When the New Zealand government introduced 'first-year fees free' in 2018, the universities expected a big uptick in student numbers. It didn't happen (as I discussed in this 2023 post). As the figure below (source) shows, the mild downward trend in domestic student numbers (equivalent full-time students, or EFTS) continued for at least a couple of years past 2018:
My colleagues were worried that we would see an increase in the number of students who enrol, and then do nothing at all (what we call 'ghost students'). My impression was that this didn't happen, but until now I never looked intentionally at the numbers. However, the figure below shows the proportion of each of my A Trimester ECON100 classes (up to 2017) or ECONS101 classes (for 2018 onwards) that were ghost students (I didn't teach the class in 2022, which is why there is no observation for that year). Here, I define a 'ghost student' as any student who didn't attempt any of the tests or exams (although they may have attended some classes during the trimester). In each trimester, the class had between 250-350 enrolments in total. [*]
As the figure shows, there was a big jump in 'ghost students' in 2021, but that is attributable to the COVID pandemic and the weirdness of that whole time period, rather than anything to do with fees-free. In most years, somewhere between three and five percent of students are 'ghosts'. In 2025, the government shifted from first-year fees free to final-year fees free. There's no evidence that change affected the proportion of 'ghost students' either. Or it's too early to tell - the proportion in 2025 was lower than either of the previous two years.
Why might we expect the changes in fees to affect the number of 'ghost students'? It comes down to incentives. As my ECONS101 students will hear next week, when the cost of something decreases, we tend to do more of it. First-year fees free decreased the cost of being a 'ghost student', so ceteris paribus (holding all else constant), we would expect to see more 'ghost students'. Final-year fees free (with first-year fees reintroduced) increased the cost of being a 'ghost student', so ceteris paribus, we would expect to see fewer 'ghost students'. The fact that didn't happen is interesting, and we'll come back to that a bit later.
To see why the New Zealand effect might be negligible, it helps to compare with a setting where student status comes with larger immediate benefits. To do that, I want to discuss this recent article by Johannes Berens (RH Köln), Leandro Henao, and Kerstin Schneider (both University of Wuppertal), published in the journal Labour Economics (ungated earlier version here). They look at the impact of the removal of tuition fees in North Rhine-Westphalia in Germany in 2011. Tuition fees were a very modest EUR500 per year (for every year of study), and Berens et al. essentially compare students who were more or less affected by the policy (depending on how many years they didn't have to pay fees for), looking at a range of academic outcomes including exam registrations and withdrawals, credit points earned, grades, and dropout probabilities, as well as the number of 'ghost students'.
Their data come from a single university, with over 11,000 students who first enrolled between 2008 and 2011. The students in the 2008 cohort would have graduated before the fees were removed, while those in the 2011 cohort would not have faced any fees at all. The other cohorts would have had fees in their later year/s, but not earlier year/s. Applying a difference-in-differences approach, Berens et al. find that:
...abolishing tuition fees significantly affected student behavior and academic outcomes. Active students reduced their academic performance by 1.7 credit points per semester (12 % relative to baseline), despite maintaining similar exam registration patterns... Additionally, the reform increased the prevalence of ghost students by 10 percentage points...
So, removing fees in this context substantially increased the proportion of 'ghost students' by 10 percentage points, from a baseline that was already over 10 percent (Berens et al. present the data by study semester, and the 'ghost student' proportion varies between 10 percent and 20-25 percent, depending on year and study semester).
What explains the high impact of removing fees in Germany? Berens et al. highlight the role of incentives, and in particular the generous nature of public assistance available to students. Specifically:
...student status confers substantial benefits, generally independent of academic performance... These benefits include subsidized health insurance (until age 25), state-wide public transport access (worth EUR 2900 annually), and parental child allowance (EUR 2450 annually). About 16 % of students also receive need-based grants averaging EUR 6800 annually...
So, being classified as a student can be quite lucrative in Germany, even if the student is a 'ghost'. That might also explain the lack of effect of first-year fees free in New Zealand. While the fees are higher in New Zealand than in Germany, being a student in New Zealand is hardly a pathway to great riches (at least, not during the time spent as a student - see this post, and the links at the end of it). The student allowance is not very generous, and while there are some other perks to being a student, cheap movie tickets and public transport are not exactly worth a lot of money. So, it shouldn't be much surprise that the impact in Germany was much larger than for a similar policy change in New Zealand.
Another reason that the impact was not apparent in New Zealand could be that many students do not pay their tuition fees immediately. Instead, many (perhaps most) students' tuition fees are paid by student loans. 'Student Greg' is probably quite content to say that the student loan is 'Graduated Greg's' problem, and not worry about it today. So, from the perspective of 'Student Greg', first-year fees free doesn't really impact the decision to become a student or not. It doesn't change the costs of being a student for 'Student Greg', because they don't consider paying back the student loan as part of the costs of studying today. [**] And that might explain why there was no incentive effect of first-year fees free in New Zealand (also, fees-free papers are not free if students fail them, as I noted in this 2023 post).
The incentives in Germany and New Zealand, when the tuition fees were changes, resulted in quite different impacts. In Germany, where the benefits of being a student were higher, lower costs of being a 'ghost student' induced many people to enrol, whereas in New Zealand, where the benefits of being a student are lower, and the costs of tuition are typically deferred to the future, lower costs of being a 'ghost student' appear to have made no difference.
The nature of incentives, and the costs and benefits around the decision, definitely matter. The policy takeaway from this is that tinkering with fees alone may induce more (or less) 'ghost students', so the other immediate benefits and costs associated with student status also need to be considered.
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[*] The data are for only one paper, but ECON100 and ECONS101 have been, for the most part, compulsory papers for business students. In a couple of years, some students could avoid the paper by taking all of the other first-year business papers. However, unless 'ghost student' status was more likely for students who did not take first-year economics, these results should be broadly representative.
[**] Essentially, 'Student Greg' is heavily discounting the future. In my ECONS102 class, we say that 'Student Greg' exhibits present bias, and is therefore only quasi-rational, not purely rational. Of course, not all students will have acted like 'Student Greg', but if enough of them did, that would explain the lack of incentive effects of the changes in first-year fees.
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