The second review of the Enter! Recommendation looks at how the rights of young people from disadvantaged neighbourhoods have been addressed across Europe between 2019 and 2025. Focusing on housing, mental health and youth participation, it identifies progress, persistent challenges and promising practices — and sets out priorities for strengthening implementation in the years ahead.
 

How far have young people from disadvantaged neighbourhoods been able to access their social rights since the first review in 2020?

 The second review of the Enter! Recommendation assesses progress in its implementation between 2019 and 2025, with a particular focus on housing, mental health and youth participation.

The review looks at what has changed, what remains challenging and what can be learned from promising practices across Europe. It also examines the conditions needed to turn the principles of the Enter! Recommendation into sustained action at national, regional and local levels.

 The review draws on desk research, surveys of public authorities and civil society organisations, expert consultations and focus groups with young people and other stakeholders.

 The review was conducted in 2025 and published in 2026.

About the Enter! Recommendation

The Enter! Recommendation (Recommendation CM/Rec(2015)3 on the access of young people from disadvantaged neighbourhoods to social rights) was adopted by the Committee of Ministers of the Council of Europe in 2015.

It recognises that young people living in disadvantaged neighbourhoods can face multiple and interconnected barriers to accessing their social rights and participating fully in society.

The Recommendation calls on member States to develop sustainable, evidence-based policies that take into account the specific situations and needs of young people from disadvantaged neighbourhoods.

It covers a broad range of social rights, including:

  • education and training;
  • employment;
  • health, including mental health;
  • housing;
  • information and counselling;
  • sports, leisure and culture.

It also places particular emphasis on meaningful youth participation and on the role of local and regional authorities and civil society organisations in making social rights accessible in practice.

Why a second review?

The first review of the Enter! Recommendation, covering the period 2015–2019, identified housing, mental health and youth participation as priority areas for further implementation.

It also highlighted the need for national action plans, stronger monitoring and indicators, and greater awareness of the Recommendation.

The second review asks:

  • What progress has been made since the first review?
  • Where do implementation gaps remain?
  • What approaches are showing promise?
  • What needs to happen next to ensure that the social rights of young people from disadvantaged neighbourhoods are realised in practice?

The review covers the period 2019–2025, including the major changes brought about by the COVID-19 pandemic, the cost-of-living crisis and growing pressures on housing and public services.

How was the review carried out?

The second review used a mixed-methods approach, combining quantitative and qualitative evidence.

It included:

  • 31 public authorities from 19 Council of Europe member States
  • 111 civil society organisations operating across 45 member States

The research also included:

  • desk research on policies and practices;
  • consultations with experts;
  • focus groups held during the Human Rights Education Forum in Budapest in December 2025;
  • analysis of promising practices and stakeholder experiences.

The combination of these sources provides a broad picture of how the Enter! Recommendation is understood and implemented at different levels.

Housing

Housing is the most severe and structurally entrenched implementation gap.

The housing crisis has intensified since 2019. The effects of the COVID-19 pandemic, inflation and the cost-of-living crisis have made independent housing increasingly difficult to access for many young people.

Young people experiencing homelessness, leaving care or facing multiple disadvantages are particularly vulnerable.

The review points to persistent shortages of affordable housing, insufficient funding and limited recognition of the specific housing needs of young people from disadvantaged neighborhoods.

Mental health

Mental health has gained visibility, but services have not always kept pace with need.

The pandemic and youth-led advocacy have contributed to increased recognition of young people's mental health needs.

Civil society organisations are playing an important role in prevention, awareness-raising, peer support and training for youth workers. At the same time, access to professional services remains uneven, with waiting lists, stigma and geographical gaps continuing to affect young people.

The review highlights the need for stronger links between youth work, civil society and health services so that young people can access appropriate support earlier and closer to where they live.

Youth participation

Participation mechanisms have expanded, but meaningful influence remains a challenge.

Youth councils, youth-led funding and training opportunities have become more widespread since the first review.

However, the review identifies a persistent gap between being consulted and having genuine influence over decisions.

Trust between young people and institutions is one of the most consistently reported barriers. Tokenistic participation can lead young people to disengage, particularly when they do not see their contribution reflected in decisions.

Meaningful participation requires more than creating structures: it requires real opportunities to influence decisions and, where appropriate, share decision-making power.