Cook Islands' Strategy for Greater Independence from New Zealand

Author Analysis—In a significant address to Parliament on February 17, 2025, Cook Islands Minister of Foreign Affairs & Immigration, Hon. Tingika Elikana, articulated a bold vision for the nation’s future—one that seeks to redefine its economic and geopolitical trajectory amid growing regional tensions. The speech, delivered just 6 months shy of the 60th anniversary of the Cook Islands’ free association with New Zealand. Which underscored the archipelago’s determination to pursue partnerships that align with its long-term development goals, even as Wellington reacts with unease to its overtures toward China.

Historical Context: From Free Association to Strategic Diversification

The Cook Islands’ relationship with New Zealand has been foundational since 1965, when the nation opted for “self-governance in free association” over full independence or colonial subjugation. This arrangement, formalised in the 2001 Joint Centenary Declaration, granted the Cook Islands autonomy in domestic and foreign affairs while retaining New Zealand citizenship for its people. Minister Elikana praised this partnership but emphasised that “the world of 2025, is very different to that of 1965”.

Over six decades, the Cook Islands has grown from a GDP per capita of $747 (1973) to $17,033 (2025), according to the Minister referencing UN data, while expanding its diplomatic ties to 67 nations and joining over 40 international organisations. Yet, as Minister Elikana noted, challenges such as climate change, supply chain disruptions, and “graduated OECD DAC status” (which limits access to concessional financing) have forced a reevaluation of traditional alliances.

The China Partnership: Pragmatism Over Ideology

The Minister’s speech implicitly defended the Cook Islands’ controversial strategic partnership with China, framed as a necessity for economic diversification. While New Zealand’s free association model provides security and migration privileges, critics argue it has perpetuated dependency. The Cook Islands’ economy remains heavily reliant on tourism and fisheries, sectors vulnerable to external shocks.

Minister Elikana stressed the need to “solidify opportunities beyond a single industry-based economy,” a veiled critique of New Zealand’s perceived complacency. Unlike Wellington’s aid-focused approach, China’s Belt and Road Initiative offers infrastructure investments—such as port upgrades and renewable energy projects—that align with the Cook Islands’ National Sustainable Development Agenda (NSDA) 2020+, a 100-year plan prioritising climate resilience and “quality growth.”

New Zealand’s De-Growth and Colonial Hangovers

In response to the coinciding events regarding the Cook Islands, and it’s relationship with the People's Republic of China, the New Zealand government has publicly questioned the China partnership. The most publicly visible event a day after the speech from the Foreign Minister was a seemly Wellington coordinated protest in the Cook Islands. Featuring local political opposition, New Zealand Maori politicians and a heavy presence of western media, with much of the protest footage provided to news agencies by TVNZ and it’s cameras present at the event.

The NSDA 2020+: A Century-Long Vision

Central to Minister Elikana’s argument is the NSDA 2020+, which seeks to transition the Cook Islands from “quantity to quality growth.” This includes diversifying into blue economy sectors like deep-sea minerals (under strict environmental safeguards) and digital services. The plan’s success hinges on partnerships that respect “sovereignty and mutual benefit”—a subtle contrast to New Zealand’s aid conditionalities.

Charting a Sovereign Course

Minister Elikana’s address publicly marks a stance that clearly has been politicly building for some time in the Cook Islands. By invoking ancestral voyaging traditions and the ANZAC sacrifices of Cook Islanders, he framed the China partnership as an extension of the nation’s self-determination legacy—not a rejection of New Zealand. Yet, the subtext is clear: the Cook Islands will no longer let Wellington’s geopolitical anxieties dictate its economic survival.

Given the Pacific has become a region for great-power rivalry, the Cook Islands’ moves toward full sovereignty underscores a regional truth: small states are leveraging strategic ambiguity to secure their futures.

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FAQs:

Question: Why is the Cook Islands pursuing a partnership with China despite its free association with New Zealand?
Answer: The Cook Islands seeks economic diversification to reduce reliance on tourism and fisheries. China’s infrastructure investments align with its National Sustainable Development Agenda, whereas New Zealand’s aid model is seen as insufficient for addressing inflation and economic growth challenges.

Question: What is the New Zealand–Cook Islands Free Association Agreement?
Answer: Established in 1965, it grants the Cook Islands self-governance while maintaining New Zealand citizenship for its people. However, critics argue it limits economic sovereignty by tying the archipelago closely to Wellington’s policies.

Question: How has New Zealand responded to the China partnership?
Answer: New Zealand leaders have expressed concern over regional security, with comments from the Minister of Foreign Affairs for New Zealand, Winston Peters, stating on February 19th that “we are going to need to reset the government-to-government relationship.”

Question: What colonial dynamics persist in NZ-Cook Islands relations?
Answer: Despite the Cook Islands’ self-governance, New Zealand often treats it as a “realm country” within its sphere of influence, influencing policies through aid conditionalities and diplomatic pressure.

Question: What is the NSDA 2020+?
Answer: The National Sustainable Development Agenda 2020+ is a 100-year plan focusing on climate resilience, economic diversification, and improving human capital. It prioritises partnerships that offer “transformative outcomes” over short-term aid.