UNICEF New Zealand says more work needs to be done on a plan to combat child abuse.
Social Development Minister Paula Bennett has released a summary of submissions the Government has received on its Green paper on the issue.
UNICEF spokeswoman Barbara Lambourn says it's still not clear what vulnerable children means.
"It wasn't described in the Green Paper, and it wasn't described in the summary so I think there's a bit of work to be done there about what constitutes vulnerability, because our view is, of course, that all children at some level are vulnerable."
Ms Lambourn says this is the opportunity for the government to capitalise on community goodwill and support partnerships and community-led action.
"There have been times before where there's been consultation, where there's been report after report about the state of children. What we're seeing here is that it's time for action. We want to see something happen out of this. We don't want this to just be another paper exercise."
Around 10,000 submissions have been made by the public and NGOs.