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At the annual Pacific Islands Forum facing challenges to its role and public in August 2010, Forum Secretariat criticism of its officials. staff issued a media release stating, Under Director-General Dr Jimmie “The Pacific Islands Forum, which Rodgers, the spc is becoming the pre- celebrates 40 years of its existence mier intergovernmental development next year, is based on unity” (Forum agency for twenty-six Pacific countries 2010d). However, the unity of the and territories. The spc is creating Forum and other regional institutions new departments and incorporating continues to be tested by the increas- programs from other members of the ing complexity of international issues &RXQFLORI5HJLRQDO2UJDQL]DWLRQVRI such as trade, aid, climate change, and the Pacific (crop). Two crop agen- the regional aftermath of ’s 2006 cies were fully integrated into the spc coup. As Island leaders gathered in Fiji by 1 January 2011: the Pacific Islands for the “Engaging with the Pacific” $SSOLHG*HRVFLHQFH&RPPLVVLRQ conference in July, their final commu- (sopac) and the South Pacific Board niqué noted that “views expressed all for Educational Assessment (spbea). round highlighted what Pacific Small By the end of 2010, the spc had Island States perceived as deficiencies more than 600 staff spread across in the ability of the current model the region: 200 at its Noumea head- of Pacific regionalism to effectively quarters and 360 at the Nabua office address key development and gover- in Suva, with others located at the QDQFHFKDOOHQJHV¨ 1DWDGROD&RPPX- northern Pacific regional office in niqué 2010). Pohnpei, country offices in Port The year 2010 was marked by 9LODDQG+RQLDUDDQGRSHUDWLRQV debates within the Forum and the in ten other countries. Focused on Melanesian Spearhead Group (msg), three core areas (sustainable human growing independent action by development, sustainable economic Papua New Guinea, and the ongoing development, and sustainable natural challenge posed by the postcoup resources management and develop- administration in Fiji. In the face of ment), the spc mandate now covers &KLQDªVGLSORPDWLFDQGHFRQRPLF a range of sectors: agriculture, aqua- commitment to the region, the culture, culture, fisheries, forestry, Obama administration announced gender, information and communi- new regional initiatives, and New cation technologies, human rights, =HDODQGªVFRQVHUYDWLYHJRYHUQPHQW maritime transport, public health, shifted aid and defense policies. While statistics and demography, youth, and WKH6HFUHWDULDWRIWKH3DFLILF&RPPX- cross-cutting areas including food nity (spc) expanded its reach in 2010, security and climate change. the Pacific Islands Forum Secretariat There are now nine crop agencies; (pifs) was a troubled institution, besides the Secretariat of the Pacific

440 pol i t ical reviews ‡ region in review 441

&RPPXQLW\DQGWKH3DFLILF,VODQGV been “pretty poor,” and there were Forum Secretariat, these include the challenges to translate regional policy Secretariat of the Pacific Regional into action on the ground. Environment Program, the Forum In the lead-up to September’s Fisheries Agency, the Pacific Power global Millennium Development Agency, the Fiji School of Medicine, Goals summit, a study of the 2009 the University of the South Pacific, the &DLUQV&RPSDFWRQ6WUHQJWKHQLQJ Pacific Islands Development Pro- $LG&RRUGLQDWLRQLQWKH3DFLILFZDV gram, and the South Pacific Tourism also presented to Forum leaders and Organization. Given this diversity of called for increased coordination institutions, crop executives agreed between ministries at national level as in 2010 to develop “all-crop” joint well as better coordination between country strategies to avoid duplica- donors. tion of programs in member countries The Forum provided logistical and and territories. United Nations (UN) coordination support for two “peer agencies in the region are attempting reviews” of development programs a similar “One UN” strategy, with XQGHUWKH&DLUQV&RPSDFW,Q0DUFK limited results thus far. Nauru was the first country to volun- A major interagency activity in WHHUWREHUHYLHZHGFKRRVLQJ&RRN 2010 was the inaugural Pacific Food Islands and as fellow Forum 6XPPLWKHOGLQ3RUW9LODLQ$SULOWR ,VODQG&RXQWULHVWRFRQGXFWWKHSHHU coordinate efforts for all Pacific people review, together with the UN Devel- to have access to safe, nutritious, opment Program as a development local food. The spc and the Forum partner. The following month, Kiri- Secretariat also organized a Regional bati’s systems were reviewed by rep- &RQVXOWDWLRQRQ&XOWXUDO,QGXVWULHV resentatives from Papua New Guinea in December to promote cultural, DQG1HZ=HDODQG%RWK1DXUXDQG creative, and innovative industries. publicly welcomed the process Forum leaders held their annual (Forum 2010c, 2010a), but no other PHHWLQJLQ9DQXDWXLQ$XJXVWDQG countries volunteered for peer review were presented with a plethora of for the rest of the year. reports from the Forum Officials As the key Forum donor (with over &RPPLWWHHWKH3DFLILF3ODQ$FWLRQ a$50 million allocated to the Forum &RPPLWWHHWKH)RUXP5HJLRQDO6HFX- Secretariat since 1988 and a$10 mil- ULW\&RPPLWWHHDQGDUDQJHRI)RUXP lion pledged for 2010–11), ministerial meetings. A key focus was joined other countries to fund regional progress with the 2005 Pacific Plan— initiatives on leadership, election the framework designed to link the monitoring, and participation of work of regional intergovernmental more women in national parliaments. organizations to national development Throughout 2010, the Forum coordi- priorities. Briefing journalists before nated four teams of election observers the Forum, Deputy Secretary-General to monitor voting during general elec- Feleti Teo said that, in spite of many tions in Nauru (April), Bougainville achievements, reporting from Pacific (May), (August), and governments on the Pacific Plan had &RRN,VODQGV 1RYHPEHU  442 the contemporary pacific ‡ 23:2 (2011)

In spite of increased donor The Forum Secretariat’s role in resources for governance programs trade policy was a particularly conten- (including funding for the Pacific tious issue. In September, the Forum Ombudsman Alliance, assistance for appointed Papua New Guinea’s Aivu women in politics, and support for Raevo Tauvasa as the new perma- Tonga’s democratic elections on 25 nent representative to the World November), there were still worry- Trade Organization in Geneva. Trade ing trends in government behavior. diplomacy in Europe reflects the Launching a publication on Islands priority given by Pacific members of leadership in October (plp/pifs WKH$IULFDQ&DULEEHDQDQG3DFLILF 2010), Forum Secretary-General grouping to the proposed Economic Tuiloma Neroni Slade noted many Partnership Agreement with the Euro- adverse trends in the region, including pean Union (EU) before they move to “a growing dominance of the Execu- finalize negotiations for the pacer- tive over the Legislature; the discon- 3OXV 3DFLILF$JUHHPHQWRQ&ORVHU nect between policy and its actual Economic Relations-Plus) free trade applications; the inability of govern- agreement with Australia and New ments to act decisively on fraud, cor- =HDODQG ruption and maladministration; and A regional Economic Partnership the lack of resources and authority for Agreement (epa) was supposed to be integrity and oversight bodies to inde- completed before December 2007 but pendently and effectively undertake is still in limbo. The lack of progress their prescribed functions. Universal has prompted criticism of the Forum problems like private interests, conflict Secretariat and its director for eco- of interest and abuse of public facilities QRPLFJRYHUQDQFH'U&KDNUL\D%RZ- continue to occur” (Forum 2010e). man, formerly trade advisor for the In 2011, the Forum will celebrate Australian Agency for International its fortieth anniversary and, accord- Development (AusAID). Throughout ing to the secretary-general, will the year, Bowman’s predecessor at “take stock of the achievements the Secretariat, Dr Roman Grynberg, and...reflect on some of the lessons continued a series of public attacks on learnt over the years to guide the the conduct of regional trade policy, way forward to ensure the continued arguing that “the complete failure relevance of the Forum as the pre- of leadership of the Forum in the mier political regional organization” EU negotiations is not a mistake but (Forum 2010g). However, the Forum’s simply serves Australia’s interests. . . . role was widely critiqued during 2010. The direction that the Forum is taking $VWXG\E\WKH9DQXDWXEDVHG3DFLILF cannot be seen as in the interests of Institute for Public Policy argued that the islands. . . . the institution has “without reform, the Forum faces an become openly and unambiguously existential crisis. It has been politi- an instrument of Australian and New cally paralyzed on the main challenges =HDODQGSRZHULQWKH3DFLILF¨ *U\Q- confronting the region: trade, climate berg 2010, 32). change and the military takeover in &ULWLFLVPRIpifs staff also came Fiji” (Bohane 2010, 1). IURP)RUXP,VODQG&RXQWULHV fic). pol i t ical reviews ‡ region in review 443

In a leaked letter (Abal 2010), PNG to act on violence against women and Foreign Minister Sam Abal called for children. However, in 2010, New major changes in Forum trade policy =HDODQG)RUHLJQ0LQLVWHU0XUUD\ and Secretariat personnel, stating: “I 0F&XOO\UHGXFHGIXQGLQJIRUZRPHQªV am indeed disappointed and disturbed and human rights programs as part of by the manner in which pifs staff this shift in aid policy. Key community are managing and facilitating the epa organizations working on the preven- negotiations process. . . . The lack tion of violence against women that of proper organization and manage- had received extensive nzaid aid were ment of the epa negotiations process, left to scramble for alternative sources as well as the neglect of the critical of core funding. aspects of the epa negotiations raise ngo women’s activists sought more questions pertaining to the compe- practical support from governments tence of officers directly entrusted at the 11WK7ULHQQLDO&RQIHUHQFHRI with the responsibility to conduct the Pacific Women, held in Noumea in epa negotiations process in a profes- August, which found that regional sional and technically sound manner” agencies continue to operate without (Foster 2010, 25). sufficient gender expertise to ensure The Forum Secretariat reacted that women’s needs and perspectives publicly to this and other criticism. In are front and center in development early 2010, officials rejected “emphat- activities. ically and unreservedly” any blame for In response to civil society criti- the ongoing dispute over Fiji’s suspen- cism on the pace and process of the sion from the pacer process (Forum pacer-Plus free trade negotiations, the 2010b), and later they objected to Forum Secretariat organized the first criticism of the Forum’s failed nongov- annual “Non-State Actors Dialogue ernmental organization (ngo) engage- on pacer-Plus” in Honiara in Octo- ment policy as “mischievous and ber. The Forum also coordinated six- uninformed” (Forum 2010f). monthly “pifs–&LYLO6RFLHW\2UJDQL- The Secretariat’s dilemmas were not zations’ Dialogues on peace, conflict assisted by policy shifts on the part of and security” in November 2009 and NH\GRQRUV1HZ=HDODQGªVFRQVHUYD- April and November 2010. tive government—under Prime Min- However, regional nongovern- ister John Key, elected in 2008—has mental organizations like the Pacific set new directions for its aid program, &RQFHUQV5HVRXUFH&HQWUHWKH highlighting economic growth and Pacific Islands Association of Non- private-sector initiatives. The for- Governmental Organisations, and merly autonomous agency nzaid has the Foundation of the Peoples of the been reintegrated into the Ministry of South Pacific International all faced Foreign Affairs and Trade, becoming financial or administrative setbacks, the International Development Group. which reduced regional networking 7KLVKDVLPSDFWHG1HZ=HDODQGªVUROH and coordination. Suva-based nongov- in regional initiatives. For example, at ernmental organizations and regional their 2009PHHWLQJLQ&DLUQV)RUXP media also faced constraints under leaders made a formal commitment Fiji’s Public Emergency Regulations, 444 the contemporary pacific ‡ 23:2 (2011) which extended throughout the year. matic options on Fiji to little apparent After the forced sale to local owners effect” (Dorling 2010a). According of Rupert Murdoch’s Fiji Times, the to this cable, Kerr privately sought Pacific Islands News Association was to encourage the US government to criticized for its low-key lobbying reengage with the administration led on media rights, and a new Pasifika E\&RPPRGRUH9RUHTH%DLQLPDUDPD Media Association was created in even as the Rudd government in Aus- August by Polynesian media owners. tralia was encouraging other Forum Of global significance, the other members to maintain its isolation. media event in late 2010 was the pub- The cable reports that the Australian lication of US diplomatic cables leaked government was on “cruise control to WikiLeaks. Regional newspapers toward increasing disengagement with published details of US, Australian, Fiji, without achieving any desired DQG1HZ=HDODQGSHUVSHFWLYHVDERXW effect.” Kerr resigned in October the Pacific Islands Forum, regional 2009, and his position remained WUDGHLVVXHV&KLQDªVUROHLQWKH unfilled until after the August 2010 Pacific, and more contentious topics. Australian elections, to the dismay 2QHFDEOHLQGLFDWHGWKDW1HZ=HDODQG RI&DQEHUUDEDVHG,VODQGGLSORPDWV has been spying on the Fiji military (Maclellan 2010a, 22). through the Waihopai monitoring Hosting the August Forum leaders base and sharing the intelligence PHHWLQJLQ3RUW9LOD9DQXDWX3ULPH with the US government (Simpson Minister Edward Natapei had to calm 2010); another highlighted Jakarta’s tensions over his postponement of a knowledge of ongoing military human Melanesian Spearhead Group meeting rights abuses in West Papua (Dorling that was scheduled for Fiji the preced- 2010b); yet another revealed an ing month. After the msg meeting had RIILFLDO86SHWLWLRQWR1HZ=HDODQGLQ been delayed and his role as incom- 2007 that called on Wellington to rec- ing msg chair postponed, Bainima- RJQL]H$PHULFDQ6ëPRDªVMXULVGLFWLRQ rama gathered representation from over Olohega (Swain’s Island) after HOHYHQ)RUXP,VODQG&RXQWULHVIRUDQ the Ulu O Tokelau (head of Toke- “Engaging with the Pacific” meeting lau) suggested it was part of Tokelau at Natadola Beach, including PNG (WikiLeaks 2007). Prime Minister Sir Michael Somare, Many of the leaked cables Solomon Islands Prime Minister Derek addressed the Forum’s core dilemma— Sikua, and Kiribati President Anote how to recognize Fiji’s central role in Tong. (An msg reconciliation meeting the region while maintaining isola- took place in Honiara in December, tion of the country’s military-backed allowing the transfer of the rotating administration. Australian media cited msgOHDGHUVKLSWR&RPPRGRUH%DLQL- a United States cable from August marama.) 2009, in which former Australian Par- The July 2010 Natadola meeting liamentary Secretary for Pacific Island agreed that Fiji’s Strategic Framework Affairs Duncan Kerr told a US diplo- IRU&KDQJH§LVDFUHGLEOHKRPHJURZQ mat that the Australian government process for positioning Fiji as a mod- was “close to exhausting its diplo- ern nation and to hold true democratic pol i t ical reviews ‡ region in review 445 elections.” The communiqué also rec- 7UDGLWLRQDO/HDGHUVKLS&RQIHUHQFH DQ ognized the need for “Fiji’s continuous initiative launched in 1999 by Palau’s engagement with the region and its full high chief, Ibedul Yutaka Gibbons, participation in regional development which brings together Micronesian initiatives and aspirations”—a refer- traditional authorities every three ence in part to Fiji’s isolation from years to discuss custom and culture). current negotiations for the pacer- ,Q3RUW9LOD)RUXPOHDGHUVGHFLGHG Plus free trade agreement (Natadola to grant official observer status to &RPPXQLTXp2010). These statements the World Bank, which now joins conflict with the ongoing suspen- the Asian Development Bank and the sion of the Fiji administration from &RPPRQZHDOWKDV)RUXPREVHUYHUV WKH&RPPRQZHDOWKDQGIURP)RUXP The sight of the World Bank gaining PHHWLQJV UHDIILUPHGLQ9DQXDWXLQ increased access to Forum meetings August). This tension was unresolved raised eyebrows from representatives by year’s end, though Forum leaders RIWKH:HVW3DSXD1DWLRQDO&RDOL- LQ3RUW9LODWDVNHGRIILFLDOVWRLQYHV- tion for Liberation lobbying at the tigate ways Fiji could be reintegrated 9LODPHHWLQJZKRZHUHRQFHDJDLQ into the pacer-Plus process. rebuffed in their attempt to gain Participants at the “Engaging with observer status. the Pacific” meeting agreed to meet Most self-determination issues annually on a voluntary basis. This remain off the regional agenda, in plants a seed for future “Islanders- spite of key events during 2010 such only” dialogue to continue without as presidential voting in Bougain- the two largest Forum members in the ville (which saw the defeat of former room, let alone the plethora of other Bougainville Revolutionary Army institutions that want to engage Island leader James Tanis by long-serving leaders. PNG politician John Momis) and Just as the msg links the most major land occupations and clashes populous countries of the region, in Rapa Nui, pitting indigenous other subregional groupings coordi- DFWLYLVWVDJDLQVW&KLOHDQSROLFHDQG nate economic, environmental, and authorities. The key exception was social development outside the Forum 1HZ&DOHGRQLDZKHUHHQJDJHPHQW framework. In June, the 13th Micro- with the region has been expanding. QHVLDQ&KLHI([HFXWLYHV6XPPLWPHW ,Q0DUFK)UHQFK+LJK&RPPLV- in Saipan, bringing together leaders sioner Yves Dassonville joined New from US territories and freely associ- &DOHGRQLD3UHVLGHQW3KLOLSSH*RPHV ated states in the northern Pacific to lead an eleven-member delegation (Palau, Federated States of Microne- to Australia; in May, the governments sia, Republic of the , RI1HZ&DOHGRQLDDQG)UDQFHMRLQWO\ *XDPDQGWKH&RPPRQZHDOWKRI KRVWHGWKH816SHFLDO&RPPLWWHH the Northern Mariana Islands). In on Decolonization regional seminar November, customary leaders from in Noumea for the first time; and in Palau, Yap, Kosrae, Pohnpei, Nauru, June, a ministerial mission from the and the Marshall Islands also gath- four independent msg countries ered in Koror for the 5th Micronesian YLVLWHG1HZ&DOHGRQLDWRDVVHVV 446 the contemporary pacific ‡ 23:2 (2011) the implementation of the Noumea In regional and international Accord. negotiations, Papua New Guinea 1HZ&DOHGRQLDDQG)UHQFK3RO\QH- has been willing to advance its own sia also approached regional leaders interests to the detriment of collec- to upgrade their status from associate tive regional positions. One example membership in the Forum (Maclellan is Papua New Guinea’s signing of an 2010b, 25). However, the August interim Economic Partnership Agree- Forum meeting saw a significant ment with the European Union before rebuff to this lobbying, with lead- a regional agreement could be final- HUVHQFRXUDJLQJ1HZ&DOHGRQLD§WR ized. According to the Forum’s former continue their dialogue with France trade advisor, “There are Australian in order to be able to satisfy the full commercial interests in PNG that membership requirements of the run trade policy in that country.... Forum” (ie, independence) (Forum These businessmen have in the past communiqué 2010, item 72). sabotaged the epa negotiations by While Paris has pledged its commit- negotiating behind the backs of other ment to the Noumea Accord decolo- Pacific Islanders and completely nization process, the current French undermined Pacific solidarity” (Gryn- government does not envisage inde- berg 2010, 32). pendence for other Pacific dependen- For global climate negotiations, cies. In a January 2010 speech, French Papua New Guinea cofounded the President Nicolas Sarkozy stated that &RDOLWLRQIRU5DLQIRUHVW1DWLRQVDQG France’s overseas collectivities “are is actively lobbying for carbon-credit French and will remain French”; while VFKHPHVXQGHUWKH81&ROODERUDWLYH encouraging greater autonomy, he Program on Reducing Emissions from stressed that there is “one red line that Deforestation and Forest Degrada- I will never accept should be crossed: WLRQLQ'HYHORSLQJ&RXQWULHV redd). that of independence” (Sarkozy 2010). These efforts potentially conflict with Although it is active in the Forum the interests of other members of the and the msg, Papua New Guinea Alliance of Small Island States (aosis), increasingly plays an independent which cannot benefit from the protec- role in regional politics, reflecting its tion of forests as a source for carbon- size as a dynamic, populous nation credit trading (Fry 2008). near the borders of Asia. Papua New In 2010, through a program Guinea is the only Pacific Island coordinated by the Forum Secretariat, nation in Asia-Pacific Economic Prime Minister Somare offered twenty &RRSHUDWLRQ apec) and is seeking full scholarships per year over the full membership in the Association of next five years for Pacific students to Southeast Asian Nations. With major study at PNG institutions. Even as his reserves of timber, fisheries, and min- own leadership was being challenged erals as well as new projects to export at home, Somare announced a more oil and liquefied natural gas (lng), active role on the international stage Papua New Guinea has the potential with the passage of the International to develop its economy well beyond Obligations Bill, which provides the those of neighboring atoll nations. legal framework for PNG participa- pol i t ical reviews ‡ region in review 447 tion in UN peacekeeping operations PNG workers have yet been recruited; (Somare 2010). As US Assistant by the end of December 2010, only Secretary of State for East Asian and 154 Australian visas had been issued 3DFLILF$IIDLUV.XUW&DPSEHOOKDV under the scheme: 133 for Tonga, noted: “Pacific Island countries are 10IRU9DQXDWXDQG11 for Kiribati strong partners who punch above their (Maclellan 2011). weight, stepping up to deploy police Island nations are still largely reli- and military forces for peacekeeping ant on economic and aid support from missions and participating in U.S.–led traditional partners like the United combat operations in the world’s States, European Union, Australia, most difficult and dangerous places” 1HZ=HDODQGDQG-DSDQEXWWKHUH &DPSEHOO2010a). is increasing interest in diversifying Remittances from peacekeepers sources of development assistance and other overseas workers are a and trade. In September, the Solo- crucial element of economic policy in mon Islands foreign minister thanked the region. In October at their annual a range of countries for support, meeting in Niue, Forum economic LQFOXGLQJ&XED,WDO\7DLZDQ3DSXD ministers received a study on “Trends New Guinea, and “our new partners LQ5HPLWWDQFH)HHVDQG&KDUJHV¨ Luxembourg for supporting the Mela- estimating that Pacific workers and nesian Spearhead Group and Portugal families pay at least us$90 million in for supporting Solomon Islands exter- remittance fees each year, the high- nal students” (Shanel 2010). In recent est level in the world. (The average years, Honiara has developed a more cost of sending remittances to Pacific nonaligned foreign policy, building Island countries is 21.7 percent of diplomatic links with Iran and join- the amount remitted when sent from LQJ9DQXDWXWRFDOOIRUDQHQGWRWKH Australia and 15.2 percent when sent 86HPEDUJRRI&XED2QFHVFRUQHG IURP1HZ=HDODQG DVD6RYLHWSUR[\LQWKH,VODQGV&XED In spite of this, Australia’s troubled now trains hundreds of Pacific medi- Pacific Seasonal Workers Pilot Scheme cal students, sends medical workers has failed to match the success of New around the region, and collaborates =HDODQGªVKRUWLFXOWXUDOODERUSURJUDP with Pacific nations as a member of Since 2007WKH1HZ=HDODQG5HFRJ- AOSISDQGWKH816SHFLDO&RPPLWWHH nized Seasonal Employer scheme has on Decolonization. seen nearly 17,000 workers arrive for In June, Pacific leaders met in work in orchards and plantations. Abu Dhabi with members of the 8QOLNH1HZ=HDODQGªVKRUWLFXOWXUH Arab League, hosted by the United industry, Australian growers have Arab Emirates (UAE) Foreign Min- failed to take up Pacific workers under LVWHU6KHLNK$EGXOODKELQ=D\HG$O the seasonal worker pilot, claiming Nahyan. The Arab League pledged overregulation, tight profit mar- tens of millions of dollars of aid and gins, and other industrial pressures. increased trade with Pacific nations. Although Papua New Guinea signed Pacific leaders supported the Arab a memorandum of understanding in League’s call for an Arab Peace Initia- July to join the Australian scheme, no tive in the Middle East, a nuclear-free 448 the contemporary pacific ‡ 23:2 (2011) zone in the region, and backing for the WKH&KLQD–Pacific Islands Forum 8$(UDWKHUWKDQ&DQDGDLQWKHLUELGV Regional Scholarships Program. The IRUDVHDWRQWKH816HFXULW\&RXQFLO Forum Secretariat has increased its Under the interim administration focus on strengthening trade and in Suva, Fiji is also broadening its HFRQRPLFFRRSHUDWLRQZLWK&KLQD international links. Addressing the UN through Beijing-based Trade Repre- *HQHUDO$VVHPEO\LQ6HSWHPEHU&RP- sentative Sam Savou. PRGRUH9RUHTH%DLQLPDUDPDVWDWHG In 2010 Pacific governments com- that “this significant shift in foreign mitted significant resources to be policy direction heralds the global- represented at the World Expo held in ization and maturity of Fiji. It dem- 6KDQJKDL$QLQDXJXUDO&KLQD–Forum onstrates Fiji’s intention to become ,VODQG&RXQWULHV7UDGHDQG,QYHVWPHQW a good and engaged global citizen. Symposium was organized to coincide Accordingly, over the past year Fiji with the World Expo, attended by has formalized diplomatic relations twenty-one businesses from ten Pacific with many countries with which no countries. In turn, three business del- ties previously existed. In addition, Fiji HJDWLRQVIURP&KLQDWUDYHOHGWR)LML has sought membership of the Non- .LULEDWLDQG&RRN,VODQGVODWHULQWKH Aligned Movement” (Bainimarama year for discussions with Pacific Island 2010). counterparts. Fiji’s military-backed government Under President Ma Ying-jeou’s KDVGUDZQRQ&KLQHVHVXSSRUWIRU government, elected in 2008, Taiwan major projects, such as the first wholly is less active with checkbook diplo- &KLQHVHRZQHGKRWHOWKHsss Inter- macy in the region but still maintains national, which opened in Nadi in diplomatic and aid ties with six Forum 20107KH&KLQD'HYHORSPHQW%DQN member countries (Kiribati, Nauru, has also loaned the Fiji government Palau, Marshall Islands, Solomon f$70 million (f$1 us$0.53) for the Islands, and Tuvalu). Taiwanese rep- 6LQRK\GUR&RUSRUDWLRQRI&KLQDªV resentatives met with these countries Nadarivatu hydroelectricity project. DWD3RUW9LODFDVLQRLQ$XJXVWRQWKH Since Fiji obtained Approved Destina- fringes of the Forum leaders meeting. WLRQ6WDWXVWRUHFHLYH&KLQHVHWRXULVWV (Taiwan does not have formal status in 2005, Air Pacific has replaced its as a Post-Forum Dialogue Partner, Nadi–Tokyo flights with Nadi–Hong and in August Forum leaders declined .RQJURXWHVWRWDSWKHJURZLQJ&KL- Palau’s formal proposal to grant Tai- nese tourist market. pei this status.) However, Fiji is not alone in receiv- US government concern over LQJ&KLQHVHGLSORPDWLFDQGHFRQRPLF &KLQDªVHFRQRPLFDQGGLSORPDWLF assistance. In 2008&KLQDSURYLGHG influence in the region has sparked us$206 million in grants and soft renewed engagement by the Obama loans to Forum countries that do not administration. After years of benign recognize Taiwan (Hanson 2009), and neglect of the southwest Pacific by &KLQDKDVJLYHQIXQGLQJWRpifs and the Bush administration, the US State other cropDJHQFLHVXQGHUWKH&KLQD 'HSDUWPHQWªV.XUW&DPSEHOOOHGD 'HYHORSPHQW&RRSHUDWLRQ)XQGDQG large delegation to the Pacific Islands pol i t ical reviews ‡ region in review 449

Forum in August. He also wrote for a new, larger embassy compound Islands Business magazine about in the PNG capital, as Papua New renewed US commitment: “Enhanc- Guinea gears up to manage a booming ing engagement and ‘Stepping up lngLQGXVWU\ &OLQWRQ2010b). With our Game’ in the Pacific is a foreign ExxonMobil and other transnational policy priority for the United States” corporations preparing to exploit the &DPSEHOO2010b). Island leaders have energy boom, the US Export-Import heard such pledges before, but a major Bank has approved the largest trans- initiative in November 2010 was a action in its history to develop Papua trip to the region by Secretary of State 1HZ*XLQHDªVJDVUHVHUYHV&OLQWRQ +LOODU\&OLQWRQ SRVWSRQHGIURPHDUO\ offered the PNG government sup- 2010 due to the Haiti earthquake). port from the US State Department’s &OLQWRQILUVWYLVLWHG+DZDL©LPDNLQJD (QHUJ\*RYHUQDQFHDQG&DSDFLW\ speech on US relations with the Asia- Initiative to assist in energy sector 3DFLILFUHJLRQ&RPPLWWLQJWR§IRU- governance, taxation, and revenue ZDUGGHSOR\HG¨GLSORPDF\&OLQWRQ management of the profits flowing said that “everywhere we go, we will from lng projects in coming years. advance one overarching set of goals: ,Q+DZDL©L&OLQWRQDQQRXQFHG to sustain and strengthen America’s that the US Agency for International leadership in the Asia-Pacific region Development (usaid) will reopen an and to improve security, heighten office in Fiji in 2011 (the first usaid prosperity, and promote our values” presence in the region in sixteen years) &OLQWRQ2010a). This was followed and create a fund of us$21 million by flying visits to Guam, Papua New to support climate change adaptation *XLQHD$XVWUDOLD1HZ=HDODQGDQG programs. The US diplomatic initia- $PHULFDQ6ëPRD tive was warmly welcomed by Fiji’s A key US interest is promot- administration, which has been at ing increased trade liberalization in loggerheads with Australia and New the Asia-Pacific region through the =HDODQG&RORQHO3LR7LNRGXDGXD negotiation of a Trans-Pacific Partner- stated: “Obviously, we appreciate the ship Agreement (tppa). Even as trade confidence of the US government in activists launched an international Fiji and their recognition of Fiji as an campaign to seek the release of draft important link or center of growth tppa negotiating texts (Kelsey 2010), for the Pacific. This is all the more 6HFUHWDU\RI6WDWH&OLQWRQVWDWHG§:H reason why other countries should are also pressing ahead with negotia- follow what the US government has tions for the Trans-Pacific Partnership, done and shown to us by recognizing an innovative, ambitious multilateral us an important link to the rest of the free trade agreement that would bring Pacific” (Nasiko 2010b). together nine Pacific Rim countries, +RZHYHUZKLOH&OLQWRQZDVLQWKH including four new free trade partners 3DFLILF)LMLDQOHDGHU9RUHTH%DLQLPD- for the United States, and potentially rama was in Beijing at a ceremony to RWKHUVLQWKHIXWXUH¨ &OLQWRQ2010a). mark the 35th anniversary of Fiji- ,Q3RUW0RUHVE\&OLQWRQFRQILUPHG &KLQDWLHV%DLQLPDUDPDQRWHG§)LMLªV that the US government is planning UHODWLRQVKLSZLWK&KLQDKDVJRQHIURP 450 the contemporary pacific ‡ 23:2 (2011) strength to strength especially in the +DZDL©L*XDPWKH&RPPRQZHDOWK last four years since we came in.... of the Northern Mariana Islands, &KLQDUHFRJQL]HVZKDWZHDUHWU\LQJ $PHULFDQ6ëPRDDQGWKHVPDOOHU86 to do and what we have gone through territories comprise an invaluable east- because they have gone through the west strategic security zone that spans same things” (Nasiko 2010a). almost the entire width of the Pacific Successive US administrations have 2FHDQ¨ &DPSEHOO2010a). been seeking greater Australian and During her Pacific visit, Secretary 1HZ=HDODQGLQYROYHPHQWLQPLOL- &OLQWRQUHDIILUPHGDUDQJHRIVWUDWHJLF tary deployments such as the war in agreements. US Defense Secretary Afghanistan. The 2010&OLQWRQYLVLW 5REHUW*DWHVDQG&KDLUPDQRIWKH cemented improved strategic relations -RLQW&KLHIVRI6WDII$GPLUDO0LNH ZLWK1HZ=HDODQGWKDWZHUHGLVUXSWHG 0XOOHQMRLQHG&OLQWRQGXULQJKHU in the late 1980s when the US gov- stopover in Australia to discuss for- ernment cut off military and intel- ward positioning of US materiel in ligence links with Wellington over its Australia and increased use of Austra- antinuclear policies. A US briefing for lian military bases and training facili- +LOODU\&OLQWRQUHOHDVHGWR:LNL/HDNV ties. Mullen traveled on to the King- revealed that the US government had dom of Tonga to thank the Tongan resumed intelligence cooperation with government as one of the few regional Wellington, but without the public of countries to send troops to Iraq as either nation being informed: “Our SDUWRIWKH§&RDOLWLRQRIWKH:LOOLQJ¨ intelligence relationship was fully On 41RYHPEHU&OLQWRQMRLQHG restored on 29 August 2009 (which 1HZ=HDODQG)RUHLJQ0LQLVWHU should not be acknowledged in 0F&XOO\WRVLJQWKH:HOOLQJWRQ public)” (WikiLeaks 2010). Declaration, announcing a “frame- The US government is maintain- work of a new United States–New ing its economic support to Palau, =HDODQGVWUDWHJLFSDUWQHUVKLSWR the Marshall Islands, and the Feder- shape future practical cooperation ated States of Micronesia, extending DQGSROLWLFDOGLDORJXH¨ 0F&XOO\ military deployments in the northern 2010). This framework will involve 3DFLILFLQWKHIDFHRISHUFHLYHG&KLQHVH regular high-level political dialogue, strategic influence. Guam is being ministerial level meetings, and annual transformed by the planned relocation political and military talks. As the of US marines from Okinawa and the two foreign ministers met, the New basing of US nuclear attack subma- =HDODQGJRYHUQPHQWUHOHDVHGLWV rines in Apra Harbor. Speaking to the Defence White Paper 2010—the first 86&RQJUHVVLQ6HSWHPEHUWKH6WDWH in a decade. The White Paper looks 'HSDUWPHQWªV.XUW&DPSEHOOQRWHG DW1HZ=HDODQGPLOLWDU\RSWLRQVLQ “The US defense relationships in the the Pacific, in light of pressures on the Asia-Pacific, which form a north- international order; increased pres- south arc from and South Korea sure on maritime resources and risk to Australia, depend on our strong of illegal migration; “South Pacific relationship with the fas [Freely fragility”; and the diminution of Associated States], which along with America’s technological and military pol i t ical reviews ‡ region in review 451

HGJH 1='HIHQFH0LQLVWU\2010, DV6ëPRD3ULPH0LQLVWHU7XLOD©HSD 10–11). Sailele Malielegaoi told the UN Gen- The Wellington Declaration also eral Assembly in September commits the two countries to work 2010: “The much publicized ‘fast more closely on projects in the Pacific, WUDFNªIXQGLQJDQQRXQFHGLQ&RSHQ- including renewable energy and natu- hagen to meet the adaptation needs ral disaster response, at a time when of the most vulnerable countries has climate change remains a key regional become a ‘best kept secret.’ Informa- concern. tion on how much of the pledges In October, regional officials held have been honored, disbursed and to the inaugural CROP([HFXWLYHV&RP- whom, has been scarce. When avail- PLWWHH0HHWLQJRQ&OLPDWH&KDQJH able, the information is vague and The next month, Kiribati hosted an seems bereft of coordination. . . . international conference in Tarawa, The uncertainty as to the legal form, adopting the Ambo Declaration on content and completion date of a &OLPDWH&KDQJHLQWKHOHDGXSWRWKH new treaty makes it a moral impera- VL[WHHQWK&RQIHUHQFHRIWKH3DUWLHV tive for the promised fast track under the United Nations Frame- resources to be made available with- ZRUN&RQYHQWLRQRQ&OLPDWH&KDQJH out delay and with clear simplified (unfccc ZKLFKVWDUWHGLQ&DQFXQ guidelines to ensure that the intended , in late November. While there recipients do indeed access assistance” ZDVOHVVUHJLRQDOHIIRUWLQ&DQFXQ (Malielegaoi 2010). WKDQLQ&RSHQKDJHQLQ2009, officials The issue of climate financing is from the Pacific Regional Environ- a focus of the March 2011 Pacific ment Program (sprep) joined govern- &OLPDWH&KDQJH5RXQGWDEOHLQ1LXH ment, youth, and church delegations drawing on an October 2010 draft LQ&DQFXQ+RSHVZHUHORZDIWHUWKH report to sprep entitled “Mobilizing failure to negotiate a legally bind- &OLPDWH&KDQJH)XQGLQJLQWKH ing treaty at the 2009 Danish sum- Pacific Islands Region,” which out- mit, which ended with a nonbinding lines options for funding that are §&RSHQKDJHQ$FFRUG¨ appropriate for small island states. In early 2010, three Pacific coun- In the Pacific, Solomon Islands WULHV 7XYDOX&RRN,VODQGVDQG is the first Forum country and one Nauru) formally advised the United of only four countries in the world Nations that they could not sign on to submit a proposal for adaptation to the accord, as it failed to address funding under the unfccc Adaptation their core concerns on climate mitiga- Fund. But some small island states tion and adaptation, in spite of accord have limited capacity to report to a pledges for both “fast-track” and range of donor climate mechanisms, long-term financial support for devel- let alone gain easy access to new devel- oping countries to deal with climate opment resources. Beyond this, Oxfam change. Most states in the Islands International has estimated that less region have not benefitted from than 10 percent of climate funds fast-track funding of us$30 billion allocated to date have been spent on in 2010–2012 under the accord, helping people in vulnerable countries 452 the contemporary pacific ‡ 23:2 (2011) adapt to the impacts of climate change forestry products are consistent with (Oxfam 2010). the goals of Australian aid programs At the climate negotiations in and stated commitments to reduce &DQFXQWKH3DFLILF,VODQGV)RUXP greenhouse gases” (Hoisington 2010). signed a memorandum of under- With development impacts a key standing with the European Union concern for atoll nations, Kiribati for a “Joint Pacific–EU Initiative on President hosted a side &OLPDWH&KDQJH¨$XVWUDOLDKDVDOVR HYHQWRQDGDSWDWLRQLQ&DQFXQ7RQJ pledged extra funds for adaptation expressed concern over the slow pace efforts in the region, but behind the of negotiations: “I, as other represen- scenes, the major powers were con- tatives of most vulnerable countries... tinuing to pressure diplomats from [am] disappointed and deeply con- aosis countries to limit their calls cerned that as an international com- for a stronger treaty. For example, munity we continue to focus on nego- Australia reportedly pressured Tuvalu tiating a detailed and comprehensive as it attempted, on behalf of other arrangement which would appease Island states, to plug a loophole for the views of the different groups /DQG8VH/DQG8VH&KDQJHDQG involved in the process. . . . For the Forestry in the draft unfccc treaty. most vulnerable states, time is run- (The loophole would allow logging ning out. We demand that attention be nations to cut down more trees but centered on the needs of those keep increased emissions off the most vulnerable” (Kiribati 2010). books.) One nongovernmental orga- While there were some posi- QL]DWLRQLQ&DQFXQFODLPHG§$XV- WLYHRXWFRPHVIURP&DQFXQIRUWKH WUDOLDQ0LQLVWHUIRU&OLPDWH&KDQJH Pacific, such as the establishment of a DQG(QHUJ\(IILFLHQF\*UHJ&RPEHW *UHHQ&OLPDWH)XQGDQGDSURFHVVIRU reportedly met with Tuvalu Deputy reviewing the global goal of keeping Prime Minister Enele Sopoaga . . . in global temperature rise below two the margins of the negotiations. Feed- degrees centigrade, there are still many back from the margins indicates that hurdles before a legally binding global 0U&RPEHWVXJJHVWHGWKDWUHODWLRQV climate agreement can be realized in between the two countries could be South Africa in December 2011. damaged if Tuvalu does not aban- NIC MACLELLAN don its stand opposing new rules for forests and land use accounting in the Kyoto Protocol’s second commitment period” (Graham 2010). References ,Q&DQFXQ$XVWUDOLDQDQG1HZ =HDODQGRIILFLDOVFRQWLQXHGWROREE\ Abal, Samuel. 2010. Observations and &RQFHUQVRQWKH)DFLOLWDWLRQDQG&RQGXFW for exemptions for agriculture and of the Economic Partnership Agreement forestry, even though the Australia (epa) Negotiations by the Pacific Islands ,QVWLWXWH D&DQEHUUDEDVHGUHVHDUFK Forum Secretariat (pifs). Letter from PNG center) has reported that “the Austra- Minister for Foreign Affairs, Trade and lian Government is not doing enough Immigration to Pacific acp Ministers, 11 to ensure that Australian imports of October. pol i t ical reviews ‡ region in review 453

%DLQLPDUDPD9RUHTH2010. Statement ———. 2010c. Nauru Wants Positive by Prime Minister of Fiji, 65th Session of 5HVXOWVIURP&DLUQV&RPSDFW)RUXP6HF- the UN General Assembly, New York, retariat press statement 2510, 29 March. 25 September. ———. 2010d. Pacific Islands Forum Bohane, Ben. 2010. Island Dreaming: Based on Unity. Forum Secretariat press A Fresh Look at Pacific Regionalism. statement 6910, 4 August. 3DFLILF,QVWLWXWHIRU3XEOLF3ROLF\3RUW9LOD ———. 2010e. pifs Launches Publication Discussion paper 15. on Leadership Practices in the Region. &DPSEHOO.XUW2010a. US Policy in the Forum Secretariat press statement 10510, Pacific Islands. Testimony by Assistant 22 October. Secretary, Bureau of East Asian and Pacific ———. 2010f. pifs5HVSRQVHVWR&ULWLFLVP $IIDLUVEHIRUHWKH+RXVH&RPPLWWHHRQ RQ&RPPLWPHQWWRCSOs. Forum Secretariat Foreign Affairs Subcommittee on Asia, press statement 4510, 10 May. the Pacific, and the Global Environment, :DVKLQJWRQ'&29 September. ———. 2010g. Stocktake on Achievements of Forum after 40 Years. Forum Secretariat ———. 2010b. US Steps Up Its Game in press statement 6310, 15 July. the Pacific. Islands Business, August. Foster, Sophie. 2010. Forum Secretariat &OLQWRQ+LOODU\5RGKDP2010a. Amer- under Attack: PNG Ups the Ante, Sends ica’s Engagement in the Asia-Pacific. Shockwaves. Islands Business, November. Speech by US Secretary of State, Kahala Hotel, Honolulu, 28 October. Available Fry, Ian. 2008. Reducing Emissions from RQOLQHDWKWWSZZZDPHULFDJRYVW Deforestation and Forest Degradation: WH[WWUDQVHQJOLVK20102FWREHU Opportunities and Pitfalls in Developing a 20101028191722su0.9814875 New Legal Regime. Review of European KWPO GLVWLG XFV Community and International Environ- mental Law 17 (2): 166–182. ———. 2010E6HFUHWDU\&OLQWRQ6WUHVVHV Partnership with PNG. Post Courier, 4 Graham, Alistair. 2010. Australia Accused November. of Bullying Tuvalu on Forests. Media release, Humane Society International, Dorling, Philip. 2010a. Policy Failure 8 December. Puts Fiji on Brink of Ruin. The Age, 19 December. Grynberg, Roman. 2010. Forum Runs Amok. Islands Business, November. ———. 2010b. WikiLeaks: US Govern- Hanson, Fergus. 2009. : Stumbling ment Blames Jakarta for Unrest in West Through the Pacific. Policy brief, July. Papua. The Age, 22 December. Sydney: Lowy Institute for International Forum communiqué. 2010. Final commu- Issues. niqué, 41st Pacific Islands Forum leaders +RLVLQJWRQ&DUROLQH2010. Rough Trade: PHHWLQJ3RUW9LOD9DQXDWX3–6 August. How Australia’s Trade Policies Contribute Forum Secretariat. 2010D&DLUQV&RPSDFW to Illegal Logging in the Pacific Region. Peer Review Welcomed in Kiribati. Forum Australia Institute Paper 5, October. Secretariat press statement, 27 April. &DQEHUUD$XVWUDOLD,QVWLWXWH ———. 2010E&RUUHFWLRQWRpacnews Kelsey, Jane, editor. 2010. No Ordinary Misrepresentation on Secretariat’s role Deal: Unmasking the Trans-Pacific Part- under pacer. Forum Secretariat press nership Free Trade Agreement. Auckland: statement 110, 19 January. Bridget Williams Books. 454 the contemporary pacific ‡ 23:2 (2011)

Kiribati Office of the President. 2010. Oxfam International. 2010. Righting Two .LULEDWL3UHVLGHQW7RQJ&DOOVIRUD6WRS :URQJV0DNLQJD1HZ*OREDO&OLPDWH to “Business as Usual” and for “Action” Fund Work for Poor People. Oxfam Brief- WR$GGUHVVWKH&OLPDWH&KDQJH&ULVLV8 ing Note, 6 October. 'HFHPEHUKWWSZZZFOLPDWHJRYNL plp/pifs, Pacific Leadership Program and QHZV20101210B&2316B3UHVLGHQWB7RQJ Pacific Island Forum Secretariat. 2010. B6WDWHPHQWKWPO"LG 863 Country Reports on Actual Leadership Maclellan, Nic. 2010a. Australia to Dump Practice against the Forum Principles of Islands Portfolio? Islands Business, March. Good Leadership: Baseline Survey for the Year . Suva: Pacific Leadership Pro- ———. 2010E1HZ&DOHGRQLD3XUVXHV gram (AusAID) and Pacific Island Forum Full Forum Membership. Islands Business, Secretariat. May. Sarkozy, Nicolas. 20109RHX[jOD)UDQFH ———. 2011. Seasonal Work Programme d’Outre-mer. Speech by President of Makeover: Australia Revamps Troubled France, Saint Denis de la Réunion, Scheme. Islands Business, January. 19 January. Malielegaoi, Tuila‘epa Sailele. 2010. State- Shanel, Peter. 2010. Statement by the PHQWE\3ULPH0LQLVWHURI6ëPRD65th Minister for Foreign Affairs and External Session of the UN General Assembly, New trade, 65th Session of the UN General York, 25 September. Available online at Assembly, New York, 27 September. KWWSZZZXQRUJHQJD65PHHWLQJV Simpson, Stanley, 20101=6SLHGRQ)LML JHQHUDOGHEDWH3RUWDOV1VWDWHPQWV VD\V:LNL/HDNV)LML%URDGFDVWLQJ&RUSR- 634211849807968750:6BHQSGI ration, 16 December. 0F&XOO\0XUUD\2010861=6WUDWHJLF Somare, Sir Michael. 2010. Statement by Partnership Launches New Era. Media the Prime Minister of Papua New Guinea, UHOHDVH1HZ=HDODQG0LQLVWU\RI)RUHLJQ 65th Session of the UN General Assembly, Affairs, 4 November. New York, 27 September. Nasiko, Repeka. 2010a. Bainimarama WikiLeaks. 2007. Subject: Demarche 7RXWV)LMLªV*URZLQJ7LHVWR&KLQD)LML WR*1=RQ7RNHODXDQG6ZDLQV,VODQG Live, 5 November. Diplomatic cable from US Embassy, ———. 2010b. Fiji Government Pleased to Wellington, 17$SULOKWWSZZZQ]KHUDOG Host usaid Office. Fiji Live, 3 November. FRQ]SROLWLFVQHZVDUWLFOHFIP"FBLG 280 REMHFWLG 10695999 Natadola communiqué. 2010. Final com- muniqué, “Engaging with the Pacific” ———. 2010. Scene-setter for Hillary leaders meeting, Natadola, Fiji, July. &OLQWRQªV1=9LVLW'LSORPDWLFFDEOHIURP 86'HSXW\&KLHIRI0LVVLRQ%RE&ODUNH 1='HIHQFH0LQLVWU\2010. Defence US Embassy, Wellington, 6 January. White Paper 20101='HIHQFH0LQLVWU\ KWWSZZZQ]KHUDOGFRQ]Q]QHZVDUWLFOH Manatu Kaupapa Waonga, Wellington. FIP"FBLG 1 REMHFWLG 10693848