New Zealand Foreign Minister Winston Peters has demanded a "reset" in relations with the Cook Islands after the latter signed recent agreements with China without prior consultation with Wellington. This action has raised concerns about the lack of transparency, regional security, and shifting dynamics of international alliances in the Pacific.
Background to New Zealand-Cook Islands Relations
The Cook Islands, a free-association independent country with New Zealand, has a special constitutional relationship with Wellington. The ties involve common head of state and common citizenship, with the Cook Islanders possessing New Zealand passports. Though the Cook Islands implements its foreign and domestic policy, the two nations have a consultation practice in regard to defense affairs, security issues, and other significant foreign policy issues. The Joint Centenary Declaration agreed on in 2001 and renewed in 2015 has established such an arrangement, making defense and security affairs subject to regular consultations (MFAT).
The Unilateral Agreement with China
During a visit to Beijing in early February 2025, the Prime Minister of the Cook Islands, Mark Brown, inked with China a broad strategic partnership in various domains. These include education, economic growth, infrastructure, fisheries, disaster risk reduction and management, and notably seabed mining. The latter is particularly notable, and it is where Cook Islands Seabed Minerals Authority estimates to have 6.7 billion tonnes of nodules with mineral contents that have potential to deliver substantial amounts of cobalt, nickel, copper, manganese, iron, and rare earth metals instrumental in the progress of technology as well as energy transition for green reasons (US News).
The lack of advance consultation with New Zealand on this deal has been a point of contention. Winston Peters said that while the people-to-people relationship is good, the government-to-government relationship is tense because of these backroom negotiations. He emphasized that the bilateral relationship must be reset to address these issues (Reuters).
Domestic and International Reactions
The Cook Islands' action has stirred intense domestic and international controversy. In the Cook Islands, protests and criticism have been directed at sovereignty issues and the perceived implications of growing Chinese influence. There have been calls for a no-confidence vote by opposition parties, showing growing domestic concern over the agreement (The Guardian).
Internationally, New Zealand's government is shocked and alarmed at the lack of consultation and transparency. Prime Minister Christopher Luxon stated that New Zealand had expected consultation and transparency from the Cook Islands, especially matters with significant foreign policy implications (DNYUZ).
Implications for Regional Security
The Cook Islands' interaction with China is consistent with a trend of growing Chinese influence in the Pacific. It has far-reaching implications for the security dynamics within the region, especially with respect to traditional allies such as New Zealand, Australia, and the United States. China's overarching engagement strategy has the objective of deepening its influence in the Pacific, a move that is likely to reshuffle the regional balance of power and impact strategic interests within the region (The Australian).
The Way Forward
Against such developments, New Zealand wants to negotiate with the Cook Islands towards resolving issues arisen out of recent China deals. The purpose will be to uphold the norms of their historical friendship and see future engagements with compatibility of interest as well as in regional stability. This situation reveals the necessity for open dialogue, transparency, and consultation in upholding healthy bilateral relations, especially in a country that is currently experiencing shifting geo-political factors.
As the Pacific struggles to navigate these complex dynamics, small states like the Cook Islands' behavior will be crucial in shaping the future geopolitical order. The outcome of such engagements will have a bearing not just on bilateral relations but on the strategic context of the Pacific writ large.
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