The Cook Islands engaged a series of strategic meetings across the Pacific and the globe. Through coordinated efforts within the Pacific Small Island Developing States (PSIDS) and the Alliance of Small Island States (AOSIS), this has helped shape strong regional solidarity while refining global governance frameworks for the high seas. In doing so, the Cook Islands reaffirms its commitment to advancing the Biodiversity Beyond National Jurisdiction (BBNJ) Agreement and ensuring this historic high seas treaty is implemented with Pacific voices and priorities at its core.
This commitment comes as the landmark BBNJ Agreement – the third implementing agreement under the United Nations Convention on the Law of the Sea (UNCLOS) – moves toward ratification. Adopted on 19 June 2023, the treaty seeks to ensure the conservation and sustainable use of marine biodiversity in areas beyond national jurisdiction. It opened for signature on 20 September 2023, with the Cook Islands signing shortly thereafter. As of April 2025, 112 countries have signed the Agreement, though only 21 have ratified it so far—toward the 60 ratifications required for entry into force.
To prepare for the treaty’s implementation, Palau, an acknowledged leader in ocean governance, hosted a Pacific regional preparatory meeting that brought together senior officials for four days of intensive discussions that took place from 31 March to the 4th April 2025,. Opening the meeting, Palau’s Minister of Agriculture, Fisheries and Environment, Hon. Steven Victor, underscored the critical importance of Pacific leadership in advancing BBNJ implementation. Guided by Pacific Ocean Commissioner Dr. Filimon Manoni, the sessions featured expert panels on key elements of the treaty, including rules of procedure, institutional arrangements, and marine genetic resources. In closed-door coordination sessions, PSIDS representatives developed unified positions emphasizing equity, the safeguarding of traditional knowledge, capacity-building, and ensuring meaningful small island participation throughout the Agreement’s institutional architecture.
Building on the momentum from Palau’s gathering the Pacific SIDS convened two virtual meetings to further solidify positions ahead of the first session of the BBNJ Preparatory Commission (PrepCom1) at the United Nations Headquarters in New York. Chaired by Tuvalu, these consultations saw Pacific delegations designate thematic leads among themselves – assigning the Federated States of Micronesia to lead on governance issues, Vanuatu on the clearing-house mechanism, and Papua New Guinea on finance. Deliberations focused on protecting SIDS voices within the new global institutions, pushing for the operationalization of “special circumstances” clauses that recognize the particular vulnerabilities of small islands, and embedding Indigenous Peoples and Local Communities (IPLCs) into the BBNJ governance structure. Delegates also strategized on future financial mechanisms, stressing the need for a Special Fund that is accessible, equitably governed, and attuned to the resource limitations of island nations.
In parallel with these Pacific-wide efforts, the Cook Islands participated in a full-day coordination meeting of AOSIS in New York, to refine common positions among small island nations globally. This AOSIS forum honed in on the design of new institutions under the treaty, fair representation in subsidiary bodies, and consensus on rules of procedure. The coalition reaffirmed the need for dedicated SIDS representation in all BBNJ decision-making bodies, greater use of virtual participation to overcome distance barriers, gender balance in leadership roles, and support for early-career ocean professionals from island states. On financial matters, AOSIS proposed establishing a dedicated BBNJ Restoration and Rehabilitation Fund to complement the Special Fund for monetary benefit-sharing – an initiative aimed at ensuring that benefits from high seas resources are shared fairly and used to restore marine ecosystems. These positions are grounded in the principle that the emerging high seas governance regime must be not only sustainable but also genuinely inclusive.
The Cook Islands delegation welcomed AOSIS’s approach, noting its strong alignment with national priorities under the country’s Marae Moana framework. Marae Moana – the Cook Islands’ world-leading integrated ocean management regime – is built on ecosystem-based management, the precautionary approach, and inclusive governance, principles that are closely mirrored in the BBNJ Agreement’s vision.
Preparatory Commission Session 1 (PrepCom) started from 14 – 25 April at the United Nations Headquarters in New York and the session concluded with notable progress. Under the efficient guidance of the PrepCom Co-Chairs and a collaborative spirit among all delegations, the meeting laid important groundwork for the treaty’s practical implementation. Crucially, the conference acknowledged the special circumstances of small island developing states, initiating cooperative frameworks with other international bodies to share knowledge and avoid duplication of effort. Delegates also began detailing the treaty’s financial provisions, including preliminary designs for the operation of the Special Fund to support implementation. The meeting addressed expected reporting obligations under the agreement as well, with consensus that these requirements must remain feasible and not impose undue burdens – particularly on states with limited administrative capacity. By the close of the session, there was a clear commitment among all parties to maintain momentum through the intersessional period. Preparations are already underway for PrepCom2, expected later this year, which will focus on advancing practical cooperation modalities, further refining financial mechanisms, and ensuring dedicated SIDS representation is firmly embedded in the treaty’s operational framework.
Throughout this process, the Cook Islands remains steadfast in its pursuit of a high seas governance regime that enshrines equity, transparency, and sustainability. The Cook Islands aims to ensure that the BBNJ Agreement will not only safeguard marine biodiversity for future generations, but also honor and uplift the rights, traditional knowledge, and aspirations of Pacific peoples who have been the stewards of our ocean for centuries.
