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1. Main challenges to social inclusion

2. Main concepts

Main challenges to social inclusion

Since 2020, Germany has faced multiple crises that have profoundly impacted society, including the COVID-19 pandemic, Russia’s invasion of Ukraine, the attack on Israel by the Islamic terrorist organisation Hamas, demographic change, climate change, energy shortages and inflation. These challenges are shifting the priorities and actions of policymakers and significantly complicating efforts to ensure social inclusion. Social inclusion is understood as the process by which all individuals, regardless of their characteristics of diversity, are empowered to participate equally in societal life. It extends beyond mere participation, ensuring that everyone has the opportunity to actively engage in social, economic, political and cultural life while enjoying the same opportunities and rights as others. 

There are various challenges to social inclusion in Germany: 

Poverty

In 2022, one in four under-18-year-olds in Germany lived in poverty (New Opportunities for Children in Germany, p. 12; Neue Chancen für Kinder in Deutschland). Various indicators are used to assess the proportion of children at risk of poverty. The EU Council’s recommendation on the definition of poverty is based on the rate of people at risk of poverty or social exclusion. Alongside monetary poverty, material and social deprivation and low work intensity are considered when determining the at-risk-of-poverty rate (AROP rate). Focusing exclusively on the material situation of children and families would ignore other key factors. Social participation and access to social, cultural and health services are equally important for young people to be able to experience a healthy upbringing (New Opportunities for Children in Germany, p. 13). 

The COVID-19 pandemic from 2020 to 2022 and above-average inflation since February 2022 have significantly increased the risk of poverty. The closure of food services in schools, daycare centres and Tafel facilities (nationwide volunteer-based network of organisations that distribute food and offer support to people affected by poverty) during the pandemic placed an additional strain on those already living in poverty, contributing to a rise in food poverty (Statement: Food poverty under pandemic conditions; Stellungnahme: Ernährungsarmut unter Pandemiebedingungen). According to the 6th Report on Poverty and Wealth (6. Armuts- und Reichtumsbericht), single parents and households with three or more children were disproportionately affected by poverty in Germany.

Low level of education 

In Germany, one in three children under the age of 18 is affected by at least one “at-risk” situation (National Report on Education; Bildungsbericht, p. 46). The federal government’s National Report on Education from 2022 defines “at-risk situation” as a situation that limits children’s educational opportunities in Germany (Bildungsbericht, p. 45). Particular attention is given to parents with low educational qualifications, as well as social and financial risks (Bildungsbericht, p. 46). The longer a child remains in such a risk situation, the greater the likelihood that their educational opportunities will decline further (Bildungsbericht, p. 46). 

The three aforementioned risk factors for education – parents with low educational qualifications, social risk factors and financial risk factors – affect some population groups more than others. As in previous years, children from immigrant families are disproportionately affected by risk factors. 48% grow up under the burden of at least one risk factor, compared to “only” 16% of children from non-immigrant communities. 8% of children from immigrant communities are more likely to be affected by all three risk factors compared to only 1% of children from non-immigrant families (Bildungsbericht, p. 6).

At the same time, the proportion of people in Germany with a higher education qualification has risen by 5% to 26% over the past decade (Bildungsbericht, p. 6). Additionally, the trend of fewer young people leaving school without a qualification continued in 2021 (Bildungsbericht, p. 6), particularly among those students who received special educational support. However, despite these positive developments, Germany still lags behind the average for OECD (Organization for Economic Cooperation and Development) countries (OECD Education at a Glance 2022). The comparatively slow pace of progress in Germany widens the gap between Germany and other OECD countries (OECD Education at a Glance 2022). 

Other discrimination factors and obstacles to education

The indicators for disadvantages are not the only factors that can lead to social marginalisation and discrimination. Other models cite (additional) risk factors, such as growing up with one parent, membership of the immigrant community or the presence of a certain social environment.

Children with disabilities

The federal government’s Child and Youth Report, a regular publication on research into the situation faced by children and young people in Germany, addressed the situation of children and young people with health impairments and disabilities for the first time in 2009. The report described a number of challenging conditions, but noted that these are closely linked to other risk factors (13^th Child and Youth Report; 13. Kinder- und Jugendbericht).

According to the United Nations Convention on the Rights of Persons with Disabilities, which was adopted on 13 December 2006 and came into force in Germany on 26 March 2009, persons with disabilities “[...] include those who have long-term physical, mental, intellectual or sensory impairments which in interaction with various barriers may hinder their full and effective participation in society on an equal basis with others.” (UN-CRPD, Article 1).

In 2023, there were 198,000 children in Germany with a severe disability (degree of disability of over 50%), representing 1.43% of the population of children and young people under the age of 18 (Destatis, 2024. Disabled people). Of these, 99.9% of children are cared for by relatives. 

According to the UN CRPD, however, the definition of “persons with disabilities” includes not only children and young people with severe disabilities. If the UN CRPD’s broader understanding of disability is applied, the figure increases from 1.43% to 3% in German society (New Opportunities for Children in Germany, p. 14; Neue Chancen für Kinder in Deutschland). 

The COVID-19 pandemic has significantly increased psychological stress among children and young people in Germany. The prolonged closure of daycare centres, schools and sports clubs at the beginning of the pandemic led to considerable delays in the social, emotional and motor skills development and education of many children and adolescents (New Opportunities for Children in Germany, p. 26). Online lessons were not a substitute for regular in-person classes, leading to learning deficits, especially among weaker pupils (New Opportunities for Children in Germany, p. 26). In combination with social distancing and isolation regulations, these disruptions led to a greater sense of loneliness, lack of physical exercise and increased fears regarding the future (New Opportunities for Children in Germany, p. 26). This situation was particularly critical for families with disabled children, since these children had to be cared for round-the-clock without professional support. 

Germany has undertaken significant efforts in recent years to implement inclusive education for children and young people with disabilities. However, few common goals or standardised guidelines have been put into practice. Even a decade after the ratification of the UN-CRPD, considerable differences still exist across the federal states regarding the legal priority given to inclusive education, the criteria and procedures used to assess special support needs and locations and the allocation of resources (Bildungsbericht, p. 6). 

Children and young people with physical or “intellectual” disabilities typically receive special educational support as part of their regular compulsory schooling. In Germany, this support is provided either in mainstream schools or special schools for children with learning disabilities.

The trend of rising numbers of students with special educational needs continues (Bildungsbericht, p. 9, Child and youth services report (2024); Kinder- und Jugendhilfereport, (2024), p. 20). 

Children with a migration background/experiences of displacement

The proportion of the population with a migration background is steadily increasing in Germany. According to the National Report on Education (Bildungsbericht) published by the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth (Bundesministerium für Familie, Senioren, Frauen und Jugend, BMFSFJ) “a person has a migration background if he or she or at least one parent did not acquire German citizenship by birth” (Child and youth services report; Kinder und Jugendhilfereport (2024), p. 13). Currently, one in four people in Germany has a migration background, compared to one in five a decade ago. The increase is particularly pronounced among younger age groups (Bildungsbericht, p. 5). In 2022, a total of 5.4 million children and young people with a migration background were living in Germany (New Opportunities for Children in Germany, p. 15; Neue Chancen für Kinder in Deutschland, Kinder- und Jugendhilfereport (2024), p. 16). 

In recent years, the risk of poverty for children and young people from immigrant communities has been twice as high as for non-immigrant children and young people (Mikrozensus 2021, Report on unaccompanied minors in Germany from the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth; Bericht der BMFSFJ: Unbegleitete ausländische Minderjährige in Deutschland). Within this group, children from immigrant Roma families are a particularly vulnerable group. Of a total of 5.4 million children and young people, 1.2 million have experienced displacement. In 2022, the Federal Office for Migration and Refugees (Bundesamt für Migration und Flüchtlinge) announced that more than a third of those applying for asylum in Germany are minors (Bundesamt für Migration und Flüchtlinge: Aktuelle Zahlen 2022). As a result of Russia’s war of aggression against Ukraine, the number of refugee children and young people has risen sharply and around a third of the Ukrainian population in Germany are minors (Federal Statistical Office: Ukrainian population in Germany, Statistisches Bundesamt: Ukrainische Bevölkerung in Deutschland). Alongside the risk of poverty, children from immigrant communities also experience everyday racism, which in turn increases the risk of psychological stress and illness (Racism report; Rassismusbericht). Seven out of ten children experience racism on a daily basis due to the colour of their skin and regardless of their migration background (Rassismusbericht).

The number of stateless persons in Germany is also on the rise, reaching around 30 000 in 2022, one-third of whom are children and young people (Destatis – Recognised statelessness, Destatis – Anerkannte Staatenlosigkeit). A person is stateless if they are “[…] not considered as a national by any State under the operation of its law” (UNHCR – Statelessness). Some people are born stateless, for example, if their parents are stateless or if states only transfer the father’s nationality to the child and the child grows up with a single mother. A child may also belong to a social group that cannot acquire citizenship due to discrimination (UNHCR – Statelessness). The threat of statelessness is rooted in the lack of basic rights and the risk of arbitrary arrest, forced labour and human trafficking (UNHCR – Statelessness Explained).

Homeless children and children at risk of homelessness

The homelessness report statistics for 2022 revealed that 28% of homeless people in Germany were under 18 (estimate of the homelessness support group BAGW). Additionally, around 6,600 children and young people were living on the streets or in concealed homelessness with one or both parents (for more details, see Chapter 4.6: Access to quality services). Other studies estimate the number of homeless children and adolescents to be lower, however, the overall trend has been increasing for years according to BAGW estimates. In particular, the number of homeless refugee children and young people has risen, partly due to the influx of refugees from Ukraine (BAGW estimate).

Other factors influencing disadvantage

In addition to the factors already mentioned, other context-dependent factors can disadvantage children and young people, such as discrimination against young LGBTIQA* people. (The acronym LGBTIQA* stands for lesbian, gay, bi+, trans*, inter*, queer, a_sexual and a_romantic people. The asterisk also stands for other queer identities, such as pan, non-binary or agender. Alternatively, the adjective queer is used as a collective term to refer to all non-heterosexual, non-cis and/or non-endosex people (HAY study; HAY-Studie)). Identity development can be described as a lifelong process that begins at the latest at birth. Children and adolescents, in particular, often experience a lack of support for their identity development and, by puberty at the latest, face discrimination based on their sexual or romantic desires, which relate to their sexual and/or romantic identity (HAY-Studie). In the 2023 “HAY – How Are You?” study carried out by the Bavarian Youth Council (Bayrischer Jugendring) and Institute for Diversity and Anti-Discrimination Research (Institut für Diversity und Antidiskriminierungsforschung, IDA), 95% of young people stated that they had experienced discrimination (HAY study). By comparison, a clear majority (70%) of Germans oppose discrimination against the queer community according to the Ipsos Pride Study 2024 (German Lesbian and Gay Association – Teaching respect through education; Lesben und Schwulenverband Deutschland – Respekt über Bildung vermitteln). A third of the German population sees no need for protections for lesbian, gay, bisexual or trans individuals, despite the fact that anti-queer attitudes are on the rise, especially among young men in Germany (IPSOS Pride Studie 2024). Germany is therefore one of the few countries in which acceptance of queer lifestyles has developed positively in recent years. However, a Friedrich-Ebert-Stiftung study titled “The middle ground under threat. Right-wing extremist and democracy-threatening attitudes in Germany 2020/2021” (“Die geforderte Mitte; Rechtsextreme und demokratiegefährdende Einstellung in Deutschland 2020/2021”) reveals that while daily discrimination has become much more subtle, it remains widespread (Leipzig Authoritarianism Study 2022; Leipziger Autoritarismus-Studie 2022).

The religious affiliation of children and young people can also lead to experiences of discrimination in everyday life. The COVID-19 pandemic, in particular, has fuelled beliefs in conspiracy theories and anti-Semitism. Many myths surrounding the COVID-19 pandemic are rooted in anti-Semitic prejudices, leading to a third of young people in Germany holding anti-Semitic views (The 2022 WJC Report on Anti-Semitism in Germany: Competence Centre for Prevention and Empowerment: Anti-Semitism in the context of schools; Kompetenzzentrum für Prävention und Empowerment. Antisemitismus im Kontext Schule). This is compounded by Hamas’ war of aggression against Israel since October 2023, which has resulted in a significant increase in the number of anti-Semitic crimes (Federal Criminal Police Office – Statistics for the year 2023; Bundeskriminalamt – Statistik für das Jahr 2023). Anti-Muslim racism is also a serious issue in Germany, with nearly half the population in Germany agreeing with the statement that “the many Muslims here sometimes make me feel like I’m a foreigner in my own country” (Leipziger Autoritarismus-Studie 2022, p. 64f)). As a consequence, Muslims more frequently experience multidimensional discrimination (Bertelsmann Stiftung; Religion Monitor. Diversity and Democracy; Bertelsmann Stiftung; Religionsmonitor. Vielfalt und Demokratie, SVR Research Unit: “So, where are you originally from?”; SVR-Forschungsbereich, “Wo kommen Sie eigentlich ursprünglich her?”). Exact figures on how children and young people experience discrimination based on their religion are not yet available. 

Children and young people from disadvantaged family backgrounds are more likely to experience discrimination, as mentioned above. This includes children and young people from families affected by addiction, domestic violence, teenage parenthood or those classified as care leavers – in other words, young people brought up in institutional or foster care settings (German Youth Institute, Care Leaver Statistics; Deutsches Jugendinstitut, Care Leaver Statistics). For example, only one in three children from families struggling with addiction “grows up healthily” and is at greater risk of developing addiction or facing mental health challenges themselves later in life (2021 Annual Report of the Federal Government Commissioner on Narcotic Drugs; (Jahresbericht 2021 der Drogenbeauftragten der Bundesregierung).

National surveys containing information on young people’s social inclusion

• Child and Youth Report (Kinder- und Jugendbericht) – The federal government, under the auspices of the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth (Bundesministerium für Familie, Senioren, Frauen und Jugend, BMFSFJ), has compiled and published a national child and youth report since 1965. The task is assigned to a panel of experts by the federal government. Once the report has been handed over to the BMFSFJ, it is submitted to the lower house (Bundestag) and upper house of parliament (Bundesrat) in accordance with Section 84 of Social Code Book VIII (SGB), together with a statement from the federal government. The report contains a review and an analysis as well as proposals for the further development of youth welfare services. Every third report is also designed to provide an overview of the overall situation of youth welfare services. The 17th report was published in autumn 2024. 

• Poverty and Wealth Report (Armuts- und Reichtumsbericht) – Since 2001, the federal government has produced and published a national Report on Poverty and Wealth under the auspices of the Federal Ministry of Labour and Social Affairs (Bundesministerium für Arbeit und Soziales, BMAS). The report provides a comprehensive overview of the social situation in Germany, addressing such issues as income and wealth distribution, disability, childcare, investment in education, educational attainment levels of the population, the at-risk-of-poverty rate, the impact of social transfers, homelessness and so forth. The situation of children and young people is sometimes addressed separately. The report consolidates research outcomes, identifies key factors that increase the risk of economic decline and describes potential strategies for successfully overcoming these disadvantages. The analyses are designed to guide policymakers at various levels in shaping social mobility policies. Seven reports have been published to date, the most recent in 2021. 

• National Report on Education (Nationaler Bildungsbericht)– The National Report on Education has been compiled every two years since 2004. It provides statistics and outlines developments from all areas of education – from early childhood education to continuing vocational training. The report is compiled under the auspices of the Leibniz Institute for Research and Information in Education (DIPF | Leibniz-Institut für Bildungsforschung und Bildungsinformation) with the support of the following institutions: German Centre for Higher Education Research and Science Studies (Deutsches Zentrum für Hochschul- und Wissenschaftsforschung, DZHW), Soziologisches Forschungsinstitut an der Universität Göttingen (SOFI), the German Youth Institute (Deutsches Jugendinstitut, DJI), Leibniz Institute for Educational Trajectories (Leibniz-Institut für Bildungsverläufe e.V., LIfBi) and the Federal Statistical Office (Statistische Ämter von Bund und Ländern). 

• Family review (Familienbericht) – The federal government has published a review on the situation of families in Germany every second parliamentary term since 1965. A panel of experts is commissioned to prepare the review and, as with the Child and Youth Report, prepares a statement on the review. The 9th family review was published in 2021.

• Family report (Familienreport) – The Federal Ministry for Family Affairs, Senior Citizens, Women and Youth (Bundesministerium für Familie, Senioren, Frauen und Jugend, BMFSFJ) published its family report annually between 2009 and 2014. Since then it has appeared every three years. The report describes the different situations of families in Germany. Among other things, it takes stock of long-term trends and current social developments, outlining the family policy programmes and projects of the government. The 8th edition was published in 2020.

• Homelessness report (Wohnungslosenbericht) – By publishing the homelessness report for the first time in 2024, “[...] the federal government is fulfilling its legal mandate under the Homelessness Reporting Act (Wohnungslosenberichterstattungsgesetz ) to obtain reliable information on the extent and structure of the pressing problem of homelessness for the entire federal territory. The report covers three groups of homeless people: people in temporary accommodation, the hidden homeless and homeless people without accommodation. [...] The report analyses the socio-structural characteristics of the three groups of homeless people. It also discusses the researchers’ recommendations for improving reporting and future areas of analysis and presents the policies of the Federal Ministry of Housing, Urban Development and Building (Bundesministerium für Wohnen, Stadtentwicklung und Bauwesen, BMWSB) to combat and eliminate homelessness by 2030 (homelessness report).” The Federal Ministry for Housing, Urban Development and Building and the Federal Ministry of Labour and Social Affairs (Bundesministerium für Arbeit und Soziales, BMAS), which awarded the research contract to the GISS/Kantar consortium, are in charge of the project. 

• The federal government’s participation report on the circumstances of persons with disabilities (Teilhabebericht der Bundesregierung über die Lebenslagen von Menschen mit Beeinträchtigungen) – Since 2016, the Federal Ministry of Labour and Social Affairs (Bundesministerium für Arbeit und Soziales, BMAS) has published a participation report in every legislative period. The report offers a systematic and detailed overview of research into the participation of persons with disabilities in social life in Germany. The third participation report was published in April 2021.

• Gender Equality Report (Gleichstellungsbericht) – The Federal Ministry for Family Affairs, Senior Citizens, Women and Youth (Bundesministerium für Familie, Senioren, Frauen und Jugend, BMFSFJ) has presented a report on gender equality since 2011. The BMFSFJ always appoints experts to prepare the report. These experts are tasked with examining the different effects, opportunities and risks associated with today’s challenges on the lives of women and men, and recommending concrete actions. The third report was published in 2021.
• Civic Engagement Report (Engagementbericht) – Since 2009, the German government has been called to submit a report on civic engagement once every legislative period. In this report, the federal government highlights its commitment to sustainable civic engagement policy and stimulates the development of the potential for civic engagement within society. The report is compiled by an independent commission of experts and supplemented by a statement from the federal government. The fourth Civic Engagement Report will be published in 2025.

Scientific studies have also been conducted to evaluate funding programmes as well individual youth and social policy issues. These evaluations serve as a basis for political decisions relating to programmes and initiatives. Examples of recent evaluations include:

• Report on the situation concerning racism (Lagebericht Rassismus) – In 2022, the German government made combating racism and other forms of group-focused enmity its utmost priority. As part of this effort, the Federal Government Commissioner for Integration and Anti-Racism (Integrations- und Antirassismusbeauftragte der Bundesregierung) was tasked with writing a report on racism in Germany. Published in 2023 and the first of its kind, the report provides a comprehensive overview of facts and figures, analyses of the different forms of racism and an examination of deficits in prevention efforts. It is based on an exhaustive, scientifically informed understanding of racism.

• Child and youth services report (Kinder- und Jugendhilfereport) is prepared by the Dortmunder Arbeitsstelle Kinder- und Jugendhilfestatistik, part of the research collaboration between the German Youth Institute and TU Dortmund University (Deutsches Jugendinstitut (DJI)/Technische Universität Dortmund). The report provides data-based insights into the complex landscape of child and youth services in Germany and their various fields of activity. It collates the most important statistical data across the entire sector of child and youth services. The ninth edition of the report was published in March 2024.

• The federal government’s report on the situation of unaccompanied minors in Germany (Bericht der Bundesregierung über die Situation unbegleiteter ausländischer Minderjähriger in Deutschland)was published in May 2023 by the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth (Bundesministerium für Familie, Senioren, Frau und Jugend, BMFSFJ) in response to a decision by the Federal Cabinet. “It is based on official statistics and the results of surveys carried out by youth welfare offices, professional bodies and facilities in which unaccompanied minors live. The report focuses on the year 2021, but also examines more recent developments. According to the report, unaccompanied minors were received, housed and cared for in a manner that was for the most part legally secure and aligned with the best interests of the child during the reporting period. However, the report also highlights that the increasing number of unaccompanied minors since 2022 has placed a significant strain on the municipalities responsible for their care in many areas (federal government report – situation of unaccompanied minors).”

• Survey on Volunteering in Germany (Deutscher Freiwilligensurvey, FWS) – Scientific data is regularly collected and published to help promote voluntary civic engagement. Since 1999, a representative survey on volunteer work in Germany has been conducted every five years via telephone. This survey delivers valuable insights into social trends. Currently, around 40% of the population aged 14 and over in Germany is engaged in voluntary work, with the proportion rising steadily over the last 20 years. 

• “Deutschlandatlas is a joint service offered by the Federal Ministry of Housing, Urban Development and Building (Bundesministerium für Wohnen, Stadtentwicklung und Bauwesen, BMWSB), the Federal Ministry of Food and Agriculture (Bundesministerium für Ernährung und Landwirtschaft, BMEL), the Federal Ministry for Family Affairs, Senior Citizens, Women and Youth (Bundesministerium für Familie, Senioren, Frauen und Jugend, BMFSFJ) and the Federal Ministry of the Interior and Community (Bundesministeriums des Innern und für Heimat, BMI). Various authorities contribute their expertise and current data to the Deutschlandatlas. The maps are updated twice a year (Deutschlandatlas).” 

The Federal Statistical Office (Statistisches Bundesamt) regularly provides data on child and youth services, educational attainment, social reporting and social welfare, among other things. Destatis is responsible for providing and disseminating objective, independent and high-quality statistical information. Federal statistics are available to policymakers, authorities, the private sector and the general public.

Main concepts

In Germany, the term “social inclusion” is used primarily in the context of school education. It is often applied specifically to people with disabilities rather than in the context of marginalised and discriminated groups. The understanding is shaped above all by the public discourse surrounding “inclusive schools”.

An alternative term frequently used in Germany in the context of social processes is “integration”, particularly in reference to immigrants. The Federal Ministry of the Interior and Community (Bundesministerium für Inneres und Sicherheit, BMIS) considers integration to be successful when newly arrived individuals feel a sense of belonging within the German community and when there is a mutual understanding of harmonious coexistence. However, some criticise that this term stems from a unilateral attempt to encourage people to integrate in or assimilate with what is known as “mainstream society”; alternatively, that it is taken to mean societal, social and legal equality without genuinely attempting integration in the real sense of the word (which leads to “parallel societies”). By contrast, the term “inclusion” is taken to mean an active (social) attempt to eliminate exclusionary structures.

The term “homelessness” is used in Germany to refer to individuals who are living on the street or in tents, cars, condemned buildings or garages on a long-term or permanent basis. There is also “concealed homelessness”, which is much less visible (Federal Ministry of Housing, Urban Development and Building; National Action Plan to Tackle Homelessness 2024. Together for a home, p. 13; Bundesministerium für Wohnen, Stadtentwicklung und Bauwesen, Nationaler Aktionsplan gegen Wohnungslosigkeit 2024. Gemeinsam für ein Zuhause) “The concealed homeless do not have their own tenancy agreement and live with relatives, friends or acquaintances. They should also be considered a vulnerable group due to their legal and de facto insecure housing situation and risk of exploitation and abuse." (Federal Ministry of Housing, Urban Development and Building; National Action Plan to Tackle Homelessness, 2024. Together for a home, p. 13)