I argue here that preventing a large iceberg from melting is absurdly cheap per unit area compared to just about any other way of making new land, and it's kind of crazy to spend money on space exploration and colonization before colonizing the oceans with floating ice-islands.
Good question. Without significant innovation in governance they would not.
But innovation in governance is useless if there's nowhere to govern, so you have a catch-22 situation. The solution is to simultaneously introduce new forms of governance and new land to govern.