The Polynesian islands of the Cook Islands are made up of a group of 15 Islands and two submerged rises. Seven islands make up the Northern Group and there are ten in the Southern Group. The rises are split between the two Groups. The largest and most populous island is Rarotonga and is the seat of Government. The Cook Islands is part of the Realm of New Zealand..^[1] The realm includes New Zealand, Tokelau, Niue, the Cook Islands, and the Ross Dependency.^[2]

The Cook Islands, a self-governing parliamentary democracy in free association with New Zealand,^[3][4] demonstrates a unique governance framework shaped by its history, culture, and political evolution. The country has navigated a transition from traditional leadership to colonial administration and, ultimately, to self-governance. Central to this transformation is the Cook Islands Constitution Act 1964,^[5] which formalised self-rule while preserving traditional governance practices.

Cultural values, including communal decision-making and the advisory role of the House of Ariki, remain integral to public administration. Additionally, the Pa Enua Governance Division exemplifies localised governance tailored to the needs of island communities.^[6]

The governance history of the Cook Islands reflects a dynamic interplay of tradition and external influences. Historically, decision-making was guided by ariki (chiefs), who governed through consensus and communal practices. This system was deeply rooted in Polynesian culture and continues to influence governance today through the House of Ariki, established under the Part 1 S8 – 11B of the Constitution.^[7]

The arrival of missionaries in the 19th century brought significant cultural and administrative changes, introducing Christian principles that reshaped governance. Traditional laws were aligned with Christian teachings, such as the implementation of "Blue Laws" to regulate societal behaviour. These "Blue Laws" were introduced by the Reverend John Williams. He adapted a version of the Raʻiātea Code of Laws to regulate the conduct of the peoples of Rarotonga.^[8]

In 1888, the Cook Islands became a British Protectorate, leading to external administrative control. This transitioned to New Zealand's jurisdiction in 1901, following annexation. Governance was formalised with the establishment of the Resident Commissioner in 1891 and the Legislative Council in 1946, which marked the beginning of Cook Islands' legislative autonomy.

Self-governance was achieved in 1965 under the Cook Islands Constitution Act 1964 (Parliamentary Counsel Office, 1964). This Act defined the country's administrative and political structures while maintaining free association with New Zealand for defence and foreign affairs. Since independence, constitutional amendments have incorporated traditional leadership and adapted to evolving governance needs. The establishment of the Pa Enua Governance Division^[9] further decentralised administration, fostering localised service delivery .

The official Head of State of the Cook Islands is King Charles the III.^[10] The King's Representative is Sir Tom Marsters. The King's Representative fulfils the role of a Governor-General and is responsible for appointing the Prime Minister and the Cabinet, in addition to chairing the Executive Council. Prior to 1982 this role was undertaken by the High Commissioner of New Zealand, however these powers were repatriated.^[11]

The Cook Islands' governance system integrates traditional leadership and cultural values with modern administrative frameworks. The House of Ariki, comprising traditional leaders, advises on matters related to welfare and culture. This ensures that policymaking respects indigenous traditions, blending them with contemporary governance practices.^[12]

The Pa Enua Governance Division plays a critical role in bridging traditional and contemporary governance. This division coordinates local administration, involving elected officials, traditional leaders, and community representatives to ensure inclusive decision-making.^[13]

Communal decision-making remains a cornerstone of Cook Islands culture, influencing governance at all levels. These practices promote collaboration and inclusivity, ensuring that public sector management reflects community priorities. However, balancing these traditions with the efficiency demands of bureaucratic systems presents an ongoing challenge.^[14]

The governance framework is anchored in parliamentary sovereignty, with a unicameral legislature comprising 24 members. The Executive Council is the supreme decision-making body of Government and comprises the King's Represent (as Chair) and all Cabinet Ministers which includes the Prime Minister.^[15] The Prime Minister and Cabinet are responsible for policy implementation, while the legislature provides oversight.

Island Governments under the Pa Enua framework enhance localised governance by fostering community engagement in decision-making and tailored service delivery.^[16]

The Island Government is a Council established under the 2012-13 Island Government Act.^[17]

The objects of this Act are:

1. to foster good governance by all Island Governments:
2. to promote accountability of Island Governments to their island communities:
3. to encourage community participation in the governance of each island through transparency and consultation:
4. to encourage Island Governments and the island community to progressively assume responsibilities as and when they are able to do so:
5. to enable Island Governments and their island communities to decide on how best to promote the social, economic, cultural and environmental well-being of the respective islands.

The Act establishes an Island Government^[18] on each Island. The members of each Island Government comprise elected members consisting of a mayor and councillors, appointed members consisting of traditional leaders or representative, religious representative and members of parliament. The later 3 are ex-officio members of the Island Government. The Island Governments are, in effect, a form of Local Government.

There is an Island Government for each of the10 inhabited islands in the Cook Islands including: Mangaia, Atiu, Mauke, Mitiaro, Aitutaki, Palmerston, Pukapuka/Nassau, Manihiki, Rakahanga and Penrhyn. The Island Government may also be known as Kavamani Enua or any other term prescribed by regulations made under the Island Government Act.^[6]

The Cook Islands face persistent governance challenges, including political patronage, which undermines public sector neutrality. External funding dependencies further exacerbate vulnerabilities, limiting the country's ability to achieve full economic independence. Decentralisation^[19] efforts through the Pa Enua Governance Division have been successful in some areas but have also faced capacity constraints,^[20] leading to the re-centralisation of certain functions^[21]

The Cook Islands' governance framework demonstrates the importance of integrating traditional leadership and cultural practices into modern administrative systems. The Pa Enua Governance Division serves as a model for localised governance, addressing the unique challenges of geographic dispersion and resource limitations. While external dependencies and political patronage remain significant obstacles, the Cook Islands offer valuable lessons for other Small Island Developing States (SIDS) seeking to balance tradition and modernity in governance.

The public sector in SIDS, including thee Cook Islands, was initially considered to be bloated and inefficient by the World Bank . However, literature that is more recent acknowledges that small states invest considerable financial and human resources relative to their GDP in order to deliver public services to small populations. Moreover, the public sector is the main employer in many SIDS and compensates for low capacity within the private sector.^[21]

New public management reforms, which focused on rightsizing the public sector, were introduced in the 1990s. There is little evidence on the success of these reforms, although Hassall^[22] suggests that they were generally resisted. Hence, the public sector remains relatively large in many SIDS.

The public sector in SIDS is not independent and is compromised by political interference, patronage politics and ethnic affiliations. These tendencies coupled with other socio-cultural characteristics are not suitable for establishing the Weberian model of the public service which emphasises individual merit and neutrality.^[23]

Devolution had limited success in the Cook Islands. Consequently, many public sector functions were recentralised.^[19]