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Youth participation in policymaking in the Nordics

Across the Nordic countries, youth participation is embedded in long-standing democratic traditions, characterised by high levels of institutional trust and strong civil societies. Compared to other regions globally, Nordic youth display high levels of civic knowledge and a strong commitment to democratic norms, yet tend toward more reserved, indirect forms of political engagement, rather than direct activism. This shows a pattern of “reserved citizenship”, which suggests that participation in the Nordic context is often mediated through structured and institutionalised channels, rather than confrontational or movement-based politics (Lieberkind & Bruun, 2021).

Often well-funded and autonomous, youth organisations are a core part of this democratic model. They are often described as “schools of democracy”, as they help young people to develop civic skills through volunteer-driven and youth-led initiatives. The organisations in this sector are diverse, ranging from NGOs and political youth wings to municipal and religious youth work, but all of them have in common a commitment to reflecting young people’s needs and perspectives (Gretschel et al., 2023).

The following country profiles examine how this shared democratic culture translates into formal mechanisms of consultation and representation across the Region. While the Nordic countries are unified by a “group” identity rooted in social inclusion and high trust in civil society, the institutional design of youth participation varies significantly in practice (European Commission, n.d.; Gretschel et al., 2023). These variations are primarily driven by different legal traditions, ranging from Norway’s mandatory statutory councils to Denmark’s voluntary, NGO-led model, as well as diverging approaches to national funding and the degree of decentralisation in local decision-making.

Consequently, the country profiles focus on:

The legal and institutional basis for youth consultation
The role of national and local youth councils, umbrella organisations and civil society actors.

Taken together, the country profiles illustrate that while youth participation is recognised across the Nordic Region, there is considerable variation in the degree to which it is legally mandated, institutionally embedded and supported by stable structures.

Denmark

Formal mechanisms of consultation

Youth involvement in the Danish policymaking process is primarily consultative, rather than legally binding (Vejledning Om Lovkvalitet, 2018). At the national level, the general procedure involves sending policy documents, such as bills and ministerial orders, to relevant partners and authorities for consultation before they are discussed in Parliament. The government also conducts ad hoc consultations on bills considered relevant to youth. Such consultations involve the use of youth panels, consisting of specific target groups, which provide perspectives to both practitioners and politicians (European Commission, 2026).

In addition, the National Council for Children in Denmark identifies societal conditions that impact children's rights and development and submits legislative responses to ensure the interests of children are safeguarded. The Council works, via the children and youth panels, to ensure that children’s voices are heard in the public sphere. In this way, children and young people are consulted indirectly. At the local level, consultation occurs through municipal youth councils and joint pupil councils, although the regularity and methods of these interactions vary across regions (European Commission, 2026). While there is no specific legislation in Denmark requiring the establishment of youth councils at the municipal level, two acts frame local youth engagement. The Act on Non-Formal General Education (Folkeoplysningsloven) obliges municipal councils to establish permanent committees on non-formal education and to provide funding and facilities to voluntary youth associations, while the Youth Schools Act (Ungdomsskoleloven) requires each municipal youth school (ungdomsskole) to establish a board that includes pupil representation (Folkeoplysningsloven, 2018; Ungdomsskoleloven, 2019). Together, these acts create an enabling but non-mandatory environment for local youth participation, consistent with Denmark’s broader voluntary, NGO-led model.

National youth council and key actors

The Danish Youth Council (DUF) functions as the central national umbrella organisation. It represents 80 member organisations across a wide spectrum, including political youth wings, scouts, and cultural associations, with a combined membership of approximately 600,000 individuals (Gretschel et al., 2023, p. 14). DUF is vital to the sector’s financial sustainability, distributing roughly DKK 140 million annually from national lottery surplus funds to various organisations (Gretschel et al., 2023, p. 13).

Depending on the policy topic, youth are also represented through various interest organisations and national umbrella associations. At the municipal level, the relevant actors are the local youth councils and municipal joint pupil councils. The Danish Parliament also supports participation by hosting the Youth Parliament and other dialogue initiatives (European Commission, n.d.; Folketinget, 2024).

Faroe Islands

While the Faroe Islands have adopted the UN Convention on the Rights of the Child, youth participation is largely guided by government recommendations and decentralised municipal initiatives, rather than a single overarching youth law (Nordic Welfare Centre, 2021).

The Føroya Ungdómsráð (FUR) serves as the primary national umbrella organisation. It represents around 4,000 young people under 30, from 51 local communities, and advocates for youth rights (Faroe Islands, n.d.; FUR, n.d.; Nordic Welfare Centre, 2021).

Finland

Formal mechanisms of participation

Finland’s approach to youth involvement has a solid legal basis, starting with the Constitution, which mandates that public authorities promote opportunities for individuals to participate in societal decision-making (731/1999, 2000). This is further solidified by the Youth Act, which requires that young people be heard and given active roles in both local and national youth policy (Opetus- ja kulttuuriministeriö, n.d.; 1285/2016, 2016).

Nationally, the “kuuleminen” (consultation) process is a standardised component of legislative drafting (Finlex, n.d.; Oikeusministeriö, n.d.). Under guidelines from the Ministry of Justice, ministries must involve youth representatives in preparatory bodies, utilising both traditional written feedback and digital platforms to ensure the inclusion of youth perspectives in parliamentary committee debates (Finnish Government, n.d.; Ministry of Justice, n.d.; The Ministry of Education and Culture, n.d.).

At the regional and local levels, the Municipalities Act and the Act on Wellbeing Services Counties guarantee all residents, regardless of age, the right to engage in discussion forums and resident panels, while those aged 15 and over are empowered to submit referendum initiatives (410/2015, 2015; 611/2021, 2021). Moreover, under the Municipalities Act, municipalities are required to establish youth councils, which constitute a formal mechanism through which young people can influence local decision-making. While this mandate applies to all 309 municipalities, regardless of size, practical implementation varies. Larger urban centres tend to offer superior administrative resources and dedicated budgets, whereas youth councils in smaller municipalities often benefit from more direct, informal access to local leadership. However, these smaller councils frequently face greater challenges regarding recruitment and the continuity of professional support compared to their highly institutionalised urban counterparts (Kuntaliitto, 2025; Nuva ry, 2026).

National youth council and key actors

The Finnish youth landscape is institutionalised and professionalised, and centred around the Finnish National Youth Council, Allianssi. What makes this body unique in the Nordic Region is its hybrid membership structure. Unlike its counterparts in Denmark, Norway, and Iceland, which serve strictly as umbrella organisations for voluntary, youth-led NGOs, Allianssi represents a broader spectrum. It acts as a comprehensive body for approximately 150 member organisations, while simultaneously representing the professional youth work sector, including municipal and church-based youth workers (Gretschel et al., 2023, p. 4, 2023, p. 6).

Other key national actors include the Union of Local Youth Councils (Nuva ry) and various national student unions, which represent young people during formal consultations (European Commission, 2026; Nuva ry, n.d.). These efforts are supported by the State Youth Council, an expert advisory body to the Ministry of Education and Culture (Finnish National Youth Council and Youth Sector, n.d.; Opetus- ja kulttuuriministeriö, n.d.; The Ministry of Education and Culture, n.d.; Undervisnings- och kulturministeriet, n.d.).

Locally, youth participation is primarily structured around legally mandated municipal youth councils, which serve as the main institutional actors in youth representation (Gretschel et al., 2023, p. 4).

Greenland

Greenland’s self-government mandates specific action plans for children’s rights. The Inuusuttut Inatsisartui (Youth Parliament) serves as a formal, platform for young people to engage directly with the legislative process (Issuu, n.d.).

Sorlak acts as the national umbrella organisation for youth and children’s associations, while the MIO (National Advocacy Centre for Children’s Rights) and the NAKUUSA partnership provide specialised advocacy and education on youth perspectives. Sorlak is responsible for distributing lottery proceeds to youth organisations (Sorlak, n.d.).

Iceland

Formal mechanisms of participation

There are no formal mechanisms for consultation between central authorities and young people in Iceland. The Minister of Education appoints the formal Youth Council (Æskulýðsráð), a statutory advisory board historically dominated by adult professionals rather than young people. The National Youth Council (LUF) operates as an independent, youth-led umbrella organisation for over 40 NGOs (LUF, n.d.). The National Youth Act no. 70/2007 provides a legal basis for participation at the local level, stating that local governments should actively work to establish local youth councils made up of young people (70/2007, 2007). Although these local councils cannot directly change national youth policy, they influence national dialogue and impact local policies through regular cooperation and conferences with local authorities (Reykjavik, n.d.).

National youth council and key actors

Participation at the local level has expanded, with the number of municipalities maintaining youth councils increasing from 14 in 2008 to 33 in 2021 (Samband, n.d.). One central actor in Iceland is the National Youth Organisation (UMFÍ), which hosts conferences at which representatives from all local youth councils meet to discuss important topics in youth affairs. In addition, the institutional landscape includes various non-governmental organisations, such as UNICEF, UN-Women and Save the Children, as well as the Ombudsman for Children, all of which have established their own dedicated youth boards (European Commission, n.d.).

Norway

Formal mechanisms of participation

Youth involvement in Norway’s national policymaking is structured through a formal, transparent consultation process (høring), where the Norwegian Children and Youth Council (LNU), representing approximately 100 member organisations, acts as the primary unified voice in this process. While any group can submit statements, LNU is a statutory consultee on national bills (European Commission, n.d.).

At the local level, the 2019 Local Government Act mandated the establishment of youth councils in all municipalities and counties and legally required that authorities consult them on all relevant policy matters. Furthermore, several ministries have increasingly supplemented this formal system with ad hoc youth panels that provide targeted expert advice on specific areas like rural development and High North policy (European Commission, n.d.). In 2019, the Norwegian Directorate for Children, Youth and Family Affairs commissioned a five-year research and monitoring programme, which found that while many municipalities and county authorities have formally established youth councils, in line with the Local Government Act, good formal arrangements do not automatically lead to real influence in practice. The report also highlights clear differences between municipalities that vary in terms of size and centrality: youth councils in small and less central municipalities tend to have fewer support structures and less training. However, the report notes these settings may also reduce the distance between young people and local decision-makers. In contrast, larger and more central municipalities can draw on more administrative resources, offer more frequent meetings and provide more training (Rambøll, 2024).

National youth council and key actors

The Norwegian youth sector is characterised by a robust tradition of volunteerism and the “arm’s length” principle, which ensures that an independent committee, rather than the government, allocates state funding to national and local voluntary organisations for both core operations and specific project activities. This both prevents political interference and safeguards the sector’s role as an independent watchdog. LNU, representing 102 member groups and approximately 450,000 individuals with a broad range of cultural, political and social interests, serves as the primary national umbrella organisation. Other prominent actors involved in national consultations include the School Student Union of Norway, Youth Work Norway and the Norwegian Association of Youth with Disabilities (Gretschel et al., 2023).

Financial support is diversified through initiatives like the FriFond scheme, which redistributes national gambling revenues to local, low-threshold youth projects; and electoral-based grants for political youth wings, which are calculated based on the voting share of their respective mother parties. While this ensures a degree of financial stability, the sector faces modern challenges, such as a shift away from traditional long-term memberships and towards more professionalised, project-based engagement (Gretschel et al., 2023). Recognising the specific challenges faced by rural and peripheral municipalities, the Centre of Competence on Rural Development (Distriktssenteret) has emerged as an important national resource for youth participation in rural Norway. Through its dedicated “Ung i distrikts-Norge” programme, the centre supports rural municipalities in developing functional youth councils and organises regular knowledge-sharing conferences that bring together municipalities, regional youth councils and county authorities. The centre’s work underscores a key finding: that attracting and retaining young people in rural areas is closely tied to whether they feel genuinely heard and engaged in local decision-making (Distriktssenteret, n.d.).

Sweden

Formal mechanisms of participation

Swedish youth participation is fundamentally rooted in a long-standing tradition of dialogue between the state and civil society organisations (CSOs), which generally have more structured opportunities to inform policy than individual citizens. The primary formal mechanism for national influence is the consultation system, which involves the government sending legislative proposals and inquiry reports to relevant bodies for comment before they are finalised.

The National Council of Swedish Children and Youth Organisations (LSU) is customarily appointed as a formal referral body for all proposals affecting young people. The government also maintains a Youth Policy Council, which serves as a forum for discussion between the responsible minister and a diverse array of youth representatives.

While Sweden’s Local Government Act (Kommunallagen 2017:725) does not specifically mandate the establishment of youth councils, it sets out general provisions for resident participation and consultation in municipal decision-making, and in doing so provides an indirect enabling framework for local youth engagement (Kommunallag (2017:725), 2017). At the local level, participation is increasingly data-driven; the Swedish Agency for Youth and Civil Society (MUCF) produces the “LUPP” survey, a standardised tool used by 69% of municipalities to collect youth perspectives and inform local policy (MUCF, 2026). The Ombudsman for Children also has a legal mandate to engage in regular dialogue with minors, particularly those in vulnerable situations. Based on these dialogues, the Ombudsman produces thematic reports on issues such as housing (2022), crime prevention (2023) and mental health (2024) (Barnombudsmannen, 2022, 2023, 2024).

National youth council and key actors

The Swedish youth landscape is defined by a combination of government oversight and a diverse network of independent associations, rather than a single national youth parliament. MUCF is the central government authority tasked with implementing youth policy and distributing state grants to youth-led initiatives (Gretschel et al., 2023, p. 44). In the non-governmental sector, LSU serves as the primary national umbrella organisation, representing over 80 membership-based groups. It also appoints youth representatives to international bodies like the UN and EU. While LSU coordinates democratically structured associations, the Swedish Association of Youth Councils (Sveriges Ungdomsråd) acts as a civil society network for approximately 40 local youth councils (Sveriges Ungdomsråd, n.d.). This local focus is a hallmark of the Swedish model – nearly half of all municipalities maintain their own youth council or advisory board (MUCF, 2019). In addition, large-scale NGOs like Fryshuset play a significant role in national advocacy and youth development, focusing on social inclusion and entrepreneurship through a decentralised network of youth hubs (Gretschel et al., 2023, p. 20). Youth participation in rural areas of Sweden faces distinct challenges due to the country’s dispersed settlement patterns. Hela Sverige ska leva (Rural Sweden), a national civil society organisation representing over 5,000 local development groups, actively works to amplify youth voices in rural communities through its “Unga i landsbygder” (Youth in Rural Areas) programme, as well as running webinars, co-financing research on young people’s everyday lives in rural settings and supporting regional networks that connect local associations with youth-engagement work. The organisation’s efforts highlight how impactful youth participation in sparsely populated areas requires adapted approaches that go beyond the standardised frameworks primarily designed for larger, urban municipalities (Hela Sverige ska leva, 2023).

Åland

Åland’s youth policy is defined by its autonomous youth policy programme, which emphasises the right of young people to influence decision-making as a vital societal resource. Municipalities are primarily responsible for implementing the programme (Ålands regering, 2015).

The Åland Youth Council (Ålands ungdomsråd) is the central representative body for the island’s youth and is supported by numerous non-governmental organisations funded through local Paf-funds (lottery revenues) (Ålands landskabsregering, 2014).