NZ is overdue for a population strategy – but there is only so much governments can do
- Written by Tahu Kukutai, Professor of Demography, University of Waikato
Across the world’s most advanced economies, demographic issues have risen to near the top of the policy agenda.
Governments have implemented a range of measures to try and address the challenges of falling birth rates[1], ageing populations[2] and shrinking work forces[3] – with mixed results.
Aotearoa New Zealand has yet to develop anything resembling a coherent population strategy, despite decades of experts calling for one[4].
The latest effort to try and change this is a report[5] from the non-partisan think tank Koi Tū, calling for a long-term national population strategy to address the country’s demographic “inflection point” and an independent population commission to lead it.
The case it makes is compelling, warning of slowing population growth, declining fertility and a significant increase in the number of people aged 65 or older.
The report deserves a serious response. But its value will depend on three things: realism about what policy can achieve, genuine engagement with Māori and Pacific demographic circumstances, and evidence that is fit for purpose.
An old concern, renewed urgency
The emerging consensus is that while demography may not be destiny, it sets forces in motion that governments cannot afford to ignore.
The notion of an inflection point[6] has become a useful if somewhat overused tool for focusing political minds.
Demographers have pointed to several warning thresholds: a dependency ratio of two workers per retiree, a total fertility rate below 1.5, or the point at which deaths consistently outnumber births.
The new report argues Aotearoa is approaching such a moment.
This is not an entirely new concern. A 1986 report[7] published by the New Zealand Planning Council raised many of the same issues. It flagged the combined effects of slowing population growth, falling birth rates, net emigration loss of New Zealand citizens, and a dramatically changing population composition.
That report went largely unheeded. The risk is this one does, too.
Compared with many advanced economies, Aotearoa is not in a state of demographic crisis. The total fertility rate of 1.55 sits above the OECD average of 1.40[8] children per woman. The population is still growing and births are projected to outpace deaths for some decades yet.
Aotearoa also lacks the acute immigrant integration challenges seen in France or Germany.
But trends are moving in a concerning direction. And the lesson from elsewhere is that governments that wait for crisis before acting find themselves acting too late.
What policy can and cannot do
This is where realism becomes essential. Population trends respond to a vast range of factors – economic conditions, housing costs, global migration patterns – that governments can influence only at the margins.
Fertility, in particular, has proven stubbornly resistant to direct policy intervention. South Korea has spent the equivalent of hundreds of billions of dollars[9] on pronatalist incentives over two decades and still only has a fertility rate of 0.80[10].
Migration policy offers more tractable levers but with significant uncertainty. Governments can set immigration settings but cannot reliably predict how prospective migrants will respond.
Emigration is even harder to control. When just over 40,000 New Zealand citizens left for Australia in the year to June 2025[11], around 10,000 also came home – a detail that often gets lost in the collective hand wringing that accompanies every trans-Tasman departure spike.
A credible population strategy must be clear about the distinction between what can be shaped and what must simply be adapted to.
New Zealand Treasury’s long-term fiscal statement[12] already models population-related pressures out to 40 years. A population commission should build on this with a sharper focus on where intervention is genuinely feasible and where evidence-based adaptation is more fruitful.
One strategy cannot fit all
Any population strategy for Aotearoa must grapple seriously with diversity, not as an afterthought, but as a foundational design principle.
The median age of Māori[13] is 26.8 years; for Pākehā/Europeans[14] it is 41.7 years.
These are not minor statistical differences but reflect profoundly different demographic histories and trajectories. Māori and Pacific communities represent a significant share of the future workforce that will be needed to sustain superannuation and healthcare costs for an ageing population.
Yet these same communities face lower life expectancy, poorer health outcomes and earlier need for health system support, driven by persistent socioeconomic disadvantage[15]. A one-size-fits-all population strategy would deepen inequities.
Māori and Pacific expertise must be central to both the design and implementation of any strategy, with Te Tiriti o Waitangi as the appropriate foundation.
All of this rests on access to a high-quality data system, which is far from assured.
The shift from an enumeration-based census method[16] to reliance on administrative data, combined with cuts to government-funded social science research[17], risks degrading the quality of demographic expertise and evidence, particularly for Māori and Pacific peoples[18].
The call for a population commission deserves support. But with an election approaching, the risk is that serious demographic debate gets crowded out by political point scoring on immigration[19] and ethnic relations.
That would be a missed opportunity Aotearoa can ill afford.
References
- ^ falling birth rates (www.cpf.gov.sg)
- ^ ageing populations (www.oecd.org)
- ^ shrinking work forces (asiapacificcurriculum.ca)
- ^ decades of experts calling for one (www.beehive.govt.nz)
- ^ report (informedfutures.org)
- ^ inflection point (www.stimson.org)
- ^ 1986 report (www.mcguinnessinstitute.org)
- ^ OECD average of 1.40 (www.oecd.org)
- ^ hundreds of billions of dollars (www.tandfonline.com)
- ^ fertility rate of 0.80 (theconversation.com)
- ^ in the year to June 2025 (www.stats.govt.nz)
- ^ long-term fiscal statement (www.treasury.govt.nz)
- ^ median age of Māori (tools.summaries.stats.govt.nz)
- ^ Pākehā/Europeans (tools.summaries.stats.govt.nz)
- ^ driven by persistent socioeconomic disadvantage (nzmj.org.nz)
- ^ shift from an enumeration-based census method (theconversation.com)
- ^ social science research (www.sciencemediacentre.co.nz)
- ^ particularly for Māori and Pacific peoples (theconversation.com)
- ^ immigration (www.thepost.co.nz)
Authors: Tahu Kukutai, Professor of Demography, University of Waikato
