Before 2011, football for our younger players varied widely across New Zealand. 

In one area, 10 year olds might have been playing 8v8 on a half pitch, while in another, they played 11v11 on a full size pitch.

The size of the pitch and the size of the goals were often decided by ease of logistics, rather than the best experience and outcome for the players.

Football relied on passionate volunteers, with many having experience overseas, as players or fans.  The main focus was on replicating the adult game.

Coaching sessions replicated training adults would do - often with adult sized gear - and league tables and points replicated the adult game experience, with a focus on winning games and winning leagues.

Development of the Whole of Football Plan

In 2009, New Zealand Football (NZF) released a strategic plan that included two specific goals 'grow the game' and 'develop world class players'.

To deliver on these goals, then NZF Director of Football John Herdman led research into best practices from overseas, looking at what was being done in the Netherlands, Germany, Switzerland, England, Australia and Japan. 

This research led to the creation of the Whole of Football (WOF) plan, which was introduced in 2011.

The WOF was a blueprint to develop and play the game consistently across the entire country.

The Junior and Youth Frameworks 

The Junior Framework was introduced, with age appropriate, standardised game formats and training recommendations in four age groups:

• First Kicks (4-6 years)
• Fun Football (7-8 years), 
• Mini Football (9-12 years)
• Youth Football (13-19 years)

Small sided games were introduced for all junior football, starting with 5v5 and moving to 7v7 and then 9v9 at ages 11 and 12. 

The underlying concept was that fewer players on the pitch mean each player has more involvement in the game, more touches on the ball, and therefore more fun, and will learn more. 

The 11v11 format was introduced at U13. 

The Junior Framework defined minimum and maximum pitch and goal sizes, as well as game durations, and ball sizes for each age group. 

Rules for each age group were standardised. The ‘retreat line’, rule was added, and the offside rule was not introduced until players were older. Goalkeepers were removed from the youngest age groups. 

Implementing the plan

The idea was a turnkey solution that could be rolled out across the country by federations into clubs and schools, with training guides and backup material. 

Implementing the plan and the Junior Framework meant significant changes for NZF, the seven (now six) federations, and countless clubs and schools. 

Logistically, there were big changes that clubs needed to make. Playing a smaller sided game meant having smaller pitches marked out. It meant having smaller goals, and it meant having more coaches and helpers to manage more teams.  

Many clubs lacked the resources to implement all changes, and the federations were heavily involved in supporting clubs through this process of change.

Cam Mitchell, CEO of WaiBOP Football during the rollout, recalls spending two years traveling across the Waikato and Bay of Plenty regions to help clubs understand and implement the changes.

Supporting coaches

The WOF plan didn't just look at standardising game formats. 

The plan aimed to improve community football and increase participation; as well as provide development opportunities and pathways for talented players. 

Supporting coaches and providing coaching resources was key to creating great environments across the country. 

The plan included training recommendations (number of sessions, and session duration) for each stage of a player’s development, and age appropriate sample coaching sessions. 

Coach development programs were also revamped, separating junior, youth, and senior pathways, recognising that coaching children and adults require different skills and knowledge. 

A focus on development 

WOF introduced a number of concepts designed to move from a short term focus (eg winning games today) to a long term focus (encouraging a love of the game, winning games in the future, keeping more players in the game longer). 

With a philosophy of ensuring that all motivated players had equal opportunities to train, develop and play at a young age, policies and guidelines were introduced: 

• Equal game time for all players. Research showed that outcome-driven coaches would substitute or bench weaker players more on game day, leading to less development for those players
• Removing league tables for Junior Football was designed to shift adult focus from the outcome of winning games and leagues.
• Team formation guidelines, designed to end the practice of selecting "top teams" at a young age, were created.
• “First Kicks” and “Station Rotation” for 4-7 year olds shifted the focus from ‘a football match’ to skills-based fun activities, ensuring all kids could get time on the ball and develop skills.

Encouraging environments where the focus could be on primarily a love for the game was a key driver – “more football, more fun, persuading kids to become footballers for life”. 

Results

The WOF plan was a huge change for football in New Zealand, and the implementation was a multi year process.

At the time, it faced resistance from many clubs, coaches, and parents, both for the logistical challenges, and the philosphy shift.

But now, if you head along to junior football on a Saturday morning across the country, you'll see the same number of players, playing the same rules in most parts of the country. Kids head to tournaments and festivals in other regions, and play the same rules as they play at home.

Almost 15 years later, football has the highest participation rates for children across the country.

Feedback from national team coaches indicates that young players are developing better technical skills and a deeper understanding of the game earlier.

This suggests that player development has improved, likely thanks to more trained coaches across the country, using consistent methods.

By 2017, Football was the most-played sport by young people in New Zealand, ahead of netball, rugby, and basketball. (Sport NZ Young People's Survey).

In 2024, football was the biggest team participation sport in Aotearoa New Zealand across all age groups. 

Updates

In the 13 years following the initial implementation, small updates were made to the plan, following feedback from clubs and federations. 

Additional programmes have been added, like the programmes for talent development (Skills Centers and Talent Development Programmes).

In 2009, NZ Football aligned with Sport NZ's Balance is Better programme. 

Review 2022-2024

A significant review of the WOF plan was undertaken during 2022 - 2024. 

This three-year period of analysis included reviewing over 250 junior and youth games, surveying  hundreds of players, and benchmarking against systems in 20 other countries.  

Survey data from young players in Aotearoa New Zealand revealed that 74% play football because it is fun, with having more touches on the ball and scoring more goals cited as the most enjoyable aspects of the game. 

International studies have shown that players have 200% more touches on the ball in a 7 vs 7 match than in an 11 vs 11 game, with the number increasing to 500% in a 4 vs 4 game.

New Zealand Football’s study in 2024 filmed over 240 games, and analysis showed 43% more interactions with the ball - dribbles, passes, tackles and shots – when playing smaller formats.

Changes to the Junior Football structure in New Zealand were announced in 2025 by New Zealand Football, and will be rolled out across New Zealand over 2026 and 2027, and has been called the Whole of Football 2.0. The key changes have children playing smaller formats for longer, and the transition to 11 v 11 happening a year later, at Grade 14.

In addition to changes to playing formats, updates have also been made to coaching and refereeing pathways.

WaiBOP Football are introducing all of the changes in 2026.

Article added: Saturday 4 October 2025