What is Pacific Islands Forum and why does it matter?

Leaders at the region's paramount political assembly confront a series of challenges, including climate change and the escalating dynamics of strategic competition.

This week, leaders from Pacific nations will come together in the Cook Islands for a pivotal regional event. The Pacific Islands Forum (PIF) is the primary platform for shaping political decisions in this area. This year, the focus will be on climate change in preparation for COP28, and the agenda will also cover the management of increasing geostrategic competition, including China's rising influence.

Just before the summit, it was confirmed that the leaders of Papua New Guinea, Solomon Islands, Vanuatu, and New Zealand would be absent, potentially impacting progress on various matters.

Let's understand Pacific Islands Forum and its importance:

What is the history and background of the PIF?

The Pacific Islands Forum came into existence in 1971 as a response to the frustrations of leaders from newly independent countries in the Pacific region. They had grown disillusioned with the decision-making processes of the South Pacific Commission, where decisions regarding their own region were being determined by colonial powers such as the UK, France, and the US.

In this earlier forum, issues of great significance to the Pacific nations, like the cessation of nuclear testing and the pursuit of self-determination, were not being addressed. Feeling the need to have greater autonomy in shaping their own future, Pacific leaders, including figures like Ratu Mara of Fiji, took the initiative to establish an organization where they could have a more direct say in the decision-making process. The Pacific Islands Forum was born out of this desire for self-governance and autonomy in addressing the unique challenges and opportunities of the Pacific region.

What is the purpose of the forum?

The forum serves as the region's primary decision-making body and is assisted by a secretariat situated in Suva, Fiji. Back in 2022, the leaders embraced the 2050 Strategy for the Blue Pacific Region, which outlines a vision for the Pacific across eight key areas, including political leadership and regionalism. In 2023, leaders are expected to approve the implementation plan for the 2050 strategy, which will likely provide details on how regional organisations will assist member states with crucial issues like climate change adaptation and economic development.

The forum's chair rotates annually among its members, with the current chair being Mark Brown, the Prime Minister of the Cook Islands, who will host this year's meeting. The PIF also utilises a "troika" of leaders, consisting of the current chair, the previous chair, and the next chair, acting as an advisory group for the forum chair. The secretariat is led by a secretary general, currently held by Henry Puna, the former Prime Minister of the Cook Islands.

Who are the member nations of the Pacific Islands Forum?

The Pacific Islands Forum is comprised of 18 member states, with Australia and New Zealand serving as the largest economies. The rest of the group hails from the diverse regions of Melanesia, Micronesia, and Polynesia. Tokelau, a dependent territory of New Zealand, holds an associate membership.

An interesting development occurred in 2016 when membership criteria evolved. Prior to that, it was limited to fully sovereign nations. However, French Polynesia and New Caledonia, both French territories, were granted full membership. Additionally, there exists an outer circle referred to as "forum dialogue partners," which includes countries like the United States, China, and the United Kingdom, who engage in discussions with the forum but are not formal members.

What are the important issues to watch?

The 2023 Pacific Islands Forum, scheduled from November 6 to 10, holds a significant agenda. It marks the return of Kiribati's President, Taneti Maamau, whose absence in 2022 highlighted a profound rift in the regional fabric. This division was ignited by Micronesian discontent over the appointment of Henry Puna as the forum's secretary general, which wasn't their preferred choice. Despite this past turbulence, there are optimistic expectations of a renewed commitment to collective decision-making, a crucial element for navigating an increasingly complex landscape.

The Pacific region is witnessing heightened interest and competition, with both the United States and China serving as forum dialogue partners. This dynamic may introduce some discomfort, particularly for the U.S. as it aims to counter China's growing influence. The hope, however, is that these partners align their words and actions with the priorities of the Pacific nations.

A notable absence at the forum will be the prime ministers of Papua New Guinea, Solomon Islands, and Vanuatu, rendering the Melanesian sub-group meeting nearly inconsequential. Consequently, the likelihood of significant progress on the matter of West Papua at the broader forum is diminished.

One area expected to generate varying viewpoints is deep-sea mining in the region, which has been a simmering issue. This could come to the forefront, given the Cook Islands Prime Minister Mark Brown's support for deep-sea mining as a means of economic diversification, while other nations like Vanuatu and Fiji have previously called for a moratorium.

Australia will seize the opportunity to garner full-fledged Pacific support for its bid to host the COP31 climate talks in 2026. Despite some calls, including from former Pacific leaders, to withhold support due to perceived inadequacies in Australia's climate ambition under the Albanese government, the proposal is largely expected to proceed.

Do all member states find common ground on every issue?

Decisions are reached through consensus, often termed "the Pacific way." This approach sometimes leads to extensive deliberations during the leaders' retreat, where the final communique for the annual meeting is crafted. The forum has managed to find common ground on substantial matters like the South Pacific nuclear-free zone, but it has also encountered notable divisions. One of the most prominent rifts has been with Australia, particularly concerning efforts to reduce carbon emissions and address climate change.