New Zealand’s foreign minister says Cook Islanders are free to choose whether their country continues in free association with New Zealand.

Winston Peters made the comment at a celebration of the 60th anniversary of the constitution of the Cook Islands in Auckland today.

Peters attended the community event hosted by the Upokina Taoro (East Cook Island Community Group) as part of an official contingent of MPs. Minister for Pacific Peoples Shane Reti and Labour Party deputy leader Carmel Sepuloni also attended.

“We may not be perfect, but we’ve never wavered from our responsibilities wherever they lay,” Peters said.

“For six decades, we have stood by ready to support the Cook Islands economic and social development, while never losing sight of the fact that our financial support comes from the taxes of hard working New Zealanders,”

This week’s anniversary comes at a time of increasing tension between the two nations.

At the heart of that are four agreements between the Cook Islands and China, which Cook Islands Prime Minister Mark Brown signed in February.

NZ funding halted
The New Zealand government said it should have been consulted over the agreements, but Brown disagreed.

The diplomatic disagreement has resulted in New Zealand halting $18.2 million in funding to the Cook Islands, which is a realm country of New Zealand.

Under that arrangement — implemented in 1965 — the country governs its own affairs, but New Zealand provides some assistance with foreign affairs, disaster relief and defence.

Peters today said the “beating heart” of the Cook Islands-New Zealand relationship was the “right to choose”.

“Cook Islanders are free to choose where to live, how to live, and to worship whichever God they wish.”

After his formal address, Peters was asked by media about the rift between the governments of the Cooks Islands and New Zealand.

‘Carefully crafted’
He referred back to his “carefully crafted” speech which he said showed “precisely what the New Zealand position is now”.

Brown has previously said that if New Zealand could not afford to fund the country’s national infrastructure investment plan – billed at $650 million — the Cook Islands would need to look elsewhere.

Brown also said in at the time that funding the development needs of the Cook Islands was a major motivator in signing the agreements with China.

Discussions between officials from both countries regarding the diplomatic disagreement were ongoing.

This article is republished under a community partnership agreement with RNZ.

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New Zealand will not send top government representation to the Cook Islands for its 60th Constitution Day celebrations in three weeks’ time.

Instead, Governor-General Dame Cindy Kiro will represent Aotearoa in Rarotonga.

On August 4, Cook Islands will mark 60 years of self-governance in free association with New Zealand.

It comes at a turbulent time in the relationship

New Zealand paused $18.2 million in development assistance funding to the Cook Islands in June after its government signed several agreements with China in February.

At the time, a spokesperson for Foreign Minister Winston Peters said the pause was because the Cook Islands did not consult with Aotearoa over the China deals and failed to ensure shared interests were not put at risk.

Peters and New Zealand Prime Minister Christopher Luxon will not attend the celebrations.

Ten years ago, former Prime Minister Sir John Key attended the celebrations that marked 50 years of Cook Islands being in free association with New Zealand.

Officials from the Cook Islands and New Zealand have been meeting to try and restore the relationship.

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A new poll by the New Zealand Taxpayers’ Union shows that almost half of respondents oppose the Cook Islands having automatic New Zealand citizenship.

Thirty percent of the 1000-person sample supported Cook Islanders retaining citizenship, 46 percent were opposed and 24 percent were unsure.

• The Cook Islands government is pursuing closer strategic ties with China, ignoring New Zealand’s wishes and not consulting with the New Zealand government. Given this, should the Cook Islands continue to enjoy automatic access to New Zealand passports, citizenship, health care and education when its government pursues a foreign policy against the wishes of the New Zealand government?
• READ MORE: Other Cook Islands reports

Taxpayers’ Union head of communications Tory Relf said the framing of the question was “fair”.

“If the Cook Islands wants to continue enjoying a close relationship with New Zealand, then, of course, we will support that,” he said.

“However, if they are looking in a different direction, then I think it is entirely fair that taxpayers can have a right to say whether they want their money sent there or not.”

But New Zealand Labour Party deputy leader Carmel Sepuloni said it was a “leading question”.

‘Dead end’ assumption
“It asserts or assumes that we have hit a dead end here and that we cannot resolve the relationship issues that have unfolded between New Zealand and the Cook Islands,” Sepuloni said.

“We want a resolution. We do not want to assume or assert that it is all done and dusted and the relationship is broken.”

The two nations have been in free association since 1965.

Relf said that adding historical context of the two countries relationship would be a different question.

“We were polling on the Cook Islands current policy, asking about historic ties would introduce an emotive element that would influence the response.”

New Zealand has paused nearly $20 million in development assistance to the realm nation.

Foreign Minister Winston Peters said the decision was made because the Cook Islands failed to adequately inform his government about several agreements signed with Beijing in February.

‘An extreme response’
Sepuloni, who is also Labour’s Pacific Peoples spokesperson, said her party agreed with the government that the Cook Islands had acted outside of the free association agreement.

“[The aid pause is] an extreme response, however, in saying that we don’t have all of the information in front of us that the government have. I’m very mindful that in terms of pausing or stopping aid, the scenarios where I can recall that happening are scenarios like when Fiji was having their coup.”

In response to questions from Cook Islands News, Cook Islands Prime Minister Mark Brown said that, while he acknowledged the concerns raised in the recent poll, he believed it was important to place the discussion within the full context of Cook Islands’ longstanding and unique relationship with New Zealand.

“The Cook Islands and New Zealand share a deep, enduring constitutional bond underpinned by shared history, family ties, and mutual responsibility,” Brown told the Rarotonga-based newspaper.

“Cook Islanders are New Zealand citizens not by privilege, but by right. A right rooted in decades of shared sacrifice, contribution, and identity.

“More than 100,000 Cook Islanders live in New Zealand, contributing to its economy, culture, and communities. In return, our people have always looked to New Zealand not just as a partner but as family.”

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New Zealand has paused $18.2 million in development assistance funding to the Cook Islands after its government signed partnership agreements with China earlier this year.

This move is causing consternation in the realm country, with one local political leader calling it “a significant escalation” between Avarua and Wellington.

A spokesperson for Foreign Minister Winston Peters said the Cook Islands did not consult with Aotearoa over the China deals and failed to ensure shared interests were not put at risk.

On Thursday (Wednesday local time), Cook Islands Prime Minister Mark Brown told Parliament that his government knew the funding cut was coming.

“We have been aware that this core sector support would not be forthcoming in this budget because this had not been signed off by the New Zealand government in previous months, so it has not been included in the budget that we are debating this week,” he said.

How the diplomatic stoush started
A diplomatic row first kicked off in February between the two nations.

Prime Minister Brown went on an official visit to China, where he signed a “comprehensive strategic partnership” agreement.

The agreements focus in areas of economy, infrastructure and maritime cooperation and seabed mineral development, among others. They do not include security or defence.

However, to New Zealand’s annoyance, Brown did not discuss the details with it first.

Prior to signing, Brown said he was aware of the strong interest in the outcomes of his visit to China.

Afterwards, a spokesperson for Peters released a statement saying New Zealand would consider the agreements closely, in light of the countries’ mutual constitutional responsibilities.

The Cook Islands-New Zealand relationship
Cook Islands is in free association with New Zealand. The country governs its own affairs, but New Zealand provides assistance with foreign affairs (upon request), disaster relief and defence.

Cook Islanders also hold New Zealand passports entitling them to live and work there.

In 2001, New Zealand and the Cook Islands signed a joint centenary declaration, which required the two to “consult regularly on defence and security issues”.

The Cook Islands did not think it needed to consult with New Zealand on the China agreement.

Peters said there is an expectation that the government of the Cook Islands would not pursue policies that were “significantly at variance with New Zealand’s interests”.

Later in February, the Cooks confirmed it had struck a five-year agreement with China to cooperate in exploring and researching seabed mineral riches.

A spokesperson for Peters said at the time said the New Zealand government noted the mining agreements and would analyse them.

How New Zealand reacted
On Thursday morning, Peters said the Cook Islands had not lived up to the 2001 declaration.

Peters said the Cook Islands had failed to give satisfactory answers to New Zealand’s questions about the arrangement.

“We have made it very clear in our response to statements that were being made — which we do not think laid out the facts and truth behind this matter — of what New Zealand’s position is,” he said.

“We’ve got responsibilities ourselves here. And we wanted to make sure that we didn’t put a step wrong in our commitment and our special arrangement which goes back decades.”

Officials would be working through what the Cook Islands had to do so New Zealand was satisfied the funding could resume.

He said New Zealand’s message was conveyed to the Cook Islands government “in its finality” on June 4.

“When we made this decision, we said to them our senior officials need to work on clearing up this misunderstanding and confusion about our arrangements and about our relationship.”

Prime Minister Christopher Luxon is in China this week.

Asked about the timing of Luxon’s visit to China, and what he thought the response from China might be, Peters said the decision to pause the funding was not connected to China.

He said he had raised the matter with his China counterpart Wang Yi, when he last visited China in February, and Wang understood New Zealand’s relationship with the Cook Islands.

Concerns in the Cook Islands
Over the past three years, New Zealand has provided nearly $194.6 million (about US$117m) to the Cook Islands through the development programme.

Cook Islands opposition leader Tina Browne said she was deeply concerned about the pause.

Browne said she was informed of the funding pause on Wednesday night, and she was worried about the indication from Peters that it might affect future funding.

She issued a “please explain” request to Mark Brown:

“The prime minister has been leading the country to think that everything with New Zealand has been repaired, hunky dory, etcetera — trust is still there,” she said.

“Wham-bam, we get this in the Cook Islands News this morning. What does that tell you?”

“That spirit of the [2001] declaration is really in question here,” she said.

“The negotiation between the two countries needs to take aid as a bargaining chip off the table for it to be able to continue — for it to be successful.”

Dr Powles said New Zealand’s moves might help China strengthen its hand in the Pacific.

She said China could contrast its position on using aid as a bargaining chip.

“By Beijing being able to tell its partners in the region, ‘we would never do that, and certainly we would never seek to leverage our relationships in this way’. This could be a very good news story for China, and it certainly puts New Zealand in a weaker position, as a consequence.”

However, a prominent Cook Islands lawyer said it was fair that New Zealand was pressing pause.

Norman George said Brown should implore New Zealand for forgiveness.

“It is absolutely a fair thing to do because our prime minister betrayed New Zealand and let the government and people of New Zealand down.”

Brown has not responded to multiple attempts by RNZ Pacific for comment.

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