1.9 Current debates and reforms
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Forthcoming policy developments
Current debates on youth policy at the federal level are shaped largely by the agenda of the current government coalition (see 1.4. Youth policy decision-making > Main themes). The current coalition agreement for 2021-2025 (Koalitionsvertrag 2021-2025) dated November 2021 for the 20th legislative period that was concluded between the Social Democratic Party (SPD), the Greens (GRÜNE) and the Liberal Democratic Party (FDP) contains multiple references to youth policy issues. (see 1.3 National Youth Strategy > Scope and contents).
National action plan for child and youth participation (Nationaler Aktionsplan für Kinder- und Jugendbeteiligung, NAP)
The Federal Government’s existing youth strategy will be further developed along with a national action plan for child and youth participation (NAP). This involves, inter alia, giving greater visibility to quality standards for effective participation and strengthening child and youth parliaments and participation networks. The action plan is a dialogue-centred process that stands to undergo further development. Input will be invited in particular from young people, but also from members of the research community and civil society, as well as from representatives of the federal states and the local level. The aim is to translate the outcomes of the action plan into a concluding document with recommendations for effective child and youth participation, which will itself be turned into a set of draft resolutions to be submitted to the Federal Cabinet for adoption.
Digital education
The digital pact for schools 2.0 (DigitalPakt Schule 2.0), the continuation of the first digital pact for schools (DigitalPakt Schule) (2019–2024), is designed to promote the continued digitalisation of schools across the country. This includes improving the digital infrastructure, training teachers, and developing suitable teaching and learning methods. Access to modern technologies and digital infrastructures is not the only objective, however. The pact also seeks to help develop the digital literacy skills that are crucial when it comes to allowing future generations of young people to participate in society. DigitalPakt Schule 2.0 is a long-term scheme that will run through to 2030. The federal states are requested to submit firm commitments to the three focus areas of the digital pact. How these will be implemented will depend on the policy decisions taken by the incoming federal government.
National action plan for new opportunities for children in Germany (Neue Chancen für Kinder in Deutschland, NAP)
Launched in 2023, the national action plan for new opportunities for children in Germany (Nationaler Aktionsplan “Neue Chancen für Kinder in Deutschland“) seeks to combat child poverty and social marginalisation by giving all children enjoy access to education, health care, housing and food. The action plan is closely aligned with the European Child Guarantee and will run through to 2030. It aims to minimise inequalities and improve the perspectives of children from disadvantaged families. The national action plan is available as a digital brochure. It contains comprehensive information on its background, evolution and implementation along with a collection of around 350 existing and planned measures by the federal government, the federal states, municipalities and civil society organisations.
Introduction of the guaranteed child allowance (Kindergrundsicherung)
Possibly one of the most important youth policy projects of the government was the introduction of a “guaranteed child allowance” (Kindergrundsicherung) for children and adolescents. The corresponding legislation, which has yet to be adopted, has two parts: an income-independent guaranteed allowance for all children and adolescents and a means-tested additional allowance depending on parental income.
Inclusive solution
The coming into force of the Act to Strengthen Children and Youth (Kinder- und Jugendstärkungsgesetz, KJSG), part of the reform of Book 8 of the Social Code (SGB VIII) in the summer of 2021 represents a major step forward in terms of ensuring that child and youth services will now be provided to children both with and without disabilities (the “inclusive solution”). As it stands now, until 31 December 2027 child and youth services providers will remain responsible for assisting children and young people with (developing) emotional incapacities, while integration support remains responsible for individuals with any other form of disability. However, the Act to Strengthen Children and Youth seeks to have all forms of support and assistance provided to all children and adolescents from a single source (child and youth services).
Besides the many new provisions introduced through the Act in regard to child protection, counselling, complaints and fostering that now have to be implemented, the “inclusive solution” will be the determining theme in the years to come. In addition, reliable forms of cooperation between child and youth service providers and integration service providers have to be established, and facilities need to open up to children and adolescents with a disability. Many details remain unclear, requiring much debate across the professional community at federal state, local and association level.
The Federal Ministry for Family Affairs, Senior Citizens, Women and Youth (Bundesministerium für Familie, Senioren, Frauen und Jugend, BMFSFJ) implemented a broad-based participatory process on inclusive child and youth services known as “Gemeinsam zum Ziel: Wir gestalten die Inklusive Kinder- und Jugendhilfe!” between June 2022 and December 2023.
On 27 November 2024, the Federal Cabinet (Bundeskabinett) approved a draft piece of legislation on inclusive child and youth services (Kinder- und Jugendhilfeinklusionsgesetz – IKJHG, paving the way for the process to adopt the IKJHG. The aim is to make the existing child and youth services system more inclusive, especially for children and adolescents with a disability. This is part of a broader process that began with the Act to Strengthen Children and Youth (Kinder- und Jugendstärkungsgesetz, KJSG). It will be implemented step by step by 2028.
The key points of the IKJHG are:
- Joined-up provision of services: All aspects relating to child-raising and participation, whether pertaining to young people with or without a disability, are to be viewed from an integrated perspective. Offering inclusive educational and integration assistance is a key goal.
- Procedural guides: So-called procedural guides (Verfahrenslotsen) will facilitate the process of integrating various support systems and to liaise between the various providers of social services. This new function was introduced to the public child and youth services system on 1 January 2024.
- Legal conformity: It will be ensured that these inclusive solutions are implemented in full compliance with the legal requirements of Books VIII and IX of the Social Code (SGB), and that any necessary amendments are made.
Incorporation of children’s rights in Germany’s Basic Law
The coalition agreement of November 2021 calls for enshrining children’s rights in Germany’s Basic Law. This is a second attempt, after a first draft produced by the previous government failed to pass through parliament in summer 2021. On the one hand, it failed to gain majority support; on the other hand, it was widely criticised by many stakeholders since in many cases the wording fell short of the requirements of the UN Convention on the Rights of the Child.
In Germany, children’s rights as enshrined in the UN Convention, which Germany ratified in 1992, are set out in what is known as a “einfaches Bundesgesetz” (a federal law adopted by simple majority). It is hoped by many that incorporating children’s rights into Germany’s constitution (Grundgesetz) will lead to a stronger legal and societal recognition of the principles of the Convention as well as an improvement in the participation opportunities available to children and adolescents.
In January 2024, Federal Minister of Family Affairs Lisa Paus (Bündnis 90/Die Grünen) confirmed to the German Parliament (Bundestag) that the federal government stood by its commitment to enshrining children’s rights in Germany’s Basic Law (Grundgesetz). She announced that the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth of Justice would draft a corresponding proposal by the end of 2024. Civil society groups, too, continue to advocate for children’s rights as a key issue. The 17th Child and Youth Report (Kinder- und Jugendbericht), published on 18 September 2024, explicitly recommends the inclusion of children’s rights in the Basic Law. On page 58, it states: “Political initiatives, too, should be implemented to strengthen young people’s right to participation such as, e.g., by enshrining children’s rights in the Basic Law”. This demand is part of a broader recommendation to strengthen young people’s right to participation. Enshrining children’s rights in the Basic Law is considered a necessary step in order to enable children and adolescents to exercise more influence in political decision-making.
Some related initiatives are mentioned in the following:
- The German Institute for Human Rights’ report on the human rights situation in Germany (discussed on 6 December 2024) focuses also on human rights, in particular in the context of migration policy and protection of refugees. The Institute emphasises that Germany has pledged to respect children’s rights, specifically the right to a fair asylum procedure and also the welfare of children in all asylum procedures. Amongst other things, this means that individuals seeking protection, including children, may not be deported to countries where they are threatened by torture or inhuman treatment – a right that is enshrined in Article 3 of the European Convention on Human Rights and the UN Convention on the Rights of the Child.
- The draft bill to reform family law (Entwurf des Gesetzes zur Reform des Familienrechts), presented on 17 December 2024, gives greater priority to the rights of children, in particular when it comes to the law on parent and child (Kindschaftsrecht). It calls for children aged 14 and over to have stronger rights concerning matters and decisions that affect them as well as over any applications made on their behalf. Amongst other things, children should have a right to choose to interact with siblings and grandparents. The proposed law seeks to strengthen children’s legal rights in general. Notably, the draft bill has been structured in such a way that it corresponds to a variety of family models and puts child welfare first, giving children a stronger voice and ability to participate in all legal processes pertaining to the family.
Child protection
The act that is known as the UBSKM Act (UBSKM-Gesetz), which seeks to protect children from sexualised violence, incorporates long-standing demands from professionals in the field and in particular, the demands of survivors of child sexual abuse. The Office of the Independent Commissioner for Child Sexual Abuse Issues (Unabhängige Beauftragte für Fragen des sexuellen Kindesmissbrauchs, UBSKM), the strengthening of the UBSKM Survivors’ Board (Betroffenenrat) and the independent inquiry into child sexual abuse in Germany (Aufarbeitungskommission) are undertaking promising work. These federal structures seek to deliver valuable impulses for sexualised violence-related prevention, intervention and management. Of particular note is the obligation to submit a report to the lower (Bundestag) and upper house (Bundesrat) of the German Parliament and the German Federal Government, along with a separate report from the Survivors’ Board. Legislation to strengthen efforts to counter sexual abuse of children and adolescents (Antimissbrauchsgesetz) was adopted by the Bundestag in January 2025.
Ongoing debates
Recommendations of the 17th Child and Youth Report
The Child and Youth Report (Kinder- und Jugendbericht) is drawn up by an independent body of experts working on behalf of the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth (Bundesministerium für Familie, Senioren, Frauen und Jugend, BMFSFJ). It analyses and discusses the situation of young people and explores the social, economic and political circumstances that affect them. As such, it provides valuable input for the development of youth policy measures. The 17th Child and Youth Report was presented on 18 September 2024. It contains recommendations on how to improve the situations of young people and their families. The translation into practice of these recommendations is the subject of much discussion among professionals and policymakers.
Aftermath of the Covid-19 pandemic
The pandemic has had a profound impact on the lifeworlds of many young people. Even years after it ended, the mental health of children and adolescents is significantly worse than it was before Covid. This is borne out by the findings of the sixth and seventh round of surveys done as part of the COPSY study of the University Medical Center Hamburg-Eppendorf (UKE). The researchers found that the pandemic had a more severe impact on young people from precarious backgrounds, who had suffered socio-economic disadvantages already prior to Covid. Many of them require longer-term assistance and intervention.
Another key issue in the debate is educational equity. During the pandemic, (digital) learning activities were only available to a limited extent or even insufficient, with barriers to access in particular for disadvantaged young people. This has led to widening education gaps with potentially long-term impacts on this group’s future employability. Access to digital devices and the availability of a sound digital infrastructure were problematic above all in rural and socially disadvantaged regions.
It became evident that both schools and the child and youth services field have much to catch up on in terms of digitalisation. Strengthening digital education and digital participation is seen as key to creating a level playing field.
The debate around the impact of the Covid 19 pandemic on young people has revealed an exacerbation of numerous structural problems that require policy action. There is broad consensus that in order to lighten the impact of the consequences of the pandemic for the younger generation and ensure strong future opportunities, measures need to be implemented to promote mental wellbeing, educational equity and digitalisation.
Health
The German federal association of paediatricians (Berufsverband der Kinder- und Jugendärzt*innen, BVKJ) is working to bring about a comprehensive paediatric health pact (Pakt für Kindergesundheit) that would ensure that children and adolescents in Germany grow up in good health by giving their interests more visibility in health related policy decisions. Key demands include better healthcare, stronger prevention, protection against the impact of climate change and improved provision of mental health support.
Independently of the Covid pandemic, one key concern remains the rising prevalence of mental health problems among adolescents. There is continued debate about the necessity for improved healthcare for young people, including improved access to treatment and counselling.
Climate policy
Climate activist groups, environmental organisations and certain political parties and their youth chapters have recognised climate change as one of the great challenges facing the young generation. Young people are themselves advocating for climate and environmental protection, resulting in debates about how much responsibility policymakers carry for young people and future generations. A key message in these debates is that young people are increasingly having to grapple with the impacts of the climate crisis, such as extreme weather events, the consequences for the future or uncertain f social and economic development. The debates also centre around how sustainability and climate-friendly action can be incorporated in youth policy. Calls are growing louder for more climate-friendly youth services and for policy decisions that serve not only the environment, but also shape the future faced by young people. These issues are particularly relevant since they are directly connected to the global crisis and have a knock-on impact on the situation of young people.
Digitalisation and youth protection
While digitalisation promises many opportunities for young people, it also carries new risks. The 17th Child and Youth Report hence calls for the greater inclusion of media literacy in education schemes, stronger protection for young people in digital spaces, and equitable digital participation opportunities for all young people. It calls for digital youth protection and the promotion of digital literacy to be turned into key pillars of the youth policy of the future. Furthermore, it calls for closer collaboration between experts, policymakers, online platforms and the wider public in order to protect young people from online risks and enhance their media skills.
Germany’s federal government and its state ministries play a key role when it comes to implementing digital educational programmes and protection schemes. Programmes such as DigitalPakt Schule and the government support scheme for media literacy projects are examples of state-run initiatives that are designed to promote digital education and teach young people the required skills. Input also comes from civil society organisations and youth associations that help build awareness, enhance prevention and work in cooperation with public sector agencies.
Promotion of democracy
The last two decades have seen democracies all over Europe coming under pressure, for a variety of reasons. On the one hand, factors such as globalisation, digitalisation, climate change, migration, social division, the call for more participation and structural problems inherent in modern democracy have had a clear effect; on the other, several undemocratic social movements, parties and groupings have risen to prominence. Against this backdrop, the 16th Child and Youth Report focuses on the state of play in civic education and the challenges associated with strengthening democracy. The proposals contained therein need to be translated into practice. In addition, the Federal Government is funding two major programmes (Live Democracy!/Demokratie leben! and Cohesion through participation/Zusammenhalt durch Teilhabe) that promote democracy. As the programmes are time-limited, it is being debated whether they should receive longer-term funding. A Bundestag debate in 2023 was the last time that members discussed adopting legislation to promote democracy and strengthen democratic civil society (Gesetz zur Förderung der Demokratie, DFördG).
Voting age
The coalition agreement for the 20th legislative period set out the intention to implement an electoral reform and in doing so, lower the active voting age for Bundestag elections from 18 to 16. The sub-committee tasked with reforming the electoral system and modernising parliamentary processes submitted a final report on 12 May 2023 (parliament document 20/6400), which by majority recommendation called for the Bundestag to lower the voting age from 18 to 16. New legislation to this effect has yet to be adopted.