Definition of a crisis

The terms disaster, crisis and emergency are often used as synonyms even though there are important differences between them. None of these terms has a universally accepted definition but below we differentiate between the terms and clarify how the term crisis is used in this analysis.

Disasters occur as a result of a combination of hazards, vulnerabilities and a lack of measures that could have reduced the adverse impact of a disaster. One definition of a crisis is a “situation faced by an individual, group or organisation which they are unable to cope with by the use of normal procedures and in which stress is created by sudden change” (Booth 2003 cited in Moe and Pathranarakul 2006). Both disasters and crises trigger rapid public policy changes. Emergencies are unanticipated events that threaten people, property or the environment and which require a coordinated and rapid response. An emergency is not always a sudden occurrence. Both a crisis and an emergency can lead to a disaster if not dealt with appropriately (Al-Dahash, Thayaparan and Kulatunga 2016).

In other words, a crisis is a situation that cannot be dealt with through regular procedures and therefore triggers rapid changes in public policy. An emergency is an impending crisis that has not yet resulted in a need for change of policy. A disaster can sometimes be avoided if a crisis and/or an emergency are properly handled. In other words, a crisis occurs at a specific point in time when it may still be possible to avoid a disaster.

In this analysis we have limited the use of the term crisis to crises that occur at the local or national level; this report does not cover individual and organisational crises.            

Government authorities and other public sector actors in the Nordic region have developed several toolkits and recommendations to help local municipalities prepare for a crisis.^[1] In general, existing crisis management structures do not include guidelines on how to ensure the right to participation for children and youth.

Even though the frameworks differ slightly in terminology and content, they usually include three elements:

1) Risk and vulnerability analysis: Local municipalities should regularly assess risks and vulnerabilities. In a risk analysis, municipalities identify risks and analyse the likelihood of the risks, as well as the consequences and the potential impact such risks may have. In a vulnerability analysis, municipalities identify major vulnerabilities in the system that relate to these risks. Such an analysis should also include measures to reduce risks and vulnerabilities.

2) Crisis plan: Local municipalities should also have a crisis plan that describes what measures to take during a crisis, as well as roles and responsibilities, including how a crisis response organisation should operate. Local municipalities should have a dedicated staff member who is responsible for coordinating the work to prepare for a crisis and ensuring coordinated work during crises.

3) Crisis simulation and training: In order to develop skills in crisis management it is important to conduct crisis simulations and provide regular training.

The UN Committee on the Rights of the Child has developed nine principles for meaningful participation that also apply in times of crisis. The principles are developed in General Comment No. 12 to the Convention on the Rights of the Child (2009) and comprise fundamental conditions that should guide all processes in which children are involved. Even though the principles have been developed with children under 18 in mind, the principles are also relevant for participatory processes with youth over 18 years of age.

All child and youth participation processes should be:

1. Transparent and informative: Children and youth must be provided with full, accessible and age-appropriate information about the participatory process, the topic and expectations.

2. Voluntary: Child and youth participation is a right, not an obligation. Children and youth should never be forced into expressing their views, and all aspects of the process should be voluntary.

3. Respectful: Children and youth should be treated with respect both for their person and for their views in all aspects of the participatory processes.

4. Relevant: The issues must be of real relevance to the participants’ lives and they should be able to draw on their knowledge, skills and abilities.

5. Adapted to the target group: Environments and working methods should be adapted to the individual capacities of the participants 

6. Inclusive: Children and youth are not a homogeneous group, and participation must provide for equality of opportunity for all, with zero discrimination. 

7. Supported by training: Adults need preparation, skills and support in order to facilitate children’s participation. This is also applies to children and youth who are involved as trainers and facilitators.

8. Safe and sensitive to risk: Adults are responsible for ensuring that the participatory processes are conducted in a way that safeguards the interest of the child and for minimising any risk of violence, exploitation or any other negative consequences.

9. Accountable: Children and youth must be informed about how their views have been interpreted and what conclusions and/or decisions have been made. The participants should also be given the opportunity to submit complaints regarding the outcome of the analysis.

The nine principles are also used in the guide called When involving children and young people in the work of the Nordic Council of Ministers: Principles and approaches (2020).

[1] For example, this can be found here:

The Norwegian Directorate for Civil Protection (15 September 2022). Risiko, sårbarhet og beredskap. https://www.dsb.no/lover/risiko-sarbarhet-og-beredskap/

Swedish Civil Contingencies Agencies (15 September 2022). Krisberedskap och civilt försvar. https://www.msb.se/sv/amnesomraden/krisberedskap--civilt-forsvar/

Danish Emergency Management Agency (15 September 2022) Helhedsorienteret beredskabsplanlægning. https://www.brs.dk/da/nyheder-og-publikationer/publikationer2/alle-publikationer/2022/helhedsorienteret-beredskabsplanlagning/

Department of Civil Protection and Emergency Management (15 September 2022). Áætlanir fyrir fyrirtæki, sveitarfélög og stofnanir https://www.almannavarnir.is/forvarnir-og-fraedsla/aaetlun-fyrir-fyrirtaeki/ 

Department of Civil Protection and Emergency Management (15 September 2022). Viðbragðsáætlanir almannavarna https://www.almannavarnir.is/forvarnir-og-fraedsla/vidbragdsaaetlanir/ 

Association of Finnish Municipalities (15 September 2022). Ny handbok om beredskap och beredskapsplanering i välfärdsområdena https://www.kommunforbundet.fi/aktuellt/2022/ny-handbok-om-beredskap-och-beredskapsplanering-i-valfardsomradena