133 Molesworth Street
PO Box 5013
Wellington 6140
New Zealand
T+64 4 496 2000
8 September 2025
Harry Robson
By email:
[FYI request #31848 email]
Ref:
H2025070885
Tēnā koe Harry
Response to your request for official information
Thank you for your request under the Official Information Act 1982 (the Act) to the Ministry of
Health – Manatū Hauora (the Ministry) on 2 August 2025 for information regarding conversion
therapy in state or faith-based institutions. Each part of your request is addressed in turn:
(1) I request information held by the Government in respect to conversion therapy
practices which occurred in state care or faith-based care, particularly before 1993 - but
not exclusively. More specifically, I request -
(A) Does the Ministry of Health (or other relevant government department) hold any
research on the historic practice of conversion therapy on individuals in the care of the
State or in faith-based institutions?
(B) Has the Ministry of Health (or other relevant government department) ever conducted
a review into the historic practice of conversion therapy on individuals in the care of the
State or in faith-based institutions?
Parts 1A and 1B of your request are refused under section 18(g)(i) of the Act as the Ministry has
not conducted a review or hold any research by the Ministry into the historic practice of
conversion therapy on individuals in the care of the state or in faith-based institutions.
As part of the wider Inquiry, the Royal Commission of Inquiry into Historical Abuse in State Care
and in the care of Faith-based Institutions investigated how different communities experienced
abuse and neglect in care, including Takatāpui, Rainbow and MVPFAFF+ survivors. The Royal
Commission produced summaries and guides about the experiences of each of these
communities.
You can find more information here:
www.abuseincare.org.nz/our-progress/summaries-and-
guides.
(C) Has the Ministry of Health (or other relevant government department) ever produced a
briefing, report, or guidance with regards to the historic practice of conversion therapy on
individuals in the care of the State or in faith-based institutions?
The Ministry does not hold any documents that are specifically about the historic practice of
conversion therapy or practices on individuals in state care or faith-based institutions. However,
the Ministry has provided general advice and guidance about conversion therapy or practices.
These documents are itemised in Appendix 1 and copies of the documents are enclosed.
Where information is withheld, this is outlined in the Appendix and noted in the document itself.
Where information is withheld under section 9 of the Act, I have considered the countervailing
public interest in release in making this decision and consider that it does not outweigh the need
to withhold at this time.
We note that you received a briefing about conversion practices for Associate Minister of Health
at the time, Hon Julie Anne Genter, in response to a previous request under the Act to the
Ministry of Health in 2019 (H201908161 refers).
(3) Has the Ministry of Health (or other relevant government department) produced any
reports, briefing, or guidance pertaining to the assessment of physical or mental harm
arising from conversion therapy cases in state care of faith-based care? Including with
respect to the Ministry's perspective on dealing with claims of redress stemming from
survivors of conversion therapy in state care or faith-based care. (4) Has the Ministry of Health (or other relevant government department) conducted a
review of - or produced a briefing, report, or guidance in respect to - the redress to be
provided to survivors of conversion therapy in state care or faith-based care? (B) Including if the Ministry has provided guidance around whether the kind of redress to
be provided for conversion therapy survivors is to be distinguished (or otherwise different)
from the redress provided to other survivors of abuse in care? And if so, on what
grounds?”
The Ministry does not hold any information on parts 3, 4 and B of your request, therefore, these
parts of your request are refused under section 18(g)(i) of the Act.
Under the Ministry’s Historic Abuse Claims process, conversion therapy or practice is not
explicitly identified as a form of abuse. However, if the conversion therapy involved elements
that are considered abusive, such misuse of electroconvulsive therapy (ECT) or other forms of
improper treatment, those aspects may be eligible under the claims process. Further
information about the Ministry’s redress processes is publicly available on our website:
www.health.govt.nz/about-us/contact-us/historic-abuse-claims. You may also be interested in evidence given to the Royal Commission by Phillip Knipe, Chief
Legal Advisor for the Ministry as it includes information about how the Ministry received,
processed, managed and conducted its strategies in relation to claims of historic abuse up to 30
June 1993. You can find Phil ip’s statements here:
www.abuseincare.org.nz/our-
progress/library/v/152/statement-of-philip-knipe-for-ministry-of-health-at-state-redress-hearing-
phase-2. I trust this information fulfils your request. If you wish to discuss any aspect of your request with
us, including this decision, please feel free to contact the OIA Services Team on:
[email address]
Page 2 of 4
Under section 28(3) of the Act, you have the right to ask the Ombudsman to review any
decisions made under this request. The Ombudsman may be contacted by email at:
[email address] or by calling 0800 802 602.
Please note that this response, with your personal details removed, may be published on the
Ministry website at:
www.health.govt.nz/about-ministry/information-releases/responses-official-
information-act-requests. Nāku noa, nā
Steve Barnes
Associate Deputy Director-General
Strategy and Policy Group
Page 3 of 4
Appendix 1: List of documents for release #
Date
Document details
Decision on release
1
December 2019
Info provided by the Ministry of
Released in full.
Health to the Ministry of Foreign
Affairs and Trade RE: Response
to Office of the United Nations
High Commissioner for Human
Rights request for input regarding
conversion therapy
2
January 2020
Information provided to Minister Some information withheld
under section 9(2)(a) of the Act
to protect the privacy of natural
persons.
Information deemed out of
scope of your request has also
been removed.
3
August 2021
Information request – support for
survivors of conversion practices Released in full.
Page 4 of 4
Document 1
Dear Peter
RE: Response to Office of the United Nations High Commissioner for Human Rights request for
input regarding conversion therapy
1. What different practices fall under the scope of so-called “conversion therapy” and what is the
common denominators that allow their grouping under this denomination?
Conversion therapy may include traditional counselling, therapy, teaching, and group discussions.
Practices fall across a spectrum of activities from prayer and religious activity through to the more
extreme end, where there are overseas account of physical and sexual abuse. The common
denominator is that these activities take place with the intent of altering somebody’s sexual
orientation or gender identity.
2. Are there definitions adopted and used by States on practice of so-called “conversion-therapy”?
1982
If so, what are those definitions and what was the process through which they were created or
adopted?
Act
There is no common, agreed definition between government agencies and, to our knowledge, there
has not been a process to define one. The Ministry of Health has previously described conversion
therapy as “any treatments that attempt to change an individual’s sexual orientation from
homosexual or bisexual to heterosexual, or gender identity from transgender to cis-gender.” The
Justice Committee has defined it as “any practice or treatment that seeks to change, suppress, or
eliminate someone’s sexual orientation, gender identity or gender expression … usually based on a
belief that people with diverse sexual orientations or gender identities are abnor
Information mal and should be
changed so they fit within heteronormative standards.” The Committee included this definition in its
report
Final report (Petitions of Max Tweedie and Amanda Ashley) after it had considered two
petitions to ban conversion therapy and written evidence provided by the petitioners and Ministry
of Justice.
Official
the
3. What are the current efforts by States to increase their knowledge of practices of so-called
“conversion therapy”? Are there efforts to produce information and data on these practices?
There is not currently a concerted effort to produce information and data on conversion therapy. In
under
relation to the health and disability system, the Ministry of Health has identified that it would be
difficult to produce information because our understanding is that this practice usually takes place in
religious environments and not within regulated health professions.
In its report, the Justice Committee stated that it heard anecdotal evidence that conversion therapy
is relatively common in New Zealand, particularly for minors whose parents had consented to it on
their behalf. It did not receive
Released any evidence about the prevalence of other types of conversion
therapy.
4. What kinds of information and data are collected by States to understand the nature and extent
of so-called “conversion therapies” (e.g. through inspections, inquiries, surveys)?
Information and data is not routinely collected within the health and disability system.
5. Has there been an identification of risks associated with practices of so-called “conversion
therapy”?
Document 1
The Ministry of Health recognizes the extensive international evidence that conversion therapy is
ineffective and harmful. It has also identified a risk of coercion and emotional abuse that can be
linked to the practice.
The Justice Committee agreed that conversion therapy can be harmful because it perpetuates the
idea that sexuality and gender identity are an individual’s choice rather than something they are
born with; an idea that is inconsistent with mainstream scientific consensus, the New Zealand Bill of
Rights Act 1990, and internationally recognised human rights.
6. Is there a State position on what safeguards are needed, and what safeguards are in place to
protect the human rights of individuals in relation to practice of so-called “conversion therapy”?
This question includes the following:
a) Safeguards to protect individuals from being subjected to “conversion therapies”.
1982
b) Broader statutory rules or administrative policies to ensure accountability of health care
and other providers.
Act
The Ministry of Health considers there are existing legal protections to prevent conversion therapy
happening in the health sector. The application of legislative protections are case-dependent,
depending on the nature of the ‘therapy’, the intent and the practitioner.
There are protections in the health system for New Zealanders to access safe and welcoming health
care services. For example, the Health and Disability Service Standards, which are mandatory for
health and disability service providers, specify that an individual’s sexuality must be respected. In
Information
addition, professional bodies for a range of regulated professions have rights-affirming codes of
practice, including explicitly banning the practice by their members. Professional bodies will have
their own accountability measures for and requirements of their members.
The Health and Disability Commissioner Act 1994 could potentially enable those who receive
Official
conversion therapy to complain to the Health and Disability Commissioner on the basis that the
provider has breached the Code of Patients’ Rights. This protects patients’ rights, including the right
the
to be treated with respect, the right to freedom from discrimination, coercion, harassment, and
exploitation, and the right to make an informed choice and give informed consent. You may wish to
consult the Commissioner to ascertain whether there have been any complaints, and how the Act
under
and the protections under the Act might apply in particular circumstances.
Outside of the health system, we understand New Zealand’s existing criminal law may enable
prosecution of the more coercive and/or violent practices involved in conversion therapy, as criminal
law contains existing protections for an individual’s bodily integrity. A relevant consideration in most
of the crimes against someone is the element of consent. If people are coerced into the practice, or
it impedes on their bodily in
Released tegrity, it may be treated as a crime dependent on the case. The Ministry
of Justice can provide further information on this.
Conversion therapy has been condemned by key stakeholders in New Zealand including the Human
Rights Commission, Royal Australian and New Zealand College of Psychiatrists, New Zealand College
of Clinical Psychologists, New Zealand Association of Counsellors, Aotearoa New Zealand Association
of Social Workers, and Rainbow Youth. The Justice Select Committee noted that it is considered
unethical for registered counsellors to provide conversion therapy.
Document 1
7. Are there any State institutions, organizations or entities involved in the execution of practices
of so-called conversion therapy? If so, what criteria have been followed to consider these as a form
of valid State action?
No. Our understanding is that conversion therapy largely takes place in religious organisation.
Regulated professions generally condemn the practice, and it is considered unethical for registered
counsellors to provide conversion therapy. However, unregulated individuals or religious group may
offer it in accordance with their beliefs. The Bill of Rights Act gives New Zealanders freedom of
religion and beliefs, which protects people who offer and seek out conversion therapy because of
their religious views.
8. Have any State institutions taken a position in relation to practices of so-called “conversion
therapy”, in particular:
a) Entities or State branches in charge of public policy.
1982
b) Parliamentary bodies.
Act
c) The Judiciary.
d) National Human Rights Institutions or other State institutions.
e) Any other entities or organizations.
The Human Rights Commission notes that people have the right to not be subject to any forms of
therapy that are carried out in an attempt to change their sexual orientation or gender identity. The
Information
Commission has publicly stated that it would be willing to support any initiatives to prevent this
practice.
The Ministry of Health recognises extensive international evidence that the practice of conversion
therapy is ineffective and harmful. We believe that promot
Official ing the existing protections in place, and
educating people on the ineffectiveness of the practice and where they can seek help if harm has
been caused, would be more beneficial than a legislative ban of conversion therapy.
the
The Justice Committee report concluded that the Committee agreed that conversion therapy is
harmful. However, it considered more work would need to be done before any decision was made
to ban it. In particular, thought would need to be given to how to ensure that rights relating to
under
freedom of expression and religion were maintained, at the same time as rights relating to freedom
from discrimination were maintained. It noted the desire to reduce harm by banning conversion
therapy must be balanced against the desire to protect freedom of beliefs and religion for those
offering the therapy.
Released
Sincerely
Document 2
1.1.
Ending HIV Big Gay Out 2020 – Additional Information
Action:
Out of scope
Item:
1982
Act
Information
Official
the
under
Released
Conversion Therapy
Extensive international evidence has found that the practice of conversion therapy
is ineffective and harmful. Any therapy that is provided should affirm people’s
sexuality or gender.
Initial advice on the prohibition of conversion therapy in New Zealand was
provided to you in August 2018 [H201805055 refers]. This advice noted that there
are a number of protections to prevent this practice in the health and disability
Document 2
system, but most occurrences of the practice are likely to be in private and faith-
based institutions. Our advice was therefore that a legislative ban was not the
most effective way to reduce the harm caused by conversion therapy, and it
would be more effective to promote the protections already in place and educate
people on the ineffectiveness of the practice and where to seek help if harm has
been caused.
Existing protections in the health system for New Zealanders to access safe and
welcoming health care services include the Health and Disability Service
Standards, that health and disability service providers must comply with, specify
that an individual’s sexuality must be respected. In addition, academic and health
professional bodies for a range of regulated professions have rights-affirming
codes of practice, including explicitly banning the practice by their members.
1982
Professional bodies wil have their own accountability measures for and
requirements of their members. However, this practice is more likely to occur
within faith-based institutions, and within the private sector.
Act
In August 2018, Justice Minister Andrew Little announced that a conversion
therapy ban could be considered as part of a reform to the Human Rights Act
1993. The Green Party, the Human Rights Commission, the New Zealand
Association of Counsellors and every medical organisation in New Zealand
support banning the practice. A petition to ban it was launched in mid-July and
had collected about 10,000 signatures within a week. In mid-August 2018, two
petitions to ban conversion therapy were presented to Parliament, with a
Information
combined total of about 20,000 signatures. The Justice Committee responded (in
October 2019) to the two petitions it received, concluding it agreed with the
argument that conversion therapy is harmful, but it believed more work needed
to be done before any decision was taken to ban it. In particular, further thinking
is required about how to define conversion therapy, who the ban would apply to,
Official
and how to ensure that rights relating to freedom of expression and religion were
maintained'. The full report is available on Parliament’s website.The Ministry of
the
Health is discussing with other agencies if there are options that may be wider in
scope than an Order to regulate or prohibit gay conversion practices.
Out of scope
under
Released
Document 2
Out of scope
Contact:
Deborah Woodley, Deputy Director-General, Population Health and Prevention.
Phone: s 9(2)(a)
1982
Act
Information
Official
the
under
Released
Document 3
1982
Act
Information
Official
the
under
Released
Document 3
1982
Act
Information
Official
the
under
Released
Document Outline
