Pacific leaders voice concern over Chinese missile test but stop short of condemnation

The Pacific Islands Forum (PIF) has wrapped up with most nations agreeing to "register concern" on China's recent intercontinental ballistic missile (ICBM) test, "which overflew a number of members without adequate notice".

"Leaders call on all states undertaking ICBM testing to ensure transparency and reassurance, including through the provision of advance notification of a test at least 24 hours in accordance with international practice," the communique says, as read out by Palau's President and PIF chair Surangel Whipps Junior, after the closing ceremony.

But it was not unanimous.

In a rare move for the usually consensus-based forum, Nauru was the only one of 18 PIF members to dissent from the clause.

Kiribati and Nauru were the only two Pacific nations that had previously blocked a draft PIF statement in the immediate aftermath of Beijing's test, a move that Prime Minister Anthony Albanese had been advocating for.

However the statement went further than analysts and government sources had expected; the PIF foreign ministers' meeting statement in August was broader, discussing ballistic missile testing in the region, but had stopped short of singling out a particular ICBM or referencing a notice period for nations to undergo any testing.

Whipps also hit back against China's comments that Palau sensationalised its ballistic missile test, saying: "There's no sensationalism, it's just stating the facts."

"The Pacific Islands weren't informed [of the test]. The ones that were informed were informed late, and so I think the message from the forum is clear: that transparency needs to happen."

Intelligence shows the nuclear-capable intercontinental ballistic missile test in July flew over the Philippines, Palau and Micronesia's airspace before landing in the Pacific Ocean.

Several nations had criticised the test, just the second since 1980.

The response has become something of a litmus test for PIF and its members for their strategic positioning.

The communique's relevant clause includes a reference to the Fiji-led Ocean of Peace declaration made last year, which states the region should be free from coercion and militarisation.

However, it doesn't name China, nor does it use heftier diplomatic language than "concern".

While Australian officials were happy with the agreed statement, it fell short of some pre-retreat expectations, including those of the host, Palau.

Whipps made his displeasure with the test clear, which followed a 2024 effort.

"They sent a missile next to French Polynesia, another one next to Tuvalu, crossing over our airspace. They never bothered to tell us that's what's happening," he said.

"I said 'there's a lot of space between Japan and Guam, why don't you send it there? Why does it have to come to the middle of the Pacific when last year we just signed a declaration of peace?'

"We don't want our backyard, our homes, to be threatened and really disrespected."

Whipps said "a unified Pacific voice" would be critical to get Beijing to "respect sovereignty".

No region-wide pact

In other decisions of the leaders' retreat, PIF will categorise external powers, currently known as "dialogue partners", as either strategic or sector partners.

The 13 strategic partners will be China, the US, France, Germany, the UK, the EU, Canada, Japan, India, Indonesia, Singapore, South Korea and the UAE.

Those partners will be able to continue to travel to leaders' meetings, while sector partners will be referred to the annual foreign ministers gathering.

A region-wide security pact, championed by Solomon Islands Prime Minister Matthew Wale, did not progress — as expected, given Wale's absence.

A proposal to bring the Australia-backed Joint Heads of Pacific Security under the Pacific Islands Forum has also garnered some support.

— With additional reporting by Australian Associated Press

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