The Cook Islands has formally signed a comprehensive strategic partnership agreement with China, a move that has sparked diplomatic tensions with New Zealand and raised concerns about Beijing’s growing influence in the Pacific.
The five-year agreement, titled The Action Plan for Comprehensive Strategic Partnership (CSP) 2025-2030, outlines cooperation across key sectors, including trade, tourism, infrastructure, agriculture, and climate resilience.
However, the lack of transparency surrounding the deal, particularly regarding potential seabed mining activities and security implications, has alarmed both Wellington and regional allies.
A Shift in Regional Dynamics
The agreement was signed during Cook Islands Prime Minister Mark Brown’s visit to China, where he met with Chinese Premier Li Qiang. Brown has defended the deal, stating it “complements, not replaces” existing partnerships with New Zealand and other allies. However, the decision to proceed without consulting Wellington has led to criticism from New Zealand officials, including Foreign Minister Winston Peters, who stressed the need for transparency given the Cook Islands’ constitutional ties to New Zealand.
Former New Zealand Prime Minister Helen Clark was among the strongest critics, describing the move as “clandestine” and arguing that it damages the long-standing relationship between the two nations. Clark pointed to the 2001 Joint Centenary Declaration, which calls for consultation on security and foreign policy matters of mutual interest. “The Cook Islands public need to see the agreement—does it open the way to Chinese entry to deep-sea mining in pristine Cook Islands waters with huge potential for environmental damage?” she asked.
Despite Wellington’s concerns, Brown maintains that the agreement is a natural step in the Cook Islands’ economic and diplomatic evolution. “This visit is about expanding economic opportunities while ensuring our sovereignty and national interests remain at the forefront,” he stated. The government has committed to making the full text of the agreement publicly available soon.
Concerns Over Seabed Mining and Economic Influence
One of the most contentious aspects of the partnership is the potential for increased Chinese involvement in seabed mining. The Cook Islands sits atop one of the world’s richest reserves of seabed minerals, including cobalt, nickel, and manganese—resources that are critical to global technology supply chains. China has long expressed interest in deep-sea mining, and the agreement includes provisions for cooperation in ocean science and mineral exploration.
Environmental groups and some local leaders have raised concerns about the ecological risks associated with seabed mining. Critics warn that the deal could pave the way for China to gain privileged access to these resources, potentially at the expense of environmental safeguards.
Additionally, economic analysts caution that the Cook Islands must carefully navigate financial commitments to avoid unsustainable debt. While Brown has insisted that the agreement will not come with new debt obligations, similar Chinese partnerships with other Pacific nations have resulted in significant financial dependencies.
New Zealand’s Diplomatic Response
New Zealand has taken a cautious but firm stance, demanding greater transparency from the Cook Islands government. Prime Minister Christopher Luxon dismissed claims of a double standard—given New Zealand’s own efforts to strengthen ties with the United States—stating that the issue is one of consultation, not geopolitical alignment. “What we expect is transparency and upfrontness about what’s going on,” Luxon said, underscoring New Zealand’s constitutional obligations in defence and security.
The dispute has reignited discussions about the evolving nature of the Cook Islands’ free association with New Zealand. While the Cook Islands manages its own foreign affairs, it remains closely tied to Wellington through shared citizenship, economic support, and defence arrangements. Some legal experts argue that the interpretation of the Joint Centenary Declaration is at the heart of the disagreement. “From a legal perspective, there’s an ambiguity of what the word consultation means,” said AUT law lecturer Sione Tekiteki.
Meanwhile, regional security analysts warn that the partnership fits into a broader pattern of China expanding its influence in the Pacific. “China is positioning itself as a dominant regional governance player,” said Massey University defence expert Anna Powles. “This is also about China’s broader ambitions and strategies within the Pacific Islands region to effectively shape the region in a way which is more favourable for their engagement.”
Broader Implications for the Pacific
The Cook Islands-China deal is part of a wider trend of Beijing’s increasing engagement with Pacific Island nations. In recent years, China has signed similar agreements with the Solomon Islands, Vanuatu, and Kiribati, raising concerns among Western allies about potential dual-use infrastructure projects with military implications.
The agreement also includes provisions for enhanced cooperation at regional forums, which some analysts see as an effort by Beijing to influence multilateral decision-making in the Pacific. “We see a much closer alignment between the Cook Islands and China within that multilateral space within the Pacific,” said Powles. “This very much fits into China’s efforts to shape the regional environment in a way that is favourable to their interests.”
In response, Australia, the U.S., and New Zealand are likely to increase their diplomatic and economic engagement in the region. New Zealand has already hinted at reassessing its development assistance policies for the Cook Islands, while Washington has expanded aid and security cooperation with other Pacific nations.
Conclusion
The Cook Islands’ decision to formalise its strategic partnership with China marks a significant shift in regional geopolitics. While the deal offers economic opportunities, it also raises serious questions about transparency, environmental sustainability, and security. As Wellington, Canberra, and Washington assess the implications, the agreement highlights the increasing strategic importance of Pacific Island nations in global affairs.