Prime Minister John Key, who has championed a change in the New Zealand flag, acknowledged he was probably on the losing side at present, with more Kiwis preferring to keep the old one.
But he also says the numbers could change once an alternative is chosen from the first referendum, which starts today.
"By the time you get to the final referendum, that's where it will hot up both sides," he told reporters last night in Manila.
"You have to wait until you get to a one-on-one debate. That's when people will engage. That's when people will see campaigns run for and against and people will really start engaging at that point."