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Political Status and Development: the Implications for Australian Foreign Policy Towards the Pacific Islands

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Political Status and Development: the Implications for Australian Foreign Policy Towards the Pacific Islands Political Status and Development: The Implications for Australian Foreign Policy Towards the Pacific Islands STEWART FIRTH SSGM DISCUSSION PAPER 2013/6 Introduction Table 2: Pacific Islands Freely Associated Entities Nine in every 10 Pacific islanders live in the independent countries of the region — Fiji, Kiribati, Entity External State Nauru, Papua New Guinea, Samoa, Solomon Federated States of Micronesia USA Islands, Tonga, Tuvalu, and Vanuatu. The remaining tenth — almost a million people in all — live in the Republic of the Marshall Islands USA territories and freely associated states, where formal Republic of Palau USA connections with a metropolitan state offer access Cook Islands New Zealand to its resources and opportunities. In different ways, Niue New Zealand and with different levels of devolution of power to local governments, eight of the Pacific island entities in the Pacific community are territories Geoff Bertram points out, a large body of evidence of external states, and a further five Pacific island now supports the view that there is ‘a negative entities are freely associated with an external state. association between sovereign independence and present-day per-capita income, indicating that Table 1: Pacific Islands Territories while decolonization may have brought political and psychological gains, it retarded rather than Territory External State advanced the material prosperity of the decolonized American Samoa USA populations. The reasons are straightforward: Commonwealth of the USA small island jurisdictions which are sub-national Northern Mariana Islands (that is, retain constitutional links to metropolitan Guam USA powers) get more financial assistance per head, better access for migrant labour, and a wide range New Caledonia France of jurisdiction-related opportunities to capitalize on French Polynesia France non-sovereign status’ (Bertram 2007, 239–40). Territory of the Wallis France In a study that compared 16 dependent with and Futuna Islands 19 independent island entities in the Caribbean Tokelau New Zealand and the Pacific across 25 socioeconomic and demographic indicators, Jerome L. McElroy and Pitcairn Island United Kingdom Katherine Sanborn showed that the dependent entities had much stronger economic performance, Since the 1980s, we have known that the with much lower unemployment, higher life benefits of decolonisation in small island states expectancy, lower infant mortality and ‘greater are more cultural than economic, and that in the progress along the demographic transition from Pacific Islands, independent countries have poorer high to low birth and death rates development outcomes than those that remain that all modernizing societies pass territories or continue to have a constitutional through’. They concluded that the link to a metropolitan state (Poirine 1998; ‘economic linkages afforded by Armstrong and Read 2000; Bertram 2004.) As dependent status are significant. State, Society & Governance in Melanesia ips.cap.anu.edu.au/ssgm Stewart Firth They include: preferential trade, migration and Caledonia and Wallis and Futuna became French citizenship arrangements, access to metropolitan citizens under the 1946 Constitution of the French capital markets and specialized labour expertise, Fourth Republic. Many residents of New Caledonia the subsidized provision of key transport and are simultaneously New Caledonian citizens under a communications infrastructure essential for the unique arrangement for that territory. success of the two primary engines of insular eco- American Samoa (pop. 55,519 in 2010) has no nomic growth—tourism and offshore finance …’ status of its own in international law, but has its own (McElroy and Sanborn 2005, 9–10). constitution and elected legislature, and controls This paper revisits this discussion. It confirms immigration and border matters. American Samoa that the disparities between living standards in has a representative in Washington — currently Eni dependent and independent Pacific countries Faleomavaega — the only Samoan in the US Con- remain as large as ever — indeed that they are gress. He serves on committees and sponsors legis- probably growing. It examines the situation not lation but has no voting power. Executive author- only of the territories but also of the freely associ- ity is in the hands of the governor. The American ated states, whose political status lies somewhere Samoans are US nationals rather than US citizens. between dependence and sovereign independ- Originally, the people of overseas possessions of the ence. In particular, the paper asks: what can the United States such as Guam, the Philippines, Puerto independent Pacific learn from the dependent and Rico and the US Virgin Islands were also US nation- freely associated Pacific? How might the favourable als, not US citizens, but the only US nationals today economic circumstances that accompany all cases are the American Samoans. They are free to carry of dependency and some cases of free association a US passport and to live and work in the United be reproduced elsewhere in the region? What are States, but are barred from voting or holding office the policy implications for the Australian Gover- in the USA outside American Samoa. ment’s Pacific policy? Guam (pop. 159,358 in 2010) has been a US Origins of Political Status territory since 1898, and has no status of its own in international law. The Guamanians elect their own The territories governor and legislature, and send a non-voting France acquired New Caledonia (pop. 265,639 representative to the US Congress. They are US in 2012) and French Polynesia (pop. 274,217 citizens and may enter and work in any part of the in 2012) as colonies in the nineteenth century. USA. Like American Samoa, it is an ‘unincorporated France declared protectorates over Wallis and territory’ —meaning that it is not eligible to proceed Futuna Islands (pop. 13,445 in 2008) in the 1880s, to statehood as, for example, Alaska and Hawai‘i annexed them in 1913 and has administered them were able to do. as a French territory ever since. And although The Northern Mariana Islands (pop. 53,883 in changes in New Caledonia and French Polynesia 2010) passed from Japan to the USA during World since the 1990s have created a significant degree of War II, and benefited from the considerable US self-government, especially in New Caledonia, the defence spending that followed. Foreseeing gener- relationship with France remains territorial in char- ous US subsidisation, they opted for a form of US acter. Five French overseas entities — Guadeloupe, territorial status in 1976, and their islands officially Martinique, French Guyana, La Réunion, and May- became a Commonwealth of the USA in 1986. otte — are ‘départements’ governed as if they were According to the US State Department, the term parts of mainland France, which is divided admin- ‘commonwealth’ ‘broadly describes an area that is istratively into 96 départements. The remainder, self-governing under a constitution of its adoption including those in the Pacific, are all French over- and whose right of self-government will not be uni- seas territories of one kind or another, with dif- laterally withdrawn by Congress’ (US Department of fering degrees of devolution to local governments. State 2013, 2 ). The people of the Northern Maria- All permanent residents of French Polynesia, New nas became US citizens in 1986 and are free to enter 2SSGM Discussion Paper 2012/1 State, Society http://ips.cap.anu.edu.au/ssgm & Governance in Melanesia SSGM Discussion Paper 2013/6 and work in any part of the USA. Their first repre- Free association in this case is a unique arrange- sentative in the US Congress was elected in 2008. ment between different parts of the same coun- The governor holds executive power and there is a try, endowing the Cook Islands and Niue with a bicameral elected legislature. large measure of self-government and autonomous Tokelau (pop. 1,411 in 2011), a British pro- capacity but not removing them from a ‘single con- tectorate from 1889, formally passed to New Zea- stitutional entity’ known as the Realm of New Zea- land sovereignty in 1948, when its people became land (Quentin-Baxter 2008, 614). Everything else New Zealand citizens. Tokelau is in many respects about free association between New Zealand and self-governing. Tokelau is one of five Pacific island its associated states flows from this fundamental groups still listed as ‘a non-self-governing territory’ fact, which, above all, determines that the people by the UN Special Committee on Decolonization, of those states are New Zealand citizens like any and New Zealand reports to the UN each year on other. At the same time, the Cook Islands and Niue its administration. (The other four are Ameri- remain distinct Pacific ‘nations’, with their own can Samoa, Guam, New Caledonia, and Pitcairn languages, cultural practices and sense of national Island.) Tokelau is in many respects self-governing. identity. For more than a century, the Cook Islands The General Fono (Council), to which authority is and Niue have been New Zealand sovereign territo- given by the village councils of the three atolls of ry, just as Norfolk Island or the Torres Strait Islands Atafu, Nukunonu, and Fakaofo, handles national are Australian sovereign territory. Britain declared issues including shipping, fisheries, and external a protectorate over the Cook Islands in 1888 in co- relations — meaning relations with New Zealand operation with its colony in New Zealand, which, and with regional organisations such as Te Vaka with London’s approval, proceeded to annex the Moana, the Polynesian fisheries grouping. When island group in 1901 as an extension of its terri- the General Fono is not sitting, authority is exer- tory in the Pacific (Gilson 1980, 96–109). Demands cised by the Council for the Ongoing Government. for local government led to the formation in 1947 The Tokelau people have voted in two referenda on of a Legislative Council, which was reorganised as whether to enter free association with New Zea- a largely elected Legislative Assembly in 1957, and land.
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