Introduction
In the Ombudsperson’s experience, the Norwegian authorities primarily viewed the pandemic as a public health crisis. The number of people infected and the lack of capacity in hospital emergency departments were factors that influenced many of the decisions made. However, the consequences of the pandemic and subsequent lockdown were far-reaching. Measures to control the infection restricted freedom of movement and shut down services and programmes. The lockdown was a significant intrusion into the lives of children and young people. Throughout the pandemic, we believed that the consequences for children and young people were not given sufficient consideration.
The evidence shows that the impact on children, young people, and their families of the pandemic and the measures taken to combat it were very different (Nøkleby et al., 2023). Those who were already vulnerable were particularly affected by the pandemic itself, the infection control measures, and the lack of information (Barne-, ungdoms- og familiedirektoratet, 2020). In the Ombudsperson’s view, the consequences for children and young people were not given sufficient consideration, nor was the available knowledge handled expediently.
Three reports have evaluated the efforts of the authorities during the pandemic. They conclude that the goal of protecting children and young people was not achieved. The reports highlight, among other things, that the experiences of children and young people were not taken into account. This has been a concern for the ombudsperson and organisations working with children and young people throughout the pandemic. Our responses to these reports summarise the Ombudsperson’s views on the management of the pandemic. We also highlight our experiences in our submission to the UN Committee on the Rights of the Child (The Norwegian Ombudsperson for Children, 2023). Learning point 1 - Strengthening systems for child participation and assessments of the best interest of the child
The Ombudsperson considers that a more profound knowledge and understanding of the consequences for children and young people would have resulted in different decisions during the pandemic. It is imperative that the authorities undertake rigorous impact assessments for children as a means of ensuring their well-being. It is the government’s obligation to guarantee that the best interests of the child are a fundamental consideration in all decisions, in accordance with the conditions set out in Section 104 of the Norwegian Constitution and Article 3 of the United Nations Convention on the Rights of the Child. The obligation to listen to the voices of children is enshrined in Article 12 of the UN Convention on the Rights of the Child, which, as stipulated in the Human Rights Act, holds supremacy over other Norwegian legislative instruments.
The Ombudsperson emphasises that integrating assessments of both the consequences for children and the best interests of the child into investigative processes can significantly enhance crisis management. By embedding this child-centred methodology into standard procedures, authorities will be better equipped to protect and support children and young people during times of crisis. This approach represents a crucial step toward ensuring that their rights, safety, and well-being are prioritised at every stage of decision-making.
The government’s investigation tools now include the best interests of the child and the right of children to be heard, which is a positive development. The guidelines to The Instructions for Official Studies and Reports are a vital tool for the preparation of central government measure, and in 2024 specifications on the best interests of the child and children’s right to be heard were included in the document. This establishes a solid foundation for enhancing the government’s official Studies, ensuring that the perspectives of children and young people are given due consideration and respect.
However, these changes alone are not sufficient. They must be accompanied by concrete implementation measures. Properly assessing the best interests of the child and effectively gathering the views of children and young people require both specialised expertise and targeted training.
To support this, the Ombudsperson has developed a comprehensive e-learning programme. This resource offers practical guidance on how to assess the best interests of the child and facilitate meaningful child participation. The guidance is designed to be applicable at both the individual and systemic levels. These courses have been designed to be beneficial for all individuals working with and for children. Recommendation: The state should provide clear guidance and take proactive measures to strengthen expertise in child participation and in conducting assessments of the best interests of the child.
To embed these principles into everyday practice, ministries and directorates (government agencies) must explicitly include requirements for such assessments and for child participation in government documents, assignment letters, and mandates.
The government should explore concrete measures to ensure that national governments and municipalities consistently fulfil their obligations to consider the best interests of the child and to actively engage with children in their decision-making processes. A joint Nordic initiative to examine how these responsibilities are implemented across countries could provide valuable insights and promote best practices.
Learning point 2 - Use existing structures to gather experience from children and young people
Norway has well-established structures for the participation of children and young people. These structures were underutilised during the pandemic. Across the country, there is a wide range of civil society youth organisations, including scouting, marching bands, sports clubs, groups representing children in care, political youth parties, environmental advocates, and organisations for children and young people with disabilities.
The Norwegian Children and Youth Council (LNU) is an umbrella organisation representing over 100 member organisations. It has extensive experience in facilitating participatory processes with children and young people. The Ministry of Children and Families regularly engages the council and its member organisations as expert partners. The Ministry also holds regular dialogue meetings with key youth-focused umbrella organisations such as Young Disabled (UngFunk) and Ungdom og Fritid (organisation for youth clubs and young people outside formal organisations). These umbrella bodies and their individual organisations all provide invaluable perspectives, especially from marginalised and underrepresented youth. Despite these strong partnerships, these umbrella bodies and their member organisations were not systematically consulted during the pandemic. This represents a missed opportunity to incorporate the voices of children and young people into crisis response and decision-making.
All Norwegian municipalities must have a youth council (Kommunal- og distriktsdepartementet, 2019), and every school must have a student council. However, during the pandemic, the activities of these councils were suspended. This was a missed opportunity to engage children and young people at a time when their perspectives were especially needed. Rather than pausing their work, municipalities and schools should have activated these councils to collect and reflect the experiences and views of young people during the crisis. This could have been achieved through digital consultations and virtual platforms, even under lockdown conditions.
Unfortunately, there has been no clear follow-up or strategic planning regarding the mobilisation of these existing participatory structures in future crises. While there is considerable variation in how municipalities support and utilise their youth councils, there are also strong examples of good practice that could serve as models for others.
Authorities have conducted surveys on youth participation at both the municipal and system levels, including the functioning of youth councils (Bygdås & Hagen, 2022; Rambøll Management Consulting AS, 2024). While these efforts provide a valuable foundation, there is still significant potential to further develop and strengthen participatory methods with children and young people. Meaningful, inclusive, and resilient participation mechanisms must be prioritised in moving forward.
Recommendation: To ensure that the views of children and young people are considered in future crises, the authorities should strengthen youth and student councils and establish clear routines for activating them during emergencies. Cooperation with youth umbrella organisations should be formalised.
These structures must remain operational during lockdown through digital participation. They must be used to gather young people’s experiences and views and to provide them with relevant, age-appropriate information. Best practice from municipalities should be shared to improve participation nationwide.
Learning point 3 - Incorporating knowledge about and from children into preparedness work
The Norwegian authorities set up a cross-sectoral coordination group made up of government agencies from all the relevant sectors at the start of the pandemic. The group’s mandate was clear: to gather and consolidate knowledge about the situation of children, particularly those in vulnerable situations (Barne- og familiedepartementet, 2022) The coordination group worked closely with the county governors and held productive discussions with various relevant stakeholders to gather in-depth knowledge about the situation of children. During the pandemic, the group submitted 15 reports to the government, providing timely insights and recommendations. The group made it clear that keeping essential services for children and young people open was of the utmost importance, stressing that schools were especially vital in ensuring the well-being of children during crises.
The establishment of the coordination group was an essential measure. Unfortunately, the evaluations show that the knowledge was not sufficiently disseminated to where decisions were made. As a result, the reports were not given sufficient weight. This weakened efforts to protect children and young people.
General knowledge about what matters for children and young people –drawn from research, professional experience, and the voices of children themselves – was not adequately acknowledged during the pandemic. The Ombudsperson’s view is that critical assessments and decisions are made in environments dominated by health and emergency preparedness perspectives.
Recommendation: It is essential that knowledge about children and young people, especially those in vulnerable situations, is systematically integrated into emergency preparedness and response. It is essential that professionals with expertise in child development, child welfare, and psychosocial support be involved in both emergency planning and response.
Preparedness procedures must draw on research, professional insight, and the lived experiences of children and young people to inform decision-making during crises.
Cross-border co-operation is essential in the Nordic region, where many children have close family living or working across borders. Coordinated crisis responses are crucial to protect their rights and family life. A structured Nordic dialogue is needed to integrate child-focused knowledge into crisis planning and strengthen regional preparedness.
Learning point 4 - Ensuring high-level co-operation for children in vulnerable situations
The Norwegian government has established a core group structure. This will strengthen inter-sectoral co-operation among ministries and government agencies. The Ministerial Core Operational Group for Children in Vulnerable Situations (KUBU) is central to this. It consists of the top administrative heads of eight ministries. KUBU is the key to successful interagency collaboration. It brings together the directors of 13 relevant government bodies, including key government agencies. Mandates are issued jointly through the Directors’ Meeting or the Core Group of Ministries. This ensures coordinated leadership and accountability. KUBU directly addresses cross-sectoral challenges, including juvenile justice and effective preventive work. The objective is clear: to create a more unified and responsive system for children and young people in vulnerable situations. The group is supported by the Norwegian Directorate for Children, Youth and Family Affairs (Bufdir), which plays a key role in facilitating this collaboration.
The Ombudsperson for Children believes that this model will improve how the state designs and implements measures for children and youth. There is significant potential to involve children and young people more directly in this work. The government must support their participation systematically. It is vital that the establishment of a National Resource Centre for Child Participation is implemented (see Learning Point 6) to ensure that young voices are meaningfully included in shaping the policies that affect them.
Recommendation: The Norwegian government needs to maintain and strengthen the Core Group structure and ensure its activation in future crises. The group’s work must include the systematic participation of children and young people
Learning point 5 - Use existing knowledge and digital tools to boost child participation
The pandemic has shown beyond doubt that we must make child and youth participation in crisis response a top priority. During the pandemic there were several initiatives to put children’s participation on the agenda. These included formal communications, such as letters from the Norwegian National Human Rights Institution, and a multi-agency webinar where five key recommendations on participation were endorsed and presented to the government. There is clear evidence that children and young people can be meaningfully involved even under restrictive conditions. The Norwegian Red Cross (Røde Kors, 2021) and the Children’s Ombudsperson have demonstrated successful models of participation during the pandemic, proving that meaningful engagement is both possible and impactful even in times of crisis (Barneombudets ekspertgruppe om koronapandemien, 2021). However, the experiences and insights shared by children and young people were not fully utilised, and much of the existing knowledge remains fragmented or inaccessible. The lack of a centralised register or knowledge base on child participation hinders our ability to learn from past efforts and apply them in future crises.
The government must take responsibility and make sure it systematically collects, preserves, and makes accessible knowledge from and about children and young people. This is critical not only for future emergency preparedness but also for everyday policymaking. The establishment of a National Resource Centre for Child Participation (see Learning Point 6) is a key step toward achieving this goal.
The Ombudsperson has summarised our experiences of digital participation (Barneombudet, 2021). It can have good results, but there are also disadvantages. We strongly believe that methods for digital participation need to be developed further.
Recommendation: The Norwegian government should ensure that knowledge from and about children and young people is systematically collected, preserved, and made accessible for both crisis response and everyday policymaking. It must also invest in the further development of digital participation methods, building on lessons learned during the pandemic. A joint Nordic initiative is key to exchanging experiences and co-developing innovative digital tools. This will strengthen regional capacity and ensure that child participation remains resilient and inclusive even in times of crisis.