The signing of the Falepili Union Treaty in 2023 marked an unprecedented level of commitment and security unity between Australia and Tuvalu. Australian Prime Minister Anthony Albanese described it as ‘the most significant agreement between Australia and a Pacific island nation ever’.
As climate-related sea-level rise threatens to leave Tuvalu uninhabitable, the partnership offers the country a level of security. For Australia, the agreement was the first of several to guarantee it some degree of control or veto power over a partnering country’s foreign engagements. The agreement has since received positive feedback from Tuvalu and other governments in the region.
While each Pacific island country will pursue partnerships that work for them, Australia needs to deliver on its promises and demonstrate, as well as effectively communicate, the true value of such comprehensive agreements.
Tuvalu is an island group consisting of nine coral atolls located in the South Pacific, with a population of around 11,000 mostly residing in Funafuti. As one of the smallest and most remote countries in the world, Tuvalu is extremely environmentally vulnerable, facing rising sea levels with limited freshwater resources.
Because of this, Tuvalu upholds climate action as its key national priority and extends this to bilateral relationships. The development of Tuvalu’s Long Term Adaptation Plan and the Future Now Project show Tuvalu’s commitment to its sovereignty and permanent statehood despite the threat of climate change.
The Tuvalu Police Force is the nation’s primary law enforcement agency and is supported by Australia under the Falepili Union Treaty. Australia fast-tracked a replacement Guardian-class patrol boat to Tuvalu in 2024 to help the country achieve its national security priorities, with climate change recognised as the country’s greatest security concern.
The Falepili Union recommits Australia as Tuvalu’s security partner of choice. Under the treaty, Australia promises assistance in response to natural disasters, public health emergencies or military aggression. Tuvalu commits to mutual agreement with Australia on any future partnership on security and defence-related matters.
Outside of the treaty’s security provisions, Australia also offers a mobility pathway for Tuvaluan citizens to migrate to Australia, temporarily or permanently. While only 280 visas will be allocated each year, 8,750 people applied this year in the first round. Constituting over 80 percent of Tuvalu’s population, this demonstrates strong public approval of and interest in this aspect of the agreement. Tuvalu has also recently opened a high commission in Australia, marking the first time Tuvalu has had diplomatic representation in Australia.
The diagram below gives an overview of Tuvalu’s key security partners and the types of support they provide to its security forces. The icons don’t reflect the full scale of assistance. For example, support could involve a single event with a specific outcome or a comprehensive, ongoing support package.
The Falepili Union includes an Australian investment of over $110 million for Tuvalu’s national priority projects. Australia has also reaffirmed its commitment to climate action, including $47 million in development assistance to be delivered between 2025 and 2026. Under the treaty, Australia is committed to providing security support to Tuvalu in times of emergency, including from environmental, health or military threats.
China and Tuvalu do not have a relationship due to Tuvalu’s long-term relationship with Taiwan. While China has long sought to build relations with Tuvalu, the country’s ongoing relationship with Taiwan has signalled its intention to maintain its diplomatic recognition of Taiwan and current lack of interest in engaging with China. In last year’s election, some candidates (in Tuvalu, only independents run, and there are no political parties) favoured a partnership with China and a stronger review of the treaty signed with Australia. Some even feared the treaty would come undone. As it currently stands, Australia has until the next election in 2028 to demonstrate the worth of the treaty.
New Zealand and Tuvalu signed a Statement of Partnership in 2019. While security is not the main focus, it does include some provisions for peace and security assistance. The United States and Tuvalu signed a Shiprider Agreement in 2020 that seeks to strengthen cooperative maritime surveillance and activities. Taiwan has provided a range of infrastructure support as well as two coastal multipurpose boats to Tuvalu in 2024 as part of a coastguard cooperation agreement. And Japan contributed emergency relief supplies to Tuvalu in response to the 2022 drought. Tuvalu has received little support from other foreign partners, which is unlikely to change.
Influential Tuvaluan figures still have some concerns that the treaty interferes with the country’s sovereignty. Former prime minister Enele Sopoaga labelled the agreement an admission of self-defeat to climate change and called for a referendum as part of the ratification process. However, despite initially raising concerns about sovereignty, Prime Minister Feleti Teo has not revised the treaty.
Tuvalu has also criticised Australia for its lack of climate action. Tuvalu’s Climate Minister Maina Vakafua Talia called Australia’s support for fossil fuels ‘immoral and unacceptable’. Additionally, Simon Kofe, former foreign minister and current minister for transport, energy, communications and innovation, has directly criticised AUKUS citing concerns of increased militarisation in the Pacific.
Despite this, Tuvalu’s current government has listed the Falepili Union as a key priority, alongside climate action and deepening its relationship with Taiwan. The government has also indicated interest in developing an agreement with New Zealand similar to the Falepili Union, noting its potential to supplement the limited migration pathway to Australia. Given the high number of applicants so far, the Australian government should consider increasing the number of yearly approvals to meet demand and demonstrate good will towards Tuvaluans.
For as long as the Falepili Union stands, Tuvalu’s security path is set. Australia must ensure that it keeps fulfilling its obligations. To do so, Australia will have to create the necessary procedures and pathways to logistically deliver support. This should also include services to ensure a smooth transition process for new Tuvaluan residents in Australia. Australia should also be transparent in promoting the benefit of the Falepili Union to Tuvaluans and the broader Pacific.
ASPI’s Friends to all: Competing for Pacific security partnerships series can be found here.