EDITED by MICHAEL POWLES MICHAEL by EDITED Pacific Futures
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Edited b s a region, the nations of the Pacific face continuing challenges to their Aeconomic, political, social and cultural survival. Recognising that the y Mic Pacific Futures question of regional change — whether to cooperate more closely or not — is a key item on the agenda of Pacific Islands Forum, this volume makes a timely hael P and crucial contribution to the debate. Providing excellent arguments about o the implications for more integrated regional governance — and the agendas wles EDITED BY MICHAEL POWLES behind attempts to push through these reforms, Pacific Futures is essential reading for those seeking to understand how the region can move forward. In four sections, these essays address issues of governance, human rights and custom, law reform, language and culture loss, the potential for a single P acif currency, labour mobility and development assistance. Written by academics and professionals from the region and beyond, the arguments are presented under the uniting theme of sovereignty and the idea of a Pacific community. ic F Also including reflective contributions by some of the Pacific’s most widely respected leaders such as Tuilaepa Aiono Sailele Malielegaoi, Bishop Jabez utur Bryce, Ratu Joni Madraiwiwi, Sir Mekere Morauta and Judge Tuiloma Neroni Slade, Pacific Futures sets a standard for discourse on regional development. es ounding chairman of New Zealand’s Pacific Cooperation Foundation, FMichael Powles was formerly New Zealand’s ambassador to the United Nations and before that to China. Earlier, he lived and worked in the Pacific, including as a child in Samoa, as New Zealand’s High Commissioner to Fiji, Kiribati, Nauru and Tuvalu and worked on human rights issues. Pacific Futures is published in association with the Pacific Cooperation Foundation of New Zealand. PANDANUS BOOKS Research School of Pacific and Asian Studies www.pandanusbooks.com.au P AND ANUS B OOKS Pacific Futures Pacific Futures EDITED BY MICHAEL POWLES PANDANUS BOOKS Research School of Pacific and Asian Studies THE AUSTRALIAN NATIONAL UNIVERSITY Cover credit: Logo of the Pacific Cooperation Foundation of New Zealand. © Pacific Cooperation Foundation. © Copyright for individual essays rests with the authors. © Pandanus Books 2006. This book is copyright in all countries subscribing to the Berne convention. Apart from any fair dealing for the purpose of private study, research, criticism or review, as permitted under the Copyright Act, no part may be reproduced by any process without written permission. Typeset in Garamond 11pt on 14.5pt and printed by Pirion, Canberra National Library of Australia Cataloguing-in-Publication entry Pacific futures. Includes index. ISBN 1 74076 187 1. 1. Pacific Area. 2. Pacific Area — Commerce. 3. Pacific Area — Economic conditions. 4. Pacific Area — Foreign relations. 5. Pacific Area — Politics and government. I. Powles, Michael. II. Australian National University. Research School of Pacific and Asian Studies. 990 Editorial inquiries please contact Pandanus Books on 02 6125 3269 www.pandanusbooks.com.au Pacific Futures is published with financial assistance from the Pacific Cooperation Foundation of New Zealand (www.pcf.org.nz) and support from the New Zealand Ministry of Foreign Affairs. The views expressed in this publication do not necessarily represent those of the Foundation or the Ministry. PCF: PO Box 10 467, Wellington, New Zealand, PH: +64 4 9319380, Fax: +64 4 9319382, Email: [email protected], Website: www.pcf.org.nz Published by Pandanus Books, Research School of Pacific and Asian Studies, The Australian National University, Canberra ACT 0200, Australia Pandanus Books are distributed by UNIREPS, University of New South Wales, Sydney NSW 2052 Telephone 02 9664 0999 Fax 02 9664 5420 Production: Ian Templeman, Justine Molony and Emily Brissenden Foreword Hon. Tuilaepa Sailele Aiono Malielegaoi 1 At their Special Meeting in Auckland in April 2004, Pacific leaders adopted a far- reaching vision for the future of the region: Leaders believe the Pacific region can, should and will be a region of peace, harmony, security and economic prosperity, so that all of its people can lead free and worthwhile lives. We treasure the diversity of the Pacific and seek a future in which its cultures, traditions and religious beliefs are valued, honoured and developed. We seek a Pacific region that is respected for the quality of its governance, the sustainable management of its resources, the full observance of democratic values and for its defence and promotion of human rights. We seek partnerships with our neighbours and beyond to develop our knowledge, to improve our communications and to ensure a sustainable economic existence for all. This vision recognises that the Pacific has moved into a new historical era, which calls for a reassessment of the approaches we take to the issues that we face. For us, the immediate post-colonial period, in which the countries of the region gained and shaped their political independence, is coming to an end. In a rapidly changing world, we need to find our proper place, a place that will bring real and lasting benefits to our citizens. The new arrangements we make must offer Pacific solutions to unique Pacific challenges. At the Pacific Islands Forum meeting in Apia in August 2004, leaders confirmed their wish that a comprehensive Pacific Plan be developed, an instrument that would carry forward their vision by developing a deeper level of regional cooperation, which might lead us to a more effective degree of real integration. Development of the plan is now under way. viii Above all, the leaders want the plan to be practical. We want it to identify, on a sectoral basis for a start, where the region can, gain the most from sharing its often limited resources. We want it to identify areas and ways that will produce resource savings, harmonise processes and align policies. We want it to deliver real benefits to the people of the Pacific by proposing concrete plans for enhancing economic growth, sustainable development, good governance and security — the key goals of the forum. Regionalism in the Pacific has had its successes. It has been a process without which the region might well have been considerably worse off. Notwithstanding those successes, I think we have to admit that our commitment to regionalism has been, at most, partial and intermittent. It is unsurprising, and natural, that this should be so — in a world of sovereign states, we shall, in the Pacific as elsewhere, continue to identify our vital inter- ests in national terms. But what the leaders’ vision is pointing to is that we need to look much more closely at the extent to which those interests might be sufficiently similar to be pursued regionally. I have emphasised the need for a practical approach to regional cooperation. That is a sine qua non; without delivery of practical benefits, efforts to cooperate will, quite rightly, not gain the support they must have. But there are also broader questions raised by the leaders’ vision, which those concerned for the future of the region need to contem- plate. Just what is the Pacific region? Are we a genuine combination of like-minded states, held together by abidingly strong cultural affinities and shared experience in what is, globally speaking, a unique environment? Or are we, in essence, a historical construct, flung together by the whims of our colonisers, a region by default? Or are we, in a mundane, down-to-earth way, a marriage of convenience, a strictly limited commitment with limited mutual attractions? What is to be the nature of our relationships with the wider world? How are our small states going to find a place, one that pays some regard to their views and interests, in a globalised world? How will we best interact with our neighbours, some of them very powerful and likely to become more so, on the rim of the Pacific? How do we most effec- tively interact with those parts of our region that have not achieved independence, the territories and other entities? And what is the future role vis-a-vis the island states of our larger, wealthier forum members, New Zealand and Australia? To what extent — and allowing that their situations are far from identical — will they further develop their roles as full members of a Pacific community? All of these questions — and they are only some of those that face us — are much easier to ask than to answer. But they not only need to be asked, but debated widely and with originality, by people right across the region. There is a cynical view that there has been enough talk, that the problems of the Pacific Island countries ‘have been done to death’. I, like many others, get weary sometimes with what seem to be the endless series of consultants and other savants who pronounce on us about almost everything. But I am also very conscious that the Pacific faces a time of rapid change and very serious challenges. We have to diagnose and understand thosethese changes and challenges as accurately as we can if we are to have any chance of fashioning adequate responses. To do that, we have to ask the right questions of the right people — the people of the region themselves. ix I hope that the consultation process, which will be a crucial part of the develop- ment of the Pacific Plan, will open up these many questions. As I say, we must also be immediately practical and that is how the task force charged with putting together proposals for the Pacific Plan has approached its job. So much of what we are really talking about in this context is about service delivery, a key function for any government, whatever its size. How can better regional cooperation ensure, at national levels, improved education and health services, more effective transportation facilities, the opportunity to develop a commercial enterprise, those very fundamental things on which people base their aspirations for better lives? And — a very important question — how do we imple- ment good regional policies? We have, for many years now, been devising strategies and plans at regional levels, which, on paper, have all the appearance of usefulness.