Changes are coming to Relationships and Sexuality Education (RSE) in schools and we’re concerned about what has been proposed by the Government. We believe the draft RSE framework as it stands, is deeply flawed.
It excludes critical representation of our trans, non-binary, Māori and Pasifika communities, introduces new and poorly defined concepts, and delays teaching essential information to young people until too late.
These issues mean the framework could cause more harm than good, undermining the very purpose of RSE.
The consultation period was announced at the start of the school holidays, and many young people and whānau will be unaware of this process and how it’s going to impact them. We know it is especially important for your voices to be heard.
We must act quickly to ensure diverse communities are reflected in the future mandatory Health curriculum.
The best way to do this is by filling out the Ministry of Education’s feedback form – but don’t wait! Submissions close on Friday 9th May 2025.
What is the framework? Where has this come from?
At the end of 2024 the Ministry of Education’s Relationship and Sexuality Education guidelines were removed as part of the current Government’s coalition agreement.
We don’t believe it is okay for young people’s education to be used as a political football in this way. We believe that all young people deserve a high-quality, age-appropriate curriculum that values inclusion. That includes ensuring relationships and sexuality education is inclusive of the unique experiences of ALL ākonga, including trans young people!
While we were extremely disappointed at the removal of the 2020 RSE guidelines, we are excited about the opportunity for a compulsory curriculum that gives schools explicit instruction on what they should be teaching at what ages of the Health curriculum. This is where we need your help!
The draft framework sets out the proposed teaching to be covered each year. The focus is on ensuring content is age-appropriate, evidence-informed, internationally comparable, and clear about what to teach – and when – from Years 0 to 13. This responds to research from the Education Review Office (ERO) undertaken last year, which found there is too much inconsistency in what RSE is being taught. We support these intentions. We also think that the framework should be specifically crafted to meet the unique needs of young people in Aotearoa.
Your feedback can help inform decisions around what will be taught as part of the refreshed Health curriculum, and impact learning and wellbeing outcomes for ākonga across Aotearoa. A draft of this learning area will also be available for further feedback later this year.
Alarm bells – All reference to diverse genders erased
Our biggest concern is that they have entirely erased all mention of gender diversity.
The draft reduces gender to two sexes – male and female – without any reference to trans people and only one acknowledgment of intersex experiences. We believe young rainbow people have a right to know that they are normal, and to be represented and included – this is not negotiable – it’s a human rights issue! Furthermore, education about the diverse realities of sex, gender and sexuality encourage acceptance, and understanding and help prevent bullying, violence and suicide.
Research tells us erasure sets a dangerous precedent for our community, and in Aotearoa we are proudto be one of the few countries with a stronghold of protection wrapped around our trans whānau.
Furthermore, there is a strong cultural and racial bias to what has been drafted.
We live in a part of the world where irawhiti, takatāpui, fa’afafine, fakaleitī, akava’ine, vakasalewalewa, sister girls, brother boys and other diverse gender identities are a natural part of indigenous worlds. They’re loved and accepted as part of the whānau and daily life. This diversity must be represented in all sexual health education. The many cultures thriving here should not be forced to conform to a narrow, monocultural view of sex, sexuality and gender.
It gets worse: Intersex realities ignored, sexual violence risk inadequately addressed, no mention of HIV
The draft framework ignores the realities of intersex experiences.
Even though around 2% of young people in Aotearoa are born intersex or with diverse sex characteristics, the framework does not reference intersex differences until young people are around 14 or 15 years of age. This is critical health information that needs to be scaffolded into learning from the earliest ages. If you look at the framework, you’ll noticekōrero around bodies and genitals begins around age 5. That’s when children should start knowing that there are other differences – and that being different – is absolutely normal.
We notice introduction to laws around sexual violence are not mentioned until age 13-14, however, 13-14 year olds are often already exploring intimate relationships and can sometimes be in abusive dynamics with adults. Knowledge of these laws could keep them safe according to what we know about harm reduction. Likewise, these laws clearly articulate expectations about what is right and wrong in intimate relationships; discussions around these laws and consent can help young people identify and choose safer, respectful, consensual behaviours.
It is important that our rangatahi have access to inclusive education about sex and STIs to keep themselves safe. The current draft framework has no specific mention of HIV and risks repeating heteronormative education about safe sex.
This information needs to be specifically detailed in the framework – and not left open to interpretation – one of the goals of the RSE refresh is to create clarity and consistency, and that means more detail must be included.
The problems continue – sexual orientation narrowly redefined
We also notice that sexual orientation has been reduced to only 4 categories: heterosexual, homosexual (gay and lesbian), bisexual and asexual. While this may not have been the intent in writing the brief framework, our communities use a broad language base to define ourselves and our sexualities including pansexual, takatāpui and queer. These – and many more terms – have important meanings outside of what’s been defined and it is important to ensure they are included in the new curriculum.
Furthermore, explicit mention of differences in sexual orientation aren’t introduced until Year 8 – that’s the last year of intermediate – the lateness of this information risks stigmatising and marginalising rainbow ākonga and whānau. While this is a common age that many young people are considering their own sexuality and should be taught at this point, it is also important that knowledge around diversity in identity and family structures is taught earlier.
Earlier introduction around this point will reduce isolation and bullying of young people with rainbow whānau, and help those who experience emerging understanding of their identity and attraction earlier.
Other talking points to consider
– In Year 5 different family structures are mentioned, but only in reference to culture and religion. Children are aware from a young age that their whānau structures might be unique, and these differences extend beyond the categories of cultural and religious differences. It’s vital that rainbow families are referenced and included in learning under this topic.
– Gender stereotypes should be explored further, including how this relates to homophobic and transphobic bullying, regardless of someone’s actual sexuality or gender.
– An “introduction to puberty” is established in Year 5. Any introduction to puberty should include discussions about diversity in sex characteristics and gender, in line with international guidance. Introduction to puberty should include teaching to recognise that puberty may be particularly challenging for some children, particularly those who are gender-non-conforming, transgender and/or intersex.
– There is no explanation of what the framework means by “cultural views”. This language should be clearly explained. We also notice the draft has removed an invitation for young people to think critically about norms around patriarchy, bio-essentialism, and the gender binary. Being able to think critically is an important aspect of health and safety.
– The topic of menstruation must be addressed earlier. We note that while the concept of a cycle is introduced in Year 6, the explanation of the menstrual cycle is not until Year 7. Up-to-date health data tells us that over 6% of young people will be menstruating by the end of Year 6, and 20% by the end of Year 7. Some children have not been taught about menstruation and are terrified when it begins. This is an avoidable harm.
– Health difficulties, such as endometriosis, are not introduced until later in the piece, but these must be introduced alongside other foundational discussions relating to ab/normal menstruation. We know heaps of young people struggle with endometriosis and pain from their very first cycle. They need to understand their options, and how to advocate for themselves with whānau and medical professionals.
– Comprehensive information about topics such as body image, media influences, staying safe online and pornography needs to be added, and should begin prior to young people’s ability to access online spaces (e.g. before Year 8).
– We note important-yet-sensitive topics such as wet dreams and erections are not mentioned till Year 7, yet many people experience these things from a much younger age. Again, a lack of information about these things can leave children feeling confused, or experiencing shame.
– Right now it is obvious to our community that trans lives are being used as fodder for sustained political attacks in a grab for power – it’s not okay. Politicians are normalising and platforming anti-trans and anti-rainbow rhetoric. This desensitises the public to harmful messages and makes it easier for people to justify harm towards us. We can challenge this agenda by coming together and speaking for ourselves!
You will have your own opinions on these topics and others – we strongly encourage you to share these! Think about what age you would like, or have liked yourself, or your children to learn about these topics. What was missing from your own education that would have been helpful?
How to make your submission
You can make your submission by using this form.
Here’s where you can review the draft framework.
To find out what is at risk of being lost in the new curriculum, you can check out the previous RSE Guidelines:
Years 0 – 8 Relationships and Sexuality Education Guidelines
Years 9-13 Relationships and Sexuality Education Guidelines
The survey will ask your ‘level of agreement’ with the proposed content for each age-group, on a scale from strongly disagree to strongly agree.
If you’re not sure you could answer ‘neither agree or disagree’ and continue to other questions in the survey.
We’ve prepared some advice on certain questions
Remember, a submission is given more weight when it’s in your own words. Make your submission unique by sharing your personal thoughts and experiences.
Question 11 – There is no content in the draft RSE framework that should be removed.
We suggest – strongly disagree.
Question 12 – Please comment about what specific content should be removed from the draft RSE framework.
We recommend that the drafted definitions of sex and sexuality should be removed, and replaced with up-to-date, socially and culturally appropriate definitions of gender, sex and sexuality. More consultation should occur to identify terms used by diverse communities.
Question 13 – There is no additional content that should be added to the draft RSE framework.
We suggest – strongly disagree.
Question 14 – Please comment about what additional content should be included, and at what age.
In this part, you can share your thoughts about your own experiences and at what age you think certain things should be taught.
The most important additional content required is information about gender diversity. Overall the framework can be strengthened in many places to better support the needs of rainbow ākonga and support other young people’s understanding and acceptance of difference.
Sex
The framework must include medically accurate definitions around categories of male and female – that sex is not a binary and education must reflect that. It is important to ensure intersex people are accurately represented and this knowledge is introduced at the right time.
Sex is made up of multiple attributes: chromosomes, hormone levels, internal and external reproductive organs, and secondary sex characteristics, and more. These don’t always align neatly into ‘male’ or ‘female.’ About 2% of the population are intersex or born with diverse sex characteristics – it’s about as common as red hair. Yet, many people will not be told they have an intersex condition or will live in silence and shame. That harm can be mitigated.
An early schema around differences in sex characteristics should be introduced into learning as soon as young people are talking about body parts (e.g. genitals), talking about similarities and differences and naming body parts. Currently, these differences are only discussed at age 14 to 15 – we think this is far too late.
Sexuality
Sexuality is not fixed or binary – it can shift across a person’s life. Diverse sexualities can include identities such as lesbian, gay, bisexual, takatāpui, pansexual, queer, asexual, aromantic, demisexual, and many more. This language is important to us!
Gender
The framework should include trans and non-binary identities. It is also important to include perspectives and knowledge of identities from Māori and Pasefika communities, such as irawhiti, takatāpui, fa’afafine, fakaleitī, akava’ine, and vakasalewalewa. The previous guideline clearly articulated te Ao Māori perspectives, using the Māori Health Model Te Whare Tapa Whā, and consideration for a Pasifika worldview using the Fonofale model.
A truly inclusive Relationships and Sexuality Education framework must normalise people who have diverse sex characteristics, genders and sexualities and that everyone deserves dignity, affirmation, and access to education that reflects their reality. This should be taught alongside exploring gender stereotypes e.g. there is no one way, or right way to express your gender or sexuality. Education like this is foundational for positive mental health and well-being outcomes in young people.
Sexual violence prevention
Sexual violence is prevalent for young people and most often occurs in trusted environments, which can and does include schools. We believe that knowledge around this should be introduced appropriately at a younger age, and pastoral care should be embedded in the framework in a way that enables children to safely disclose and seek help.
Sexual safety
Providing adequate sex education that isn’t entirely heteronormative or cisnormative and acknowledges the diversity of sex and relationships is key to providing better health outcomes to young people – with harm reduction in mind. Comprehensive education about HIV should be named as part of this.
Question 15 – Overall, the content covered in the framework will support effective relationships and sexuality education. Option to add comments.
This is an open section where you get to go for it. Share your thoughts about what you want to see included or excluded in school-based relationship and sexuality education!
Further comments
The survey will then ask demographic questions, like if you’re from a school (staff), from another education or health organisation, or if you’re a student or whānau member, and then ask for more detail about this.
Once you’ve made your submission – there’s more to do!
We only make an impact if we get as many of our loved ones – and community supporters – to submit their thoughts too.
– Ask 3 people to make a submission today. Reach out to friends, whānau, teachers, researchers! Amplify the message – we have two weeks!
– Email the Minister Erica Standford directly and let her know what you think – the Minister receives a lot of anti-trans correspondence and rarely hears from rainbow young people and their whānau directly – help her understand why this matters to you!
It’s time to protect trans youth!
At InsideOUT Kōaro, we genuinely value that there is a push toward including more respectful relationship education.
We are not advocating that we teach children “how to be transgender”, as is often accused. We are encouraging that our health curriculum provides inclusion and visibility to all people. We want our children to live without shame, without feeling like they’re bad because they don’t fit right inside the box.
We know that people can only be respectful toward others if we are all treated as valid, and our rangatiratanga, mana and autonomy remain intact. Everyone has a right to full participation and citizenship, and the recognition of their rights starts with acknowledging that they exist.
This is why it is so important that we ensure trans youth are not erased from our Health curriculum, and that information about rainbow identities and experiences is taught at the right age levels. Thank you for joining us to feed into the consultation on this important topic as we work towards a more inclusive Aotearoa.
Further reading
Pacific scholars say government out of step with relationships and sexuality education
“The previous version was more comprehensive” – Sexual Wellbeing Aotearoa
Relationships and sexuality education draft causing concern
Let’s talk about it: Review of relationships and sexuality education – Education Review Office
International technical guidance on sexuality education: an evidence-informed approach – UNESCO