Tukuitonga (a retired schoolteacher) by a vote of 63 to 51. Such is the nature of politics on this small island, still losing population (now down to approximately 1,750 people). Had only seven people voted differently, Premier Lui would have gained another three-year term in the twenty-member assembly. Lui’s loss of power appears to have resulted from a number of factors. Until the end he remained an oppo- nent of “party politics,” leaving the People’s Party (npp) the only political party on the island. After campaigning for several years the party at last began to make headway in 1999, although it remains far from dominant (its leader, Sani Lakatani, only came third in the “common roll” seats). Nevertheless its much greater visibility and activity in the villages left it with an advantage over the gov- ernment (which, without a formal political party organization, remained a group of “independents”). Under some pressure, Lui sought to assist the campaigns of some of those sup- porting his government, but the result was a neglect of his own constituency race as well as a general failure to communicate effectively either in the villages or through the media. Niue By contrast Lui’s opponent, Mrs Tukuitonga, staged an effective door- The 1999 general elections on Niue to-door campaign in North. saw the end of the government of Lui’s failure to campaign well even Frank Lui, who had served as the in his own constituency reflected a island’s premier for six years. On 19 degree of complacency and also per- March, however, not only was Premier haps some fatigue. After twenty-five Lui unable to win another term at the years in politics he may have lost head of Niue’s government, but he touch with the voters and some of was also defeated in the contest for his his enthusiasm for the job. This seems seat in the . He lost the to have been reflected in an apparent Alofi North district to Mrs Va‘ainga lack of concern over population losses 232 the contemporary pacific • spring 2000 and an unwillingness (or inability) to complemented by a further 6 that assist businesses in difficulty. Attempts are elected by the island as a whole. to promote freer regional trade may Known as common roll seats, these also have backfired, with growers attract a great deal of public attention unhappy over the import of vegetables and a fairly substantial number of and fruit to Niue. candidates. For 1999 there were 20 Lui had been Niue’s third premier people competing for the six seats, since self-government was achieved, with the top-polling candidate win- succeeding , who had ning 502 votes (of 992 votes cast), held office briefly following the death and the twentieth-polling candidate of Sir . Another member gaining only 31. As has happened at of his government was also punished some past elections, a woman finished by the voters. Minister of Finance in first position. O’Love Jacobsen, Aokuso Pavihi lost his seat in a cabinet minister in the Lui govern- to Billy Graham Talagi, a former ment, led the field, followed by member of the assembly. Thus the another former cabinet minister, Terry two leading members of Niue’s gov- Coe (who had been the leading com- ernment, the premier and the finance mon roll candidate in 1996) with 485 minister, were both ousted by the votes. In third position came the npp electorate. That this was not an indis- leader Sani Lakatani with 474 votes, criminate anti-incumbent vote is clear followed by Hima Douglas with 461, from the other results. and Michael Jackson and In four electorates— (Talaiti- each with 414 votes. The new assem- tama Talaiti), (Young Vivian), bly members include Douglas (a Liku (Pokotoa Sipeli), and broadcaster), Toke Talagi (a former (Jack Willie Lipitoa)—the sitting public servant with business and members were elected unopposed. financial experience), Motufoou (an As for the remaining ten village con- employee of the Niue Development stituencies, incumbents were reelected Bank), Puletama (a planter), Billy in six of them—Alofi South (Robert Graham Talagi, and Mrs Tukuitonga. Matua Rex), Tamakoutoga (Peter The first meeting of the Legislative Funaki), (John Operator Assembly was held a week after the Tiakia), Toi (Dion Taufiti), Hikuta- election. On Friday, 26 March, the vake (Opili Talafasi), and (Fisa assembly elected former assembly Pihigia), with five of them winning by member Tama Posimani (the npp wide margins. Apart from Lui and nominee) as its Speaker. The vote was Pavihi, the only other electorate 14–6 and was followed immediately assembly member to lose his seat was by the election of Lakatani as premier Mutulau’s Hafe Vilitama, who was (defeating Jacobsen, the first woman defeated by Bill Vakaafi Motufoou ever to be nominated for the position) (by 38 votes to 29). There was only by the identical margin. Mrs Jacobsen one seat, , where there was was supported by Coe, Tiakia, Talaita, no incumbent candidate, and the Funaki, and Lipitoa. An hour later result, a 22–21 victory for Tofua Lakatani announced his cabinet, Puletama, could not have been closer. which included Young Vivian as Niue’s 14 electorate seats are deputy (responsible for Education, political reviews • 233

Community Affairs, Art, Culture, Manila to plead for a loan from the Women’s Affairs, Youth Affairs, and Asian Development Bank (adb). This Environment), Dion Taufitu (Admin- he failed to achieve, not surprisingly, istrative Services, Public Works, Agri- given Niue’s ambiguous political sta- culture, Fisheries, Forestry, Employ- tus, dwindling population, and mea- ment, and Broadcasting), and Robert ger economic resources. Rex Jr (Health, Niue Public Service was also unenthusiastic about the Commission, Justice, Lands and Sur- prospect of having to meet the pay- vey, Shipping and Trade, Police and ments on any adb loan were Niue to Immigration). In addition, Douglas default. In any case the rejection may and Toke Talagi were appointed asso- have saved Niue from acquiring an ciate ministers, Talagi with responsi- unmanageable debt burden. bilities for economic development and The application to the Asian Devel- civil aviation, and the experienced opment Bank was a response to the and capable Douglas available for major challenge facing the govern- a range of activities. ment, one that is more ongoing and Lakatani retained some of the more vital to its economic and political powerful ministerial responsibilities future. While New Zealand appears for himself. These included Finance, to be constitutionally obligated to Economic Development, Offshore provide financial support for Niue, Banking, Tourism, Civil Aviation, Post it has nevertheless been resolute in and Telecommunications, and Exter- implementing annual $250,000 cuts nal Affairs. While in some parliamen- in budgetary assistance. At this rate tary systems there would be strong all such assistance will disappear resistance to a head of government eventually, leaving the Niue govern- also holding the Finance portfolio— ment in the interim to discover or to say nothing of External Affairs as invent ways to provide some income well—the size of Niue’s cabinet (lim- for itself. This will be difficult to ited to four members) and the scale of accomplish, as the population attri- its economy and politics makes such a tion and the absence of economic combination more plausible. growth leave the island with little in Lakatani’s first challenges as pre- the way of a tax base. Rumors that mier and minister of finance were not New Zealand aid may disappear especially pleasant ones. First, he had altogether by 2002 or 2003 seem to deliver on his campaign promise to somewhat premature, however. repeal the previous government’s leg- While some other Pacific islands islation granting Niue’s cabinet minis- have been experiencing environmental ters (including the premier) a 60 per- and social stresses due to a rising pop- cent pay increase. This painful duty ulation, for Niue the pressures stem was partly achieved, with a 40 per- from the steady loss of its people. cent reduction being implemented as During the eleven-year period in from 1 July 1999 (the discrepancy which I have been writing these com- between the two being explained as mentaries for The Contemporary a cost-of-living adjustment). Pacific, the number of people living The second major challenge on Niue has declined by slightly more involved a journey by Lakatani to than 25 percent. Few countries in 234 the contemporary pacific • spring 2000 recent times have had to grapple with health services? Could the island’s the problems brought about by such many abandoned homes be easily an unusual phenomenon. If this trend renovated? What are the likely conse- continues much further, it seems quences for land use, the environment, inevitable that the question of Niue’s fishing, community activities, the status as a self-governing state “in free economy, and so on? No one knows. association with New Zealand” will Although the New Zealand govern- come up for review. The experience ment’s present willingness to allow at of the Chatham Islands (admittedly least some Niueans to continue to physically closer to New Zealand receive New Zealand superannuation than Niue), which are an integral part even if they return to Niue has been of New Zealand, provides a possible welcome, it is interesting that initial model for policymakers. reactions (intended to be reassuring) Even the introduction of full from Premier Lakatani suggested that “portability” for Niuean recipients of perhaps not many residents would New Zealand government pensions want to come back in any case, and (“superannuation”) is expected to so there was no need for alarm. In have little impact on demographic this he may be correct, as a postelec- trends. The policy (which applies to tion tour of New Zealand by Young Niueans who have lived in New Zea- Vivian (another in a series of visits by land for at least twenty years, and for government leaders designed to per- at least five years while over the age suade Niuean residents to “return of 50) only becomes effective from home”) was greeted with some public 1 October 1999. It is interesting that criticism from Niueans living in New so little is known about the policy Zealand. That Niuean residents of consequences of a measure that was New Zealand are now prepared to achieved only after many years of respond negatively in public to these difficult negotiations with successive periodic invitations to go back to New Zealand governments. It is not their island shows the extent of resis- only a question of not being able to tance to such appeals and the degree determine whether significant num- to which Niueans living in New bers of Niueans in New Zealand will Zealand feel comfortable with their be able or willing to take advantage lives there. of this newly granted flexibility. For Yet the npp government has many years the return of Niueans declared a goal of virtually doubling from New Zealand has been empha- the population (to 3000) over the sized as a solution to many of Niue’s next three years. Where will the problems. Ensuring that Niueans people come from? Niueans may be choosing to return to the island were asked their opinions (either informally not “punished” by a loss of benefits or through a referendum) about the (in this case, superannuation) was one possible resettlement of Tuvaluans on way of making it more likely that this Niue. It is also possible that some might happen. But if older Niueans Tongans may wish to migrate to Niue, were to return, could the island cope? if encouraged to do so, in order to What would be the impact on Niue’s eventually qualify for a New Zealand political reviews • polynesia 235 passport (and residence in New Zea- Speaker and for Mrs Jacobsen appear land), a familiar life-style choice but to have been negligible, Niue’s chief one that would do little to solve of police (a New Zealander on con- Niue’s long-term population problems. tract) was suspended from his posi- Not surprisingly, Lakatani’s npp tion by the Niue Public Service Com- administration has attempted to mission for failing to carry out the separate itself from features of its Speaker’s order to evict Mrs Jacobsen. predecessor’s regime. Control over the Similarly, the attorney general public service is an important prize, (another expatriate) was dismissed by given that it remains the island’s main the cabinet, apparently for giving the employer. Since taking office, two chief of police legal advice that had members of the Niue Public Service the effect of discouraging him from Commission have left, their positions responding to the Speaker’s order. being filled by supporters of the Niue Not surprisingly, the government’s People’s Party. This leaves the three- actions against the two public ser- person commission (which as the vants, who perhaps most of all need employing authority for the island’s to be independent from partisan poli- public service is legally responsible tics, suggest that Niue may be in for for the management of all government some very erratic governance over departments) entirely in the hands of the next few years. The attempts to persons with npp backgrounds. dismiss the chief of police and the More dramatic and controversial attorney general were met by court personnel changes arose following the challenges. Ultimately, each resigned first sitting of the new assembly, at and departed, but not without some which there were heated exchanges measure of satisfaction: the attorney between the new Speaker and Mrs general received an out-of-court settle- Jacobsen over the allocation of mem- ment, while the chief of police suc- bers to parliamentary committees. ceeded in winning a court battle to As a result, the Speaker, who though clear his name. elected by the assembly may not be The new government has taken chosen from among its members, some early policy initiatives. It can- ordered Mrs Jacobsen from the cham- celed plans for the sale of the Niue ber. As a person elected to the assem- consul general’s residence in Auck- bly by the island’s voters, she claimed land, thus at the very least postponing a higher mandate from the electorate the possible establishment of a high and refused to leave. The Speaker commission in Wellington, the New then instructed the clerk of the House Zealand capital. The government also to notify the police so that Mrs Jacob- decided to close Niue’s tourist office sen might be escorted from the cham- in Auckland, however, and it further ber. However, although the police decided to establish commissions of station is only a hundred meters from inquiry into the operations of the the assembly building, Mrs Jacobsen island’s philatelic bureau and its off- was still at her seat as the session shore banking industry. came to a close. The Niue People’s Party hopes to While the consequences for the transform Niue’s economic prospects 236 the contemporary pacific • spring 2000 by encouraging some manufacturing, assistance from Australia and respon- introducing some land reform (to be sible for saving of millions of liters of carried out by the purchase of Crown waters annually, as well as thousands land, which would then be leased for of dollars in pumping charges. Niue is business purposes), and by a possible also (oddly enough) the first country further round of corporatization or in the world to offer its entire popu- privatization of state-owned activities. lation free email and Internet access The overall aim is to generate employ- (courtesy of the Internet Users Soci- ment outside the public service, and ety). This action may have the effect to permit reductions in the govern- of easing any sense of isolation, but ment payroll. The government’s can also have the effect of further budget is about nz$17 million, while nurturing the desire of young people New Zealand aid provides nz$2.5 to leave the island for a more exciting million for special projects and life elsewhere. nz$3.75 million in budgetary assis- Finally, although the island’s health tance. Strains on the budget have service is not free from criticism, Niue been intensified by the new govern- remains one of the few places in the ment’s increases to pensions and world where the population is identi- child allowances, offset in part by fied as being completely aids and hiv the reduction in salaries for the four- free (others include the Cook Islands person cabinet. and Tokelau, each associated with Signs of economic distress are not New Zealand in one way or another). difficult to observe. The number of stephen levine businesses registered on the island has declined in two years from 157 to 88. Among those to close during 1999 are the venerable Niue Trading Store (formerly Burns Philp SS Company) and the long-established R R Rex & Sons, after forty years, an establish- ment that was something of a land- mark in the island’s history, economy, and politics. On the positive side, some increased business activity and visitor flow is expected from the America’s Cup competition in Auckland in the year 2000. The possibility of a new Niue airline has been raised, and there have been additional flights to the island as a result of connections established through Air Rarotonga. Other bright spots for Niue include its significantly improved water sys- tem, made possible through technical