Cook Islands Government Releases Domestic Shipping Policy

The Cook Islands Government (CIG) has approved and released its Domestic Shipping Policy, a new framework to guide the planning, operation and oversight of Government-owned and operated shipping services connecting Rarotonga with the Pa Enua. The Policy was approved by Cabinet on 4 June 2026. The Policy applies to CIG-owned and operated vessels and services. It does not impose new obligations or requirements on private sector shipping operators, who will continue to operate under existing maritime

regulatory requirements.

Sea transport is essential to daily life in the Pa Enua, where communities rely on shipping for food, fuel, construction materials and other essential goods, as well as passenger travel between islands and to and from Rarotonga. Domestic shipping in the Cook Islands has historically faced significant challenges. Long distances, small and

dispersed populations, variable demand and frequent weather disruptions have made many routes uneconomic for private operators to service consistently, at times resulting in irregular and unreliable shipping for some communities.

In response, Cabinet has directed an increasing role for Government in strengthening domestic shipping services, progressing towards a dedicated Government-operated shipping model. The Policy is made pursuant to Cabinet Minute (23) 0368, which authorises CIG to procure vessels, establish a government fleet, and to operate and maintain vessels to provide sustainable domestic shipping services. CM (23) 0368 also confirms that domestic shipping responsibilities will remain with the Ministry of Finance and Economic Management (MFEM), through its Major Projects and Procurement Support (MPPS) Division, for a transition period of three years.

Under the Policy, MFEM-MPPS will manage, oversee and operate CIG domestic shipping. This includes planning and publishing voyage schedules, coordinating charters, administering emergency shipping support, and working closely with Island Governments, port authorities, private shipping operators and Pa Enua communities.

The Policy establishes a framework to ensure Government shipping services are regular, reliable, safe, efficient, cost-effective, sustainable and aligned with national and international maritime standards. It sets out a six-month, pre-arranged voyage schedule for the Northern Group (Pukapuka, Nassau, Palmerston, Rakahanga, Manihiki, Penrhyn) and Southern Group (Aitutaki, Atiu, Mitiaro, Mauke, Mangaia) islands, provides for chartered voyages to support the Pa Enua diaspora and resident communities for special occasions, and sets out protocols for emergency shipping in response to natural disasters, health emergencies and critical infrastructure failures. It also provides for a shipping subsidy scheme, enabling Government to support private sector operators on routes that are not commercially viable, and sets clear standards for vessel safety, crewing, maintenance and environmental sustainability.

Domestic shipping services delivered under the Policy will operate on a not-for-profit, cost-recovery basis, with charges set to recover the reasonable costs of service delivery rather than to generate profit. This is intended to keep services affordable while maintaining the highest standards of safety and service for the Pa Enua, suppliers and service providers.

The Government wishes to make clear that this Policy is not intended to replace private sector shipping operators. It is designed to complement existing services and address identified gaps, particularly on routes that have proven difficult to service consistently on a commercial basis. Regulatory oversight of all vessels and operators, whether Government or privately owned, will remain the responsibility of the Ministry of Transport and Maritime Cook Islands, ensuring consistent safety standards are applied across the sector.

The release of this Policy is one part of a wider programme of work. MFEM-MPPS

continues to progress the operational readiness activities required before any CIG-owned vessel enters public service, including the development of standard operating procedures, maintenance schedules, and crew recruitment and training. Further updates will be shared with stakeholders and the public as this work progresses.

The Policy reflects the Government's commitment to national resilience and equity, supporting consistent access to essential goods, services and passenger transport, and the social and economic wellbeing of communities across the Cook Islands.

Garth Henderson, Financial Secretary, MFEM says “The release of the Domestic Shipping Policy is an important milestone in strengthening connectivity between Rarotonga and the Pa Enua. Reliable shipping services are essential for the movement of food, fuel, medical supplies, construction materials and people, and play a critical role in supporting the social and economic wellbeing of our island communities. This Policy provides a clear framework for how Government-operated shipping services will be delivered safely, reliably and on a cost-recovery basis, while complementing the valuable role already played by private sector operators. It reflects the Government's commitment to ensuring all Cook Islanders, regardless of where they live, have equitable access to essential transport services and the opportunities that reliable connectivity provides.”

For more information, please contact:

Louis Enoka

MFEM Shipping Coordinator, Major Projects and Procurement Support Division

Ministry of Finance and Economic Management

Email: louis.enoka@cookislands.gov.ck