What is the stoush between New Zealand and the Cook Islands all about?

Tuesday, 18 February 2025

The Cook Islands’ Government has released the “Action Plan” it agreed to with China in the face of protests in Rarotonga and increasingly heated messages from Foreign Minister Winston Peters.

Peters says there is more that’s been agreed to which the Cook Islands’ Government still hasn’t released.

The latest claim shows how tense the relationship between New Zealand and the Cook Islands has become. Through a spokesperson, Peters renewed calls for “consultation and transparency” after the Cook Islands Foreign Minister Tingika Elikana released the strategic partnership signed with China.

The dispute concerns the Cook Islands’ growing relationship with China and, more explicitly, the signing of a new political and economic agreement between the two nations.

Peters, in a statement, questioned if more had been agreed to.

“We will now proceed to analyse this agreement’s contents and its implications for New Zealand, the Cook Islands people and the Realm of New Zealand,” a spokesperson for Peters said.

“We note, from various public statements by the Governments of the Cook Islands and China, that they signed a number of agreements last week. We look forward to the release of all those agreements without delay,” the statement said.

So, how did we get here, and where to next for the New Zealand-Cook Islands relationship?

The NZ-Cook Island relationship

New Zealand and the Cook Islands have had a formal relationship for more than half a century, dating back to 1965.

Although the Cook Islands is a self-governing nation, it is in “free association” with New Zealand.

What this means is that most Cook Islanders are New Zealand citizens, but they also have the status of Cook Island nationals.

Cook Island nationals have the right to become citizens of New Zealand and can also receive New Zealand government services in New Zealand such as healthcare and education.

Just over 15,000 Cook Islanders live in the islands themselves. A further 80,000 live in New Zealand, 85% of whom were born here.

From a political perspective, the Cook Islands conducts its affairs and New Zealand cannot pass laws for the Cook Islands, while Rarotonga has its own foreign service and diplomatic network.

New Zealand does however have a constitutional responsibility to respond to requests for assistance with foreign affairs, disasters and defence from the Government of the Cook Islands.

Tensions erupt over passport idea

Tensions between the two nations rose in 2024 when Cook Islands Prime Minister Mark Brown announced he wanted to introduce a Cook Islands passport and citizenship.

The move would have meant a significant break between the two countries as most Cook Islanders are New Zealand citizens and gain the associated benefits.

Peters said any changes could only come through a referendum put to Cook Islanders, and that such a decision would essentially be a move towards independence for the Cooks.

He added that it would also require a “major shift” in the relationship between New Zealand and the Cook Islands and would raise fundamental questions around constitutional arrangements and the issue of shared citizenship.

Brown has since confirmed the proposal will not go ahead, saying New Zealand “bared its teeth” over the move.

A diplomatic dispute emerges

If relations were already strained thanks to the passport issue, they have only deteriorated further over a new political agreement signed between the Cook Islands and China.

Known as the Comprehensive Strategic Partnership, the agreement will see the Cook Islands and China cooperate more on economic, environmental, and political issues, while supporting each other in safeguarding “core interests”.

The agreement, the contents of which were revealed on Tuesday, stated that both sides will work together as “equal partners” and conduct genuine consultation and meaningful dialogue with a sincere desire to promote the “well-being” of both countries.

As a result, the Cook Islands will draw more support from Beijing across key sectors, including trade, investment and tourism, infrastructure, climate resilience and renewable energy, agriculture, maritime and oceans, and seabed minerals development.

Brown went to Beijing last week to sign the agreement.

No consultation a sore point for NZ

The agreement has not pleased the New Zealand Government, with Peters saying the Cooks failed to properly consult New Zealand on their plans to sign the agreement despite repeated requests to do so.

Wellington also wanted to see the contents of the agreement before it was signed.

The Cook Islands and New Zealand signed a joint centenary declaration in 2001, which outlined an obligation to consult on security issues and cooperate on matters of mutual interest.

Peters maintains the lack of consultation from Brown does not align with the agreement between the two countries, and views it as a potential breach of constitutional arrangements.

Wellington also holds concerns that aspects of the deal will not align with New Zealand’s national interests, potentially threatening the 2001 agreement with the Cooks.

Brown goes on the front foot

Brown says the agreement with China “complements, not replaces” the Cook Islands’ relationship with New Zealand.

In a statement, he said “our relationship and engagement with China complements, not replaces, our long-standing relationships with New Zealand and our various other bilateral, regional and multilateral partners - in the same way that China, New Zealand and all other states cultivate relations with a wide range of partners”.

Brown also maintains that the Cooks’ engaged openly and transparently to secure the best outcomes for Cook Islanders.

With this, he has rejected suggestions that the Cooks’ relationship with New Zealand had broken down as a result of the signing of the agreement and the process around it.

Speaking to Cook Islands News, Brown said that despite recent disagreements, the relationship between the two nations remains “very strong”.

Brown has, however, argued that the Cook Islands was not expected to consult New Zealand on the deal.

What about China?

The signing of the agreement has ignited debate on China’s growing influence in the Pacific region, with the superpower developing closer ties with many Pacific nations.

Many analysts see China’s moves in the region as an opportunity for them to leverage access in Pacific nations through both financial investment and security.

China has had diplomatic relations with the Cook Islands since 1997, and they are the island nation’s third largest development partner after New Zealand and Australia.

A Chinese foreign ministry spokesperson said last week that China stands ready to grow ties and carry out cooperation with Pacific Island countries, including the Cook Islands.

Addressing the issue with New Zealand, they added that the relationship between China and the Cook Islands does not target any third party and should not be disrupted or restrained by any third party.

What happens next?

On his arrival back from China, Brown told reporters he was hoping to talk to the New Zealand government to 'heal some of the rift that has occurred from our side”.

Brown remained confident that there would be no areas of concern for New Zealand within the agreement.

“I’m sure once the New Zealand government has a look at it there will be nothing for them to be concerned about.”

He added he was not concerned by any consequences the New Zealand government may impose on his country as a result of the agreement.

Brown is facing a vote of no confidence motion filed by the opposition.

There is also mounting public pressure on Brown, and a protest took place outside the Cook Islands Parliament on Tuesday.

With the details of the agreement now released, Peters said the New Zealand Government will proceed to analyse its contents and the implications for New Zealand.

Peters added that consultation and transparency must lie at the heart of the New Zealand-Cook Islands relationship.