Introduction

This report has been developed by the Nordic Welfare Centre in collaboration with Professor Emerita Kirsten Sandberg and the Nordic Ombudspersons for Children. Sandberg’s contribution provides a robust academic foundation, offering insights into how the Nordic countries – both individually and collectively – can strengthen children’s right to participation.

Article 12 of the UN Convention on the Rights of the Child (UNCRC) is one of the most fundamental provisions in the Convention. It affirms that all children who can form their own views have the right to express those views freely in all matters affecting them and to have those views given due weight in accordance with their age and maturity.

But what does this mean in practice? To comply with Article 12, states must do more than simply listen to children. They must create structures, policies, and cultures that enable children to participate meaningfully in decisions that affect their lives. This includes:

Governments, educators, caregivers, and civil society all share responsibility for making this right a reality. International organisations and local communities also play a key role in holding states accountable and fostering environments where children feel safe and empowered to speak up.

Importantly, the scope of Article 12 is broad. It applies not only to issues explicitly mentioned in the Convention, but to all matters affecting children, including those where their input can improve the quality of decisions.

Finally, Article 12 is closely linked to other human rights instruments, such as the Convention on the Rights of Persons with Disabilities (CRPD). For children with disabilities, the right to be heard is especially critical, as they often face additional barriers to participation. Together, Articles 3 and 12 of the UNCRC reinforce the principle that children’s views are not just symbolic, but essential to determining what is in their best interests.

The report is one of the final outputs of the project on Nordic cooperation on children’s and young people’s opportunities for participation and development after the pandemic, coordinated by the Nordic Welfare Centre on behalf of the Nordic Council of Ministers and NORDBUK. It seeks to improve understanding of how the right of children to be heard, as set out in Article 12 of the United Nations Convention on the Rights of the Child (CRC), has been upheld and implemented across the Nordic countries, particularly in crisis decision-making processes since the pandemic. Drawing on insights and evidence gathered during the project, as well as national policies and practices from 2021 to 2025, the report establishes a strategic foundation for enhancing the realisation of children’s right to participation and upholding their rights more broadly.

In addition to the contributions from the Nordic Ombudspersons for Children and the legal analysis by Professor Emerita Kirsten Sandberg, this report has also been shaped by the voices of children and young people themselves. Their active participation in the final conference in Helsinki and at a youth workshop where young participants provided reflections, priorities, and concrete proposals have directly influenced the final recommendations presented in this report. Their insights serve as a powerful reminder that children and young people are not only rights-holders, but also essential contributors to shaping policies that affect their lives – especially in times of crisis.

The pandemic exposed critical shortcomings in the Nordic region’s ability to uphold children’s rights and especially their right to be heard and involved in decisions affecting them. Children and young people were largely excluded from decision-making processes, particularly in situations requiring swift government action. When their views were sought, it was often too late to influence decisions already made. Moreover, the adults or officials they engaged with frequently lacked the authority to advocate effectively on their behalf. This reflects a broader systemic issue: a lack of preparedness, coordination, and mechanisms to ensure meaningful child participation in emergencies.

In response to these challenges, the Nordic Welfare Centre recognised the need for independent, rights-based expertise to evaluate the situation and recommend improved policies and practices. The Nordic Ombudspersons for Children were invited to contribute national insights and professional evaluations. As independent institutions with deep knowledge of how children’s rights are implemented in their respective countries, they are well positioned to identify systemic gaps and opportunities for improvement.

To complement this regional expertise with an international legal perspective, Professor Emerita Kirsten Sandberg – former Chair of the UN Committee on the Rights of the Child – was invited to conduct a Nordic-level analysis. Her contribution offers a comprehensive evaluation of how the Nordic countries implemented Article 12 during and after the pandemic and provides recommendations for embedding children’s right to be heard in everyday governance and emergency preparedness frameworks.

The findings underscore the urgent need for more systematic and binding Nordic cooperation on children’s rights. Such collaboration must be rooted in shared principles, supported by long-term structures for participation, and driven by the exchange of good – and when possible, best – practices that are rigorously evaluated. Only through coordinated and sustained efforts can the Nordic region ensure that children’s voices are both heard and meaningfully influence the decisions that shape their lives at all times.

The Nordic Council of Ministers has emphasised the importance of integrating a child rights and youth perspective across all sectors of its work. This approach is essential to achieving its broader vision of making the Nordic region the most sustainable and integrated region in the world by 2030. This vision aligns closely with the United Nations Agenda 2030 and its Sustainable Development Goals (SDGs), particularly those focused on equality, inclusion, and participatory governance.

The Council’s cross-sectoral strategy for children and young people, grounded in the UN Convention on the Rights of the Child, aims to ensure that all children regardless of background can influence decisions that affect their lives, enjoy equal access to welfare, and grow up in a socially sustainable environment.

It is therefore imperative that the Nordic region adopts a coordinated, inclusive, and enduring approach, firmly anchored in these common frameworks. Only then can children’s voices truly have a meaningful and lasting impact on the decisions that shape their present and future – whether in times of calm or in the face of crisis.