4 Volume 2, Number 4 2006 invested intheregion. afarbetterreturntaxpayers forwhat hadbeen deserved Foreign Minister AlexanderDowner claimedthat aidconditionality,assert thetemperature rose sharply. Somare. With Australian impatienceandwillingnessto and hisPapua New Guinea Sir counterpart, Michael by Solomon Island primeministerManasseh Sogavare extradition over childsexcharges,whowassheltered attorney generalJulian Moti, anAustralian lawyer facing by arow over thaterupted formerSolomon Islands Melanesian wallofresentment. This wasinstigated saw Australian primeministerJohn Howard facea annual headsofgovernment meeting,heldinFiji, painful politicalinfl The 37thPacifi Introduction New Zealand andother PIF administrations, the Australian intoMelanesia, intervention where, with Pressures mountedwithamore overt, substantial responsibility orremedy. dependenciesthattheyclaimarestructural beyond their cried foulathavingbeenblamedforhistoricaland Islands states.In response, local leadershipgroups have standards ofgovernance evidentinseveral Pacific wasgrowingimportant, publicdisaffectionwiththe the other’s resignation. Lessspectacular, butas Minister LaiseniaQarase’s government, eachdemanding forces, Commodore , andPrime loomed between thecommander oftheFiji military Political conditionsinFiji worsenedasashowdown to neighbourlyrelations. Prime Minister Somare waswidelyviewed asa setback by theHoward government tostopavisitAustralia by Islands since2003are treble thatamount.)Adecision , anditsoutgoingstotheSolomon more thanA$300millionannualbilateralassistanceto New Zealand’s Public Sector Neighbourhood c Islands Forum (PIF) witnessedsome ammation in2006.Its October 1 (Currently, provides A Sea of Troubles? Roderic Alley* equitable’. participatory, consultative anddecisive, butfairand in amannerthatisopen,transparent, accountable, the exercise ofauthority(leadership)andinteractions committing membersto‘good governance, whichis but consensus-backed,Biketawa Declaration of2000 sector. free, public accountable,retrained andservice-oriented reconstruction through theinstallationofacorruption- surrender, RAMSIsoughttoinitiatebroader peace not justtoreturn civilorder andsecure weapons battle againstHIV/AIDS),orcouldtheregion’s current Guinea’s losingground intheir publichealthservices this seedecayandslippage(asthreatens withPapua New sector development withinPacifi What dotheseconditionssuggestforfuture public on PIF unanimityandhost-stateconsent. should itprove necessary, based last-resort intervention options designedtoremedy internalcrises,including, activities associatedwithglobalterrorism. governance couldexposetheregion toexploitationby involvement stemmedfrom Canberra’s beliefthatfailing to theSolomons (RAMSI). This unprecedented 2003 inthe15-nationRegional AssistanceMissions Howard government hasplayed adominantrole since BiketawaDeclaration,agreed 28October2000,Kiribati,Paci 4 Asof2005,88localpolice 3 Australiahasoffered toassistForumcountriesallowthetracking 2 commentstoSky TV, Downer’s citedbyGreg Ansley, ‘Howardbraces 1 Whileacceptingfullresponsibilityforthispaper, theauthor * from of offences, includingcorruption,anda quarteroftheforceremoved fj/news/2004/June. 2004, ForumEconomic Action Plan2004,atwww.Forumsec.org. Item 14,Forumeconomicministers’ meeting,Rotorua,9–10June Islands ForumSecretariat, atwww.Forumsec.org.fj/news/2000. of for Fijistorm’, draft. acknowledges thecommentsthat Alastair Bisleyprovidedona fi nancial 3 This waslegitimisedby thePIF’s non-binding, fi ce (Wainwright, 2005,p.3). 4 The declarationadumbratedascaleof fl ows,‘includingthosefundsusedtosupportterrorism’. New ZealandHerald fi cers hadbeenchargedwith serious , 21October2006,B6. c Island states? Will 2 Designed fi c comprising principles ofgoodgovernance; second,rights- 2005) toadvance oneofitscomponentobjectives the PIF’s Pacifi current policydiscourse. They are: fi three avenues thathave assumed salienceintherelevant In consideringquestionslikethisitishelpful to assess the keydriver indeterminingelectoral outcomes. inoffi performance domestic publicresponsibility. Centralhere iswhether politicalbattleoverbut salutary thenature andlocusof detectable), theregion willneedtoconductitsown diffi At somestage,however (somebeginningsare already they provide cover forpostponementorabuseofoffi such concernsare genuineandjustifi this divisionhave permeatedthePIF secretariat. Sometimes gender neutrality, orrights-basedentitlements.Elements of beholden totraditionalauthority, programmes fostering is externallyrecommended –beitpublicagenciesnot counter-claims over theculturalappropriateness ofwhat core ofthiscomplicationhave beenpersistingclaimsand actual deteriorationinpublicsectorstandards. Lying atthe witnessed notjustneglectorimplementationfailure, but region facesembarrassmentthatallthisprescription has of complication.Now awashwithrecommendations, the over thelasttwodecades,thisprocess itselfaddingalayer have beenvariously conveyed through innumerablereports offering betteremployment andlifechances. These calls andeducational facilities anendtocorruption, services, Pacifi At onelevel, agraspofthekeyissuesatstake issimple:most Bank Task Force onSmall States, 2000,p.39). external shocks’ (Commonwealth Secretariat and World system cangooff-trackasaresult ofbothdomesticand states, asisanappreciation oftheeasewithwhich ofgovernancethe importance isneededinmanysmall sustained over alongperiod.Anationalconsensuson the consequencesofinappropriate policesandpractices large,given theextremevery diffi warned: ‘the costofpoorgovernance inasmallsocietyis impoverishment andinsularity. Asavalued studyhas already heavilypenalised by distance,remoteness, relative or problem-solving capacityoffragilepoliticalentities future constitutionalintegrity, needs, service-delivery there islittledoubtingitsnecessity–whetherforthe of theRAMSIexercise)? Regardless ofeitherpossibility, needed tocatalyseeffective publicsectorreform (oneaim and perhapsfuture politicalorsecuritycrisesgive thejolt c Island citizens wantimproved nationwidebasic c Plan (Pacifi ce willsupplantkinorethnicloyalty as c Islands Forum Secretariat, culty inrecovering from able; inothercases rst, attempts by cult cult ce. insights intowhatistermeda ‘governance defi tothepublishedPlan offerfruitful as supplementary Second, locally produced working papersprovided abuse publicoffi based andrent-seeking politicalconductoféliteswhich organisations strivingtorein in thepatrimonial,client- this isanattempttolegitimisetheactivitiesofnational as endsinthemselves. While not overtly prescriptive, resource managementobjectives aswell asfunction equity andeffi enhanced transparency, accountability, participation, three aspectswarrantnote.First, theobjectives of So farasthePlan’s governance objectives are concerned, migration andpopulationgrowth. advance additionalinitiatives –includingpolicyon governments toassumefullerplanownership, andto Necessarily, thatwilldependonthewillingnessof for future regional andnationalpolicydevelopment. There isanassumptionthattheplanwillremain thefocus momentum neededtorealise arangeofspecifi institutional andresource commitments andpolitical the bilateral andregional neededtosupport partnerships management). Overall, theplanseekstofoster border controls, lawenforcement capacity, disaster and security(maritimeaviationsurveillance, education, genderequality, culturalvalue protection); development (poverty reduction, enhancedhealth, infrastructure andprivate sectorinvestment); sustainable other keygoals:economicgrowth (enhancedtrade, interests. Good governance wasincludedalongwith from relevant donor, offi leadership group, theForum secretariat, andfeedback 2005, resulted from adesignatedtaskforce, anoversight The PIF Pacifi c Plan, endorsedby governments in The Pacifi development assistanceconsiderations. rights andculture inthePacifi the recently publishedLawCommissionreport onhuman a New Zealand dimensionthatembracesfi of devolved andcentralpublicsectorfunctions;third, enhanced ownership, andimplementation participation based formulationsandthepossibilitiestheyofferfor highlight gapsbetween whatispractisedandunderstood, See,forexample,‘Politicalgovernance’,Listing Gallery:Good 5 Governance Paci c Plan ciency are designedtosecure sustainable ce forprivate gain. fi c Plan, April 2005,atwww.paci cial andnon-governmental c, aswell asassociated fl icplan.org. ndingsfrom cit’. c goals. c 5 They They

5 Volume 2, Number 4 2006 6 Volume 2, Number 4 2006 governance ratings.For thisand Table 2,theCook Islands was (subject tomarginoferror). Higher values thusindicatebetter scoreof countriesworldwidethatratebelow identifi thecountry Notes: For thisand Table 2,percentile rankindicatesthepercentage governance/pubs/govmatters4.html. World Bank Group, 2005, athttp://www.worldbank.org/wbi/ Matter vGovernance Indicators for 1996–2005 Source: D.Kaufmann,A.KraayandM.Mastruzzi, Table 1:Ruleoflaw:selected PIFcountries from, seriousdefi direction andleadership hasaggravated, butalsoemerged alackofnationalpoliticalpurpose, for themostpart, resources. Identifi responsive to,andresponsible for, theregion’s citizens and as distinctfrom whatisrequired forpublicstewardship needs. clients, eroding politicalconsiderationofnational totheirelectoral ofservices engage inthedirect delivery coordinating functionsare weakened asparliamentarians welfare (LarmourandBarcham, 2006,p.175). Potential Nauru), readily asasystemof treat thepublicservice or externaleconomicconditions(e.g.Kiribatiand economies, vulnerabletothevicissitudesofweather extended familyorwantok.Small, isolatedandweak risked atwork feedingan thatmightjeopardise asalary employment andwelfare bailiwicks,where nothingis sector agenciesrenders themeven more usefulas weakened problem-solving capacityofcentralpublic These problems spiralinwards inotherrespects. The either missingorinadequate. software neededtosecure theregion’s democratisation is local reports suggestthatthesocietalandinstitutional and communicationofpublicobjectives. In essence,these capacity, societalfabric,andtheoperative transmission ooo s 05 93 .6 3 8 2 0.26 0.16 0.38 19.3 18.8 46.4 2005 2005 Tuvalu 2005 87.9 Tonga 2005 0.33 63.3 1 Solomon Is 2005 0.26 Samoa 2005 3 84.1 P NGuinea 0.26 3 Palau 2005 52.2 Nauru 2005 77.3 Marshall Is 0.76 0.76 N/A N/A Kiribati 2005 72.9 0.26 3 onr er ecnie Sadr Number ofsurveys/ Standard Percentile Year Fiji 2005 Country rank (0–100) Error polls 6 In turn,avacuum innationalpolicyanalysisor ciencies in fi in ciencies ed isaninterlockingproblem where, nancial resources, human , WashingtonDC: Governance ed 47.8 47.8 these dimensions. listed inthesurvey, butwithoutdatabeingavailable foreitherof assessment throughout theregion. World Bank governance criteriaforpurposesofongoing given thePIF Secretariat’s decisiontoemploy allsix comparisons are citedhere, whichare especiallyrelevant comprisingstatecapturecorruption by élites). Two abuse ofpublicpower forprivate gain,butemboldened (assessingnotjust crime); andcontrol ofcorruption enforcement, judicialindependence,incidenceof unfriendly’ oflaw(qualitycontract policies);rule quality (measuringwhattheBank considers‘market regulatory delivery); bureaucracy andpublicservice effectiveness (measuringthecompetenceof in, government, includingterrorism); governmental (assessing thelikelihoodofviolentthreat to,orchanges rights); politicalstabilityandabsenceofviolence accountability (measuringpolitical,civilandhuman comparison identifyingsixcomponents:voice and governanceto survey capacity through across-national internationally. Recently the World Bank hasattempted assisting inrecognising how localconditionscompare Third, fullerusageofgoodgovernance criteriaisseenas been widelyemulated(Delay, 2005). relative successincopingwiththeseproblems hasnot assistance from donorandlendingagencies.Samoa’s formulation placeseven heavierreliance upontechnical ForanapplicationoftheseandrelatedcriteriatoFijisee Azmat 7 6 Ibid. ac.fj/ to theFijiUptak., ANU/USP, 1September 2004,atwww.uspp. Gani andRonDuncan,‘Fiji’s Governance Index’,paperpresented fi leadmin/ fi les/Institutes/piasdg/government. 0.23 3 7

highly personalised stylesofleadershiponto government but ratherhow besttograftformerlyvillage-based, together indigenousand‘western’ modesofgovernance, issueisnotoneoffithat themostimportant tting functions mightblend.Fraenkel (2005,p.266) believes mixes ofnon-stateactor, locallevel, centralandregional where, according tonationalcircumstances, different probably require awillingnesstodevelop hybrids, To prosper, thePlan’s good governance agendawill Source: D.Kaufmann, A.KraayandM.Mastruzzi, op. cit. Table 2:Voice andaccountability:selectedPIFcountries continuing inadequacyofnationalstatisticalservices. reasons orthe ofmalfeasance,technicalskillshortage, of accountability, manybeingneglected,whetherfor new. In 1997,PIF leadersendorsedeight principles codes ofleadershipaccountability. These callsare not enhanced audit,anombudsman,judicialtraining,and –namely,what itrecommends forcleanerpublicservices its persuasive credibility amongélitesmostinneedof The Pacifi to account. voice toconstituentsandholdingpoliticalexecutives oflaw,of aneffective rule orlegislative systemsgiving public sectorreform cannotprogress intheabsence restricted toPIF members.At anyrate,itisclearthat possible localresistance) forabenchmarking scale Pacifi globalconditions than theydoabout unsatisfactory Such comparisonsmightconvey more about ooo s 05 31 .0 3 2 0.20 2 0.15 53.1 0.21 45.4 2005 No surveys/ 89.4 Tuvalu 2005 82.1 2005 Standard Tonga0.20 2005 3 42.0 Solomon Is 0.19 4 Samoa 2005 67.1 2005 Percentile PN Guinea 0.20 6 Palau 2005 89.4 Nauru 2005 80.2 0.21 Marshall Is 0.21 Year 2 2 72.0 Kiribati 2005 0.20 3 Fiji 2005 50.7 Country* 0.19 4 rank (0–100) Error polls c locations,suggestingtheneed(notwithstanding c Plan now faces thetaskofhavingtoearn 8

beliefs, builtontheknown socialspaceofpersonal by informalstructuresfunctions performed and The needtoacknowledge thesignifi eminent sensefortheSolomon Islands. capital city‘ fi work. With apressing needtomove beyond itscurrent standing, publiclycommittedtomakingsuchalocalmix identifi compromise. Certainly, leadfunctionswouldrequire clear may seemarecipe forchaos,butexigencydemands resolve collective actionproblems. For tidymindsthat institutions withacapacitytoenforce socialnormsand indigenousstate legitimacythrough enhancedrural investment inanationalenvironment, indirectly endowing Powell (2005,p.234) favours policiesthatencourage colonial statesettings. in newer andinevitablymore impersonalised,post- Theeightprinciplesincluded:public andparliamentarydisclosure 8 of accountability’,atwww.Forumsec.org.fj/docs/FEMM/2001. Accountability: reportonimplementation ofForum’s eightprinciples processes. Forumeconomicministers June 2001,‘Governanceand legislation; defectiveenforcementcapacity; andde ministers includeeitherthelackof,or ambiguousorinadequate, Implementation difficulties acknowledged byForumeconomic central bankmonitoring,advisoryand independencefunctions. for auditor-generalandombusdmanactivities; andsafeguardingof empowerment forfull of financialregulationcontravention;parliamentarycommittee of allgovernmentandpublicsectorcontracts;effective disciplining public loanagreementsorguarantees;opencompetitivetendering enterprise andstatutorycorporationaccounts;similardisclosureof of budgetaryprocesses;fullauditinggovernment,state-owned cation –possiblyviaastrong localpersonalityof fi nancial disclosure; adequate resource allocation nancial disclosure;adequateresourceallocation xation’, thatprescription makes cant legitimising cant fi cient regulatory cient

7 Volume 2, Number 4 2006 8 Volume 2, Number 4 2006 selfl ‘with specifi slow, possiblybecauseithasbeen driven by outsiders objectives ofregional cooperationhasbeenpatchyand Siwatibau Memorial Lecture, forthegovernance support compliance. For Iosefa Maiava, delivering the2006 Zealand, remains subjecttothevicissitudesofnational process, andonelargelyfi its standingasacreation oftheintergovernmental sector requirements underagoodgovernance rubric, In sum,whilethePacifi functioning politicalrights. the riskoffailure remains highintheabsenceof Bougainville. For anyoftheseinitiatives, however, principle inguidingpost-confl approaches lookingtocomprehensive securityasa HIV/AIDS (Cullen, 2006),andwhole-of-government imperative needtoconfront aworseningspread of of church andinter-faithprocesses –includethe governance functions–forexample,fulleruse Other incentives encouraginghybridisation of operate through validated formsofdevolution. in practice,donorbehaviourcouldalterby havingto involvement,of localdelivery butoftenignoringthem working subsidiarity. Paying toprinciples lipservice locations toevolve home-grown philosophiesof This highlightsaneedfordifferent Pacific Island relationships’. Pope (1997,p.19) hastermeda‘transparency of diversity ofstrategies. fruitful, These includewhat includes theadmittedlymessier, butpotentiallyas centralist andhierarchical –discouragethinkingthat dominant publicpolicyparadigms–oftenrational, seems imperative throughout muchofMelanesia. The allegiances ratherthanformalstructures ofauthority, confrontational. governments isdiverse, routine, reciprocated and non- as intheOECD,prescriptive interchange between currently inhand, couldhelpfosterprocedures where, Placing thePIF onafi donors (Rondinelli andMontgomery, 2005,p.21). are dominated by publicorprivate organisations of avoid thechargeofneo-colonialismthanthosethat encouraging localentrepreneurship are more likelyto ess’. 9 However, economicassistanceprogrammes cagendasandinterests thatare notalways c Plan hasaddressed keypublic basis,a process rmer statutory nanced by Australia andNew ictreconstruction on 2006, p.176). politicians andsenioroffi “leadershipcode”infractions ofthemandatory affecting in PNG)hasthetaskofinvestigating andreporting on Ombudsman Commissionin Vanuatu (modelledonthat agency …thoughtheindependent anti-corruption with‘ancapacities, andnocountry offi in placeformostfunctions,butanabsenceofmonitoring system’s applicationtoPacifi Larmour andBarcham (2006),investigating theintegrity judiciary, private sectorandinternationalcooperation. agencies, andappropriate roles media;and forthenews afosteringof‘watchdog’strategies; publicparticipation; system include:publicawareness; publicanti-corruption and fosterreform onaholisticbasis. The keypillarsofthis under itsnationalintegritysystemtoassesscorruption funded by the Dutch government, haspromoted attempts the Pacifi constitutesamajorrightsviolationthroughout Corruption serious rightsviolationsby potentialrecipients. instances tothewithholdingoffundsinevent of human rightsindonoragendas,extendingsome it hasbenefi ted through theheightenedsalienceof 2005). (Jalal, Though thisproject haslimitedresources, arights-basedapproach intopublicsectorconduct insert human rightsculture ratherthanproject attemptsto and Vanuatu. Its goalsincludethedevelopment ofa policy adviceinFiji, Kiribati,, Tonga of aPacifi The Regional Rights Resource Team offersanexample remains –aswell aslegislative reform. beyond voluntarism –indispensablethoughthat extending include processes ofcommunityparticipation institutionaloutcomes?Bridgingobservable functions But whatisneededtolinkadvocacyservice. pressures to for enhancedpublicsectorcapacitiesanddeliveries of canprovediscomfort positive by politicisingdemands the Pacifi sovereignty sensitivitiesthatwere required tonavigate Pacifi A rights-basedapproach topublicsectorreform inthe Human rights 0 ForafulllistingseeJ.Pope, 10 IosefaMaiava,‘GovernanceandthePacific Plan’,Savenaca 9 org. Siwatibau MemorialLecture,Suva,3 May2006,atwww.tikiwiki. c isbothmore direct andlessinhibitedby the c Plan. The capacityofrightsissuestocause c. Transparency International, withresearch c-based organisation that offerstechnicaland cials’ (LarmourandBarcham, Transparency International2000 c Island states, foundpillars cial, dedicated, cial, . 10

of nationalhuman rightsbodies,inaccordance with the cultural relativism 2005, pp.5-7). (Jalal, The establishment within entailslossoffacetoforeigners, orongrounds of Pacifi tension persistsbetween humanrights advocacy and the creation ofnational humanrightssystems.However, of Forum membersandrelated agenciesby encouraging the PIF secretariat inenhancingthegovernance capacities meeting inAuckland inApril to 2004pledgedsupport rights hasbeenevident,althoughaPacifi At offi region’s legislatures isessential(See Table 3). A farhigherlevel ofrepresentation ofwomen inthe inadequate response totheneedsofpeople. ineffectual monitoringoftheexecutive and,intotality, of positionforprivate gain,incompetentlaw-making, representative modesthatignore nationalneed,abuse (2005, p.241) notesweak legislative capacity, including the universality ofinternationalhumanrights’. Hassall static andisalwaysevolving, whilealsoacknowledging promoting traditionandculture, recognising thatitisnot p.262) identifi (Peebles,Rights Charter 2005,p.199-212). Powles (2005, recommends theestablishmentofanOceanic Human an effective regional structure (Peebles, 2005,p.195). He system asanindicationoftheimmaturityPIF as Peebles seesthelackofahumanrightsintergovernmental to associatedinstitutionaldevelopment requirements. More broadly, the region’s linkrightsneeds observers Source: New Zealand LawCommission, Table 3:RepresentationofwomeninPaci uau u 06 1 0.0 0.0 0.0 0.0 0 0.0 0.9 3.3 0 3.0 0 3.8 0 4.1 11.3 15 0 1 1 16 1 50 2 18 2 32.2 8 Aug 2006 14 109 30 Nov 2004 33 Apr 2006 52 Oct 2004 39 49 71 Tuvalu Jun 2002 Mar 2005 Solomon Is Mar 2005 Nov 2003 Palau Jul 2004 Nauru 121 Mar 2006 May 2006 F SMicronesia P NGuinea Marshall Is Tonga Vanuatu Sep 2005 Samoa Fiji Australia Oct New Zealand Seats Elections Country Women 24.7 % 37 2004 150 Women c Island governments ongrounds thatcriticismfrom ciallevels, reticence intheadvancement ofhuman es aneedtofi nd ‘ways ofprotecting and Converging Currents (2006) c Island leaders fi c IslandForumlegislatures(lowerorsinglehouse) , 7.26,pp. 90-1. bargaining andworker organisation. International LabourOrganisation codesoncollective –forexample,compliancewith international instruments Paris Principles, hasbeenslow, ashasratifi society engagementwillbeseverely testedindelivering functions), therepresentation ofwomen,andcivil legislative reform (including publicaccountscommittee Viewed incombination,humanrightsadvancement, development assistanceprofi conditionality withinfuture European Union andother human rightsistheextenttowhichissueassumes guidance, butamore criticaltestofthesalience reduction’ (UNDP, 2000). That provides useful missing linkbetween antipoverty andpoverty efforts accountable institutionsofgovernance are oftenthe The UNDPhasalsoclaimedthat‘responsive and into development policiesandlegislative frameworks. will notoccurwithoutanintegrationofhumanrights equitable development, lastingpeaceandsocialcohesion objectives ofgoodgovernance forsustainablegrowth, Development Programme (UNDP) hasaffi governments onrightsissues,theUnited Nations In attemptingtowork directly withPacifi c Islands 11 The1991ParisPrinciples,endorsedbytheUnitedNations, initiatives. instruments, andpromoterightseducation andanti-discrimination investigate rightsviolations,encourage rati on nationalhumanrightsconditions,monitor legislativeenactments, institutions ofabroadcompetencetoadvise, recommendandreport recommend, inter alia , theassumptionbynationalhuman rights les. 11 fi cation of international of cation cation ofrelevant rmed that rmed

9 Volume 2, Number 4 2006 10 Volume 2, Number 4 2006 partnerships. Newpartnerships. assist here, Zealand couldfurther asit and ownership thoughcivilsocietyandgovernmental profi prominent role inNew Zealand’s development assistance The Millennium Development Goals, already assuminga funding. Given thoseconstraints, whatmore couldbedone? within aframework thatisconstrainedby inadequate Worthy andlaudable,theseinitiatives operate nevertheless (Vanuatu).correction facilityservices andinstitutionalstrengthening (Samoa);delivery and (Fiji); communitypolicing(Bougainville);service examples includelawandjusticesectorenhancement trainingprogrammes. Otherfor short-term bilateral the CookIslands hasreceived technical assistance fi nancial andeconomicmanagement.Since then, private sector-ledgrowth, andstrengthening of of stateassets,avalue-added tax,stimulationof measures involving publicsectordownsizing, sale programme through aseriesof‘tough love’ austerity in 1996New Zealand institutedawide-ranging the CookIslands economydeterioratedsharply, refurbishment occurred intheCookIslands. After by New Zealand forpurposesofpublicsector In thelastdecademostovert intervention increased disbursementstoMelanesia. 2006 at0.27%ofgross nationalincome,whichincluded total New Zealand development assistancestoodin governmental initiatives. Revealing asmallincrease, assistance tohumanrightsadvocacy through non- oflawfunctions,andsomelimitedpolice andrule sought toassistconstitutionalrehabilitation, judicial, Islands, New Zealand’s focusongovernance reform has seriously onBougainville,andthenintheSolomon As securityconditionsdeterioratedinFiji, more New Zealand’s engagement their endorsement(Morgan, 2005,p.12). to engagelegislatures and civilsocietyinterests priorto been hampered by thefailure ofPacifi Regrettably, implementationoftheseobjectives has indevelopment.the development ofglobalpartnership combating HIV/AIDS,malariaandotherdiseases; improvementof childmortality; ofmaternalhealth; gender equalityandwomen’s empowerment; reduction poverty education; eradication;universal primary Millennium Development Goals. These encompass the keypolicyoutcomesidentifiedin2000 le, require stronger recipient nationalmonitoring c governments c warrant Pacifi role ofwomeninthePacifi custom coexistswithhumanrightsregarding thecurrent displays awillingnesstotesttheextentwhichexisting restorative justicefrom in-depthconsideration,it andnon-customary determination, intellectualproperty relating rights,governance, toproperty self- corruption, of Pacifi by advancing theminwaysthatreflect thevalues work towards aculturallegitimatingofhumanrights modern world.Such harmonisation,itishoped,will ina human rightscanhelpittodevelop andsurvive of law. Far from threatening custom,itismaintained, to betterintegratecustomandhumanrightsassources in thePacifi study The New Zealand LawCommission’s October 2006 (Batley,delivery 2006,pp.193-6). information; andtheactualcommissioningofservice facilitation,includingaccesstofi perform; oversight andmonitoringfunctionsthattheycan government withsuchproviders; theregulation, research designsconcentrateonpolicydialogueby organisations andfaith-basedbodies.Relevant citizen-based organisations,non-governmental could includeindividualpractitioners,firms, an approach inPIF locations.Non-state providers its delivery. New Zealand couldencouragesuch ofdevelopment assistanceneedandarticulation regarding theutilisationofnon-stateactorsfor Development hasestablishedusefulmethodologies The United Kingdom’s for International Department law reform andyouth employment. of improved urbangovernance, rightssettlement, property inpolicydevelopment anddelivery might withexpertise jurisprudence willoccuronlyasPacifijurisprudence 12 Relevant citationsfromthisstudyinclude:‘ItisclearthatPaci 12 of humanrightsgenerallyinthePaci the issueofwomen’s rightsmaybe the keytogreateracceptance custom’s interpretationandapplication’ (7.58);and‘We believethat human rights. Their mainconcernistoamendthemalemonopolyon human rightsaregenerallycomfortable withadaptingittore to subordinatewomen’ (7.56);‘Paci custom lawissubstantiallycontrolled bymenandisoftenused concern inthePaci overwhelmingly male’ (7.31);‘Violence againstwomenisamajor particularly wherethisisinthehandsoftraditionalleaderswhoare ‘In somecasessystematicbiasisapparentinlocalgovernment, preserve ofmenisdeeplyingrainedandregularlyexpressed’ (7.27); law tobeunjust’ (7.1);‘A beliefthatpoliticalleadershipisthe women haverealcausetoconsidertheirtreatmentundercustom Converging Currents: customandhumanrights c societies. excludes issues While thesurvey c arguesthatthedevelopment ofaPacifi c exposure andresponse. fi c’ (7.35);‘The evidenceiscompellingthat c. 12 Findings from thisstudy fi fi c womenwhospeakouton c’(7.62). c nationsfi nance and nd ways fl ect fi c c small Pacifi Given thescantresources available toseveral smalltovery agreed Millennium Development Goal targets. That willhave tochange,however, inorder tofulfi purposes. partnership engagement andservice-delivery taking orutilisingnon-stateinterests forcivilsociety continuing unemployment, remains averse torisk- to maintainjobsecurityunderconditionsofhighand Much oftheexistingpublicsectorapparatus, concerned women intopositionsofpublicsectorresponsibility. ofgreater recruitment of territory into theuncharted and power holders,whoare disinclinedtoventure loyalties amongélites consolidatesprimary intervention diffi Advocates ofpublicsectorreform inthePacifi attention (Delay, 2005,pp.434-5). and integrationwithnationalplanningwarrantsregional level championing,restriction onthenumberofdonors, development assistancethrough itsstability, localhigh- learning from itself. Samoa’s relative successinhandling theregion’sand nationalrivalries neednotobstruct administrative systemsforprivate ends.Existing cultural could lessencurrent abuseofcentralpoliticaland Recognition anduseofdifferent localmodalities recommendations forpublicsectorenhancement. can prove advantageous asanantidotetoformulaic The setting’s diverse culturalandphysical spaces professional standards ofindependence. to account,norwithoutsystemsoflawoperating institutions organisedandmotivated toholdexecutives emerge withoutthebracingprovided by representative enhanced publicsectorcapacityinthePacifi While needingcontinuedexternaltechnicalexpertise, information systemsneededtobuildanationalcitizenry. environment dedicatedtoproviding theeducationand not fosterinstitutionalaccountability, orfunctioninan stinted onthescaffoldingofpublicbureaucracy, thisdid (Ghai, 1990,p.2). While colonialismmaynothave been establishedby colonialpowers forcolonialends’ ‘legitimation ofadministrative structures whichhad grafting ofindigenousauthoritysystemsontothe dichotomy bequeathedby decolonisation’s awkward reform. This reflects thecontinuingimpactofa throughout thePacifi This paperhasnotedtheambivalence thatpersists Looking ahead culties across avariety offronts, asperceived external c Island entities,pooling andrationalisation c Islands towards publicsector c willnot c face c l Watson (eds), and conflictresolution’, inJ.Henderson andG. Hassall, G.(2005)‘Good governance, humanrights Secretariat, pp.1-25 Small States: Pacifi administration’, in Y. Ghai (ed.), Ghai, Y. (1990) ‘Constitutionalfoundationsofpublic Press,Canterbury pp.263-8 Securing aPeaceful Pacifi discontents’, inJ.Henderson andG. Watson (eds), Fraenkel, anditsPacific J.(2005)‘Democrary Development Samoa succeed?Anote’, Delay, doesaidmanagementin S.(2005)‘Why pp.153-64 a reality check’, Cullen, T. (2006)‘HIV/AIDSinPapua New Guinea: Secretariat in theglobaleconomy on Small States (2000) Commonwealth Secretariat and World Bank Task Force Administration andDevelopment on non-stateprovision ofbasicservices’, Batley, R.(2006)‘Guest editor’s preface. Symposium References it istobeovercome. reciprocity builtonmutualrespect willberequired if China). That attitudinalbarrierisnotinsuperable,but the role ofeven biggerplayers (theEuropean Union, dominant Australian fi – whetherfrom globalisation(apromise orathreat?), region towards enhancedintergovernmental cooperation is nomistakingthecautionevidentthroughout the willingness tocollaborate.Currently, however, there basedonprovenThis willneedstronger partnerships (as intheeasternCaribbean)–makesplausiblesense. border control technologiesortelecommunications of somefunctions–forexample,instatisticalservices, Lessons Learned Project, atwww.rrrt.org/assets/OHCH for OHCHR/UNDP/HURIST RightsBased Approach Team (RRRT) project inthePacifi principles toclaimrights:the Regional RightsResource Jalal, P.I. (2005)‘Using rights-basedprogramming University Press, ofCanterbury pp.239-44 , 25,pp.433-35 Securing aPeaceful Pacifi c experiences Pacific Journalism Review nancial andpoliticalcapacity, or Small States: meetingchallenges c , London:Commonwealth , Christchurch: University of Public Administration and , London: Commonwealth , London:Commonwealth Public Administration in , 26,pp.193-6 c Islands’, c prepared c , Christchurch: , 12(1), Public 11 Volume 2, Number 4 2006 12 Volume 2, Number 4 2006 integrity systemsinsmallPacifi Larmour, P. andM.Barcham (2005)‘National govindicators.org 2005 Governance Matters vGovernance Indicators for1996– Kaufmann, D.,A.KraayandM.Mastruzzi (2005) R%20Best%20Practice%20Case%20Study.pdf Strategic Policies Institute challenges andlessonslearned Wainwright, E.(2005) United Nations UNDP (2000) and Development governance inpost-confl change andnationbuilding:candonorsrestore Rondinelli, D.andJ.Montgomery (2005)‘Regime Press, pp.26-62 Peaceful Pacifi rights’, inJ.Henderson andG. Watson (eds), Powles, M.(2005)‘Good governance andhuman Press andAsiaPacifi Regional Integration andGovernance Pacifi convergence andthecaseagainstintegrationof Powell, P.T. (2005)‘“Too young tomarry”: economic 2000 Pope, J.(2000) Sourcebook Pope, J.(ed)(1997) ANU EPress andAsiaPacifi Peebles, D.(2005) Pacifi for strengthening regional cooperation andintegration Pacifi Wellington: New Zealand LawCommission Currents: customandhumanrightsinthePacific New Zealand LawCommission(2006) fj/Files/Building/governance strengthening’, athttp//regionlcentrepacifi Goals inthePacifi c Islands through Parliamentary frameworks: advancing theMillennium Development Morgan, M.(2005)‘Building politicalgovernance Administration andDevelopment c Islands Forum at, www. Pacifi c Islands Forum Secretariat (2005) c islandstates’, inS. Chand(ed.), , Washington DC: World Bank Group, athttp:// , Berlin: Transparency International , Berlin: Transparency International c , Christchurch: University ofCanterbury The Transparency Sourcebook International Overcoming Human Poverty , 25,pp.15-23 c Press, pp.218-39 PacifiOrder Regional c The TransparencyInternational ict states?’, How isRAMSI Faring: progress, c Press , Canberra:Australian c Island states’, , 26,pp.173-84 Public Administration , Canberra:ANUE cplan.org.fj/ A Pacifi Pacifi c.undp.org. , New York: , Canberra: Converging Securing a c Islands c c Plan: c , Suva: Public , the contemporary Paci the contemporary relations, New Zealand’s foreign on books andacademicarticles several andhasauthored Affairs, International Zealand Instituteof theNew of He isavice-president Wellington. at Victoria University of Relations Science andInternational inPoliticalAssociate Professor Roderic Alleywas previously Wellington. VictoriaGovernment, University of theSchoolof of Studies programme Strategic intheMasterof relations onNewZealand’sa course foreign con and United Nations,disarmament fl ict analysis. Henow teaches ict analysis. fi c, c, the