2.1 Policies and restrictions: their impact on the youth and leisure sector
The policies and restrictions introduced in response to the COVID-19 pandemic varied significantly across and within countries. Some countries or areas relied more on recommendations than restrictions. Areas with relatively small populations were able to restrict travel more easily and contain the virus, whereas larger, densely populated areas experienced higher infection rates and implemented stricter regulations.
Schools and formal education prioritised
Throughout the epidemic, the governments of the Nordic countries prioritised keeping education and formal learning open for children and young people. As a matter of fact, several interviewees in our study regret the fact that the focus was ‘entirely on keeping schools open’.
It was widely accepted that the risk of transmitting SARS-CoV-2 through on-site education increased with age. Thus, high schools (for 16–20-year-olds) were mostly closed and teaching was delivered remotely through digital platforms, while educational institutions for children and young people under 16 were largely operational. University-level education was entirely digitalised.
Among the Nordic and European countries, Sweden distinguished itself by implementing the least stringent policy measures. However, students in Sweden were also engaged in distance learning for extended periods, and public spaces and activities were restricted through recommendations that were largely adhered to. Denmark, Finland, and Norway experienced more lockdowns and longer periods of distance learning, even for younger students. Although innovative digital pedagogies were developed, the quality of teaching varied considerably. (Nøkleby et al., 2022)
Shrinking space in the leisure and youth sector
The leisure and youth sector was significantly affected by the crisis response to the COVID-19 pandemic.
One of the most immediate and widespread challenges facing the youth and leisure sector was the closure of indoor sports facilities, gyms, and swimming pools. This was a widespread measure in the Nordic countries, particularly during the initial phases of the pandemic. In most places, also youth centres were completely shut down. Several informants questioned the lack of tailored restrictions and closures, which would have enabled a larger part of the leisure sector to remain open for as long as possible.
One out of several similar statements made by interviewees:
‘The restrictions were enforced in a “one-size-fits-all” manner without taking into account the potential for specific adaptations. This made it difficult for the leisure and youth sector to adapt and even more challenging to innovate.’
The impact on various venues and activities differed greatly. The prohibition of contact sports meant that most traditional team sports could not be practised, and group training sessions could not be held. Competitions and summer camps were not permitted, either. Outdoor meetings were also occasionally prohibited.
Ever-changing restrictions and uncertainty
The ever-changing restrictions and recommendations, coupled with the urgency of the situation, led to confusion and uncertainty among leisure providers regarding the implementation of government regulations and advice. Local authorities generally interpreted the government provisions conservatively to avoid taking risks. As one informant from a youth work umbrella organisation explained:
‘A general fear of making mistakes and causing harm to young people and their families led many municipalities to choose closure over risk, even when we offered guidelines on how to run youth centres in accordance with the restrictions.’
Leisure and youth organisations also describe how the uncertainty had led them to cancel activities that may not have needed to be cancelled. One of the interviewees said:
‘We found ourselves in a situation where we should have pushed the boundaries of the regulations to the maximum extent possible to benefit young people, but instead we capitulated.’
The constant changes in regulation also posed a challenge. Having to prepare for an activity or project that was later cancelled discouraged innovation. Several informants, particularly those representing youth organisations, said that motivation started to fade as the pandemic continued for a prolonged period. The Danish Youth Council (DUF) post-pandemic membership survey revealed that the main reason for losing motivation (as stated by 77% of respondents) were long periods of postponed activities, which often resulted in inertia. Mounting pressure facing the leisure sector
Organisations in the leisure sector faced multiple challenges, particularly due to restrictions related to the COVID-19 pandemic. Smaller associations with few or no employees, in particular, found it difficult to cope with additional demands, including adapting activities, supporting volunteers, completing grant applications, conducting risk assessments, and looking for alternative venues.
Many volunteers lost motivation and some chose to pause their engagement. One interviewee said:
‘With volunteers unable to meet in person, it was difficult to maintain their motivation or a sense of community, not to mention offering innovative alternatives to physical activities.’
Hobby organisations lost income from sources such as rent, market stalls, and ticket sales. At the same time, costs increased due to adaptations and skills development needs.
The public sector made efforts to keep these organisations afloat. Support strategies such as sustained grants throughout the pandemic despite reduced activity levels, and reduced or exempted rents for venues, were of great importance. However, interviewees noted that little (if any) additional financial support was provided to enable the youth and leisure sector to (re-) organise activities. An interviewee of an organisation working with disabled young people said:
‘There were no resources available to take a proactive approach or implement funding-requiring adaptations.’
Funding schemes were not always designed to ensure the provision of youth leisure activities. For example, although the Swedish Sports Confederation received a substantial emergency support package, the majority of the funds were allocated to elite and adult sports to compensate for a decrease in income as opposed to supporting the provision of youth leisure on a local level. Interviewees from other Nordic countries provided further examples of large organisations receiving funding, while smaller hobby and youth organisations were excluded from existing support structures (see, for instance, the National Sports Council of Finland, 2022).
Several informants stated that, in addition to financial assets, there was also a shortage of other resources such as suitable premises. For example, it was difficult to gain access to large indoor premises managed by municipalities, such as sports halls and schools. Youth centres, libraries, and cultural institutions were closed, and there was a lack of covered outdoor premises.
Lack of adequate contingency planning for the leisure sector
The pandemic exposed significant gaps in the Nordic youth and leisure sector’s contingency planning. Many interviewees said they were caught off guard, highlighting the lack of procedures for managing the outcomes of a crisis. Municipalities and youth organisations were largely unprepared and lacked the plans and skills necessary to continue activities or support resilience among young people. Indeed, many interviewees also indicated that the absence of sector-specific policies and/or policy briefings was one of the factors contributing to the negative implications for the leisure sector and, consequently, for young people. A lack of supportive strategies was also evident, with a few exceptions. As a Norwegian expert informant stated:
‘No policies or strategies supporting the provision of leisure activities for young people were implemented. Not one.’
Over time, awareness of the negative consequences of social isolation on the well-being of young people increased in society and among policymakers. Participation in leisure activities was generally encouraged by the authorities in the Nordic region, and measures were taken to facilitate access to these activities. For example, rather than banning gatherings altogether, limitations were placed on the number of young people who could meet indoors or outdoors, and these limitations sometimes varied by age group. But the measures did not always result in expected outcomes.
For instance, limitations on group size put pressure on youth workers and other leisure providers that did not have leaders or venues for more groups. One of our informants, a youth worker in a remote Greenlandic village, reported:
‘The youth club is the only leisure hub in the area. It was heart breaking to see young people queuing, only to admit twenty of them per evening and deny so many others the opportunity to socialise with their peers and us youth workers.’
According to several informants who are well familiar with the policy-making process, the consequences of the restrictions were not properly analysed.
For example, while young people under the age of 16 were permitted to meet in person, adults and older youths were not allowed to be present. This prevented youth volunteers, coaches, and supportive adults from implementing the activities. There was also a lack of analysis of the consequences for groups of young people who had fewer opportunities. For instance, pre-registration was introduced, which made it more difficult for young people to access leisure activities and spaces, and excluded certain groups from participating.
Several informants and respondents, particularly young people and representatives of youth umbrella organisations, indicated that young people and their perspective were inadequately represented in decision-making processes. Young people were also rarely included in policy development processes or the adaptation of measures and activities. Chapters 3 and 4 of our report discuss the consequences of this exclusion and suggest improvements ahead of the next crisis.
Gaps between expectations and reality
A lack of preparation hindered effective crisis communication, resulting in an expectation gap. One of our interviewees gave the example of parents publicly ‘shaming’ a cultural organisation for only allowing one parent or family member to attend performances due to health and safety concerns during the pandemic. Similarly, music teachers were expected to ‘continue as usual’, even though they were not allowed to use indoor venues. An interviewee stated:
‘Most pupils don’t have a drum kit at home, so you can’t really do that exercise online. It’s also impossible to play the flute outside in sub-zero temperatures.’
The local authorities expected the municipal youth service to continue offering activities for young people and to adapt its methods as necessary. However, this was not the case. With group size limits and an increase in digital and detached youth work, which has a more individualised focus on support and counselling, more human resources were needed to reach and support young people. Rather than maintaining or increasing staffing levels, the authorities would reallocate important resources from the youth and leisure sector. Informants reported that it was challenging when some youth workers were made redundant while others were redeployed as substitute teachers or to help prevent the spread of the virus in schools.
2.2 Policies and restrictions: Their implications for young people
Young people’s access to leisure during the pandemic varied depending on economic resources, social networks, geography, and the availability of activities under restrictions. For over two years, these restrictions significantly limited opportunities for social interaction outside the home.
The drastically reduced access to leisure had a particularly negative impact on adolescents and young adults (aged approximately 16–20). This age is when young people distance themselves from their families and friends become increasingly important sources of support. The age group experienced social isolation through home schooling and stricter restrictions on leisure activities than their younger peers. Students living far from home (e.g., those attending high school in a different town or city) and those who were new to an area or school were particularly affected by isolation, as they lacked a social context. (Nyyssölä & Manner, 2023; Christiansen, Qualter & Friis, 2021)
The pause in leisure activities meant that many in this age group missed out on progressing from hobby participation to volunteering for an organisation. This resulted in fewer volunteers in hobby and youth organisations, as well as a loss of resilience factors for the young people in question.
The distress and lack of clarity surrounding the pandemic and its infection control regulations led some parents to stop their children or young relatives from travelling, visiting public spaces, or socialising with friends. This situation was exacerbated by uncertainty surrounding the implications of restrictions and adaptations to leisure activities, as well as security measures within the leisure sector. This resulted in further limitations on socialisation and increased isolation, particularly among certain youth groups, such as those who were at risk themselves or who had family members who were.
The threshold for participation was raised in several respects. For example, constantly changing and unpredictable restrictions resulted in irregular activities and scarce or conflicting information about whether activities were going to take place. Limitations on numbers meant that pre-registration was required, sometimes with parental consent. Digitalisation resulted in a loss of physical social interaction with friends, youth leaders, and wider society as a motivating factor for participation. The opportunity to participate in or organise spontaneous sports activities, take part in activities with a low barrier to entry for unorganised youth, attend low-cost summer camps or visit ‘open’ youth centres remained unavailable for a long time.
2.3 Uneven impact on the well-being among different groups of youth
The effects of the pandemic on leisure were significantly unequal for different groups of young people. Groups who faced greater barriers to participation prior to the pandemic were disproportionately impacted, with low-threshold participation opportunities disappearing. Prior to the pandemic, leisure activities had a particularly positive impact on the well-being of certain groups exposed to social isolation. Consequently, they suffered greater losses when access was denied during the pandemic.
Groups adversely affected include young people from financially disadvantaged families, those living in overcrowded households, those living in households affected by mental illness, cognitive disabilities, abuse, violence or crime, and young migrants whose native language is not Danish, Finnish, Icelandic, Norwegian or Swedish. Other particularly affected groups, as mentioned in the literature and by interviewees, include girls and young women (see for instance: Kozák, Bakken & von Soest Tilmann, 2023) , LGBTQIA+ youth (see, for instance: Malmquist et al., 2023 and Sampogna et al., 2021) , and young people with disabilities (see for instance: Kämppi, Asunta & Tammelin, 2022). The consequences for young people in these groups will be presented below.
A Norwegian study using data collected from a survey answered by 500,000 secondary school pupils shows a clear correlation between young people’s leisure habits, their overall well-being, and their social background. Young people with fewer socioeconomic opportunities
The partial or complete closure of low-threshold, low-cost and/or free leisure activities at youth clubs, ever-changing conditions, pre-registration, and digitalisation had a particularly negative impact on young people from less socio-economically privileged backgrounds.
For children and young people in this group, the closure of leisure activities resulted in involuntary isolation and an increase in psychological stress. (Norwegian Social Research, Youth Research Group NOVA,Nova 2021). According to informants, this group has a particularly low participation rate in hobby organisations and was therefore particularly affected by the closure of youth clubs and other low-threshold activities or spaces.
Larger cities and/or metropolitan areas, especially those less socio-economically privileged populations had higher infection rates and therefore stricter rules. This resulted in even poorer access to youth centres and easily accessible activities than in other areas.
As several low-cost or free leisure activities closed and family breadwinners were negatively affected by layoffs and suspensions, some did not have the economic resources to pay for their children’s and other young family members’ participation in sports and hobbies.
Several hobby organisations started charging, or increased the fee, for leisure activities (such as bike tracks and adventure parks) that were previously offered for free or at a reduced price. (Save the Children Sweden, 2021)
When municipal sports and swimming facilities shut down, young people from more affluent backgrounds could turn to private, profit-driven sports companies to continue enjoying leisure activities (Riksidrottsförbundet, 2021). This was an opportunity denied to those without the necessary economic means. One interviewee from Greenland said:
‘We rarely talk about it, but there is a significant disparity between advantaged and disadvantaged families in our society. In fact, I would even say that some people are poor. During the pandemic, it became clear that children and young people who usually benefited from free access to the municipal swimming pool suffered from isolation when it closed.’
Free opportunities for un- or semi-structured leisure, such as youth centres, cafés, and shopping centre benches, were also removed. This resulted in an adverse effect, whereby resource-strong youth could meet in cafés, while those with little or no money had nothing to do. (Kauppinen & Laine, 2022)
During times of crisis and insecurity, it is particularly important that young people have access to parental and family support. During the COVID-19 pandemic, this support was less readily available to families with fewer socioeconomic opportunities, as it was a time of anxiety, stress, job losses, and economic challenges. Additionally, as physical leisure activities were replaced by digital alternatives, some young people lacked the necessary resources to practise their hobby online, such as digital equipment, guidance, programmes, space, or the required knowledge. This had an unequal impact on their well-being.
The closure of safe leisure facilities, such as youth clubs, left young people living in risky environments vulnerable. Some of these young people returned to negative environments and/or reconnected with old friends or abusive adults. (Save the Children Sweden, 2022)
Overcrowded households
Overcrowding posed challenges for young people and their families during the pandemic as adults, children, and young family members spent more time at home.
Sweden is followed by Denmark and Iceland (10%), Finland (8%), and Norway, 6% of the population. Overcrowding (and housing shortage) has also been indicated as a challenge by interviewees from Greenland and confirmed by statistics. Areas with a higher proportion of overcrowded households were subject to stricter restrictions, as denser living conditions posed a greater risk of contagion. This resulted in fewer opportunities to leave home and limited privacy even further. Without a room of one’s own, participating in digital leisure activities such as dance classes also became more challenging.