In this mixed-method study, data was collected in Denmark, Finland, Faroe Islands, Greenland, Iceland, Norway, and Sweden through multiple sources. Firstly, we conducted a mapping exercise of existing education policies dealing specifically with student councils, by collecting public policy information from all seven participating countries. Secondly, new empirical data were gathered from an online survey, asking students in grade 5, and in grade 9 or 10 depending on which grade was the highest of lower-secondary school in each country – about their knowledge of and participation in student councils. Thirdly, informal discussions and workshops were conducted with youth experts in two different youth summits. Finally, key informant and focus group interviews with teachers and students actively participating in student councils took place in selected primary and lower secondary schools across the Nordic region.

A policy mapping was conducted by gathering existing policy documents – including acts, regulations, and curriculum – that deal with democratic education, student participation, and student councils. Initially, 17 policy documents were pointed out by the contributors of this report, with text references covering 20 pages. To ensure precision and comparability of the policy texts used for the mapping, we decided to narrow the selection of documents to primary and lower-secondary education alone, excluding policies for upper-secondary schools, higher education, and adult education. This resulted in a final choice of 14 documents from seven countries. These include national education acts, regulations, and the curriculum. The documents were read with a special focus on summarising text relating to student councils rather than general participation.

We analysed the policies descriptively (Braun & Clarke, 2022) with reference to the Lundy (2007) model. The findings are presented in the chapter of findings under three categories, namely 1) access and eligibility, 2) roles and responsibility, and 3) structure and content.  

An online survey was designed with the aim of collecting data on students’ knowledge of and participation in student councils. Students asked to participate were in grade 5, 9, or 10 depending on which grade is the last grade in lower-secondary schools in the Nordic countries. The design of the questionnaire was part of a joint research project by the University of Iceland and the Ombudsman of Children in Iceland (2023). The survey consisted of ten open- and closed-ended questions. The Icelandic Educational Research Institute administered the survey using Qualtrics, an online survey platform. Researchers in each of the Nordic countries selected a mix of schools to capture a broad spectrum of grade levels and socio-economic backgrounds. The schools which accepted to submit the survey were asked to send parents an information letter about the study. Parents who did not wish that their children answer the survey were asked to notify the school.

The survey was submitted in Iceland in September 2023 and during November 2024 to April 2025 in the other Nordic countries. The total number of students who answered the survey was 2205 with a similar percentage of girls and boys (52% girls; 48% boys) as well as a similar percentage of students in 5^th grade and 9^th/10^th grade except for in Sweden, where most of the students who answered were in 10^th grade and in Finland, where most of the students who answered were in 9^th grade.

Before the analysis of the data, it was cleaned with the criteria that participants had to answer questions about grade and gender and at least two other questions to be included in the dataset. The number of students after the data cleaning was 278 from Denmark, 303 from Finland, 638 from Faroe Islands, 23 from Greenland, 917 from Iceland, 8 from Norway, and 69 from Sweden. Descriptive methods were used to analyse the close-ended questions. Due to the small number of participants from Greenland and Norway it was not possible to analyse the responses to the closed-ended questions from these countries. However, during the thematic analysis of the open-ended questions, answers from Greenland and Norway were included to provide some insight into the attitudes of students from these countries.

Views from young experts were gathered during two different youth summits in 2024 supported by the Nordic Welfare Centre.

In the Nordic Baltic Youth Summit, approximately 300 young people aged between 15 and 25, from all over the Nordic and Baltic region attended a three-day celebration of young minds and projects. The young participants were asked two general questions online via the Mentimeter app, which made it possible for anyone in the summit to answer by using a QR code. The first questions asked participants to describe an ideal student council in one word. The second question asked participants to describe the biggest challenge in operating student councils. In total, 40 responses were gathered for the first question and 35 for the second questions. In the Findings chapter a word-cloud picture summarises the answers from the young people.

During the Nordic Youth Disability Summit, a workshop was conducted with a group of eight youth experts representing youth disability organisations from all the Nordic countries. The workshop focused on gathering the experts’ perspectives on student councils through in-depth discussions. Questions raised during the discussions were designed to highlight their experiences of student councils as relating to the four dimensions of the Lundy (2007) model, including issues of access and representation. In the Findings chapter a word-cloud picture summarises the answers from the young people.

Key informant and focus group interviews were conducted in selected schools across the Nordic region. By using a joint interview guide, interviews were taken with students and a few teachers and other professionals who are actively involved in student councils (see Appendix B). The schools were purposefully selected to represent unique or promising practices of student councils whilst balancing diversity criteria relating to both students’ and schools’ demographics. The final selection of schools included a total of 19 public schools, with a range of smaller and larger schools; schools from rural, semi-urban, and urban areas; and schools representing a specific language diaspora such as Swedish-speaking schools in Finland.

Key informant and focus group interviews were conducted with teachers and students who are active members of student councils in schools across the Nordic region. The schools were all public primary and lower-secondary schools with operating student councils. They were selected to gain a deeper understanding of how student councils operate in different contexts, and in particular to identify unique or innovative practices in place. In total, focus group interviews were conducted in 19 schools across the Nordic region using a joint interview guide (see Appendix B).

To fulfil the aim of getting a holistic view of the status of student councils in primary and lower-secondary schools in the Nordic region, data was analysed through the lens of Laura Lundy’s (2007, 2013) participation model as well as in accordance with the theoretical approach of the study. As described in the theoretical background, the model outlines four elements crucial for examining the scope and depth of children’s participation. These are, in a chronological order, space, voice, audience and influence.

Space refers to the right of children to find themselves in safe and welcoming places and spaces where their opinions can be shared and valued. Within the context of education such spaces can include the classroom as well as other school premises but are also highly related to platforms of decision-making, including student and school councils. Accessibility to such spaces should be ensured across children’s gender, abilities, religious and cultural background, and socio-economic status.

Voice refers to the right of children to share their thoughts and feelings and subsequently the obligation of adults to ensure that they can do so safely. This includes giving them information, encouragement, and freedom to decide if and how they choose to express themselves. With reference to student councils, questions arise such as what kind of means students have to truly express their own unique voices and whose voices are being reflected.

Audience indicates that children have not only the right to speak up but also to be listened to. This means that adults must genuinely listen and respond to what children and youth have to say. Within the context of education this often comes down to the quality of communication and collaboration between students and teachers or school leaders who in turn are most commonly responsible for the operation of student councils in schools.

Influence is about ensuring that children’s voices and perspectives are truly given due weight so that they may benefit the students in their daily lives. In other words, children’s views should have a meaningful impact on decision-making processes. For schools this means that teachers or school leaders must be willing and able to seriously consider children’s views, give them honest feedback, and explain how their perspectives have been considered when making decisions that concern them.