2016). other neighbors. While Fiji’s capital In September, Nauru’s President was largely spared the worst effects, Baron Waqa highlighted ongoing there was significant damage in the funding problems for small island north and west of the country. states: “Some international funding In May, the Fiji government issued mechanisms exclude small countries an official post-disaster needs assess- like mine, or prove impossible to ment (Government of Fiji 2016). access because of our limited capacity. Nearly forty thousand people required Private investment is unreliable, and immediate assistance following the rarely available to support basic cyclone, with 30,369 houses, 495 services and critical infrastructure. schools, and eighty-eight health Meanwhile, the most promising clinics and medical facilities dam- financing models for small developing aged or destroyed. In addition, the countries, like direct access and direct cyclone destroyed crops on a large budgetary support, are rarely available scale, including economically vital as an option. This needs to change, sugarcane. Causing nearly f$2 billion so that small countries fully benefit in damage, this one disaster com- from the historic agreements we have promised the livelihoods of nearly reached” (Waqa 2016). 540,400 people (62 percent of Fiji’s In one positive response, the new population). Green Climate Fund (gcf) held its At every possible opportunity dur- board meeting in Apia in December. ing 2016, Pacific leaders stressed that Sāmoa’s UN ambassador, Aliioaiga industrialized nations need to move Feturi Elisaia, who represents Small beyond the targets set by the 2015 Island Developing States on the board, Paris Agreement on Climate Change. said the meeting was “to provide gcf Republic of the Marshall Islands Board members with an opportunity (RMI) President Hilda Heine told to see and experience first-hand the the UN General Assembly (unga) in realities that the Pacific region and September: “We need to do more to island communities are already facing increase ambition, on mitigation, on on a daily basis” (Elisaia 2016). adaptation and on finance. We must The gcf Board approved nearly take every opportunity we can to stay us$98 million for three projects in below [the] 1.5 degree limit needed for the Pacific, but the United States and our survival” (Heine 2016). France also blocked a push by devel- For years, Pacific governments oping countries to increase finance for have been urging donors to reduce the gcf’s Readiness and Preparatory the many barriers that limit access to Support program. Pacific representa- financial resources to respond to cli- tives joined other Small Island Devel- mate change. This message was echoed oping States to call for an increase 324 the contemporary pacific • 29:2 (2017) from us$15 million to us$100 million Over time, changes to US policy annually for this program, which helps on climate and development aid will with the costs of feasibility studies and flow through to regional institu- preparing gcf applications. However, tions. In November, Director Gen- the gcf Board only allocated half that eral of the Pacific Community (spc) amount (Maclellan 2017). Colin Tukuitonga stated: “I think it’s Encouraged by the decision of the important to point out that the USA Obama administration to sign the is a founding member of spc and has Paris Agreement and contribute to the been with us since 1947 and we expect gcf, Pacific leaders watched the US to continue the good work that has presidential election with a wary eye. been done with the support of the US During the 2016 electoral campaign, government both in climate change Republican candidate Donald Trump and other areas” (rnzi 2016a). pledged to “cancel the Paris Climate Coming to office in January 2017, Agreement” and “stop all payments of the new US president made other US tax dollars to UN global warming decisions that raised uncertainty about programs.” Despite later denials and US commitments in the Asia-Pacific evasions, Trump has made statements region. Trump used executive orders describing climate change as a “hoax” to withdraw from the Trans-Pacific and suggesting that “the concept of Partnership Agreement (tppa), a global warming was created by and central pillar of the Obama admin- for the Chinese in order to make US istration’s “Pacific pivot.” Other manufacturing non-competitive” illiberal actions by the Trump admin- (Schulman 2016). istration—on refugees, disdain for As the news that Donald Trump journalists, and judicial review of had won the US elections reached the executive action—will give encourage- November UN Framework Conven- ment to more authoritarian elements tion on Climate Change (unfccc) in the region. Conference of the Parties (cop22) in Changes within the European Morocco, Fiji Prime Minister Voreqe Union have also forced Pacific Island Bainimarama seized the moment for countries to maneuver, transforming a gesture that captured worldwide long-standing partnerships. media attention, inviting Trump to Anglophone members of the Pacific visit Fiji to see the damage of cyclone Islands Forum have long relied on Winston: “I want to make a special the United Kingdom to support their appeal to the President-Elect of the engagement with the European Union United States, Donald Trump, for a through British subsidies for sugar or personal change of heart and pub- Commonwealth Foundation support lic change of policy on the issue of for civil society initiatives. Pacific climate change. . . . I am especially leaders have valued the Common- alarmed by reports that you intend wealth Heads of Government Meet- to withdraw from the Paris Agree- ing (chogm) as an opportunity for ment, which would be disastrous for face-to-face interaction with African every person on earth” (Bainimarama Least Developed Countries and Carib- 2016). bean Small Island Developing States political reviews • region in review 325

(csids)—crucial partners during Kanak and Maohi independence activ- global climate negotiations. ists to defer a decision on membership The June 2016 Brexit referendum (Maclellan 2016c, 2016f). In Pohnpei, on UK membership in the European Sāmoa Prime Minister Tuilaepa Sailele Union has created new uncertainty Malielegaoi acknowledged that it about Britain’s contribution to the was “a political decision” (Maclellan European Development Fund (edf). 2016e). Sensing this change, Forum countries Under outgoing French President have begun to reposition themselves François Hollande, France has been with other European powers: at the an active partner on climate change, pif leaders meeting in Pohnpei in development programs, and EU rela- September, leaders granted Germany tions. As a major contributor to the the status of Post-Forum Dialogue Green Climate Fund, Paris has also Partner (the German development increased its bilateral climate pro- agency giz already has an active grams in Pacific Island states. But the role in Pacific climate adaptation national interests of individual Forum and, in coming years, Germany may member states had an impact on the play a supportive role in interna- regional decision to support the two tional debates about financing for territories’ full membership. development). Australia has been building closer The biggest change, however, security ties with France, with Prime comes with the Forum’s transformed Minister Malcolm Turnbull announc- relationship with France. In a single ing in April that the French shipbuild- sentence, item 30 of the Forum coming corporation dcns had won a muniqué from Pohnpei stated: “Lead- contract for a$50 billion to build the ers accepted French Polynesia and next generation of submarines for the New Caledonia as full members of the Royal Australian Navy. The New Zea- Pacific Islands Forum” (pifs 2016b, land government led by John Key was 5). Both French dependencies gained also a vocal supporter of the Forum Forum associate membership in 2006, membership change after a visit by but this new decision makes them full French Prime Minister Manuel Valls participants, ending the Forum as a in May (the first visit to Wellington body of independent and sovereign by a French leader since 1991). The nations. President of New Caledonia state visit to France by Papua New Philippe Germain and French Poly- Guinea Prime Minister Peter O’Neill nesian President Édouard Fritch both in June was a first for a PNG leader, welcomed the opportunity to give with O’Neill meeting French energy their territory a greater role in the corporation Total to discuss expanded Forum. investment in Papua New Guinea’s oil The decision, however, surprised and liquid natural gas (lng) industry many regional observers, as Forum (Maclellan 2016b). leaders could not publicly explain The charm offensive from Paris what criteria were used to change the may change, however, after the French pif membership rules. The decision presidential (April/May 2017) and was also taken despite calls by leading legislative elections (June 2017). 326 the contemporary pacific • 29:2 (2017)

Hollande, the unpopular leader of the not yet ready to seek full member- French Socialist Party, announced in ship: “This is a matter that is under December that he would not run for a consideration, but I do not see the second term, opening the way for the need any time soon for Tokelau to election of a conservative government be a full member. We want to focus (some observers are fearful of a strong on progressing issues for institutional showing by Marine Le Pen, the char- strengthening before we can consider ismatic leader of the extreme Right membership and the responsibilities Front National). With the French that come with it” (rnzi 2016b). state retaining control of key powers Tuna politics dominated regional over defense, security, and currency, economic activity throughout the year, the Forum Secretariat may now find with the signing of key treaties and that conservative leaders in Paris will the transition to a new chief executive, try to override island-focused policies Ludwig Kumoru, at the helm of the advanced by Noumea and Papeete Parties to the Nauru Agreement (pna). within the regional organization. In February, the long-running As a midsize global power, the renegotiation of the 1988 US–South French state has its own strategic Pacific Multilateral Treaty on Fisher- interests in the region, including 7 ies collapsed when the US govern- million square kilometers of Exclusive ment formally notified its intention Economic Zone surrounding its Pacific to withdraw from the treaty. The dependencies. During a flying visit to Pacific didn’t blink. After further Tahiti in February, President Hollande talks in June, a new deal was struck, reaffirmed his country’s intention to with Forum Fisheries Agency (ffa) remain a power in the region. “That’s Director-General James Movick another reason for my visit here,” he stating: “The Pacific should be incred- told the Assembly of French Polyne- ibly pleased with the outcome of the sia, “to show that there are no far-off session. . . . We have struck a six territories of the French Republic— year deal that should provide for a there is only the Republic. . . . You are secure yet flexible future for the US not far from France, because you are industry, stability in the delivery of France, because I am here in France” US economic assistance and excellent (Hollande 2016). financial returns to the Pacific islands” The Forum expansion is part of a (ffa 2016). long-standing plan to better integrate The revised seven-year treaty, the US, French, and New Zealand signed in December, gives regional non-self-governing territories into access to the US purse-seiner fleet, regional institutions. Sāmoa Prime with an industry payment of us$45 Minister Tuilaepa has encouraged million per annum, government fisher- American Sāmoa to seek full Forum ies aid of us$21 million, and other membership when he hosts the next positive features. leaders’ meeting in Apia in 2017. In Meanwhile, at the Western and contrast, the Ulu o Tokelau (titular Central Pacific Fisheries Commission, head of government), Aliki Faipule Island countries resisted proposals Afega Gaualofa, said his country is that would have weakened the vessel political reviews • region in review 327 day scheme (vds), a crucial element The Council of Regional Orga- of fisheries management that has nizations in the Pacific (crop) also seen pna licensing revenues increase met with UN agencies based in the from us$64 million in 2010 to nearly region, as they develop a United us$400 million today. In July, outgo- Nations Pacific Strategy (unps) for ing pna ceo Transform Aqorau criti- 2018–2022. cized Asian Development Bank (adb) For the first time, the Pacific Islands proposals for reform of the vessel Development Forum (pidf) sum- day scheme: “The harsh truth for the mit was held outside Fiji. The July adb and other major regional donors meeting in Honiara had the theme is that the vds—probably the most “Stewardship for Healthy Oceans successful single development instru- and Healthy Nations,” with diverse ment in the region—succeeds in part representation from China, the United because the donors, and the major States, Kuwait, Pakistan, Indonesia, regional organizations that they sup- Pitcairn, and Wallis and Futuna. At port, are excluded and are not directly the meeting, Timor-Leste formally involved” (pna 2016). joined existing pidf members Fiji, To cap off a positive year for fisher- Kiribati, Marshall Islands, Federated ies, a unga resolution in December States of Micronesia, Nauru, Solo- endorsed a pna initiative to establish mon Islands, Tonga, Vanuatu, Tuvalu, 2 May as World Tuna Day. With the Tokelau, the Pacific Island Associa- first of three UN Oceans conferences tion of Non-Governmental Organisa- scheduled for June 2017, Pacific tions (piango), and the Pacific Island diplomacy will continue to highlight Private Sector Organisation (pipso). sustainability of fisheries and the Papua New Guinea and Sāmoa have ocean environment. thus far refused to join pidf. Apart from climate and oceans Under Prime Minister Bainima- policy, the Smaller Island States (sis) rama, Fiji has used pidf to mount suc- are less engaged in international geo- cessful diplomatic interventions on the politics than larger Forum members. international stage, such as the 2015 Even so, the sis group met in Palau Suva Declaration on Climate Change. in June to adopt a new strategy that At the same time, Fiji’s regional recognizes their particular needs on relations—with Papua New Guinea, climate change, mobility, health, the Australia, and the Forum Secretariat— marine environment, and air and sea have continued along a bumpy path. transportation. At the Pohnpei Forum Fiji-Forum relations may continue to in September, host nation Federated be unsettled, given that Sāmoa Prime States of Micronesia formally joined Minister Tuilaepa—a frequent critic of the sis, although Niue’s Premier his Fijian counterpart—will host the Toke Talagi boycotted the pre-Forum 2017 Forum meeting. meeting. (After forty-two years of Despite this, Fiji’s international free association with New Zealand, profile reached new heights in 2016 Talagi wants Niue to join the United when its permanent representative Nations, an ambitious agenda for an to the United Nations, Peter Thom- island nation with just 1,200 people.) son, was elected president of the UN 328 the contemporary pacific • 29:2 (2017)

General Assembly for 2016–17. As he to consolidate its standing in domes- took up the seat in October, it was the tic politics: “Bainimarama was also first time a Pacific Island country had able to bask in the reflected glory of been chosen to lead the world body. the country’s first ever Olympic gold Thomson is a descendant of an old medal win—when its men’s rugby colonial family in Fiji, with “kava in sevens team claimed victory in Rio. the blood” (Thomson 1999). Since he Bainimarama extolled the virtues of took up the post as Fiji’s UN ambas- team discipline and unity—hallmarks sador in 2010, Thomson has become a of his government’s approach to central player in expanding the inter- nation building. But the corollary to national profile of both Fiji and the this is a political space increasingly wider Pacific Small Island Developing controlled and dominated by the States (psids) grouping. government, with alternative politi- Thomson was unga vice president cal parties relegated to the margins” in 2011–2012, and in 2013 he chaired (Tarte 2016). the Group of 77 (g-77) and China Fiji will also mount a campaign to (the UN’s largest negotiating bloc win a seat on the UN Human Rights of developing nations). He served as Council in 2018, again unprecedented president of the Assembly of the Inter- for an Island nation. Fiji’s interna- national Seabed Authority (isa) in tional reputation should guarantee 2011–2012 and was the president of this seat, despite domestic concerns the isa Council in 2015–2016. These about the 2016 detention of opposi- stepping-stones led to his nomination tion members of Parliament and trade for the unga presidency, as the repre- unionists, ongoing violence by police sentative of the UN group of Asia and and corrections officers against prison- psids (a bloc that links Island states to ers, and other restrictions on public the emerging Asian powerhouses but engagement and the media. excludes Australia and New Zealand). Even as Fijian diplomats carried The yearlong unga presidency will the regional agenda into international allow Fiji and other psids to advance institutions, the government’s regional their regional agenda on climate relations had tense moments during change, oceans, and nuclear security. 2016. In June 2017, Fiji will cohost with Bainimarama continued his dance Sweden the United Nations Confer- with Australia and New Zealand, ence on Oceans and Seas, the first of welcoming their support for post- three international gatherings over the cyclone reconstruction and hosting next fifteen years. In a major coup, Fiji John Key in Suva in June (the first was also chosen as cochair of the next visit by a New Zealand Prime Minister unfccc cop23 in November 2017 since the 2006 coup). Bainimarama (with the venue in Bonn rather than met with Australian Prime Minister Suva). Malcolm Turnbull on the margins of University of the South Pacific the UN General Assembly in Septem- academic Sandra Tarte noted that ber and made a state visit to New Zea- Bainimarama’s Fiji First Party has land in October, but he also engaged used these international achievements in sharp disputes with Key over the political reviews • region in review 329

New Zealand prime minister’s criti- agreement] is the latest in a long line cism of the detention of Fijian opposi- of attempts by [Australia and New tion leaders. Zealand] to shape the Pacific Islands Bainimarama did not attend the in their interests; this time though they annual Forum leaders’ meeting in will be able to do so with legally bind- Pohnpei. Indeed, he announced a ing and enforceable commitments” cabinet reshuffle in the middle of the (pang 2016, 4). meeting, taking the position of foreign In the aftermath of Cyclone Win- minister from Ratu Inoke Kubuabola, ston, Fiji received extensive cyclone who was representing Fiji at the relief from the Australian and New Forum. Kubuabola, now defense Zealand defense forces, with the minister, was only informed of his new deployment of hmas Canberra, role in a message sent days after the hmnzs Canterbury, and hmnzs Forum had begun (Maclellan 2016a). Wellington , as well as rnzaf and During the year, Fiji and Papua raaf helicopters and p3 Orion aircraft New Guinea entered into a war of to assist relief operations in the outer words over inter-Melanesian trade islands. Many grassroots Fijians and policy. The two largest island econo- commentators noted that Australia mies also resisted a push by Australia and New Zealand were quicker to and New Zealand to complete Pacific respond than other “nontraditional” Agreement on Closer Economic partners: “Cyclone Winston provided Relations (pacer)–Plus negotiations Australia and New Zealand with by year’s end, despite Forum leaders the opportunity to demonstrate their agreeing in Pohnpei to finalize the commitment to Fiji, irrespective of regional trade agreement. their political differences. It was also Forum trade negotiators have a timely reminder that geography and agreed on much of the legal text for proximity do matter” (Powles and pacer-Plus, but in August, PNG Trade Sousa-Santos 2016, 7). Minister Richard Maru withdrew Despite these deployments, how- from the process, announcing: “I’ve ever, the strategic implications of made it clear that PNG is not inter- global warming in Oceania are poorly ested and that I have directed all my covered in two Defence White Papers officers not to entertain any negotia- issued by Australia in February and tions” (Kisselpar 2016). By year’s end, New Zealand in June. Former Chief Fiji Trade Minister Faiyaz Koya said of the Australian Defence Force his country also continued to maintain Admiral Chris Barrie has argued that reservations about the text, seeking “Australia continues to lag behind its further negotiation on Infant Indus- military allies, taking comparatively try Development and Most Favored little action on climate change and Nation status (Maclellan 2016d, 20). only fleetingly acknowledging climate Community groups were criti- change in public documents like Aus- cal of the lack of systematic social tralia’s Defence White Paper” (Barrie impact studies for pacer-Plus, with and Steffen 2015, 1). the Pacific Network on Globalization Fiji used the post-cyclone period to arguing that the “pacer-Plus [trade strengthen ties with China, Indonesia, 330 the contemporary pacific • 29:2 (2017) and other partners. In Beijing in April, visited China in July, meeting with then Foreign Minister Kubuabola Premier Li Keqiang and President met with his Chinese counterpart Xi Jinping. During the visit, O’Neill Wang Yi to seek further economic signed seven agreements on develop- support (Foreign Affairs 2016). After ment cooperation, civil aviation, and President Xi Jinping’s November 2014 a feasibility study for a free-trade state visit to Fiji and a return visit to agreement between the two countries, China in July 2015 by Prime Minister as well as three framework deals on Bainimarama, the two countries are concessional loans for infrastructure. working on a range of development As with Western donors, this agreements, including a feasibil- Chinese support comes with strings. ity study to create a China-Fiji Free Following an International Court of Trade Agreement. Justice ruling in favor of the Philip- Seeking greater international sup- pines over maritime boundaries in the port for infrastructure projects in the South China Sea, Papua New Guinea aftermath of recent disasters, Fiji is reiterated its support for the “one lobbying to obtain full membership in China” policy and China’s position the Chinese-led Asian Infrastructure on the maritime dispute. In contrast, Investment Bank (aiib), which began analysts in Beijing and Western capi- operations in January with fifty-seven tals were surprised when Fiji called on founding members. The Fiji Develop- all parties to adhere to international ment Bank is also seeking accredita- law (though this should hardly be a tion as a national entity with the surprise, given Fiji’s historic role in Green Climate Fund, headquartered negotiating the UN Convention on the in Songdo, Korea. Law of the Sea and establishing the China also used regional institu- International Seabed Authority). tions to extend its support to other Global diplomacy by Canberra, Pacific nations. Forum Secretary Gen- Suva, and Port Moresby is built on eral Dame Meg Taylor stated: “During good relations with Jakarta, given the past year we’ve had a number of Indonesia’s central role in the Non- high level visits from China and that, Aligned Movement, g-77, and UN I think, sends a very strong signal to Asia-Pacific bloc. This has compli- the region that China is very interested cated regional policy making in both in our development and what we are the Forum and Melanesian Spearhead trying to do” (pifs 2016a). Beijing Group (msg). agreed to double the number of schol- In early 2016, Indonesian Foreign arships under the China-pifs Regional Minister Retno Marsudi visited Mela- Scholarship Scheme and contributed nesian countries to reiterate Jakarta’s more than us$1 million to the China– opposition to any support for the Pacific Island Forum Cooperative West Papuan nationalist movement. Fund. In April, Papua New Guinea signed On the fortieth anniversary of eleven memoranda of understanding diplomatic relations between Papua with Indonesia on economic coopera- New Guinea and the People’s Repub- tion and political relations. Improved lic, PNG Prime Minister Peter O’Neill relations between Fiji and Indonesia political reviews • region in review 331 were also symbolized by the deploy- for action on West Papua, causing ment of one hundred Indonesian anxiety among some members of the armed forces (tni) soldiers to rebuild Forum Officials Committee. (In 2017, the elite Queen Victoria School, badly the Forum will not call for new fpr damaged during Cyclone Winston submissions before the next leaders (Jakarta Post 2016). This cooperation meeting in Sāmoa.) has spurred dialogue on a possible Extensive public debate over West Fiji-Indonesia Defense Cooperation Papua angered Indonesian diplomats agreement, discussed by Defense Min- and complicated life for Pacific gov- ister Kubuabola and tni chief General ernments. Most Forum members are Gatot Nurmantyo in November. willing to talk about human rights but The ongoing bid for msg mem- reluctant to publicly acknowledge the bership on the part of the United right to self-determination. In con- Liberation Movement of West Papua trast, msg chair and Solomon Islands (ulmwp)—fiercely opposed by Prime Minister Manasseh Sogavare Jakarta—has divided the subregional argued: “Human rights violations organization, pitting the two largest in West Papua and the pursuit for members against Solomon Islands, self-determination of West Papua are Vanuatu, and the Front de Libération two sides of the same coin” (Sogavare Nationale Kanak et Socialiste (flnks). 2016). After a Special msg Leaders’ Sum- To strengthen its support of the mit in July deferred consideration West Papuan nationalist movement, of the ulmwp bid, Vanuatu Deputy the Solomon Islands government Prime Minister Joe Natuman stated: appointed former diplomat Rex Horoi “It appears other people are trying to as the country’s special envoy on West use the msg to drive their own agen- Papua. Sogavare toured other msg das and I am sorry but I will insist that countries in late 2016, trying unsuc- msg is being bought by others. It is cessfully to forge a new consensus in just like Jesus Christ who was bought support of msg membership for the for 30 pieces of silver. . . . If our ulmwp. friends in Fiji and Papua New Guinea Within the wider Forum, Australia, have a different agenda, we need to Papua New Guinea, and Fiji contin- sit down and talk very seriously about ued to back Indonesia’s sovereignty what is happening within the organi- over West Papua (Macleod, Moiwend, zation” (McGarry 2016). and Pilbrow 2016). At the 2016 Throughout 2016, Pacific civil soci- Forum meeting in Pohnpei, leaders ety continued to mobilize in solidarity could not agree on strong action, with with West Papua. A range of groups the final communiqué simply stating raised the issue through the Frame- that “leaders recognized the politi- work for Pacific Regionalism (fpr), cal sensitivities of the issue of West the new policy mechanism created to Papua (Papua) and agreed the issue put forward submissions for regional of alleged human rights violations in action by Forum leaders. In both West Papua should remain on their 2015 and 2016, the largest number agenda. Leaders also agreed on the of submissions through the fpr called importance of an open and construc- 332 the contemporary pacific • 29:2 (2017) tive dialogue with Indonesia on the honoured. The violation of human issue” (pifs 2016a). rights in West Papua and their desire piango Executive Director Emele to achieve self-determination is a real- Duituturaga said: “We also know ity. This great body cannot and must that the draft text reflected their not ignore these deplorable situations, intention to take West Papua to the it must not hide behind the guise of UN but when the final communiqué the principles of non-interference and was released, it had been watered sovereignty” (Sopoaga 2016). down. . . . We know that a couple Indonesia reacted angrily. Visiting of members had hoped the issue of Australia in November, Defense Min- West Papua would be removed alto- ister Ryamizard Ryacudu told Austra- gether. . . . It is obvious that geo poli- lia to “please tell Solomon Island and tics were at play which brings to ques- those six nations (from the msg) never tion whether in fact our leaders can be to interfere or encourage West Papua bold and courageous in the presence to join them. Those countries better of neighbouring powers like Australia keep their mouths shut and mind their and New Zealand” (piango 2016). own business. It is better that (Aus- Even so, Forum Secretary General tralia) speaks to them gently. If it was Dame Meg Taylor acknowledged the left up to me, I would twist their ears” issue must continue to be debated: (Hodge and Rayda 2016). “It’s an issue that needs to be pursued The region needs more courageous and it’s not going to go away. Our big- voices on human rights, but sadly ger countries in the region like Austra- during 2016 we lost too many people lia and New Zealand realise that this who were willing to address interna- issue is just not going to go to sleep— tional as well as domestic rights. In and it shouldn’t go to sleep, because New Caledonia, Jean-Pierre Deteix, it is very important for our region” a long-standing supporter of Kanak (Maclellan 2016g). self-determination, was murdered in With the msg and pif paralyzed June. Kanak feminist Susanna Ounei, on West Papua, individual countries cofounder of the Groupe de femmes worked through the Pacific Coalition Kanak et exploitées en lutte (gfkel), on West Papua (pcwp) to lobby at the died in New Zealand in September. United Nations. Just weeks after the Ratu Joni Madraiwiwi also died on Forum, seven governments individu- 29 September. A former vice president ally raised the question during their of Fiji, Madraiwiwi served as a jurist annual intervention at the UN General and human rights advocate across Assembly. It was noticeable that long- the region, as chief justice of Nauru, standing West Papua supporters like and with the Truth and Reconcilia- Solomon Islands and Vanuatu were tion Commission in Solomon Islands joined by Micronesian and Polynesian (Madraiwiwi 2008). nations: Nauru, Marshall Islands, On Christmas Day, the Pacific Palau, Tonga, and Tuvalu. Islands lost a leading scholar, religious Tuvalu’s Enele Sopoaga told UN leader, and antinuclear activist with members: “The principle of self- the death of John Taroanui Doom in determination must be respected and Tahiti. Fortunately, John’s memoirs political reviews • region in review 333 were published in October 2016. They he claimed “unethically attempted document his regional and inter- to influence our domestic politics by national ecumenical work through spreading lies, promoting Opposi- the Pacific Conference of Churches tion mps and refusing to report the (pcc) and World Council of Churches huge progress Nauru has made over (wcc), as well as his leadership of the past three years under the Waqa Moruroa e Tatou, the association Government” (Government of the of Maohi workers who staffed the Republic of Nauru 2016). French nuclear test sites (Doom 2016). Canberra’s leverage with Nauru is Pacific feminism had important undercut by its reliance on the Waqa advances, including the election in government to coordinate over refugee January of RMI President Hilda Heine policy. Per capita, Nauru is the larg- as the first woman to lead an indepen- est recipient of Australian aid in the dent island nation. In November, the region, at an astonishing a$2,000 per University of the South Pacific hosted person—more than ten times larger the inaugural Pacific Feminist Forum, than any other Pacific Island coun- which “acknowledged those who try. In 2016, the Australian National came before us, recognised our diversi- Audit Office (anao) issued two scath- ties, identified our challenges, cele- ing reports on the Australian gov- brated our achievements, rearticulated ernment’s management of contracts a shared vision, shared strategies, built for the offshore processing centers new and strengthened old alliances, in Nauru and Manus Island: “Sub- and further defined our shared poli- stantial contract variations totaling tics” (Pacific Feminist Forum 2016). over a$1 billion were made without Human rights and the rule of law a documented assessment of value for faced another tough year, with debate money” (anao 2016a, 83; see also over the detention of opposition mem- anao 2016b). bers of Parliament in Fiji and Nauru Other commentators were more and ongoing legal challenges following critical of Australia’s refugee policy, the 2015 jailing of fourteen members with one NZ Labour politician call- of Vanuatu’s Parliament for corrup- ing for New Zealand to resettle the tion. Researchers highlighted that remaining refugees: “It’s almost like organized crime in the Pacific is often Australia has lost its moral compass a nexus between political elites and in terms of where it’s going” (McIlroy seemingly legal actors (Walton and 2016). Human rights groups docu- Dinnen 2016). mented evidence that asylum seekers The Nauru government under on Nauru and Manus have swallowed President Baron Waqa was returned insect repellent, bashed their heads on to office in July, despite widespread walls, and doused their bodies with international criticism of infringement boiling water in a culture of self-harm. of democratic rights and uncertainty Cases include detainees swallowing over the futures of asylum seekers poisons, stuffing tea bags down their detained in two offshore processing throats, and hanging by bedsheets or centers. Justice Minister David Adeang other makeshift nooses (Amnesty Inter- condemned Australian media that national/Human Rights Watch 2016). 334 the contemporary pacific • 29:2 (2017)

An internal review by Australia’s sector and economic diplomacy, with Immigration Department exonerated 20 percent of aid in 2016 used for nine workers from Save the Children “aid for trade.” Australia (sca), who were deported Australia and New Zealand have from Nauru in October 2014 after joined the World Bank to push for being falsely accused of encouraging public financial management (pfm) self-harm of detainees. Three reviews reforms, but often based on models have now exonerated the sca staff, that do not suit smaller island govern- who have received a confidential ments. A World Bank report in Octo- financial settlement (Moss 2015; ber noted: “Case studies suggest that Doogan 2016; Ronalds 2016). pfm reforms are sometimes predicated Australia’s offshore warehousing of on intervention logics that do not hold asylum seekers and refugees was dealt in Pacific countries” (Haque 2016, vi). a blow in April, when the full bench For the anzus allies, strategic of the PNG Supreme Court ruled that relations are complicated by increas- detention on Manus breached the ing Chinese economic and trade right to personal liberty in the PNG cooperation and the involvement Constitution (PNG Supreme Court of other “nontraditional” partners 2016). With refugees being released in the islands. The New Zealand into the general community on Manus, Defence White Paper, released in June, Australia and Papua New Guinea held recognized that Forum Island coun- closed-door discussions throughout tries are “seeking to broaden their the year trying to find a resettlement potential support bases by forming solution. links with countries beyond their Before the US elections, Australia existing traditional partners” (NZ had negotiated a refugee swap with Ministry of Defence 2016, 34). the Obama administration, but the The Defence White Paper promotes arrangement was criticized as a “dumb New Zealand’s maritime strategic deal” by incoming President Trump in interests in the South Pacific and the a testy phone call with Prime Minister southern oceans, noting: “Given its Turnbull (Miller and Rucker 2017). strong connections with South Pacific The sharp insult to a long-standing countries, New Zealand has an endur- ally is a sign of things to come. ing interest in regional stability.” Even though it is still the largest aid One of the principle roles for the NZ donor to the region, the Australian Defence Force is to “contribute to, government has decreased its overseas and where necessary lead, operations aid to the lowest level in recent history, in the South Pacific” (NZ Ministry of with another a$224 million cut from Defence 2016, 11). the Official Development Assistance After the primary interest of creat- (oda) budget in the 2016–17 Budget. ing “a secure, resilient Australia,” This follows last year’s unprecedented Australia’s 2016 Defence White Paper cut of a$1 billion, which reduced the also notes: “Our second Strategic aid budget by 20 percent in one year Defence Interest is in a secure nearer (dfat 2016). Australia’s aid program region. Australia cannot be secure if is increasingly used to fund the private our immediate neighborhood includ- political reviews • region in review 335 ing Papua New Guinea, Timor-Leste Corporation unleashed the animated and Pacific Island Countries becomes feature film Moana on screens across a source of threat to Australia. . . . the world. Disney’s vision of a coura- Australia will continue to seek to geous Polynesian girl exploring the be the principal security partner for Pacific, accompanied by the demi- Papua New Guinea, Timor-Leste and god Maui, was welcomed by critics Pacific Island Countries” (Australian as a delightful children’s movie but Ministry of Defence 2016, 69, 74). critiqued by many Islanders for its Western strategists are also seek- plastic vision of Pacific culture (Diaz ing to draw India into the Asia-Pacific 2016; Teaiwa 2016). region to assist with the containment nic maclellan of China. Australia and the United States are trying to extend security ties with India, including through the References sale of uranium through the Nuclear Suppliers Group, a potential breach All urls accessed 23 March 2017. of Australia’s commitments under the Amnesty International/Human Rights Rarotonga Treaty for a South Pacific Watch. 2016. Australia: Appalling Abuse, Nuclear Free Zone (spnfz). Neglect of Refugees on Nauru. Joint Indian President Pranab Mukher- report, 2 Aug. https://www.hrw.org/news/ jee visited New Zealand in late April 2016/08/02/australia-appalling-abuse and told a business lunch: “The -neglect-refugees-nauru Pacific Island countries are small but anao, Australian National Audit Office. are doing their best to promote the 2016a. Offshore Processing Centres in welfare of their people, apart from Nauru and Papua New Guinea—Con- growing their economies. Poverty tract Management of Garrison Support and poor quality education are two and Welfare Services. anao Report 32, areas in which we would like to work 2016–17 Performance Audit. https://www closely with the respective govern- .anao.gov.au/sites/g/files/net2446/f/ANAO ments and peoples” (Rahman 2016). _Report_2016-2017_32.pdf The visit by uss William P Law- ———. 2016b. Offshore Processing rence to Suva in February was the first Centres in Nauru and Papua New Guinea: by a US warship in a decade, while Procurement of Garrison Support and Special Forces from the United States Welfare Services. anao Report 16, 2016– and New Zealand cohosted a Pacific 17 Performance Audit. https://www Area Security Sector Working Group .anao.gov.au/sites/g/files/net2446/f/ANAO meeting in Wellington in July. Guam, _Report_2016-17_16.pdf Hawai‘i, and other Pacific Islands will Australian Ministry of Defence. 2016. take on greater strategic importance Defence White Paper 2016. 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