Political Reviews

7KH5HJLRQLQ5HYLHZ,QWHUQDWLRQDO,VVXHVDQG(YHQWV nic maclellan

0HODQHVLDLQ5HYLHZ,VVXHVDQG(YHQWV david chappell, jon fraenkel, solomon kantha, muridan s widjojo

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Pacific regionalism is being trans- tion should be intensified and acceler- formed. As the economies of Europe ated” (pifs 2012h). and the United States (US) slowly In recent years, there has been recover from financial crisis, many quiet—and not so quiet—criticism of Pacific countries are investigat- the Secretariat ing South-South cooperation and (pifs), suggesting that it is not fully are extending their aid, trade, and engaging with the needs of member political links with emerging econo- states. A comprehensive review of the mies in Asia. During the year, Island pifs in 2012 by Peter Winder of New leaders launched reviews of key Zealand, Tessie Eria Lambourne of regional frameworks and institutions, .LULEDWLDQG.RORQH9DDLRI6ëPRD including the Pacific Plan and the made a series of recommendations for Melanesian Spearhead Group (msg). reforming the secretariat’s structure, This Melanesian bloc also under- leadership, and priorities (Winder and took new initiatives on trade and others 2012). A leaked draft of the , while ’s central review highlighted competition among role in regional politics continued members of the Council of Regional as governments and civil society Organizations of the Pacific (crop): debated the nation’s flawed transi- “A broad range of stakeholders noted tion toward parliamentary elections the apparent competition between in 2014. Working with the msg regional agencies (sprep, spc and the rather than the Pacific Islands Forum Secretariat) for mandate and fund- (pif), the postcoup regime in Fiji has ing with respect to climate change transformed the country’s foreign issues”; it also noted that “the level of policy and has begun to play a more engagement between the Secretariat independent role on the regional and and member states is weak in both international stage. directions” and recommended that In 2012, the first visit to a pif the pifs “should not have any hands- Leaders Meeting by a US secretary on role in delivering donor funded of state highlighted increasing inter- projects that fall outside of its core national engagement with Island mandate” (Winder and others 2012, states, and the election of new leaders 7, 4, 5). in Paris, Beijing, and Tokyo opened By year’s end, there had been the way for shifts in policies toward several corporate reforms intended the region. to strengthen senior management in At the annual meeting in the Cook the secretariat, including updating its Islands, pif leaders announced the information technology systems and launch of a major review of regional developing policies for a new com- coordination, while Forum Secretary- munications strategy and a reporting, General Tuiloma Neroni Slade stated: monitoring, and evaluation frame- “Our efforts towards regional integra- work. In December, the Forum Offi-

352 political reviews ‡ region in review 353 cials Committee met to discuss a new agenda has broadened, with signifi- pifs Corporate Plan for 2013–2018. cant pressures on the region’s institu- Beyond this, however, Forum lead- tional architecture. ers deferred further action at their The Forum is deeply rooted in annual meeting in Rarotonga, agreeing regional frameworks and has become that the Winder review’s key recom- a focal point for international engage- mendations would be rolled into a ment—highlighted by recent visits to broader review of the Pacific Plan for Forum leaders’ meetings by United Strengthening Regional Cooperation Nations Secretary-General Ban and Integration. Ki-moon, US Secretary of State Hillary As a framework for regional coor- Clinton, European Commission dination, the Pacific Plan grew out President José Manuel Barroso, and of a 2004 Forum Eminent Persons other international dignitaries. But Group, which called for a new vision just as Island leaders stepped out of for Pacific regionalism. However, the the South Pacific Commission in 1971 resulting policy framework—first to create a forum where they felt free endorsed by Forum leaders at their to talk politics, Pacific Island leaders 2005 meeting in Madang—was one are again seeking spaces where they of the least visionary documents to can address their concerns and visions appear in recent years. It was widely without the major powers setting the criticized for downplaying issues of agenda. culture and gender (Huffer 2006), and In 2010, Fiji Prime Minister Voreqe its priorities often reflected the exist- Bainimarama initiated the “Engag- ing agenda of regional intergovern- ing with the Pacific” meetings as a mental bodies. counterpoint to the Forum. In August The Pacific Plan Review Team is 2013, these meetings will evolve into led by former Papua New Guinea a new Pacific Islands Development Prime Minister Sir Mekere Morauta, Forum (pidf). The pidf will build on working with two officials represent- debates about “green growth” and LQJ)RUXP,VODQG&RXQWULHV 6ëPRDªV the Pacific Conference of Churches’ Noumea Simi and former Federated “Rethinking Oceania” proposals. It States of Micronesia Vice President will also work on alternative develop- Redley Killion) and two international ment measures such as “Alternative consultants (British aid advisor Peter Indicators of Well-Being for Melane- Bazeley and public sia,” a 2012 pilot study produced in sector reform expert Nick Poletti). In Vanuatu for the msg (vnso 2012). December, Morauta called for public Over time, however, it will be worth submissions on the plan, and through- monitoring to see whether the pidf out 2013 the review team will travel becomes the venue for interisland dia- to Forum member countries, New logue without Forum members Aus- Caledonia, and French to tralia and New Zealand in the room seek public comment. (along with other multilateral Forum Morauta’s review comes at a time observers such as the , when there is widespread debate about the , the regional institutions. The international acp [African, Caribbean, and Pacific] 354 the contemporary pacific ‡ 25:2 (2013)

Secretariat, the Commonwealth, and assembly, and the Fiji military threat- the ). ening to rewrite the draft. Renewed Forum engagement with Ongoing harassment of trade the US and French territories also union leaders and restrictions on opens new debates about the criteria union organizing in Fiji brought for full Forum membership. Island international attention. A delegation nations pushed for action on decolo- from the Australian Council of Trade nization at the Non-Aligned Move- Unions (actu) was refused entry in ment (nam) summit in August and December 2011, and in September the United Nations General Assembly 2012 a visiting International Labour (unga) in September. In contrast, Organization (ilo) mission on free- Australia’s Parliamentary Secretary for dom of association was obliged to Pacific Island Affairs Richard Marles depart without completing its man- backed France’s role in the region and date. The ilo reported that “the said that his government supported government had initially agreed to New Caledonia becoming a full mem- the ilo mission, but then called it ber of the Pacific Islands Forum now, short during the first meeting.... even before the French colony makes The Office of the Prime Minister a final decision on its political status presented the mission with entirely after 2014 (Maclellan 2012b). new terms of reference, which the ilo The Bainimarama regime contin- found unacceptable. As a result, the ues to transform Fiji’s regional and ilo mission was asked to leave Fiji international relations, even as debate immediately” (ilo 2012). continues at home over the drafting As relations with Canberra and of a new constitution and repression Wellington continue to sour, Fiji has of trade unions and political parties. begun to step away from its historic With initial signs of openness in early ties to the Commonwealth and the 2012, the Forum Ministerial Contact Australia, New Zealand, and United Group visited Fiji in late April, the States () alliance and is engag- first official trip since 2008. Forum ing in more South-South diplomacy. members welcomed the lifting of In recent years Fiji has established Public Emergency Regulations in diplomatic relations with a range of January and continued to monitor key developing nations, setting up five progress toward a new constitution in new embassies since 2010 (including 2013 and national elections in 2014. new missions during 2012 in Seoul Australia and New Zealand funded and Abu Dhabi). national consultations for a new con- Opening the July “Engaging with stitution throughout 2012, conducted the Pacific” meeting, Commodore by a team led by constitutional lawyer Bainimarama stressed that Pacific and scholar Yash Ghai. By year’s end, nations require an independent voice: however, the Fiji regime’s relations “We must insist that our voice be with the Constitution Commission heard and heeded. . . .We will dine were in tatters, with police seizing at the table; we will not be content printed copies of the draft docu- to pick at the crumbs that remain on ment to be submitted to a constituent the table cloth after the decisions are political reviews ‡ region in review 355 made and dinner is over” (Bainima- Sugar Organization. This 85-member rama 2012). body administers the International After joining the Non-Aligned Sugar Agreement, and Fiji’s appoint- Movement in 2011, Fiji Foreign ment comes at a significant time; its Minister Ratu Inoke Kubuabola trav- key industry is in crisis with falling eled to Tehran for the nam summit prices, aging infrastructure, and quota in September 2012, signing a memo- exports to the (EU) randum of understanding to establish ending in 2015. diplomatic relations with Iran (Fiji Within the msg, Fiji has taken the Ministry of Information 2012). Ratu opportunity to advance issues that Inoke also traveled to Pyongyang as are low on the Forum’s agenda. Ratu Fiji became the first Pacific Island state Inoke’s attendance at the 2012 nam to accredit an ambassador to North summit led to recognition of the role Korea (Rauto 2012). Beijing-based of Fiji and Papua New Guinea (PNG) Ambassador Esala Teleni (a former on the UN Special Committee for naval commander and police commis- Decolonization, with the nam commu- sioner) serves as Fiji’s first accredited niqué stating: “The Heads of State or diplomat to the North Korean regime. Government affirmed the inalienable Not everyone is sure that these right of the people of French Polyne- changes will benefit Fiji. Historian sia–Maohi Nui to self-determination Brij V Lal, one of the coauthors of in accordance with Chapter XI of the Fiji’s 1997 Constitution, argues that Charter of the United Nations and the “these are short-sighted and eventually UN General Assembly resolution 1514 counterproductive diplomatic games (XV)” (nam 2012). Fiji is playing with no serious expecta- Even as President tion of any far-reaching benefits.... Oscar Temaru sought support from Perhaps all these new initiatives will Pacific states in his bid for reinscrip- be allowed quietly to relapse once Fiji tion on the UN list of non-self-gov- returns to parliamentary democracy, erning territories, the August Forum and once no benefits are seen to derive meeting in Rarotonga reaffirmed the from them” (2012, 88–89). Australian and New Zealand posi- However, there is evidence that tion, calling for further dialogue Fiji’s expanded role in the Group of between Paris and . However, Asia and Pacific Small Island Devel- MXVWDPRQWKDIWHUWKH)RUXP6ëPRD oping States at the United Nations is Solomon Islands, Fiji, and Vanuatu coming up with results. In September, called for action on decolonization Fiji was nominated by the UN Asia- at the UN General Assembly, explic- Pacific group to chair the “Group of itly supporting French Polynesia’s 77 and China” for the duration of ULJKWWRVHOIGHWHUPLQDWLRQ$V6ëPRD 2013. This is the first time in nearly celebrated its fiftieth anniversary of fifty years that a Pacific Island country independence from New Zealand has led the 132-member organiza- during 2012, Samoan Prime Minister tion of developing countries in the Tuilaepa Sailele Malielegaoi told the United Nations. Also in 2012, Fiji was General Assembly: “In the case of elected as chair of the International French Polynesia, we encourage the 356 the contemporary pacific ‡ 25:2 (2013) metropolitan power and the territory’s organized with the International leadership together with the support Federation of Association Football of the United Nations to find an ami- (fifa) and a visit by the Duke and cable way to exercise the right of the Duchess of Cambridge, prompting people of the territory to determine Prime Minister Darcy Lilo to declare, their future” (Tuilaepa 2012). “We have regained our image of the The msg is also increasing its country known as the ‘Happy Isles’” support for the Front de Libéra- (Lilo 2012). In May, the Forum tion Nationale Kanak et Socialiste Ministerial Standing Committee on (flnks) in New Caledonia. The MSG Solomon Islands met in Honiara. After sent a mission to New Caledonia in a decade, the Regional Assistance August to monitor the progress of Mission to Solomon Islands (ramsi) the Noumea Accord. Leaders sub- is beginning to wind down, with the sequently established an flnks Unit transition of development assistance within the msg Secretariat in Port Vila from ramsi to bilateral donors sched- to act on initiatives that were previ- uled for mid-2013 and the planned ously undertaken by the pifs. withdrawal of ramsi’s military com- The msg will hold its annual ponent in the second half of the year. leaders meeting in New Caledonia in Trade policy continues to be a June 2013, together with a ceremony central focus of regional networking. to commemorate the msg’s twenty- Even as the global Doha trade negotia- fifth anniversary and a Melanesian tions foundered, 2012 saw significant cultural festival. These strengthened new engagement with the World Trade links across colonial boundaries Organization (wto). After lengthy and have a practical purpose. The flnks FRQWHVWHGDFFHVVLRQSURFHVVHV6ëPRD will take up the rotating chair of the became the wto’s 155th member in Melanesian bloc for 2013–14, at a May and Vanuatu became the 157th crucial time for the Kanak indepen- member in August. In November, wto dence movement. Elections for New Director-General Pascal Lamy made Caledonia’s provincial assemblies and his first visit to the region. Stopping in Congress in 2014 will determine the 6ëPRDDQG9DQXDWX/DP\VLJQHGD balance of forces for any subsequent memorandum of understanding with decision on the territory’s future pif Secretary-General Slade for five political status, with a referendum years of trade-related technical assis- scheduled to take place between 2014 tance to Forum Island Countries. and 2018. Other donors are making sig- Melanesian links were also high- nificant investments in trade policy lighted during July, when Honiara through a “Hub and Spokes” program hosted the Festival of Pacific Arts. in order to build capacity for trade Thousands of artists, dancers, and negotiations and develop trade poli- sculptors traveled to Solomon Islands cies. The Commonwealth Secretariat from across the region. Throughout and the European Union have funded 2012, Solomon Islands hosted a num- the development of trade policy ber of international events, including frameworks for the Federated States the Oceania Football Tournament of Micronesia, the Marshall Islands, political reviews ‡ region in review 357

Nauru, and Vanuatu, with other coun- There is also a suspicion on our side tries to follow. that maybe they are trying too hard to Former wto official Edwini Kessie get all that they want, and there is no took up the position of chief trade degree of compromise in the arrange- adviser for the Forum Island Countries ments we need to put in place” (rnzi (fics) in early 2012, revitalizing the 2012). faltering pacer-Plus trade talks with The European Commission con- Australia and New Zealand. Kessie’s tinued to ignore Pacific calls for a Office of the Chief Trade Adviser “development friendly” agreement, (octa) now has established a base in with increased aid for trade as well Vanuatu, winning support from the as openings on labor mobility and MSG Secretariat in Port Vila after a global sourcing rules of origin for battle with the pifs over trade policy. fresh, chilled, and frozen fish. Meet- At their May meeting in Majuro, ing before the Forum in August, pacp Forum trade ministers “reemphasized leaders noted: “The initial focus on that pacer-Plus should not result in development cooperation in the epa a conventional free trade agreement negotiations has been superseded by a and that it should contain provisions focus on technical trade issues, while that would ensure sustainable growth the Pacific acp Leaders are seeking a and development of the fics” (ftmm re-emphasis on the original intent for 2012, 6), including action on labor a development-friendly epa” (pifs mobility and development coopera- 2012f). tion. In July, after a three-year pilot, In October, Pacific trade nego- Australia commenced its Seasonal tiators traveled to Brussels for Joint Worker Program as an expanded Technical Working Group negotiations scheme for unskilled labor mobility between the pacp and the European (Maclellan 2012a). Commission, the first face-to-face Beyond pacer, negotiations for meeting since October 2009. How- a comprehensive regional Economic ever, it was soon clear that EU offi- Partnership Agreement (epa) continue cials were unable to respond to the with the European Union. Pacific Pacific agenda (Matau 2012). Having members of the African, Caribbean, obtained interim epas with Fiji and and Pacific group (pacp) started talks Papua New Guinea in 2009, EU with the European Union in 2004, negotiators are more focused on Africa with a treaty supposed to have been and the Caribbean than on a regional finalized by the end of 2007. But the deal incorporating the remaining small epa talks are lagging more than five Pacific states. years behind this deadline. In spite of The regional trade debate was a pledge to complete negotiations by transformed in November at a Port the end of 2012, EU and pacp nego- Moresby pacp meeting, when leaders tiators once again failed to meet their agreed that all countries of the pacp timetable. According to Premier will now participate in all meetings. Toke Talagi: “There is a degree of This means that Fiji will be reengaged frustration on our part at the fact that in the pacp at all levels, even though this agreement has not been signed. it is suspended from Forum and 358 the contemporary pacific ‡ 25:2 (2013)

Commonwealth activities. In another With the signing of a memoran- key outcome of the meeting, Papua dum of understanding between Fiji, New Guinea offered to host and fund Papua New Guinea, Solomon Islands, a new secretariat to convene pacp and Vanuatu, the msg Skills Move- Leaders meetings (until now, adminis- ment Scheme is slowly getting off the trative services have been provided by ground. In the education sector, Fiji the pifs). Just as octa was established National University and the Univer- to provide independent advice in the sity of the South Pacific are discuss- pacer-Plus negotiations, the new pacp ing expansion to Papua New Guinea administrative secretariat will eventu- and Timor-Leste. Fiji has signed ally provide an alternative source of a memorandum of understanding trade policy advice. According to the on development cooperation with pifs, the Port Moresby decisions are Kiribati, , Solomon Islands, the “respectful of the Forum position” Marshall Islands, and Nauru. Through that excludes Fiji from regional activi- the Fiji Volunteer Service, the first ties (pifs 2012b). However, it is clear twelve teachers headed off to Marshall that Fiji will play a more significant Islands in September. role in setting regional trade policy. For many years the Small Island PNG and Fiji officials have voiced States (sis) have caucused before extensive critiques of the Forum’s Forum leaders’ meetings and issued a trade work in recent years, amid communiqué on their particular con- perceptions of excessive Australian cerns. There is now an sis Unit within influence in Suva. the pifs, and sis Pacific Plan desk Former University of the South officers are posted in all sis member Pacific economist Wadan Narsey countries (, Kiribati, highlighted the importance of these the Marshall Islands, Nauru, Niue, decisions for the region: “The Forum Palau, and Tuvalu). Given their limited Secretariat is very seriously in danger capacity to fully access regional initia- of being marginalised in the Pacific tives, sis leaders lobbied in 2012 for and I think to some extent when you more contributions to the sis Develop- look at the recent readmission of Fiji ment Fund (a trust established in 1987 to the Pacific-acp negotiations, in a and administered by the pifs). way that is a symptom of the fact that After its founding in 2011, the the Melanesian countries are not going Polynesian Leaders Group (plg) met to allow one of their partners to be in in 2012. The idea of a Polyne- marginalized from regional and inter- sian bloc within the Forum has been national trade negotiations” (Radio mooted for decades, but the initia- Australia 2012). The revitalization of WLYHKDVQRZEHHQUHYLYHGE\6ëPRD pacp and msg trade policy means new driven in part by the Samoan prime subregional initiatives may show more minister’s very public disdain for the promise. The msg Trade Agreement Bainimarama regime. The Polynesian will take on new life, following Papua nations are also seeking to develop New Guinea’s agreement to reduce common policies on information and duties on almost all of its protected communication technology, com- goods in 2012. munications cables, and fisheries. political reviews ‡ region in review 359

At the plg meeting, there were also financial accountability assessments, invitees from Hawai‘i, Rapanui, and and Nauru, Kiribati, the Cook Islands, Aotearoa—the far-flung inhabitants and began to implement public RIWKH3RO\QHVLDQWULDQJOH0ëRUL financial management reforms. members of the 56-member Iwi Chairs The renewed focus of key donors Forum lobbied for full plg member- on private sector development has ship (Workman 2012). The potential put pressure on social programs. A for indigenous peoples living with con- review team led by former World strained sovereignty to join a subre- Bank Vice President James Adams gional network raises important issues recommended that the Secretariat of for the region, with the West Papuan the Pacific Community (spc) hand nationalist movement also lobbying over responsibility for long-running for msg observer status. programs on youth and culture to In spite of this subregional activity, other agencies. They also proposed the main intergovernmental agencies transferring the women’s training continue to coordinate their regional program at the Community Education programs, with crop agencies debat- Training Centre in Suva and human ing the allocation of responsibilities rights work conducted by the Regional and finances where mandates overlap. Rights Resource Team. This neoliberal A key priority during the year was belt-tightening raises real questions, as continuing implementation of the other agencies that might take respon- 2009 Cairns Compact on Strengthen- sibility for these programs do not have ing Development Coordination in the outreach to the US and French ter- the Pacific. A major focus under the ritories that is a hallmark of the spc. Cairns Compact was the ongoing The key prism for development series of “peer reviews” to assess outcomes across the region is the Mil- the effectiveness of aid management lennium Development Goals (mdgs). systems. Throughout 2012, teams But with only two more years to of fellow Island officials and donor achieve the goals before the 2015 mdg experts traveled to the Marshall summit, there is still a way to go. The Islands (February), Tonga (August), Cook Islands and Niue are the only Papua New Guinea (October), and Island countries on track to achieve the Federated States of Micronesia all their mdgs. Other Polynesian (November). nations have not reached the target for Through “policy dialogue” and reducing poverty, although they are on liberal allocation of funding, donors track for four of the goals: achieving like AusAID and the New Zealand universal primary education, reducing Ministry of Foreign Affairs and Trade child mortality, improving maternal have been promoting reform of state- health, and ensuring environmental owned enterprises and public financial sustainability. management systems at the country In contrast, Micronesia, when taken level. In 2011–2012, the Cook Islands, as a whole, is not on track for any Niue, the Marshall Islands, Tuvalu, goal, although Palau is on track for six and the Federated States of Microne- out of seven, and all other Microne- sia completed public expenditure and sian countries apart from Kiribati are 360 the contemporary pacific ‡ 25:2 (2013) on track for two. A pifs study found are only an abstract notion deliber- that the largest Melanesian nation ately kept undefined, because any is skewing the regional results: “As clarity or debate on who they are and PNG is off track on all the mdgs, the what precisely could be done for them region is also off track on all the goals. would be too challenging and disturb- However, excluding PNG, the region ing” (Ielemia 2012, 2). is on track towards reducing child Tuvalu’s plea reflects the dif- mortality, with mixed progress on all ficulties faced by smaller countries the other goals” (pifs 2012e). in dealing with a diverse range of Raising Island concerns at the inter- development partners. A report national level is an ongoing challenge, presented to Forum leaders in although the unprecedented visit to Rarotonga noted that there is a major the 2011 Forum leaders meeting by problem with “mission overload,” as UN Secretary-General Ban Ki-moon planeloads of consultants arrive every has begun to expand UN-Pacific rela- week to plunder Pacific expertise tions. In June, the heads of UN mis- for reports that often get left on the sions operating in the Pacific met in shelf. The Forum review notes that Suva for the first time with representa- “development partners (including tives of crop agencies to strengthen regional organisations) need to reduce collaboration and coordination. At the the number of missions, engage in General Assembly in September, Ban more coordinated missions, provide Ki-moon joined visiting Pacific lead- forward mission schedules and adhere ers for the first meeting of the United to governments’ mission free periods” Nations and Pacific Islands Forum (pifs 2012i, viii). leaders, hoping for “new momentum One mission that was welcomed in for addressing the needs and priori- 2012 was the unprecedented visit to ties of sids [small island developing the August Forum leaders meeting by states]” (Ban 2012). US Secretary of State Hillary Clinton. But the rhetoric of cooperation has Dubbed “Auntie Hillary” in the Cook a long way to go before it is trans- Islands (Leahy 2012), Clinton won lated into action. Speaking to the UN plaudits for her appearance in Raro- General Assembly, Tuvalu’s Foreign WRQJD,QVSLWHRIWKLV6ëPRDªV3ULPH Minister Apisai Ielemia sharply Minister Tuilaepa Sailele Malielegaoi critiqued the lack of attention to sids’ told Chinese reporters that senior US demands within the UN bureaucracy: leaders had ignored the islands for too “As much as we appreciate the work long: “You must remember that the of various UN departments and pro- United States has been a post-Forum grams on sids, we observe that this dialogue partner for a long time. So work has been almost entirely focused far, to my recollection, this is the on stating and indefinitely reiterat- first time that a person of sufficiently ing the challenges and problems sids senior status has decided to come.” are facing. . . . The UN, in 20 years, In contrast, “when we come to China has not been able to hear and answer there’s always that readiness among the pleas our island States have been the leaders to meet with us and to making for special treatment. . . . sids listen” (Xinhua 2012a). political reviews ‡ region in review 361

Even with increasing engagement decolonization, maritime boundaries, by the Obama administration, it is and fisheries. US climate negotiator important to keep a sense of perspec- Todd Stern has actively worked to tive about the low level of US com- rebuff key demands from the Alli- mitments to Forum Island Countries. ance of Small Island States (aosis) Clinton leaves her post in 2013 and in global climate negotiations, join- the US government is more focused on ing China to block action on loss the Pacific Rim than on the Islands, in and damage, increased adaptation spite of diplomats touting their range funds, and a binding global climate of programs in the region (McGann treaty. Clinton’s token commitment and Pruett 2012). Even though a key in Rarotonga of us$32 million for US policy is promoting increased programs on climate, biodiversity, and trade liberalization in the Asia-Pacific renewables highlights the limits of US region, Island states are not included engagement, given the United States’ in current negotiations for the Trans- responsibility for nearly 30 percent of Pacific Partnership Agreement. historic greenhouse gas emissions. The In the southwest Pacific, the US US pledge is derisory in comparison government has reestablished a to climate funding provided by allies usaid program after a gap of sixteen like Australia and Japan, let alone the years and is expanding its embassy United Arab Emirates and China. in Port Moresby. But this expansion, Through the pifs, Japan has originally slated for Suva, is looking continued to implement its 6 billion to the interests of ExxonMobil and yen Pacific Environment Commu- other US corporations as Papua New nity (pec) Fund, financing renew- Guinea gears up to manage a boom- able energy and seawater desalina- ing liquid natural gas industry. Island tion projects in Niue, the Marshall leaders are well aware that current Islands, and Palau during 2012 (pifs US engagement is driven more by 2012a, 2012j). At the Sixth Pacific concern over China’s economic and Islands Leaders Meeting (palm) held diplomatic influence in the region. At in Okinawa in May, outgoing Japa- the 2012 Forum, Niue Premier Toke nese Prime Minister Yoshihiko Noda Talagi noted: “From Niue’s perspec- committed assistance of us$500 mil- tive, we’re very happy that China’s in lion to the Pacific over the next three the Pacific. I don’t believe that China’s years. In spite of this, the conservative incursions into the Pacific should be Shinzo Abe government, elected in seen as a negative thing. I see it as a December, will likely turn back the very positive thing and I have heard clock on nuclear, aid, and fisheries also US President Obama say the same policies and increase tensions with thing” (Xinhua 2012b). China over disputed islands. Beyond the obvious delight of With expanded Asian links, some Pacific Island Forum leaders that Pacific nations are stepping outside the United States is paying atten- old strategic frameworks set by the tion again, there are still a number anzus allies. In part, Fiji’s diplomatic of fundamental policy differences tensions with Canberra and Welling- with Washington on climate change, ton are driving its new links to China 362 the contemporary pacific ‡ 25:2 (2013) and the developing world. But they are the edf draft must be sent to Brussels also a reflection of emerging strate- for EU approval. gic shifts on a global scale as China, Throughout the year, there were India, Korea, and other developing a number of significant changes in countries transform global economics New Zealand’s engagement with the and politics. region. In August, NZ Prime Minister In 2012, China continued to supply -RKQ.H\OHGDGHOHJDWLRQWR6ëPRD scholarships and aid to the Pacific to mark the fiftieth anniversary of the through the China-pifs Develop- Treaty of Friendship between the two ment Cooperation Fund, matched countries. After many years of service, by the Taiwan/Republic of China NZ Ministry of Pacific Island Affairs Regional Development Assistance Chief Executive Dr Colin Tukuitonga Fund and Taipei’s us$53 million stepped down in 2012, to be replaced Pacific Islands Leadership Partnership, E\3DXOLQH:LQWHUD.LZLRI0ëRUL to be managed through the East-West and Samoan heritage. Under Foreign Center in Hawai‘i. Minister Murray McCully, the NZ Australia’s new Foreign Minis- government continued to cut the aid ter Bob Carr expressed a pragmatic budget, while orienting its policies recognition that many Forum member toward private-sector engagement, countries are looking northwest, seek- infrastructure, and neoliberal policy ing to link their polity with the dyna- reform in the islands. A former nzaid mism of Asia: “My message really is official noted: “In absolute dollar that Australia and New Zealand have amounts, New Zealand aid levels got to live with the fact that China effectively stand still over the next will want to deliver aid in this part of few years. . . . Whatever the cause, the world [and] there is nothing we one thing is clear. New Zealand will can do to stop it” (Carr 2012). remain an aid Scrooge for quite some Following adoption in March of time yet” (Wood 2012). a new policy framework, “Towards While retaining the 1980s ban a Renewed EU-Pacific Development on port calls by nuclear-powered Partnership,” Forum leaders held a US warships, the Key government major consultation with the European has increased strategic ties with the Union in October. The Suva meeting United States. The 2010 signing of focused on the European Development the Wellington Declaration by Clin- Fund (edf), the main mechanism for ton and McCully and a 2012 visit by delivering EU development funding. US Defense Secretary Leon Panetta EU and Pacific officials began work highlight US efforts to leverage New on the 11th edf Pacific Regional Zealand’s links to Polynesia as a coun- Indicative Program for 2014–2020. ter to China. With a 2012 declaration However, there are concerns that the on “enhanced defense cooperation,” process will precede the current Pacific New Zealand joined rimpac naval Plan review of regional priorities and exercises; the US Marines trained with leave decisions in the hands of Forum NZ forces and also began rotating officials, as Island leaders will not through Australia’s Northern Terri- have signed off on the review before tory. The anzus allies continue with political reviews ‡ region in review 363 intelligence monitoring and sharing improved in 2011 after the US govern- under the ukusa (United Kingdom– ment agreed to increase its fisheries United States of America) Agreement, funding for 2012–2013. In June 2012, through bases like Pine Gap in Austra- US negotiators and members of the lia and intelligence gathering commu- Forum Fisheries Agency agreed in nications facilities at Tangimoana and principle on a fishing fee payment of Waihopai, New Zealand (Rosenberg us$63 million for 8,300 fishing days. 2011; Hager 1996). Negotiations resume in July 2013 New Zealand plays a key role in to finalize an extended treaty, while fisheries policy in Polynesia through the Parties of the Nauru Agreement the Te Vaka Moana initiative, at a (pna) seek to maintain unity over the time when Pacific governments are allocation of fishing days and treaty seeking to increase the royalties and revenues. revenues from Deep Water Fish- The theme of the 2012 Forum ing Nations (dwfn). In May, Niue was “Large Ocean Island States—the Premier Toke Talagi told the Okinawa Pacific Challenge.” The Rarotonga palm meeting: “It’s not a secret that meeting included a ceremony cul- these resources create huge wealth for minating years of work to address our neighbours and we must look at boundary disputes between Island means of improving the fisheries busi- states. For many years, the spc/ ness model to more effectively share sopac Maritime Boundaries Division these proceeds” (pifs 2012d). has been engaged in technical work Fisheries policy is a growing source to clarify borders, as the region has of tension, with extensive illegal forty-eight shared boundaries where fishing and increasing pressure from neighboring jurisdictions overlap but Asian, North American, and now only twenty-one are subject to treaty. European fleets. Marshall Islands Pres- Boundary limitation is a vital concern ident Christopher Loeak noted: “Our as Pacific nations seek to increase aspirations are too often undermined potential revenues from fisheries by the narrow commercial self-inter- and seabed mining in their Exclusive ests of those nations at the Western Economic Zones (eezs). The Cook Central Pacific Fisheries Commission Islands, Niue, Kiribati, , that might otherwise seek to embrace Tuvalu, Nauru, and the Marshall us as close political partners. . . . We Islands all signed Maritime Boundary realize only a penny of true benefit Agreements, resolving overlapping for every dollar of fishing activity, and jurisdictions. Kiribati, the Marshall despite scientific warnings, pressure Islands, and Nauru agreed to an addi- on key fish stocks has only increased, tional trilateral treaty to determine not diminished. Decades of global where their eezs intersect. lip service at the UN to sustainable However, the colonial powers development seem to be lost on some have still failed to finalize long- of our fishing partners” (Loeak 2012). running boundary disputes. France Negotiations continue to replace and Vanuatu continue to joust over the 1988 Multilateral Treaty on Fish- control of Matthew (Umaenupne) and eries with the United States. The talks Hunter (Umaeneag) Islands (Maclellan 364 the contemporary pacific ‡ 25:2 (2013)

2010 6ëPRDªVSULPHPLQLVWHUVDLG crop agencies are developing a negotiations between his country regional technical support mechanism and the United States on boundaries to effectively manage expected flows ZLWKQHLJKERULQJ$PHULFDQ6ëPRD of climate finance. During the year, the had proved “a very difficult process” pifs and Oxfam published key studies (Tuilaepa 2012). Other maritime of “better practice” in accessing the disputes include the longtime claim by technical, financial, and information New Zealand territory Tokelau over resources needed to adapt to global Olohega (Swain’s Island), allocated warming (pifs 2012c; Oxfam 2012). by Washington and Wellington to US However, Marshall Islands Presi- WHUULWRU\$PHULFDQ6ëPRD dent Christopher Loeak told the UN The economic potential of oceans General Assembly in September: “We was high on the agenda as Pacific cannot rely only on an uncertain delegations attended the 2012 Rio+20 architecture of global climate finance conference. A key outcome is that to address the very critical adaptation 6ëPRDZLOOKRVWWKH7KLUG*OREDO efforts which will be necessary for our Conference on Small Island Develop- continued survival. The large scale— ing States in 2014. up to $100 billion dollars a year—of In November, UN Framework the future Green Climate Fund and Convention on Climate Change other efforts can easily overlook our negotiations in Doha set back hopes relatively modest needs. Our increas- for urgent reductions of global emis- ingly urgent needs on the ground can sions, as countries like Japan, Russia, no longer be met with paper stud- Canada, and New Zealand refused ies and disconnected pilot projects” to join Australia and the European (Loeak 2012). Union for a second commitment The Islands’ attempt to refocus period under the Kyoto Protocol. In debate on climate change as a threat spite of some advances at the 2012 to national security has continued, climate talks, such as the creation of in spite of a negative vote at the UN the Green Climate Fund and successful Security Council in July 2011. Pacific aosis lobbying on “loss and dam- sids lobbied again in 2012 for the age,” the islands still face institutional appointment of a special representa- inflexibility by donors. A June World tive on climate and security, sup- Bank report on climate and disaster ported by adequate resources. In resilience in the region acknowledges September, Tongan Prime Minister that “the institutional rigidity of Lord Tu‘ivakano stated: “There is an donor organizations makes coopera- urgent need to continue to address tion and partnership more difficult.... the security implications of climate Joint programming of climate change change including the impact on ter- adaptation and disaster risk reduction ritorial integrity, the frequency and activities by donors and implementing severity of climate related disasters, agencies is not widespread” (World threats to water and food security, and Bank 2012, 3, 4). the forced displacement of people” Through the crop Executives (Tu‘ivakano 2012). Subcommittee on Climate Change, This broadened definition of human political reviews ‡ region in review 365 security has not replaced the tradi- for the adverse health effects of 1950s tional emphasis on military deploy- British nuclear testing in Australia ment and policing in regional politics. and Kiribati. Even after the election Even with the slow wind down of of Socialist Party President François ramsi, the Australian Federal Police Hollande in May, the French govern- “Pacific Police Development Program” ment refused to update the Morin law, is funding regional operations, work- which has restricted the number of ing through Transnational Crime Units cases that can be lodged by the Maohi and Combined Law Agency Groups. workers who staffed the Moruroa and In June, the New Zealand government Fangataufa test sites for over thirty and the pifs Law Enforcement Unit years. In the United States, an election hosted a meeting for the Regional year and Republican intransigence Working Group on Counter-Terrorism blocked any progress on President as part of an initiative to strengthen Obama’s call for the US Senate to counterterrorism legislation across the ratify the protocols of the Rarotonga Pacific. Treaty for a South Pacific Nuclear Free In July, nongovernmental organiza- Zone (spnfz)—more than twenty-five tions and government officials coor- years after Russia and China ratified dinated efforts in support of a legally the treaty. binding Arms Trade Treaty. This The US is reluctant for treaties like global treaty would establish common the spnfz to limit its operations in the standards for the import, export, and northern Pacific, with the Kwajalein transfer of conventional arms, but missile testing base in the Marshall an international summit that month Islands and new military deployments ended without agreement, with a fur- in Guam. Admiral Sam Lockyear, ther conference scheduled for March commander of the US Pacific Com- 2013. mand, accompanied Secretary of State Following their 2009 declaration Clinton to the 2012 Forum leaders on violence against women and chil- meeting, highlighting the US Navy’s dren, Forum leaders issued a follow- increasing links to Australia, New up “Pacific Leaders’ Gender Equality Zealand, and France through the Declaration” at their August meeting Quadrilateral Defense Coordinating (pifs 2012g). In October, leaders fol- Group. lowed with the Regional Action Plan After lobbying across the develop- on Women, Peace and Security and ing world, Australia won a rotating endorsed a working group to imple- seat on the UN Security Council in ment the plan, encouraging women in September, representing the West- conflict-prevention and peace-building ern European and Others Group in activities. 2013–2014. During the year, Can- Efforts to promote cleanup and berra burnished its human rights compensation after nuclear testing had credentials by supporting the Pacific a bad year. In March, the UK Supreme Human Rights Consultation for Court ruled 4-3 that a test case could Regional Members of Parliament and not proceed, as British, NZ, and Fijian a Regional Workshop on Democratic nuclear veterans sought compensation Institutions. However, Australia drew 366 the contemporary pacific ‡ 25:2 (2013) criticism from UN human rights Back into the Plan. In Globalisation and agencies, Amnesty International, the Governance in the Pacific Islands, edited Red Cross, and other nongovernmen- by Stewart Firth, 43–55. State, Society and tal organizations after the Julia Gillard Governance in Studies in State government reestablished detention and Society in the Pacific 1. Canberra: anu e-Press. centers for asylum seekers in Nauru and on Papua New Guinea’s Manus Ielemia, Apisai. 2012. Statement by Island. As occurred under John How- Apisai Ielemia, Tuvalu Minister for ard’s original “Pacific Solution,” the Foreign Affairs. 67th Session, UN General vast majority of the people granted Assembly, New York, 29 September. refugee status will end up in Australia ilo, International Labour Organisation. after years of torment, with only New 2012. ilo Mission to Fiji Aborted. ilo Zealand likely to take them from the press release, 19 September. camps for third-country resettlement. Lal, Brij V. 2012. Fiji: Fishing in Troubled NIC MACLELLAN Waters. Security Challenges 8 (4 [Sum- mer]): 85–91.

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