unesco -2026 年全球教育监测报告：引领青年发展；青年专题报告 Global education monitoring report 2026 lead with youth;youth report

GLOBALEDUCATIONMONITORINGREPORT

2026

LEADWITHYOUTH

YOUTHREPORT

unesco

sustainableDevelopmentGoals

unitedNationsyouthoffice

Global

Educatl·nMonl·torl·ngReport

3

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Thispublicationcanbereferencedas:UNESCO.2026.GlobalEducationMonitoringReport:Youthreport–Leadwithyouth

Publishedin2026bytheUnitedNationsEducational,ScientificandCulturalOrganization(UNESCO),

7,PlacedeFontenoy,75352Paris07SP,France

andtheUnitedNationsYouthOffice,333E45thSt,NewYork,NY10017,UnitedStates.

©UNESCOandtheUnitedNationsYouthOffice,2026

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Thisreportandallrelatedmaterialsareavailablefordownloadhere:

Bit.ly/2026youthreport

YouthReportsoftheGlobalEducationMonitoringReportseries:

2024Technologyineducation:

Atoolonourterms!

2022Non-stateactorsineducation:

Whochooses?Wholoses?

2020Inclusionandeducation:Allmeansall

2019Migration,displacementandeducation:

Buildingbridges,notwalls

2017/8Accountabilityineducation:Meetingourcommitments

2016Educationforpeopleandplanet

4

TheEducation2030IncheonDeclarationandFrameworkforActionspecifiesthatthemandateoftheGlobalEducationMonitoringReportistobe'themechanismformonitoringandreportingonSDG4andoneducationintheotherSDGs'

withtheresponsibilityto'reportontheimplementationofnationalandinternationalstrategiestohelpholdallrelevantpartnerstoaccountfortheircommitmentsaspartoftheoverallSDGfollow-upandreview'.Itispreparedbyan

independentteamhostedbyUNESCO.

TheGlobalEducationMonitoringReportteamisresponsibleforthechoiceandthepresentationofthefactscontainedinthis

bookandfortheopinionsexpressedtherein,whicharenotnecessarilythoseofUNESCOanddonotcommittheOrganization.OverallresponsibilityfortheviewsandopinionsexpressedinthereportistakenbyitsDirector.

THEGLOBALEDUCATIONMONITORINGREPORTTEAM

Director:ManosAntoninis

DanielApril,MarcelaBarriosRivera,MadeleineBarry,YekaterinaBaskakova,MichaelCairney,MarianaContreras,

AruemCho,AnnaCristinaD’Addio,RafaelaMariaDaSilvaSantos,DmitriDavydov,FrancescaEndrizzi,

AnjaFlottmeier,TuamanaiaFoimapafisi,PabloFraser,LaraGilBenito,EmilyGoldstein,PierreGouëdard,

PriyadarshaniJoshi,Maria-RafaelaKaldi,JosephineKiyenje,JodiKlue,CamilaLimaDeMoraes,KateLinkins,

KassianiLythrangomitis,AuréliaMazoyer,AnissaMechtar,YukiMurakami,JudithRandrianatoavina,KateRedman,

MariaRojnov,DivyaSharma,LauraStipanovic,Aziah-KatianaTan,DorothyWangandShifengZhou.

TheGlobalEducationMonitoringReportisanindependentannualpublication.TheGEMReportisfundedbyagroupofgovernments,multilateralagenciesandprivatefoundationsandfacilitatedandsupportedbyUNESCO.

Gouvernementprincier

PRINCIPAUTEDEMONACO

schweizerischeEidgenossenschaftconfdrationsuisse

confederazionesvizzeraconfederaziunsvizra

swissAgencyforDevelopmentandcooperationSDC

5

SHORTSUMMARY

Youthandstudentsneedtobetrustedtoplayaleadingroleineducationdecision-making

Whileyoungpeopleandstudentsarenotwellrepresentedinformalpolitics,theyareapoliticallyactive

groupwhodemandgoodgovernanceandsocialjustice.Theywanttheirvoicestobeheardandtobeengagedmeaningfullyonissuesthataffecttheirpresentandfuture,notablyoneducation.Youthandstudents’

demandsformeaningfulengagementindecisionmakingineducationispartofaglobalmovementforyouthagencythathasgrowninthepastthreedecades.

In2022,theYouthDeclarationattheTransformingEducationSummitcalledupon

nationaldecisionmakerstoinvestinyouthandstudentleadershipandsupporttheirrepresentation.Thisreportprovidesasnapshotofthecurrentsituationtourge

Oneinthree

countries

haveaformalmechanism inplacetoengageyoungpeopleindecision-making

governmentstoputmoreeffortinthatdirection.Basedontwosurveys–directedatgovernmentsandatyouthandstudentorganizations,respectively–ittracks

thecharacteristicsofyouthandstudentengagementineducationlegislationandpolicymakingaroundtheworld,withreferencetospecificexamples,aswellas

thechallengesthatthisengagementencounters.Italsoproposesanindicatormeasuringgovernmenteffortstoengageyouthandstudentsineducation

legislationandpolicymaking.

Responsesfrom93governments,arepresentativeglobalsample,showthatoneinthreereporthavingaformalrequirementinplacetoengageyouthorstudentsineducationdecision-makingwiththeinvolvementofformalbodies.However,

consultationsaremoreprevalent-threeinfourcountrieshaveconsultedwithyoungpeople

oneducationlegislationandpolicyinthelastthreeyears.Formalmechanismsarefoundmostly

inwealthierandageingcountrieswhiletherestoftheworldeitherhaslooseconsultationprocessesor

noneatall.Someconsultationfeedbackisacknowledgedtohaveinfluencededucationpoliciesoninclusion,well-being,safetyandcurriculumreform.

Responsesfrom101youthandstudentorganizations,asamplewhereEuropeancountriesare

overrepresented,showthatfewerthanoneinthreefelttheywerefrequentlyengagedandjustoneinfive

feltvaluedorinacollaborativerelationship.Surveyedorganizationsexpressedstrongaimstoinfluence

educationpoliciesandrepresentthevoicesofstudentsandyouth,butoftenfeeltheirvoiceandvisibilityarelimited.Evenwhenorganizationshaveaseatatthetablethroughformalmechanisms,theyoftenperceivealackofgenuinewilltolistentothem.Moreover,theyfaceshorttimeframesandstrugglewithengagingtheirmembersandfindingsufficientresourcestoparticipate.

Strongeryouthandstudentengagementineducationdecisionmakingrequiresformalmechanismsandaseatatdecision-makingtables,representativeandinclusiveparticipation,institutionalsupportand

resources,andappreciationoftheirfeedback.

inesco

Sincewarsbegininthemindsofmenand

women,itisinthemindsofmenandwomen

thatthedefensesofpeacemustbeconstructed

GLOBALEDUCATIONMONITORINGREPORT

2026

LEADWITHYOUTH

YOUTHREPORT

LEADWITHYOUTH9

Foreword

Youthparticipationinpolicyanddecisionmakingoneducationisdeeplypersonaltome.Myjourneyintopublicservicebeganinthestudentmovementatmyuniversityinmyhomecountry,Uruguay,whereIexperiencedfirsthandthetransformativepowerofmeaningfulyouthparticipation.Thoseearlylessonsshapedalifelongconviction:whenwecreaterealspacesfor

youngpeopletoengageinpolicyanddecisionmaking,wedonotonlyempowerindividuals.Westrengtheninstitutionsanddrivepositivechangeforsocietyasawhole.

SincemyappointmentasAssistantSecretary-GeneralforYouthAffairsandHeadoftheUnitedNationsYouthOffice,thatconvictionhasonlygrownstronger.Youngpeoplearenotpassivebeneficiarieswaitingtoinheritthefuture.Theyarerightsholdersandpartnerswhomusthelpdesignit,togetherwithothergenerations.Workingwithyoungpeopleisnotabout

appeasingthem;itisamoralimperativeandapracticalnecessityinaworldfacingdeep,interconnectedcrisesthatrequireurgentactionsandinnovativesolutions.

ThisyoutheditionoftheGlobalEducationMonitoringReport,focusedonleadingwithyouth,arrivesatacriticalmoment.

Acrosstheglobe,thereisgrowingrecognitionoftheroleofyoungpeopleasagentsofchange,butrecognitionaloneisnot

enough.Toooften,youthparticipationremainssymbolic,withnoclearstructurestoensureaccountabilityorinfluence.

Weneedinstitutionalizedandmandatedpathwaysformeaningfulyouthparticipationinpolicymakinganddecision-makingprocesses,groundedinclearprinciplesandsustainedovertime.Itisnotonlyaboutconsultingyoungpeople,butabout

workingwiththemateverystage.Bybuildingastrongbodyofevidenceandconcreteexamplesoftheeducationsector,thisreporthelpsclarifyhowmeaningfulyouthparticipationcanmovefromaspirationtoresponsibility.

Theeducationsectorisaparticularlypowerfulplacetoexaminethis,becauseeducationsitsattheheartofyoungpeople’slives.Educationequipsyoungpeoplewithcivicliteracy,criticalthinkingskillsandtheagencyneededtoparticipate

effectively,whileschoolsanduniversitiescanalsoserveasspaceswheredemocraticengagementispracticed,notmerely

taught.Acrosstheworld,youngpeopleandstudentsarealreadyleading—fromglobaladvocacyeffortstolocalorganizing,grassrootscampaignsandcommunity-basedaction.Yettheseinitiativestoooftenremainmarginalandunder-resourced.

Greatervisibility,sustainedinvestment,intergenerationalsolidarityandgenuinepoliticalwillareurgentlyneeded.

Asweenterthefinalstretchtoward2030,thisreportissuesaclearcalltoaction:educationpoliciescannotbedesignedforyoungpeoplewithoutbeingshapedwiththem.Ifweareseriousaboutbuildinginclusive,resilientandjustsocieties,leadingwithyouthmustbecomethenorm,nowandbeyond2030.Thefutureofeducation–andofourworld–dependsonit.

FelipePaullier

AssistantSecretary-GeneralforYouthAffairs,UnitedNations

@GEMReport|#LeadwithYouth|

Bit.ly/2026youthreport

2026GLOBALEDUCATIONMONITORINGREPORT:YOUTHREPORT

10

Foreword

Thevoicesofyoungpeoplehaveneverbeenmorecriticaltoshapingthefutureofeducation.Asweapproachthefinalyearsofthe2030AgendaforSustainableDevelopmentandbegintoenvisionwhatcomesnext,wemustrecognizeafundamentaltruth:educationpoliciesdesignedforyoungpeoplemustbeshapedwiththeiractiveparticipation.

The2022TransformingEducationSummitmarkedawatershedmomentinthisrecognition.IamparticularlyproudthattheSummitenabledthecomingtogetherofatrulyglobalyouthmovement.TheYouthDeclarationthatemergedwasa

cleardemandforsystemicchange.Youngpeoplecalledfordecisionmakerstomovebeyondconsultationtowardgenuinepartnership,toinvestinyouthandstudentleadership,andtoembedtheirvoicesineverystageofpolicydevelopment.

ThePactfortheFuture,adoptedatthe2024SummitoftheFuture,reinforcedthiscommitment.Action36specifically

callsoncountriestostrengthenmeaningfulyouthparticipationineducationthroughnationalmechanisms.Theseglobal

commitmentsreflectagrowingunderstandingthatyoungpeoplearenotsimplythebeneficiariesofeducationsystemsbuttheirprimarystakeholderswhomustberecognizedaspartnersintheirtransformation.

IampleasedthatUNESCOcandrawonitscollectivestrengthstoturntheaspirationsoftheYouthDeclarationintoconcreteaction.Throughthisreportanditsproposedindicator,weprovideanaccountabilitymechanismtomonitorprogress

towardsyouthparticipationineducationdecisionmakingglobally.Equallyimportantisouruniqueconveningpower,whichensuresthatyoungpeoplehaveaseatatthetableindiscussionsshapingfutureeducationpolicies.Thesedualcapacities

ofmonitoringandconveningpositionUNESCOtotransformaspirationsintomeaningfulchange.Yetasthisreportreveals,thegapbetweenrhetoricandrealityremainswide.Whileconsultationprocesseshaveproliferated,manyremaintokenisticinsteadoftrulytransformative.Youngpeoplereportbeingaskedforinputbutrarelyseethatinputreflectedinfinal

policies.Wealsoneedtodobetterinensuringthatelected,ratherthanhand-pickedrepresentativesofyouthandstudentorganizationscometothesetables.

Aswepreparetoshapethepost-2030educationagenda,youngpeoplemustbeatthecenterofthatconversation.They

bringfreshperspectivesonpressingchallengesandwillinheritthedecisionswemaketoday.UNESCOstandsreadyto

supportthistransformation,workingalongsideallpartnerscommittedtoensuringthatthenextglobaleducationagendaisco-createdwithyouth.Thefutureofeducationdependsonit.

StefaniaGiannini

AssistantDirector-GeneralforEducation,UNESCO

@

GEMReport|#LeadwithYouth|Bit.ly/2026youthreport

LEADWITHYOUTH11

AbouttheUnitedNationsYouthOffice

AsthefirstdedicatedentityforyouthaffairswithintheUnitedNationsSecretariat,theUnitedNationsYouthOffice

championstherights,perspectives,contributionsandpotentialofyoungpeopleeverywhere.Itleadseffortstoenhance

collaboration,coordinationandaccountabilityonyouthaffairs,ensuringthattheUnitedNationsworkseffectivelyand

inclusivelywithyoungpeopleinalltheirdiversity.Byfosteringmeaningful,inclusiveandimpactfulparticipationofyouth

indecision-makingprocesses,itsworkfocusesonempoweringyoungpeopleasagentsoftransformativechangein

addressingglobalchallengesintheareasofsustainabledevelopment,peaceandsecurity,humanrightsandhumanitarian

action.TheUNYouthOfficebuildsuponmorethanadecadeofworkledbytheformerSecretary-General’sEnvoysonYouth,integratingtheirworktoadvancetheglobalyouthagendaandaddresstheneedsofyoungpeopleallovertheworld–

bringingtheUNclosertoyoungpeople,andyoungpeopleclosertotheUN.

2026GLOBALEDUCATIONMONITORINGREPORT:YOUTHREPORT

12

Acknowledgements

ThisreportisacollaborationbetweentheGlobalEducationMonitoringReportandtheUnitedNationsYouthOffice.Thereport

wouldnothavebeenpossiblewithoutthecontributionsofnumerousyoungpeople,youthandstudentorganizationsand

institutions.TheGlobalEducationMonitoringReport(GEMReport)teamwouldliketoacknowledgetheirsupportandthank

themfortheirsupportthroughouttheprocess,fromtheconsultationsonthedevelopmentofthesurveystothediscussions

aroundtheadvocacyanddissemination.Overtwoyears,theGEMReportworkedtoensurethatthispublicationwasco-designedwithyouthandstudents,incorporatingtheirvoicesandperspectivesateverystage.

WeextendoursincerethankstothemembersoftheGEMReportAdvisoryBoardanditsChair,JuttaUrpilainen,aswellastoourdedicatedfunderswhosecommitmentandfinancialsupportmadethepreparation,publication,anddisseminationoftheGEMReport’sworkpossible.

WewouldliketoacknowledgetheroleoftheUnitedNationsYouthOfficeanditsleadershipasco-publishersofthisreport.Theiradviceandcarefulreviewallowedustodelveintothecomplexissueofmeaningfulyouthandstudentengagementineducationfromaglobalperspective.

WealsoacknowledgetheroleofUNESCOandallthoseinheadquarters,inthefieldandattheUNESCOInstituteforStatisticswhosupportedthedatacollectionforthegovernmentsurvey.SpecialthanksgototheYouthteamattheSocialandHumanSciencessectorofUNESCOandtotheSDG4Youth&StudentNetworkfortheirsupportandguidance,aswellastothe

pastandpresentmembersoftheirnetworkwhosupportedwiththisreport(OlgaDevic,EllenDixon,IlanEnverga,RachaelKamana,NajibMattarandBlessingTundeDada).

WethankProfessorManjaKlemenčičforsharingherexpertiseforthedevelopmentofthesurveydatacollectioninstrumentsandforreviewingthereport.

Thisreportwouldnothavebeenpossiblewithoutthesupportofthenumerousglobalandregionalyouthandstudent

organizationswhoprovidedvaluablesupportfromthemappingofyouthandstudentorganizationsatthenationallevel,

totherolloutofthesurveyandadvocacy.SpecialthanksgototheGlobalStudentForum(JacobBlasius),theAll-Africa

StudentsUnion(DivineEdemKwadzodehandPeterKwasiKodjie),theOrganisingBureauofEuropeanSchoolStudents(Rui

Teixeira),theEuropeanStudents’Union(ArnoSchrooyen)andtheCommonwealthYouthCouncil(JoshuaOpey).Wewould

alsoliketowarmlythanktheCommonwealthSecretariat(Terri-AnnGilbert-Roberts),theGlobalCampaignforEducation

(AsandiswaDazana),theAsiaSouthPacificForBasicEducation(LaeSantiago)andASFInterculturalPrograms(AnnaCarolinaCassianiandDanielObst)fortheiradviceandcommitmenttoadvancemeaningfulyouthengagement.

SpecialthanksgotothePermanentDelegationsofUNESCO,theNationalCommissionsandthegovernmentofficialsfrom

93countrieswhorespondedtothegovernmentsurveyaswellastothe101youthandstudentorganizationswhorespondedtotheyouthsurvey.Theirsupporthasenabledustoproposethefirstmeasurementofayouthindicatoronyouthand

studentparticipationineducationdecision-making.

Wealsothankthemembersofourgroupoffriendswhoprovidedthoughtfuladviceonthetoneofthereportanditsrecommendationsaswellastheyoungpeoplewhoparticipatedinourcampaignsandconsultations.

ThereportwasledbyManosAntoninis,AnjaFlottmeier,PriyadarshaniJoshiandLauraStipanovic(GEMReport)andby

SudhaBalakrishnanandBiancaLiuHerzog(UnitedNationsYouthOffice).Specialthanksgototheinternsandconsultants

whosupportedthisproject(MeaganBrooks,AkashdeepKaurandKatherineMoore).Thisworkwouldnothavebeenpossiblewithoutthem.

ThereportwaseditedbyAndyQuan.TheillustrationsweredevelopedbyAaronLopez-Barrantesinconsultationwithyoungpeople.

@

GEMReport|#LeadwithYouth|Bit.ly/2026youthreport

LEADWITHYOUTH13

Tableofcontents

Shortsummary 5

Foreword 9

Acknowledgements 12

Keymessages 15

Youthandstudentleadershipineducationisexercisedinseveralways19

inschools19

inuniversities20

inyouth-ledcivilsocietyorganizations21

inyouthandstudentmovements21

inpoliticalandpolicyspaces24

Itisdifficulttomonitormeaningfulyouthengagementindecisionmaking27

Definitionsofmeaningfulengagementhavebeenproposed27

Anenablingenvironmentformeaningfulyouthengagementhasprerequisites29

Partnershipanddialoguearekeytomeaningfulengagement31

Aglobalsurveytackleddimensionsofyouthengagement32

Governmentsaredevelopingengagementmechanismswithyouth37

Oneinthreecountrieshaveformalbodiestoengageyouthorstudents37

Threeinfourcountrieshaveeducationconsultationprocessesinvolvingyouthorstudents41

ongeneraleducationandyouthlaw,strategyandpolicy42

oncurriculum,educationcontentandassessment45

oninclusionandwell-being46

onhighereducation48

Youthandstudentorganizationsstruggletobeheard53

Mostorganizationsperceivetheirlevelofinvolvementtobeinadequate56

Youthandstudentorganizationsfacearangeofchallenges59

Conclusion63

Recommendations64

142026GLOBALEDUCATIONMONITORINGREPORT:YOUTHREPORT

Thisillustrationwasco-designedwithyouth

LEADWITHYOUTH15

KEYMESSĄGES

nThefirstmeasurementofanewproposedindicatoronyouthparticipationineducationdecision-makinginthisreportfindsthatonlyoneinthreecountrieshaveformalbodiestoengageyouthorstudentsin

educationdiscussions.Additionalanalysisfindsthatthreeinfourhaveeducationconsultationprocessesforyouthorstudents.Youthparliaments,advisorycouncilsandconsultationforumsareproliferating.

nTheeffectivenessofengagementmechanismsdependsonwhethertheyenablegenuineinfluenceor

ifdecisionsarealreadypredetermined.Over40%ofyouthorganizationssurveyedsaidthattheywere

dissatisfiedwithengagementsthroughformalgovernmentbodies.

nMeaningfulyouthandstudentparticipationrequiresbothpoliticalwillandenablingconditions.Countries

operatealongaspectrumfromtokenisticgesturestogenuinepartnershipwhereyoungpeopletakepartin

policydevelopmentasequals.Yetevenwell-designedmechanismsfailwithoutpoliticalfreedoms,therightto

organizeandmediaindependence.

nPoliticalwilltoenableyouthparticipationgenerateslegitimacyinreturn.Countriesthatcreatethese

opportunities,drivingintergenerationaldialogue,seeyoungpeoplereporthighertrustinpoliticalinstitutions

andgreaterconfidenceintheirowncapacitytodrivechangeineducationandbeyond.

nYouthandstudentsexerciseleadershipindifferentformsandcountrieschoosedifferentwaysto

engagewithit.Schools,universities,politicalinstitutions,streetprotests,digitalplatformsandcivilsociety

organizationsallserveasarenaswhereyoungpeopleshapeeducationdiscourseandpolicyformallyandinformally,asindividualsandaspartofmovements,whentheyhavespacetodoso.Theirpotentialinfluencehasbeenamplifiedthroughtechnology.

nParticipationdoesnotalwaystranslateintoinfluence.Fewcountriesreportedbackonwhether

consultationsactuallychangedfinaldecisionsorinvolvedyouthinaccountabilitymechanisms.Oftheyouth

organizationssurveyed,57%reportedtheyhadbeenconsultedduringpolicydesign,butonly35%said

thattheirfeedbackhadbeentakenintoaccount.Onlyoneinfourorganizationshadbeenaskedtolead

consultationsandlessthanoneinsixtomonitortheimplementationofaneducationpolicy.

nMostyouthandstudentorganizationsreportinadequateengagement.Satisfactionislowestamongschool

studentgroups.Whenaskedtocharacterizethedepthoftheirengagement,fromexclusiontobeingvalued

aspartners,only20%felttheyweregenuinelycollaboratingwithgovernmentorthattheircontributions

mattered.Satisfactionincreasessignificantlywhentheyaregivenformalresponsibilitiesinpolicyreform.

nMoreparticipationdoesnotalwaysequalmoreinclusiveparticipation.Evenwell-intentionedmechanisms

riskexcludingmarginalizedvoices,allowingselectindividualstospeakfordiversepopulationstheydonot

reflect.However,44%oftheyouthorganizationssurveyedsetthemselvesrepresentationrequirements.

@

GEMReport|#LeadwithYouth|Bit.ly/2026youthreport

162026GLOBALEDUCATIONMONITORINGREPORT:YOUTHREPORT

L

reform.Thisrolehasbecomemoreprominentinrecent

years.Technologyaffordsyoungpeoplemoreopportunitiestoexchangeviewsandorganizeactions.Moreover,

eadershipeducation

iscommonlyviewedaskeytoimprovingsystemsinalltheirdimensions.

Butitisnotalwaysclearhowsuchleadershipisexercised.The2024/5GlobalEducationMonitoringReportcycle

broadlydefinedleadershipineducationasapro