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The Region in Review: International Issues and Events, I993

Economic development and environ­mental issues remained prominent dur­ing 1993. In one significant shift, how­ever, regional meetings gave greaterattention to the idea of sustainabledevelopment, and less to narrowly eco­nomic approaches to developmentquestions. Declining interest by theUnited States and the United Kingdomwas complemented by increased inter­est from some Asian countries. Mean­while, relations among the islandstates, and between them and theirnear neighbors, were generally posi­tive. By year's end, the tensionsbetween Papua New Guinea and Solo­mon Islands over Bougainville hadlargely been contained, as had the ear­lier trend toward the internationaliza­tion of the conflict there (Fry 1993,399-402).

ENVIRONMENTAL AND

ECONOMIC ISSUES

Both the domestic politics and externalrelations of most island countries wererelatively calm during the year, despitethe usual jockeying for position andrewards within particular political sys­tems, and despite some ripples fromthe Bougainville conflict. The absenceof other preoccupations facilitated theranking of environmental and eco­nomic issues high on the regionalagenda (see WPR, 15 Aug 1993, I).

Island countries condemned Japan'sdecision to ship plutonium for itsnuclear power industry through theregion. The first shipment, on the Aka­tauki Maru, passed near New Caledo­nia, Vanuatu, Solomon Islands, and

43°

the Marshall Islands around the begin­ning of the year (WPR, I Jan 1993, I;

IBP, Jan-Feb 1993, 12). The shipmentswill be infrequent and subject toextreme safety measures, so the risk ofa mishap is minuscule. That said,island leaders remained aware that thehuman and environmental costs of anyaccident could be substantial. Theywere also resentful that, as on previousoccasions relating to nuclear power,external countries had pursued theirplans without bothering to consult theisland countries.

Environmental and associated eco­nomic issues were a major focus of dis­cussion at the 1993 South PacificForum, held in Nauru in August. Justbefore the meeting, Australia andNauru reached an out-of-court settle­ment of A$107 million in their disputeover compensation and restorationcosts for the massive environmentaldamage to the island by Australian,British, and New Zealand phosphatemining during the colonial period. Thetwo governments also signed a jointdeclaration of principles to governtheir future relations (PR, 23 Aug 1993,3; IBP, Sept 1993, 32; APDR, Oct-Nov1993, 2 4; PM, Nov-Dec 1993, 35-36).

Because of the Australia-Nauru dealthe Nauru compensation question dis­appeared as a potential point of con­tention at the Forum, but there was noshortage of other environmental issuesto consider. The meeting reaffirmedthe concerns expressed at the 1992Forum about the Japanese plutoniumshipments, endorsed a Papua NewGuinea proposal for a regional conven-

POLITICAL REVIEWS

tion on hazardous wastes, andexpressed "particular pleasure" overFrance's recent decision to extend itssuspension of nuclear testing (PR, 23Aug 1993). The meeting also con­demned the massive destruction of for­est areas by expatriate timber compa­nies, which operate with the support oflocal agents and allies. The Forum'sconcern was genuine, and during theyear some ameliorative measures weretaken, including a Solomon Islands banon raw log exports (Fraser 1994, 53).Sadly, however, the recent history oftimber extraction, in particular in theMelanesian countries, indicates thatstricter regulation and other measuresmay be too little, too late (see PIM, Sept1993,19; Henningham and May 1992).

The question of sustainable devel­opment was considered at both theForum and other regional meetings,notably the Pacific Islands Conferenceof the Pacific Islands Development Pro­gram held in Pape'ete in July (IBP, Aug1993,27). The "sustainable develop­ment" objective attracted broad sup­port. This more holistic approachmarked a shift in the thinking aboutdevelopment issues away from the nar­rower focus on market forces, the pri­vate sector, and growth objectives thathas been in vogue in the region over thelast few years (see Halapua 1993, 40­41). Difficulties of definition and effec­tive implementation are yet to be over­come. Some observers consider theconcept of sustainable developmentcontradictory. The kinds of develop­ment, and the associated materialgoods, to which most island communi­ties aspire are not necessarily consistentwith environmental, cultural, andsocial conservation. In the course of

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431

the year most island countries indi­cated that they would send a seniorrepresentative to the next Global Con­ference on Sustainable Development,to be held in Barbados in April 1995,which will seek to develop a sustain­able development strategy specific tosmall island countries (PIM, Nov

1993,39)·Discussion of "sustainable develop­

ment" helped heighten interest indomestic environmental and develop­mental issues, especially the populationquestion. These issues, though lessattention-grabbing than nuclear ship­ments and testing, toxic waste dump­ing, driftnet fishing, or climaticchange, are of central importance.Over the last decade, annual popula­tion growth in the island countries hasaveraged nearly 3 percent. In contrast,economic growth has averaged lessthan 1 percent per year, even thoughthe island countries are the world'sleading aid recipients on a per capitabasis. In several countries, rapidurbanization has created major adjust­ment problems. By 2010, on currenttrends, the population of the islandcountries is expected almost to double,straining if not overwhelming alreadyinadequate infrastructure and services.Effective economic management,improved basic education, especiallyfor females, and much more effectivefamily planning and other populationcontrol measures will be necessary inmost island countries if they are toavoid being drawn into a downwardspiral of population pressure, poverty,and environmental destruction (PIM,

Jan 1994, 41; IBP, Oct 1993, 11-13; Cole1993). At the main regional meetings,island leaders displayed an increased

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432 THE CONTEMPORARY PACIFIC· FALL 1994

awareness of these problems, but itwas also clear that traditional valuesand church influences would be majorobstacles to the development andimplementation of effective responsesto population pressures. Meanwhile,for most island countries, limitedresources, low commodity prices, anddistance from major markets remainedgreat obstacles to rapid economicgrowth.

REGIONAL ORGANIZATIONS

The Nauru meeting was the twenty­fourth Forum, and the first since someof the early meetings to be attended bya full complement of heads of govern­ment of member countries (PR, 23 Aug1993). Discussions proceededsmoothly: the focus on environmentaland economic generalities providedgrounds on which all could agree,without conflicts emerging. TheBougainville question again remainedoff the agenda, on the basis that it isthe internal affair of a member coun­try, but was discussed informally.Meanwhile, Nauru deported a seces­sionist lobbyist. As the Papua NewGuinea government gradually regainedcontrol over most of the province, anddespite concern over human rightsabuses by all parties to the conflict, thetrend evident in the previous yeartoward the internationalization of theconflict was checked. The post-Forumdialogue meetings with externalpowers, which have taken place since1989, were again regarded as useful bythe island countries. With the Forumapproaching its twenty-fifth anniver­sary, the 1993 meeting decided to insti­tute a review of the organization'sstructure and operations for consider-

ation at the next meeting, to be held inBrisbane in 1994 (IBP, Sept 1993, 33;APDR, Oct-Nov 1993, 27-28).

The South Pacific Commission'sannual meeting, the South Pacific Con­ference, which was held in Noumea inOctober, also went smoothly, in con­trast with other conferences in recentyears (PIM, Dec 1993,18-19), The con­ference theme, "the state of Pacific chil­dren," highlighted the health and wel­fare problems of children in the PacificIslands region. The commission's Sec­retary-General Ati George Sokomanu,who had been appointed in controver-

. sial circumstances at the previous con­ference, reported on recent administra­tive and financial reforms, some ofwhich had been set in train under hispredecessor.

The future location of the commis­sion's women's and youth programswas the main issue under dispute at theconference. At its meeting in May theCommittee of Representatives of Gov­ernments and Administrations had rec­ommended the transfer of these pro­grams to Suva, to facilitate their moreeffective operation and their access tointernational donor bodies. But at theconference, Papua New Guineaopposed the transfers and won suffi­cient support for the question to bemade subject to further review. PapuaNew Guinea and Solomon Islandsfavored the retention of these programsin Noumea to facilitate contacts withthe New Caledonian Melanesian com­munity. Though they did not say sopublicly, some island countries proba­bly also supported Papua NewGuinea's intervention because theybelieve that Fiji is already well enoughendowed with the offices of regional

POLITICAL REVIEWS

bodies. For their part France and itsthree Pacific territories opposed anyfurther dilution of the commission'spresence in Noumea, and the fran-cophone Pacific, by the transfer of pro­grams elsewhere. They complained inparticular that the proposed transfersmade a mockery of France's recentdecision to invest heavily in the newheadquarters building in Noumea.

During the year cooperationbetween the Forum, the South PacificCommission, and other regional bodiesand organizations was generally con­structive, despite occasional disputes.It appeared that the structures forencouraging cooperation and coordi­nation, especially the South PacificOrganizations Coordinating Commit­tee, which has met annually since 1989,were operating satisfactorily.

Meanwhile subregional tensions inregional affairs remained mostly belowthe surface. In 1993, as in 1992, theMelanesian Spearhead lacked politicaldynamism because New Caledoniaremained peaceful, because of the con­servative stance of the Korman govern­ment in Vanuatu, and because of ten­sions between Papua New Guinea andSolomon Islands. The group met inRabaul in June and signed a tradeagreement eliminating import duties onthree commodities: Vanuatu beef,Papua New Guinea tea, and Solomonscanned fish. The meeting also dis­cussed other measures to encouragefurther economic cooperation. For thefirst time Fiji sent an observer: RatuTimoci Vesikula, deputy prime minis­ter and minister for Fijian Affairs andRt;gional Development. Ratu Vesikulasaid it was only a matter of time beforeFiji joined the Spearhead group. At the

433

Nauru Forum in August, Prime Minis­ter Rabuka commented in similar vein.Such a development would haveimportant implications for regionalaffairs. In the final months of the year,however, the Fiji government steppedback from Rabuka's apparent under­taking (PR, 26 July 1993; PIM, Oct 1993,18-19).

EXTERNAL PLAYERS

The only surprise at the South PacificConference came when the UnitedKingdom foreshadowed its intention towithdraw from the South Pacific Com­mission. The British delegate citedbudgetary restrictions but also notedthat the United Kingdom no longer hadterritorial possessions in the region,apart from tiny Pitcairn Island. Headded that other British aid to theregion would continue. However,observers wondered if this withdrawalindicated the United Kingdom's incli­nation to wind down its already mod­est involvement in the region even fur­ther.

Island countries also noted, andwere more concerned by, decliningUnited States interest in the region. Inthe final months of the year, the UnitedStates closed down its embassy inHoniara, considered but then decidedagainst closing its embassy in Apia,and announced the impending closureof the US Agency for InternationalDevelopment's office in Suva (PM,Sept-Oct 1993, 13). The Joint Com­mercial Commission, intended to facil­itate business and investment contactsbetween the island countries and theUnited States, which had been an­nounced by President Bush at his Octo­ber 1990 summit with Pacific Island

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434 THE CONTEMPORARY PACIFIC. FALL 1994

leaders, has so far failed to gathermomentum. Its inaugural workingmeeting was not held until October1993 (PM, Mar-Apr 1993, 8; PR, 25 Oct1993; PIM, Dec 1993,16-17; Jan 1994,13). In the circumstances of the post­cold war era, President Clinton's ad­ministration has shown virtually nointerest in the islands, even with re­spect to the American-associated statesand territories.

Palau responded to changing cir­cumstances when it at last took theaction required to enter a Compact ofFree Association with the UnitedStates. Palau's future had been unre­solved since 1979, because of a conflictbetween the American defense provi­sions in the compact and the antinu­clear articles in Palau's constitution.Formerly a 75 percent majority hadbeen needed to bypass these articles,but a constitutional amendmentapproved in November 1992 by 62 per­cent of voters had reduced this require­ment to 50 percent. Next, in a referen­dum held on 9 November 1993,Palauans voted 68 percent in favor ofthe compact. Voter turnout was high.

The referendum result permitted theresolution of the status of the lastremaining portion of the former UnitedStates Trust Territory of the PacificIslands. Palau should become a mem­ber of the South Pacific Forum in 1994,assuming that prospective legal chal­lenges to the result of the referendumdo not succeed. The resolution wasfacilitated because, since the end of thecold war, Palauan concern over thecompact has diminished. Given chang­ing strategic circumstances, and Ameri­can assurances, fears about militaryplans with respect to Palau have been

substantially assuaged. MoreoverPalauan voters were told that shouldthey again reject the compact, theattractive financial deal it offeredmight no longer be available, givenPalau's reduced strategic importanceand the budgetary difficulties of theUnited States (PM, Jan-Feb 1993, 8,9;PR, 25 Oct 1993, 3; PIM, Jan 1994, 24;Dec 1993, 28, 29).

In contrast to the United States andthe United Kingdom, France main­tained a strong and active interest inthe islands. The conservative partieswere returned to power in the metro­politan elections in March 1993, butthe new government did not alterFrench policies toward the region.France's attention was centered in itsown territories but also involvedefforts to consolidate links with otherisland countries, including by means ofmodest but generally well-targeted aidprograms. France was aided in itsefforts to win acceptance by the contin­ued peaceful conditions in New Cale­donia, where the truce embodied in theMatignon Accords of 1988 is scheduledto run until 1998, and by its decision tocontinue the suspension, in operationsince early 1992, of its nuclear-testingprogram (see Chand 1993; Hen­ningham 1994).

Whereas some of the former colo­nial powers were scaling down theirinvolvement, newer participants wereconfirming their interest. The UnitedKingdom's announcement of itsimpending withdrawal from the SouthPacific Commission gave greaterurgency to the question, which hasbeen under review for some years, ofallowing new members into the organi­zation. To speed up the consideration

POLITICAL REVIEWS

of likely candidates, the meeting agreedto separate the question of new mem­bership from the process of recastingthe commission's constitution, which isscheduled to be completed in 1994. Thedelegates at the meeting took the viewthat it should be possible to admit newmembers in advance of the revision ofthe constitution. Following the Britishannouncement, one conference partici­pant urged that Japan be invited tojoin. The meeting agreed that requeststo join should be addressed to the sec­retary-general, who would consult themembership. Japan has been express­ing interest in joining the commissionfor several years. Should Japan becomea member, other Asian countries arelikely to request membership in duecourse, with weighty implications forthe character and priorities of the com­mission (see WPR, I Nov 1993). Chile,which administers Easter Island, isanother prospective member.

Whatever the outcome with respectto membership of the South PacificCommission, interest in the region byseveral Asian countries, notably Japan,South Korea, China, Taiwan, andMalaysia, continued during the year,reflecting the economic dynamism ofthese countries and their wish toexpand their economic and politicalrole within the broader Asia-Pacificregion. Japan continued to take aprominent part, in both investmentand other economic links and the pro­vision of aid. For reasons of historyand proximity, it focused especially onthe American territories and the freelyassociated states in Micronesia, but itsinfluence continued to extend to otherparts of the Pacific Islands region.

The process whereby the island

435

countries developed their links withAsia continued, however, to be two­way, with island countries seeking todiversify and consolidate their linkswith various Asian countries. Forexample the Republic of the MarshallIslands developed an aid and businessrelationship with China, including softloans and a joint venture garment fac­tory (PR, 13 Sept 1993; PM, Nov-Dec1993,18,23). Prime Minister PaiasWingti, of the largest island country,Papua New Guinea, announced afterhis victory in the 1992 eleCtions thatPapua New Guinea would pursue a"look north" policy to consolidate itslinks with Asia (PR, 8 Mar 1993, 4).During 1993 Wingti and his govern­ment actively pursued this policy, byencouraging Indonesian investmentand the expansion of Malaysian inter­ests in forestry, mining, and the media,among other measures. In November,alone among the island countries,Papua New Guinea became a memberof the Asia Pacific Economic Coopera­tion group; the Forum Secretariatmeanwhile sought to represent theinterests of the island countries as agroup with respect to that organization(WPR, I Dec 1993, I).

BILATERAL ISSUES

For the first half of the year, relationsbetween Papua New Guinea and Solo­mon Islands were soured by the bitterconflict on Bougainville Island inPapua New Guinea's North Solomonsprovince. Relations improved frommid-year, following the SolomonIslands elections in June, when the cau­tious Francis Billy Hilly replaced thecombative Solomon Mamaloni asprime minister. In addition, by the end

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THE CONTEMPORARY PACIFIC. FALL 1994

of the year most of Bougainville,except for the Panguna area in the cen­tral part of the island, was under thecontrol of the Papua New GuineaDefence Force or local "resistance"militias opposed to the BougainvilleRevolutionary Army. The rebel grouphad squandered much of its earlier sup­port by fractiousness, human rightsabuses, and an inability to provide ser­vices. As Papua New Guinea's confi­dence that a resolution was in sightincreased, its concerns about infrac­tions of its embargo on the islanddiminished somewhat. Though indisci­pline and human rights abuses byPapua New Guinea forces continued,the national government had estab­lished more reliable control over them,reducing their border incursions. Inlate 1993, building on earlier agree­ments, the two governments signed afurther accord aimed at restoring goodrelations (PR, 8 March 1993, 6; 3 May,I; 23 Aug, I; II Oct, 6; PIM, Dec 1993,8). Under the new arrangements theformer Bougainville RevolutionaryArmy office in Honiara was convertedinto a Bougainville HumanitarianIssues Centre; meanwhile Papua NewGuinea agreed to pay A$300,000 incompensation for casualties and dam­age inflicted during incursions intoSolomon Islands.

Relations between Solomon Islandsand Australia had also been compli­cated by the Bougainville conflict, but,as noted, the occasion for these dis­putes largely disappeared (PR, 8 March1993,6). Bilateral tensions did surfacebetween Papua New Guinea and Aus­tralia, over Bougainville and otherissues. Papua New Guinea continuedto resent Australian government,

media, and public questioning of theconduct of the Papua New Guineaarmed forces in Bougainville. It alsocomplained of Australia's intention toreplace direct budgetary aid with pro­gram aid by the year 2000; under thispolicy, on the basis of close consulta­tion between the two countries, Aus­tralian aid will be allocated and spentin broad sectoral areas. Papua NewGuinea had earlier accepted this shift,but subsequently decided that programaid will impede its freedom to maneu­ver and encourage "neocolonial" inter­ference (PR, 6 Dec 1993, 3, 4). Theseconcerns were emphasized by ForeignMinister John Kaputin and reiteratedby Deputy Prime Minister and FinanceMinister Sir Julius Chan during visitsto Australia in late 1993. In additionKaputin complained that Australia wasneglecting the bilateral relationship(PR, 8 Nov 1993, 1,3; 6 Dec 1993, 3).Despite such tensions, the two coun­tries remained closely associated, notleast because Australia is by far thelargest aid donor to its former colony;a serious breakdown in relations wasavoided (PR, 20 Dec 1993).

The resolution of the compensationissue, and the consequent improvementin Australian relations with Nauru,was a success for Gordon Bilney, whohad been appointed as Australia's min­ister for Pacific Islands Affairs andDevelopment Cooperation followingthe return of the Keating governmentin the March 1993 elections. Bilneyplayed a leading part in the negotia­tions (Fraser 1994, 52). With no guar­antee that its case before the Interna­tional Court ofJustice would succeed,Nauru had found the Australian offerpersuasive. Moreover, such a court vic-

POLITICAL REVIEWS 437

STEPHEN HENNINGHAM

My THANKS TO Greg Fry and Bill Standishfor their helpful comments on an earlierversion ofthis article.

tory would be phyrric: Australia wouldbe unlikely to continue to cooperate onaviation, health, educational, andother matters of importance to Nauru.

The island countries had mixedreactions to Australia's appointment ofa minister with specific responsibilityfor island affairs. Was it a positive stepwith respect to the interests and aims ofthe island countries? Did it signal adowngrading of the island countries inAustralian priorities (PR, 8 Nov 1993,3)? A clear answer to these questionshas yet to emerge. Despite concern thatAustralia was overlooking the regionbecause of its preoccupation with Asia(PR, 27 Sept 1993, 6), and despite someisland country reservations about deal­ing with a junior minister, the presenceof a Pacific Islands minister seems over­all to have contributed positively torelations, both bilateral and multilat­eral, between Australia and the islandcountries.

* ~.

Policy Paper 9. Canberra: National Centrefor Development Studies, AustralianNational University.

Chand, Ganesh. 1993. France and SouthPacific Regionalism in the 1980s and 1990S.Journal ofPacific Studies 17:57-81.

Fraser, Helen. 1994. South Pacific: MorePolitical Stability. Asia-Pacific DefenceReporter, Annual Reference Division,51-53·

Fry, Greg. 1993. The Region in Review:International Issues and Events, 1992. TheContemporary Pacific 5 (2): 390-402.

Halapua, Sitiveni. 1993. Interview. PacificMagazine, Nov-Dec, 40-41.

Henningham, Stephen. 1994. The UneasyPeace: New Caledonia's Matignon PeaceProcess at Mid-Term. Pacific Affairs. Inpress.

Henningham, Stephen, and R. J. May,with Lulu Turner, eds. 1992. Resources,Development, and Politics in the PacificIslands. Bathurst, NSW: Crawford HousePress.

IBP, Islands Business Pacific. Monthly.Suva.

PM, Pacific Magazine. Two-monthly.Honolulu.

References

APDR, Asia Pacific Defence Reporter.Monthly. Melbourne.

Cole, Rodney V., ed. 1993. Pacific 2010:

Challenging the Future. Canberra: Pacific

PIM, Pacific Islands Monthly. Suva.

PR, Pacific Report. Fortnightly newsletter.Canberra.

WPR, Washington Pacific Report. Fort­nightly newsletter. Washington, DC.