CLAIMING CITIZENSHIP

Case Studies of Adolescents Participating in

Governance in South Asia
This report was commissioned by the UNICEF Regional Office for South Asia (ROSA) and the principal authors were Kavita Ratna, Dunu Roy
and Urmila Pullat

©United Nations Children’s Fund

Suggested Citation: The UNICEF Regional Office for South Asia (ROSA), Claiming Citizenship: Case Studies of Adolescents Participating in
Governance in South Asia, (UNICEF, Kathmandu, 2022).

Address:
UNICEF Regional Office for South Asia (ROSA)
P.O. Box 5815,
Lekhnath Marg, Kathmandu, Nepal
Tel: +977-1-4417082
Email: [email protected]
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Published in: March 2022

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b Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

CLAIMING CITIZENSHIP
Case Studies of Adolescents Participating in
Governance in South Asia

UNICEF Regional Office for South Asia

in partnership with the Concerned for Working Children
© UNICEF Nepal

ii Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Contents

Acronyms V
Acknowledgements VI
Message from the Regional Director VII
Executive Summary IX

Chapter 1. Institutionalizing Adolescent Participation in Governance 1

Background 1
Principles of participation by children 2
UNICEF initiatives for adolescent participation 5
Study components 6
Approach 8
Methodology for case studies 10

Chapter 2. Safe City Initiative, Madhya Pradesh, India 15

Introduction 15
Issues faced by children in Madhya Pradesh 16
About the project 17
Methodology 24
Findings 25
Analysis 34
Recommendations 42
Conclusion 46

Chapter 3. Children’s Participation in Child-Friendly Local Governance, Maharashtra, India 49

Introduction 49
Issues faced by children in Maharashtra 50
About the project 52
Methodology 57
Findings 58
Analysis 65
Recommendations 68
Conclusion 72

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia iii
 Chapter 4. Child-Friendly Local Governance, Nepal 75
Introduction 75
Issues faced by children in Nepal 76
About the project 78
Methodology 79
Findings 81
Analysis 89
Recommendations 95
Conclusion 99

Chapter 5. Adolescent and Youth Participatory Review of the National Youth Policy, Bhutan 101
Introduction 101
Issues faced by children in Bhutan 102
About the project 103
Methodology 107
Findings 109
Analysis 116
Recommendation 120
Conclusion 123

Chapter 6. Overall Conclusions 125

References 133

Annexures 141
Annexure A. List of areas of enquiry 141
Annexure B. List of discussants 142
Annexure C. Foundational sources for principles of participation 145
Annexure D. Literature reviewed related to the four case studies 148
Annexure E. Definitions 150
Annexure F. Tools of engagement 154
Annexure G. Broad list of questions to guide the tools of engagement 158

iv Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Acronyms

ACE Action for Children’s Environment

ADAP Adolescent Development and Participation
ASHA accredited social health activist
BCMD Bhutan Centre for Media and Democracy
CBO community based organization
CEO chief executive officer
CFLG child-friendly local governance
CRC Committee on the Rights of the Child
CSO civil society organization
CWC Concerned for Working Children
CWIN Child Workers in Nepal
DNT de-notified tribe
DWCD Department of Women and Child Development
DYS Department of Youth and Sports
FGD focus group discussion
GNH Gross National Happiness
GPDP Gram Panchayat Development Plan
LGBTQI lesbian, gay, bisexual, transgender, queer and intersex
LGCDP Local Government and Community Development Programme
NCWC National Commission for Women and Children (Bhutan)
NGO non-governmental organization
NYAP National Youth Action Plan
NYP National Youth Policy
RENEW Respect, Educate, Nurture and Empower Women
ROSA Regional Office for South Asia
SCI Safe City Initiative
SDG Sustainable Development Goal
UN United Nations
UNCRC United Nations Convention on the Rights of the Child
UNICEF United Nations Children’s Fund
VDC village development committee
VMIS Volunteer Management Information System
WASH water, sanitation and hygiene
WCD women and child development
YASHADA Yashwantrao Chavan Academy of Development Administration

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia v

 Acknowledgements

We are grateful to all the children, Academy of Development Administration

adolescents and young people who (YASHADA) in Maharashtra, the elected
gave their time so generously and local government members in Nepal, and
enthusiastically, especially given the the Department of Youth and Sports (DYS)
challenges posed by the COVID-19 in Bhutan.
pandemic. In addition, the case
studies would be incomplete without We thank Dharshini Seneviratne at
the invaluable insights and analysis UNICEF ROSA, who conceptualized the
of the representatives of civil society original project, for coordinating every step
organizations, who took time out from of this process and always being there to
their busy schedules to speak with us. In provide clarifications, encouragement,
Madhya Pradesh we would like to thank views, analysis and edits, as required.
Muskaan, Aarambh and Uday Society
Bhopal; in Maharashtra, the Resource Staff at the UNICEF country offices in
and Support Centre for Development Madhya Pradesh (Lolichen Joseph and
and Sparsh; in Nepal, World Vision Nepal, Advaita Marathe); Maharashtra (Anuradha
Child Workers in Nepal (CWIN), National Nair, Rejani Pavithran and Pramod Kalekar);
Child-Friendly Local Governance (CFLG) Nepal (Pragya Shah Karki, Ashok Kumar
Forum, and Yuwalaya, Jagriti Child and Jha, Madhav Baral, Toya Subedi and
Youth Concern Nepal (JCYCN); and, in Barsha Pradhan); and Bhutan (Sonam
Bhutan, the Bhutan Centre for Media Wangchuk) have been central to unpacking
and Democracy (BCMD) and the Youth these case studies, locating them in their
Development Fund (YDF). unique context and providing valuable
suggestions for the way forward. We also
We would also like to thank the many thank Sirjan Adhikari, Aruna Pant, Eshani
state officials, administrators and elected Ruwanpura, John Barret Trew, Shiba Satyal
representatives in the four case study Banskota and others at UNICEF ROSA for
jurisdictions, who provided us with their input and review.
contextual details and rich reflections
and patiently answered all our queries. We thank the extended team at the
Thanks to the officials from the Bhopal Concerned for Working Children (CWC)
Municipal Corporation of Madhya for their timely support and administrative
Pradesh, the child-friendly panchayats, expertise. Lastly, for content editing and
elected representatives, local government rewrites, we thank Dharshini Seneviratne
officials, and the Yashwantrao Chavan and Susan Sellars.

vi Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Message from the
Regional Director

There is only one way for UNICEF to Claiming Citizenship: Case Studies of
deliver services for children, including Adolescents Participating in Governance
adolescents, that truly fulfils their rights in South Asia is an important qualitative
– and that is through decision-making that research report that brings together
enables them to be heard, to participate, successful examples of engaging
and to be partners and influencers in adolescents and partnering with state and
creating a better world for themselves civil society organizations on participatory
and their communities. As the leading planning. We commend the UNICEF
child rights agency committed to realizing country offices in Bhutan, India and
the Convention on the Rights of the Nepal for their admirable work in this
Child (CRC), child participation is an area, which we can all learn from. We
indispensable part of UNICEF’s mandate, also wish to thank Concerned for Working
as evident in its new Strategic Plan for Children (CWC) for their contribution to
2022–2025. this compendium through their decades
of regional and global experience in policy
Participation is a basic child right. It is and programming on child participation.
also a savvy pragmatic strategy for
meaningfully realizing children’s right May this document provide tangible
to education, skilling and employment, technical and strategic insights as we
health, protection, social protection, clean seek to make the significant participation
water and sanitation, and a sustainable of children, including adolescents, a reality,
environment. Nearly 50 per cent of South in partnership with state, civil society and
Asia’s 1.8 billion people are under the age private organizations.
of 24. The cost of working on solutions
that impact them without involving them George Laryea-Adjei
is too high. Engaging children, including Regional Director
adolescents, is even more critical now, UNICEF South Asia
when they are facing intensified social,
political and economic vulnerabilities due
to COVID-19.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia vii
©U NICEF Nepal

viii Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Executive Summary

In 1989, global leaders made an historic Working Children (CWC) for the present
commitment to the world’s children study was created in order to strengthen
with the adoption of the United Nations regional understanding of intentional
Convention on the Rights of the Child, adolescent participation in governance
recognizing children’s fundamental right practices, including understanding
to be heard, influence decisions, and the complex and nuanced factors that
participate in issues that affect their lives. govern policy- and systems-supported
This right also entails a right to agency and participation practices, including
protagonism; to be informed of policy and implications for evidence-based policy
programme decisions that affect them formulation.
and their communities; and to engage
and participate in making those decisions. The components of this study can be
As part of
summarized as follows: the new
As part of the new mandates set for  A scoping study for the selected mandates set
adolescent programming in its 2022–2025 countries and case studies for adolescent
strategy, UNICEF will be mainstreaming programming
 Secondary analysis of government
meaningful adolescent engagement and policies, structures and mechanisms in its 2022–2025
participation as a principle and a process strategy,
for adolescent participation
across the five goal areas of education, UNICEF will be
 Documentation of case studies with mainstreaming
health, child protection, water, sanitation
a substantive analysis of adolescent meaningful
and hygiene (WASH) and climate change,
participation adolescent
and social protection, and in its priority
 Recommendations for operationalizing engagement and
thematic strategies on mental health,
and mainstreaming adolescent participation.
employability, skills, digital education and
participation
climate change. UNICEF’s commitment
to reimagine programming with and for
children provides exciting opportunities for The methodology that was agreed on
adolescent participation in all its sectors. between UNICEF and CWC consisted of:
 Analysis of the legal and policy
UNICEF’s Regional Office for South Asia frameworks that guide decisions in
(ROSA) provides technical and advocacy the selected countries
input to develop capacities and promote  Preparation of a brief scoping study,
adolescent participation across sectors in consultation with regional advisors
within UNICEF and in governments and country offices
through its Adolescent Development
 Confirmation of four diverse initiatives
and Participation (ADAP) section. The
selected in three countries for
partnership with the Concerned for
documentation

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia ix

  Online consultations with National Youth Policy 2020 through the
governments and civil society report Youth Voices: Youth Matters
organizations is a harbinger of opportunities for the
 Online consultations with active enhanced participation of adolescents
adolescent groups and adolescents and youth in Bhutan.

 Online consultations with other

concerned stakeholders The findings from the literature review
 Consolidation of recommendations and the online consultations were
for different constituencies arranged around five themes – agency,
state, participation, inclusion, and
Four initiatives were selected for in- resolutions (ASPIRE) – which provide
depth documentation: the framework in which the findings of
 Safe City Initiative in Bhopal, the case study are presented:
Madhya Pradesh, India: This  Agency – the evolving capacity and
initiative is embedded in child confidence of adolescents to engage
protection interventions and is with decision makers and structures
undertaken in conjunction with urban and their autonomy in expressing
local self-governance structures, opinions and taking action
administrative systems and local  State – the role of the state in
CSOs, while being rooted in an urban integrating and sustaining adolescent
governance framework. participation in governance and
 Child-Friendly Local Governance ensuring subsidiarity in planning, with
(CFLG) Initiative, Maharashtra, the devolution of decision-making
India: This project is embedded in power
social policy interventions and set  Participation – the interface
in a rural governance framework. It between the agency of children and
is the main component of UNICEF governance structures that enable
Maharashtra’s partnership with the meaningful engagement of
the Government of Maharashtra in adolescents with adult institutions
establishing and implementing child-
 Inclusion – the involvement of the
friendly panchayats.1
already marginalized in participation
 Child-Friendly Local Governance process by those who are socially,
Initiative (CFLG), Nepal: This culturally and economically stronger
national initiative, formerly a flagship
 Resolutions – the structures that
programme of UNICEF, has close
determine the nature of adolescents
to two decades of history and is
and young people’s ability to exercise
presently poised for nationwide
agency and influence decisions and
coverage.
resolutions
 Review of the National Youth
Policy, Bhutan: As a new democracy
The analysis was structured around eight
and a constitutional monarchy, the
dimensions, the results of which are
participation of its adolescents and
briefly presented below.
young people in framing a new

1 A panchayat is a council in the Indian government administrative system. A gram panchayat is a village council.

x Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

 Existing structures and processes national policy cycles. The Young Bhutan
for adolescent participation Network and the youth networks listed
in UNICEF’s recently launched Volunteer
In Bhopal, Madhya Pradesh, the Management Information System (VMIS)
community-based children’s groups and have the potential to occupy the space
child protection committees created by of participatory policy and planning.
the Safe City Initiative (SCI) to strengthen
the agency of children and build an State buy-in and accountability
environment for their participation have
served their purpose well. Adolescents For the SCI in Madhya Pradesh,
have largely worked with officials and sustained advocacy by UNICEF at
elected representatives at local and the city level in Bhopal has resulted In Nepal, the
state levels. Stronger provisions for in support to expand the initiative to history of
devolution and child-friendly governance other cities in the state. This will require child clubs
can enhance the impact of the SCI strategic thinking to ensure that the and bal bhelas
in terms of sustained adolescent SCI’s core principles are upheld in the has provided
interactions with local governance. In face of the current centralized schemes a strong base
Maharashtra, exemplary factors that of urban development, which requires for launching
the Child-
have strengthened the sustenance of more of a focus on serving the most
Friendly Local
the child-friendly panchayats include the marginalized. In Maharashtra, the State
Governance
existence of legal and policy frameworks Policy for Children highlights the need to
programme.
for empowering adolescents and a pool invest in building the capacity of gram However, there
of experiences from earlier initiatives, like panchayats to facilitate the participation is a need for
the adolescent empowerment initiative of adolescents and young people. continued
Deepshikha. In Nepal, the history of However, the use of the mandatory 35% investment in
child clubs and bal bhelas has provided of the budget for social development the capacities
a strong base for launching the Child- and women and child development is of the State as
Friendly Local Governance programme. yet to be realized. In Nepal, the Child- well as the local
However, there is a need for continued Friendly Local Governance system runs institutions
investment in the capacities of the parallel with Nepal’s continually evolving and agencies
State as well as the local institutions federal system. However, federalization, involved in
implementation
and agencies involved in implementation and the subsequent changes in
at various levels
at various levels of governance and governance structures, has affected the
of governance
across sectors. In Bhutan, a contained implementation of CFLG, requiring the
and across
process of engagement with diverse National Strategy 2011 to be reviewed sectors.
youth groups, including marginalized with a renewed focus. Child protection is
groups, was undertaken by UNICEF in the focal point of state policy in Bhutan.
partnership with the Bhutan Centre for The participation of young people, as
Media and Democracy. There has been provided for in legislative and policy
a history of Democracy Clubs and a mandates, has vast potential for further
Children’s Parliament in Bhutan, although translation to effective action.
these have now largely been suspended.
The re-invigoration and sustenance of Adolescent representation
these and similar structures, and the
involvement of adolescent and youth The SCI in Bhopal, Madhya Pradesh, has
collectives in policy processes, are vital proved, once again, that collectivization
for their broader representation and through children’s clubs and their
for ensuring that they have a voice in federation is crucial for children from

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia xi

 marginalized communities to access to which UNICEF’s engagement remains
their entitlements, with the more as intensive as earlier. Although the
articulate among them taking leading policies of Maharashtra are aligned
roles. It is promising that observers are with the 73rd Amendment (1993) to
noting the gradual emergence of wider the Constitution of India, which made
representation. This model also highlights the Panchayati Raj system a part of the
the importance of anchoring adolescent Indian Constitution,2 the state has yet
participation in local governance to devolve rights and responsibilities to
A strategy for structures. In Maharashtra, the long the panchayats in full measure, as has
expansion, history of adolescent participation in been done in other states. A strategy for
therefore, has rural areas underscores this lesson, expansion, therefore, has to put in place
to put in place where graduates from Deepshikha and structures that strengthen participatory
structures that
the bal panchayats are now playing a mechanisms and engage with dissenting
strengthen
major role in the ongoing democratization opinions, along with more training and
participatory
of representation. In Nepal, there is capacity building. The participation of
mechanisms
and engage considerable experience with child clubs adolescents and young people in Nepal
with dissenting making collective decisions. However, is the strongest among the four case
opinions, more clarity is required in relation to the studies, with legal and administrative
along with systems in place for decision makers sanctions in place and such participation
more training to be accountable to the child club being valued by decision makers for its
and capacity members. This is critical for the planned relevance. Child club graduates have
building. national coverage of CFLG, which will been active in campaigning for the
involve thousands of children in over rights of children at multiple levels.
700 local government constituencies. In However, there is a residual overreach
Bhutan, the relatively recent transition of the central government in Nepal. In
from a hereditary monarchy to a Bhutan, there is significant potential for
democratic constitutional monarchy has including the participation of adolescents
impacted on the representation of young and young people in the expansion of
people. There is an emerging shift in local governance. However, the lack of
focus from young people being viewed a legislative or policy mandate to ensure
as ‘beneficiaries’ to being considered that this is followed is likely to result in
‘rights holders’, which needs to be further over-reliance on individual sympathetic
enhanced. government functionaries.

Strategies for expansion Exclusion and inequity

The Government of Madhya Pradesh Most of the stakeholders in Bhopal,

is expanding the SCI to five more cities Madhya Pradesh did not mention
in the state. Its success will depend exclusion and inequity as issues of
on the government’s commitment to concern, except for reference to the de-
guarantee investment and devolve notified tribes. However, it was clear that
control over finances and other adolescents and young people who have
responsibilities to the lowest tiers of pressing economic needs or have been
urban governance, as well as the extent historically discriminated against, such

2 This amendment recognises panchayats as units of rural local self-government in India. It gives them a constitutional basis and position. It
provides them with certain functional mandates and gives them a significant degree of autonomy for self-reliance and self-sufficiency through
fiscal transfers, taxation powers and tax assignments.

xii Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
as slum-dwellers, de-notified groups, supported children and their communities
girls, children from minority groups, and to make good use of the opportunities
working children, found it challenging that opened up in each programme,
to participate in decision-making especially in India and Nepal, where
processes. In Maharashtra, there have there has been a long history of their
been reports of violence against those engagement. This has resulted in the
belonging to so-called ‘lower castes’ and vibrant response of adolescents to child-
tribal children in schools in the form of friendly initiatives. However, in some
corporal punishment, bullying and verbal cases, their role appears to diminish UNICEF Madhya
abuse.3 The same is true for children by design after the pilot phase, and Pradesh, India
with disabilities and special needs. In this seems to have adversely affected has paid close
Nepal, the most vulnerable children are adolescent participation, especially as the attention to
the voices
supported by CSOs in several locations. plans for expansion are being developed.
of children,
However, their presence in the CFLG In most cases, there is a further limitation
including those
process needs to be strengthened. that CSOs have not been able to fully
in informal
Most marginalized children from migrant apply child rights-based participation to settlements in
communities, children affected by traditional child protection roles. Bhopal, creating
disasters, children belonging to gender opportunities for
and sexual minorities, and refugee Role of UNICEF adolescents and
children face difficulties in forming a young people to
constituency to be addressed. In Bhutan, UNICEF Madhya Pradesh, India has paid speak directly to
there are reports of physical, emotional, close attention to the voices of children, decision makers,
and sexual violence against children and including those in informal settlements integrating
discrimination against young people in Bhopal, creating opportunities for participation
with disabilities and those who identify adolescents and young people to speak into addressing
protection and
as lesbian, gay, bisexual, transgender, directly to decision makers, integrating
civic issues,
queer and intersex (LGBTQI), with participation into addressing protection
providing key
mental health as a cross-cutting issue. and civic issues, providing key training
training inputs,
However, these issues were not widely inputs, and leveraging state support and leveraging
discussed, because of their sensitivity at all levels of governance through state support
and the stigma associated with speaking consistent advocacy. In Maharashtra, at all levels of
openly on these issues. the provision of technical support and governance
policy development for the child-friendly through
Role of civil society organizations panchayats by UNICEF Maharashtra’s consistent
Social Policy division has been equally advocacy.
Across all case studies, CSOs have played important. In Nepal, the role of
a major role in encouraging the formation UNICEF in conceptualizing, piloting
of children’s groups strengthening and mainstreaming child-friendly local
capacities, and advocating for spaces governance has been acknowledged
for the participation of adolescents and as outstanding. In Bhutan, the National
young people. There was clear evolution Youth Policy review process, led by the
from former approaches of ‘doing Bhutan Centre for Media and Democracy,
something for children’ to advancing has received significant support from
children’s protagonism and their UNICEF. However, UNICEF recognizes
participation in governance. CSOs have that funding challenges have slowed

3 Singh, Chandrika, and Anuradha Nair, Child Responsive Budgeting for Maharashtra – A Way Forward, June 2021 (unpublished submission
to the Government of Maharashtra).

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia xiii
 the logical progression of the various The key lessons that have emerged from
initiatives. Although financial inputs this study are:
from UNICEF, which were critical at  Lesson 1. Wherever opportunities
inception, may not be essential now have been offered to adolescents
due to increased state buy-in, UNICEF’s to participate in the processes of
presence is still seen as crucial for governance, the expression of their
maintaining rigorous processes, capacity agency and protagonism has been
building, and networking and advocacy remarkable, their engagement with
purposes. governance invigorating, and, in some
cases, the development outcomes
Enhancing participation transformative.
Although  Lesson 2. This adolescent energy
financial inputs In Bhopal, Madhya Pradesh, adolescents has been greatly facilitated by efforts
from UNICEF, felt that their participation had improved to inform, train, build capacity, and
which were the work of the SCI by leveraging their organize by CSOs, trainers, frontline
critical at organized strength to assist state workers and local governments,
inception, may agencies to deliver services. The supported by UNICEF.
not be essential
adolescents involved in the initiative
now due to  Lesson 3. Advocacy, policy guidance
have been able to exert influence and
increased state and capacity building by UNICEF at all
claim their rights, both through local
buy-in, UNICEF’s levels of government has paved the
presence is still governance and bureaucratic structures. way for adolescents to collectively
seen as crucial The Maharashtra Child-Friendly Local present their views and ask for
for maintaining Governance initiative demonstrates that accountability.
rigorous the greater the opportunities provided
 Lesson 4. The enthusiastic
processes, to adolescents to participate, the more
participation by adolescents has also
capacity their capacity has developed to organize
had positive impacts on their families,
building, and and contribute to development planning.
elders, communities, CSO workers,
networking As the initiative spreads to the whole of
and advocacy government functionaries and elected
Maharashtra, the opportunities will be
purposes. representatives, at personal and inter-
even greater. In Nepal, UNICEF proposes
personal levels.
to further support adolescents and young
people to engage with governments Good practices for structures and
and civil society and empower them processes that may be emulated for
to develop and advocate for policies scaling-up are:
in the unfolding Child-Friendly Local
 Practice 1. The integration of
Governance programme. In Bhutan,
adolescent participation into
while UNICEF has attempted to enhance
child protection, social protection
youth participation through the review of
and governance efforts through
the National Youth Policy 2011, the scale mapping, research, campaigns,
can be multiplied through structures such and policy reviews, as well as by
as the formerly active Democracy Clubs. building community awareness and
In all cases, it is evident that the initiatives alliances in all available spaces by
taken to enhance participation have adolescents organized at multiple
achieved remarkable success, however, levels of governance, strengthens
scaling them up will require significant their empowerment.
financial and technical support.
 Practice 2. Accessible and simple
modules for sharing information,

xiv Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
 principles, and good practices, when build linkages; include members
they are widely disseminated through of vulnerable and marginalized
training of trainers and peer learning, communities as agents and partners;
serve to build capacities, organize carve out structures for debate and
groups, and provide pathways for advocacy; and learn to use disasters
participation and engagement by as an opportunity to influence policy
adolescent groups. and governance.
 Practice 3. A holistic approach  Recommendation 2. Civil society
that connects children’s well-being organizations should support
and development to the concerns adolescent groups to construct
of their families and communities processes for greater participation;
about issues of livelihood, shelter, help them to build capacities and
Central/federal
citizenship, safety, welfare, education, alliances; and share and nurture
governments
health, transport, and all other social collective learning, visioning and
must uphold
and civic services empowers all action. They also need to democratize international
sections of society. digital technology for participation, and national
 Practice 4. Engaging with all as this is creating another inequity commitments
levels of government to persuade in relation to participation and voice to adolescent
officials, functionaries and agencies in governance. participation;
of the importance of adolescent  Recommendation 3. Central/ ensure policy
participation and to build their f e d e r a l g ove r n m e n t s must commitments
capacities to uphold children’s rights uphold international and national to realizing
provides opportunities for decision commitments to adolescent
participation
rights; provide
makers to engage with children and participation; ensure policy
public institutions
to be accountable to them. commitments to realizing
with support for
Practice 5. As highlighted in the participation rights; provide public
 wider inclusion
ADAP ROSA model for participatory institutions with support for wider
and monitoring;
institutions, building the capacities inclusion and monitoring; implement implement legal
of institutions in the processes and legal instruments for the devolution instruments for
elements specified equips them and of governance to local levels and the devolution
makes them conducive to community uphold the principle of subsidiarity; of governance
and adolescent-engaged planning and ensure that disaster mitigation to local levels
and provision. measures are securely in place at the and uphold the
national level. In addition, adequate principle of
 Practice 6. It is important to capitalize,
resources must be allocated at the subsidiarity.
strengthen and leverage the role of
appropriate levels to realize these
local governance structures (rural and
agendas.
urban) in promoting and advancing
adolescent participation, through  Recommendation 4. Provincial
training, exposure visits and model governments and their partner
building. institutions have to strengthen the
understanding, empathy and capacity
of their functionaries to assist child-
Detailed recommendations have been
friendly participation processes and
offered for each case study and are
structures; suitably recognize and
summarized broadly for the different
reward their frontline workers; evolve
stakeholders as follows:
laws, guidelines and safeguards for
 Recommendation 1. Adolescent promoting adolescent participation in
groups must inform themselves; governance; provide for devolution to
organize democratically within; the lowest tiers of governance; and

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia xv

 sustain a continuous process of including communities, for enhancing
UNICEF should
celebrate evaluation and review. adolescent participation in decision
what has been  Recommendation 5. Local making.
achieved and governments need to demand the  Recommendation 7. UNICEF must
continue to devolution of power and finances; embed adolescent participation as a
strengthen build more structures in which critical strategy across all programme
the ability of adolescents can participate; and sectors, and plan systematic staff
its thematic capacity building regimes for
build convergence in their procedures
sectors to integrating adolescent participation
and policies so that the participatory
embed informed
expression of the needs of adolescents across sectors.
adolescent
and their communities can be met  Recommendation 8. UNICEF must
participation
in the shortest time possible. In also develop operational guidelines,
in policies,
programming, addition, local governments should and support their implementation,
technical develop indicators and processes for strengthening institutional
assistance and for social/children’s monitoring capacities, with specific guidance
policy advocacy and the continued participation on adolescent participation in policy
by strengthening of adolescents and young people processes, planning, implementation,
the capacities in creating communities that are information provision, budgeting,
of governments inclusive. review and evaluation, institutional
and stakeholders,  Recommendation 6. UNICEF should governance, and capacity building
including regimes based on ADAP ROSA’s
celebrate what has been achieved
communities, regional framework for institutional
and continue to strengthen the ability
for enhancing
of its thematic sectors to embed strengthening for participation.
adolescent
informed adolescent participation The ‘Claiming Citizenship’
participation in
in policies, programming, technical AS P I R E f r a m ewo r k ( a g e n c y,
decision making.
assistance and policy advocacy state, participation, inclusion and
by strengthening the capacities of resolutions) may be included as the
governments and stakeholders, lens that governs the implementation
of the operational guidelines.
© UNICEF Nepal

xvi Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
  Recommendation 9. UNICEF  Recommendation 12. UNICEF
must invest in strengthening local must continue to invest in systematic
governance, both urban and rural, and intentional initiatives to build
This is a historic
and through these structures develop the agency of adolescents to be
moment for
models for adolescent and youth informed and capacitated participants
UNICEF to
participation. in governance processes. The four
strengthen the
Recommendation 10. UNICEF must UNICEF supported initiatives here,
 participation
create platforms for adolescent and which need to be sustained, also pillar across
youth participation, including policy provide examples of policies and sectoral areas.
making and monitoring, and invest in practices to be adopted after suitable UNICEF must
developing resources for building the modification. construct a long-
capacities of adolescent and youth term strategy
This is a historic moment for UNICEF to to financially
groups.
strengthen the participation pillar across and technically
 Recommendation 11. UNICEF sectoral areas. UNICEF must construct support
should strengthen the capacities a long-term strategy to financially and initiatives by
of social workers, health workers, technically support initiatives by adolescent adolescent
community workers, frontline workers, groups to learn, mobilize, include, ally, and groups to
and decision makers in health, learn, mobilize,
become active agents for change. We
education, child protection, water include, ally,
hope that the findings of this study and
and sanitation, climate change and and become
the recommendations emerging from
social protection to enable adolescent active agents for
this report will help other countries and
participation. Investing in enhancing change.
initiatives in ROSA’s jurisdiction to further
the potential of youth service officers,
rationalize investment in participatory
youth workers (a professional category
structures for adolescents, including
involved in youth empowerment),
attendant capacity building, systems
and ministries holding portfolios
strengthening, and policy formulation.
and liaising for youth, children and
women’s issues will ensure valuable
and long-term impact.
© UNICEF Nepal

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia xvii
© UNICEF Nepal

xviii Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
 Institutionalizing

1 Adolescent
Participation in
Governance

Background In 1989, global leaders made an

historic commitment to the world’s
Adolescence is an extraordinar y children with the adoption of the United
developmental stage in the lives of Nations Convention on the Rights of
young people.4 As they navigate the the Child (UNCRC). This gave children
world of children as well as adults, they the fundamental right to be heard, to
begin to interact with the world in new influence decisions, and to participate
ways – taking chances, learning skills and in issues that affect their lives. These
experiencing unfamiliar emotions. It is a rights mean the right to ‘agency’ and
critical period of identity formation, during to be ‘protagonists’; to be informed of
which they venture beyond their families policy and programme decisions that
to form powerful connections with their affect them and their communities; and
peers. They search for ways to stand out to engage and participate in making those
and belong, to find their place in society decisions. Recognition of these rights
and make a difference in their world. entails recognizing their views and identity
and also strengthens the accountability
The adolescents of South Asia – which of all duty bearers mandated to provide
make up nearly 350 million people5 – face care and protection to adolescents.
the brunt of social, political and economic
disparities. Poverty and deprivation, Participation is a powerful democratic
gender-based oppression and other forms right, and it also ensures more responsive
of discrimination intersect with climate planning. As young people’s capacity for
change, economic upheaval, conflict empathy, self-confidence, connection and
and displacement to threaten their well- critical thinking increases, so does their
being. Adolescents are economically and perception of citizenship and sense of
socially vulnerable with, for example, being an actor in governance, as they
© UNICEF Nepal

youth unemployment rates consistently receive services as well as contribute to

higher than general unemployment rates society. However, this right – the right to
and as a unique cohort among whom participate in governance – is the least
AIDS-related deaths are not decreasing. respected of their rights the world over.6

4 This study refers to the age group 10–19 as adolescents and 20–24 as youth.
5 UNICEF, ‘Adolescents Overview’, UNICEF, October 2019, <https://data.unicef.org/topic/adolescents/overview/>, accessed 2
November 2021.
6 UNICEF, ‘Adolescent Development and Participation’, UNICEF, undated, <www.unicef.org/adolescence>, accessed 8 October 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 1

 While good practices for children’s and 1924. This declaration affirmed, for the
adolescent’s participation do exist, they first time, the rights specific to children.
are far from being the norm: “Despite Twenty-two years later, in 1946, the
While good constituting a large young demographic, United Nations (UN) created an expanded
practices for adolescents in South Asia are still largely version, which was eventually adopted
children’s and invisible and voiceless. They have limited in 1959 as the Declaration of the Rights
adolescent’s or no access to information and little of the Child.
participation do say in decisions affecting their lives”.7 A
exist, they are far large proportion of adolescents and In addition to this declaration, over
from being the youth are left out of major decisions, the years, several principles rooted in
norm: “Despite especially in the hierarchical societies international law have influenced child and
constituting typical of many cultures in South Asia. adolescent participation in governance.
a large young Cultures of obedience, conformity and The International Bill of Human Rights
demographic,
an overall intolerance of dissent-based emerged out of the horrors of World War
adolescents in
participation are prevalent, limiting II, which led to the Universal Declaration
South Asia are still
adolescent participation in all arenas. of Human Rights in 1948 and, later, the
largely invisible
and voiceless. This culture of exclusion, especially in Covenant on Economic and Social Rights
They have limited governance, affects marginalized groups and the Covenant on Civil and Political
or no access to the most, who are the least buffered Rights, both in 1966. The United Nations
information from unresponsive policy decisions. Convention on the Rights of the Child, the
and little say in backbone of all of UNICEF’s work, was
decisions affecting Principles of participation adopted 33 years later in 1989. UNICEF
their lives.” by children is guided by the various interpretations of
the Articles in the UNCRC provided in the
Eglantine Jebb, founder of Save the General Comments of the Committee on
Children, drafted the historic Declaration the Rights of the Child (CRC) beginning
of the Rights of the Child, which was from 2001.
adopted by the League of Nations in

Figure 1: Three ‘Ps’ of rights: Provision, protection and participation

 Provision of services – which are the

PARTICIPATION responsibility of primary duty bearers such
as the State and other duty bearers like the
family

 Protection from harm and abuse – again the

responsibility of duty bearers

 Participation – the right of rights holders

to determine the nature and quality of the
PROTECTION PROVISION protection and provision that is provided

7 UNICEF, ‘Adolescents in South Asia’, UNICEF ROSA, undated, <www.unicef.org/rosa/what-we-do/adolescents>, accessed 8 October 2021.

2 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Articles 12–17 of the UNCRC enshrine the section’s work. It contains several of the
right of all children, including adolescents, key principles guiding this study. These
to participate in decisions that affect Guidelines clarify in detail a theory of
their lives, to have access to relevant change and principles for adolescent
information, and to a conscience and participation in governance, including
religion. Article 15 recognizes the rights modes of participation. While it has scope
of the child to freedom of association and for modification and enhancement, it is a
freedom of peaceful assembly. Article 3 comprehensive document that lays down
mandates that the best interests of the the principles and methods, including
child shall be a primary consideration strategies, interventions, and tools, for
and Article 6 speaks of a child’s inherent adolescent participation, including in However,
right to life. governance. provision and
protection,
The main sources for the foundations which are
There are three main aspects to the
of the principles (detailed in Annexure what most
concept of rights:8
C) are: programmes
 Universal Declaration of Human related to
These three aspects – or three P’s, children are
Rights, 1948
as they are sometimes called – are focused on,
inseparable and indivisible. However,  United Nations Convention on the
cannot be
provision and protection, which are what Rights of the Child, 1989 said to fulfil
most programmes related to children  General Comment 12 of the children’s rights
are focused on, cannot be said to fulfil Committee on the Rights of the Child, if their right to
children’s rights if their right to participation on the right of the child to be heard, participation
in determining the quality and nature of 2009 in determining
provision and protection have not been the quality
 General Comment 20 of the
and nature of
given due respect. Hence, the right to Committee of the Rights of the Child,
provision and
participation or self-determination is the on the implementation of the rights
protection have
core principle in the rights discourse. It is of the child during adolescence, 2016
not been given
through this rights-based programming  United Nations Convention on the due respect.
that civil society strives to realize all other Rights of Persons with Disabilities,
rights.9 According to Richard Farson, 2006
“The issue of self-determination is at
 United Nations Convention on
the heart of children’s liberation. It is, in
the Elimination of All Forms of
fact, the only issue, a definition of the
Discrimination against Women, 1979
entire concept”.10
 International Covenant on Civil and
Political Rights, 1966
The UNICEF guidance document Engaged
and Heard! Guidelines on Adolescent  International Covenant on Economic
Participation and Civic Engagement11 and Social Rights, 1966
forms a framework for the Adolescent  United Nations Sustainable
Development and Participation (ADAP) Development Goals 2015 (SDGs)

8 UNICEF refers to four categories: right to survival, right to protection, right to development and right to participation.
9 Reddy, Nandana, and Kavita Ratna, Introduction to Child Rights Programming, Dhruva, The Concerned for Working Children, Bangalore,
India, 2019.
10 Farson, Richard, ‘Birthrights’, in Archard, David, Children: Rights and Childhood, Routledge, London, 1974.
11 UNICEF, Engaged and Heard! Guidelines on Adolescent Participation and Civic Engagement, UNICEF, July 2020, <www.unicef.org/
documents/engaged-and-heard-guidelines-adolescent-participation-and-civic-engagement>, accessed 8 October 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 3

  UNICEF Programme Guidance for the Programmes that facilitate adolescent
Second Decade, 2018 capacities of engagement and critical
 UNICEF Strategy Document 2018– thinking are fundamental and a
2021 precursor to adolescent participation
and engagement in governance. The
 UNICEF guidance document Engaged
and Heard! Guidelines on Adolescent
key principles underlying adolescent
Participation and Civic Engagement, participation in governance and civic
2020 engagement that are sourced from
these documents, and the commitments
made by the international community
over several decades, are listed in Box 1.

Box 1: Key principles underlying adolescent participation in governance

 Best interests of the child

 Non-discrimination
 Protection and care within participation
 Right to participate in decisions that affect their lives
 Right to life
 Right to freedom of expression
 Right to freedom of association and peaceful assembly
 Right to development and respect for evolving capacities
 Right to be heard, express views freely and to participate in matters of concern to adolescents
 Right to representation
 Principle of subsidiarity – social and political issues should be dealt with at the most immediate (or
local) level that is consistent with their resolution.
© UNICEF Nepal

4 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

UNICEF initiatives for UNICEF intends to mainstream
adolescent participation meaningful adolescent engagement and
participation as a principle and a process
UNICEF’s Regional Office for South across the five goal areas of education,
Asia (ROSA) covers eight countries: health, child protection, water, sanitation
Afghanistan, Bangladesh, Bhutan, India, and hygiene (WASH) and climate change,
Maldives, Nepal, Pakistan and Sri Lanka. and social protection, with key thematic
Its ADAP section provides technical and strategies, including on mental health,
advocacy input to develop capacities employability, skills, digital education and
and promote adolescent participation climate change, in its new 2022–2025
UNICEF intends
across sectors within UNICEF and in strategic plan. UNICEF’s commitment to
to mainstream
governments. ADAP ROSA notes the reimagining programming with and for
meaningful
need to recognize adolescents’ “evolving children provides exciting opportunities adolescent
needs and developing capacities for for adolescent participation in all of its engagement and
autonomy and expression” 12 and sectors. Evidence and data sit at the participation
for “strategies to be designed, and centre of this reimagining, but there is as a principle
opportunities to be provided for their a paucity of documentation reflecting and a process
full engagement in their communities adolescents’ aspirations, particularly the across the five
and nations, including in decisions at aspirations of the most marginalized, that goal areas of
all levels and in all spheres that affect focuses on the critical link between policy education,
their lives”.13 and adolescent well-being and that puts health, child
adolescents at the centre of enquiry and protection,
water, sanitation
ADAP ROSA’s learning about adolescent planning.14 ADAP ROSA took note of the
and hygiene
engagement and participation in the fact that learning from country initiatives
(WASH) and
2015–2020 period was rooted in the IKEA- linking adolescent empowerment
climate change,
funded project ‘Improving Adolescent processes to governance at all levels was and social
Lives’ in Afghanistan, India and Pakistan. required to create a better understanding protection.
Critical lessons learnt at the time include of the nuances and complexities of such
the importance of placing adolescent initiatives. Accordingly, UNICEF ROSA
empowerment and participation at the partnered with Concerned for Working
centre of cross-sectoral programming, Children (CWC)15 for the present study
while strengthening adolescent agency to strengthen regional understanding
and protagonism, especially of girls, of intentional adolescent participation
considering prevailing gender inequities in governance practices, including
within communities. Also important understanding the complex and nuanced
is the linking of adolescent groups to factors that govern policy- and systems-
local government planning processes, supported participation practices
as well as linking local processes to including implications for evidence-based
national planning in health, education, policy formulation.
child protection, social protection and
other sectors.

12 UNICEF ROSA, South Asia Approach Paper for Adolescent Development and Participation (ADAP) Section: Adolescent-Centric
Programming and ADAP, Draft Paper, UNICEF, 30 November 2020.
13 Ibid.
14 Ibid.
15 CWC is a not-for-profit, secular, democratic development organization based in India with four decades of experience working directly with
children, youth, women, frontline workers, community members and policymakers and with a focus on adolescent-centric and adolescent-
engaged planning. It is a global actor in the arena of children’s rights (see more at www.concernedforworkingchildren.org).

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 5

 Study components related to UNICEF’s commitment
to, and programmes on, adolescent
This study consisted of the following participation in governance, with a
components: particular focus on the ADAP programme
 A scoping study for the selected in UNICEF ROSA (see Annexure D).
countries and case studies, based The tools used by UNICEF to design
on the initial information provided by and implement measurable, evidence-
countries based, equity-oriented and gender-
 Secondary analysis of government responsive cross-sectoral adolescent
policies, structures and mechanisms programmes, aligned with global and
in selected countries for anchoring regional commitments, were examined.
adolescent participation in Knowledge management reports on the
governance concluded UNICEF-IKEA Foundation
It contains the programme ‘Improving Adolescent
 Documentation of case studies with
systematic lives in South Asia’, which supported
in-depth analysis of the quality and
documentation adolescent empowerment programmes
level of adolescent participation,
and analysis in Afghanistan, India and Pakistan, as well
including engagement with
of four as country-led initiatives in Nepal and
government as well as sustainability
initiatives on Bangladesh, were of special relevance.
and replicability
mainstreaming
adolescent  Recommendations for operationalizing
The scoping study was greatly aided
participation and mainstreaming adolescent
by the preliminary information received
in governance participation in UNICEF’s programmes,
by UNICEF on existing adolescent
in different in collaboration with civil society
participation in governance mechanisms
national and organizations (CSOs) and governments
in the four selected case study locations
sub-national
contexts, and the information received from
with a focus This report presents the case studies UNICEF country offices in response to
on the most and recommendations, drawing on the the form sent out by UNICEF ROSA for
marginalized scoping study and secondary analysis. It the preliminary top-line mapping of the
adolescents, contains the systematic documentation ecosystem of adolescent participation
socially, and analysis of four initiatives on in governance in countries covered
economically, mainstreaming adolescent participation by ROSA. Specific definitions (see
politically and in governance in different national and Annexure E) were finalized, as were
ecologically. sub-national contexts, with a focus on the the assumptions (see Box 2).
most marginalized adolescents, socially,
economically, politically and ecologically. In the scoping study, a keen understanding
It includes recommendations for emerged of the constituency, the
sustaining investment in systems that context unique to each local governance
strengthen adolescent participation system, the practice of participatory
in governance, including adolescent democracy, and the role of CSOs and
networks and public sector mechanisms. their relationship with UNICEF. For
discussions with adolescents, specially
These components are detailed in the designed tools were used (Annexure
following sub-sections. F). Discussions with other stakeholders
were based on semi-structured open-
Scoping study ended questionnaires (Annexure G).
Follow-up discussions were conducted
For the scoping study, we reviewed when needed.
both global and regional literature

6 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Secondary analysis of policies, recommended case studies provided,
structures and mechanisms for with due consideration of geographical
adolescent participation diversity, the nature of adolescent
participation, structures of governance
To set the framework for the scoping and the scale of the programmes, the
study, intensive discussions were held following four examples, as suggested
with the ADAP team at ROSA and by UNICEF ROSA, were selected for
UNICEF’s national teams in the India, in-depth documentation.
Bhutan and Nepal country offices. This  Safe City Initiative (SCI) in
helped the CWC study team to familiarize Bhopal, Madhya Pradesh, India:
itself with the legal and policy landscape This initiative is embedded in child
related to the selected programmes, protection interventions and is
their evolution and their present status. undertaken in conjunction with local
The nature of local government, status CSOs, while being rooted in an urban Secondary
of democracy and devolution, and governance framework. research
engagement of stakeholders with the  Child-Friendly Local Governance was also
principles of adolescent participation in (CFLG Initiative), Maharashtra, undertaken on
governance at each location were also India: This project is embedded in the government
discussed. policies, laws
social policy interventions and set
and mechanisms
in a rural governance framework. It
Secondary research was also undertaken in the selected
is the main component of UNICEF
on the government policies, laws and countries
Maharashtra’s partnership with the
that anchor
mechanisms in the selected countries Government of Maharashtra for adolescent
that anchor adolescent participation establishing and implementing child- participation in
in governance, as well as desk-based friendly panchayats.16 governance, as
research and a document review  Child-Friendly Local Governance well as desk-
of significant historical processes Initiative (CFLG), Nepal : This based research
related to adolescent participation in national initiative, formerly a flagship and a document
governance. This included a scan of programme of UNICEF, has close to review of
relevant international conventions and two decades of history and is presently significant
instruments and preliminary research on poised for nationwide coverage.
historical
the political, economic, socio-cultural, processes related
 Review of the National Youth to adolescent
and geographical environment in which
Policy, Bhutan: As a new democracy participation in
the selected case studies are located,
and a constitutional monarchy, the governance.
as well as if there is potential to expand
participation of Bhutan’s youth and
their scope and reach.
adolescents in framing a new National
Youth Policy 2020 through the report
Documentation of the four case Youth Voices: Youth Matters17 is a
studies harbinger of opportunities for the
enhanced participation of adolescents
Informed by the preliminary mapping and youth.
conducted by ADAP and the

16 A panchayat is a village-level elected body for governance in India.

17 BCMD, Youth Voices: Youth Matters Report, Bhutan Centre for Media and Democracy, Thimphu, 30 December 2020, <www.bcmd.bt/wp-
content/uploads/2021/02/Youth-Voices_-Youth-matters-BCMD-Final-Design-layout.pdf>, accessed 8 October 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 7

 Recommendations Equitable and inclusive participation
across different axes of marginalization.19
Based on the findings of the case
study, and drawing on the scoping The principles and the practices in
study and literature review, detailed relation to each of these have been
recommendations are made for each reviewed in the documentation of
case study. the case studies, both in terms of the
principles of children’s participation, as
Approach well as UNICEF’s commitment to the
meaningful participation of children.
Guiding principles
Critical aspects to be examined
This study adheres to all of the
principles enunciated by ADAP ROSA,
During the consultations and literature
including those in Engaged and Heard!
review, some critical aspects of building
Programme Guidance for the Second
capacities and structures for adolescent
Decade18, and other documents. The
participation in governance, which are
following sets of principles, among
both formal as well as informal, were
others, are reflected in UNICEF’s
identified to be examined. These
commitment to the realization of
include:
adolescent rights, as articulated in its
 Specific focus on vulnerable
strategic documents, guidelines, and
adolescents and those requiring
guiding documents:
a tt e n t i o n , i n c l u d i n g t h e i r
 Rights-based approach to ensure
empowerment and agency
participation (Article 12 of UNCRC)
 Interaction between the rights of
 Norm-setting to enhance and support
adolescents and responsibilities and
participation of adolescents
duties of adults
 Respect and support from adults
 Laws and policies enabling or
 Transparency and access to disabling adolescent participation in
information governance
 Accountability and feedback  Accountability of local, national
 Voluntariness and federal structures in enabling
 Adolescent decision-making based participation
on confidence, self-worth and self-  (Continuing) role of UNICEF
esteem
Effect of the COVID-19 pandemic on
projects, issues, functions, and structures
etc.

18 UNICEF, Engaged and Heard! Guidelines on Adolescent Participation and Civic Engagement, 2020.
19 The ADAP section focuses on axes of marginalization such as disability, gender, and age, ethnicity and religion, and social status, as well as
other vulnerabilities.

8 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

 Box 2: Key assumptions related to this study

 UNICEF ROSA is committed to the principles of participation and to enhancing adolescent participation
in governance in a sustainable manner with required technical as well as resource inputs.
 UNICEF ROSA and ADAP are committed to implementing, across UNICEF’s programming in the five
goal areas, the five strategies for adolescent participation and civic engagement, as laid out in the
Engaged and Heard! guidance document.
 UNICEF ROSA and ADAP are committed to building the structures of support for adolescents
wishing to exercise their agency and impact on governance, and to supporting and facilitating CSOs
working with adolescents.
 UNICEF’s country and state teams, including all sectoral platforms in health, education, child
protection, social protection, WASH, climate change and so forth, are ready to acknowledge and
engage with adolescent participation in governance in their contexts, so as to build capacities for
adolescent participation, as relevant to each sector.
 The countries and states identified for this study are prepared to take part in this project and to give
serious consideration to its outcomes.

ASPIRE framework mandate for meaningful adolescent

and community participation in
Five themes emerged while conducting
governance structures?
the preliminary review of the secondary
 Participation: Participation is the
literature – agency, state, participation,
interface between the agency of
inclusion, and resolutions (ASPIRE) –
children and governance structures:
which provide the framework in which
What are the factors that enable
the findings of the case study are
meaningful engagement between
presented:
adult institutions and adolescents
 Agency: Agency is defined as the and adolescent groups? What are
evolving capacity and confidence of the boundaries and limits imposed
adolescents to engage with decision on adolescent participation (direct
makers and structures and their and indirect; individual and collective;
autonomy in expressing opinions and local and national) by state actors,
taking action: Did they drive, initiate adults, and hierarchical structures?
or manage projects? Did they make What are the opportunities for
choices? What was the impact of adolescents to represent themselves
other actors on their agency? in order to question and change those
 State: The mandated role of the state boundaries?
is to integrate and sustain adolescent  Inclusion: Within adolescent groups
participation in governance and there are those individuals who are
ensure subsidiarity in planning, with socially, culturally and economically
the devolution of decision-making stronger and likely to be more
power to the lowest possible tier of articulate, thereby excluding the
government: How are States able already marginalized from participation
and willing to integrate adolescent processes: What actions were taken
participation in governance? How are to promote inclusion, particularly in
current economic forces that transfer relation to viewing and working with
welfare functions from state to non- the most marginalized groups as
state actors influencing the ability and agents and partners?
willingness of States to invest in their

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 9

  Online consultations with relevant
Resolutions: Organizational structures
ministries/departments, UNICEF
determine the nature of adolescents
sectors, partners and CSOs, and
and young people’s ability to exercise
relevant frontline workers on key
agency and influence resolutions and
areas of enquiry (see Annexure B).
decisions. At the same time, those
 Online consultations with active
charged with promoting agency are also
adolescent groups and adolescents
those who set limits and make the rules
engaged in the initiatives studied (see
on translating the exercise of agency to
Annexure B).
enact resolutions and decisions: In such
a context how are adolescents able to  Online consult ations with
influence resolutions and decisions? representatives of all concerned
stakeholders such as service
Areas of enquiry providers, members of child protection
mechanisms, and members of
After the preliminary conversations and national/sub-national decision-making
structures (see Annexure B).
interviews conducted for the scoping
study, an exhaustive list of areas of
enquiry was developed to assess the Consolidation of the recommendations
existing policies and mechanisms for for different constituencies, including
participation, as relevant to each of the UNICEF country and state teams and
case studies identified. These are listed ADAP ROSA.
in Annexure A. To link these areas of
enquiry with the terms of reference The risks implicit in this effort were that:
and deliverables, while recognizing (1) perspectives would be restricted
the ground realities, the following to the secondary literature and the
methodology was agreed upon between limited number of selected respondents
CWC and UNICEF: available online; (2) expectations would
be raised about adolescent participation
Confirmation of UNICEF ROSA’s
in governance; (3) the study would be
selection of case studies in the three
dealing with governance structures
countries for documentation through
already under stress due to COVID-19; (4)
the initial mapping exercise. The
the differing perceptions of governance
selection process involved a review of
and devolution; (5) conflicting ideologies,
the mapping outcomes by ADAP ROSA
priorities and interests within adolescent
and CWC.
groups; and (6) differences in perception
 Preparation of a brief indicative
about adolescent participation among
scoping study, in close consultation
stakeholders.
with advisors and the country offices
in the four study areas in the three
Methodology for case studies
countries, covering the method
of enquiry, secondary review of
Interviews and online
policies, practices and knowledge
discussions
management documents, and
development of tools of engagement.
The CWC team, together with UNICEF
 Analysis of the international and staff, identified the key groups and
national legal and policy frameworks individuals for online discussions
that guide decisions and the (including staff from UNICEF ROSA,
implementation of programmes UNICEF countr y offices, CSOs,
related to adolescent participation in government officials, state agencies,
governance. and adolescents and youth). A structured

10 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

questionnaire was developed, as well as the adolescent groups that were part of
a checklist for focus group discussions the exercise (including how many were
(FGDs), along the lines of the ASPIRE available to attend the discussions online,
framework set out above for the adolescent the availability of internet services etc.).
group discussions. Questionnaires were The broad questions that guided the
provided to participants in advance when development of the tool and the ensuing
required. The discussions with adolescent discussions can be found in Annexure G.
groups, CSOs and state officials were
conducted online in groups or individually, Balloon tool
depending on their availability and the
limitations imposed by the COVID-19 A visual tool (‘balloon tool’) was also
pandemic. These followed a semi- provided to the CSOs for use with
structured open-ended questionnaire adolescent groups (see Box 3).
method, based on the areas of enquiry
developed previously. The tools were The balloon tool was used for online
modified depending on the context of discussions with two groups of

Box 3: The balloon tool

A balloon (representing participation) is illustrated with a basket under it carrying children who are included
in processes, with other children who are excluded from processes standing on the ground. The basket
is tied with pegs to the ground (barriers to participation); there is a fire under the balloon (which improves
participation); there are clouds above the balloon (risks faced when participating); and the sun (reason
why adolescents are participating) shines above the clouds.

Different groups of adolescents are shown the illustration and asked for their views on the different
elements of the illustration. The facilitator from the CSO is present to guide them when necessary to
understand the elements and what they signify; how the two groups of children in the illustration were
formed; what kinds of difficulties they are facing; and what factors and individuals help them.
© UNICEF/UN0346061/Misra

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 11

 adolescents in Bhopal, Madhya Pradesh. nature and scope of issues taken up by
An open-ended, semi-structured online adolescents were of specific interest. We
FGD method was used with adolescents also tried to understand how adolescent
in Maharashtra, Nepal and Bhutan, constituencies are empowered to know,
because the recurrence of COVID made analyse, and demand their rights and
it impossible to use the planned tools. entitlements, for themselves and their
These are outlined in Annexures F and G. communities. The study team explored:
How do they work? What are their
Case studies internal dynamics? How do they address
marginalization and representation? The
In the case studies, in-depth reviews axes of marginalization (gender, class,
of the unique historical, legal and ethnicity, caste, disability and age)
policy ecosystems are included (drawn and the involvement of vulnerable and
from the secondary analysis and the marginalized groups of adolescents in
interviews and discussions), especially each model were also investigated, as far
with respect to democracy, government as possible, given the limitations.
structures and local governance. The
© UNICEF Nepal

12 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

The impact of dissent and push-backs sustainability of its programmes; their The impact
from the State in environments where cross-sectoral transactions; and the of dissent and
there are increasing threats to democracy, degree to which they are embedded in push-backs from
and their effect on adolescent participation government structures/sectoral initiatives the State in
and their security, were also of concern were all analysed. COVID-19 and its environments
in this study. Our inquiries included a immediate and long-term impacts on where there are
review of the opportunities for the agency the case studies, particularly in relation increasing threats
to democracy,
and empowerment of adolescents from to adolescent participation, were also
and their effect
marginalized communities in these explored.
on adolescent
initiatives. The role of UNICEF and
participation and
their security,
were also of
concern in this
study.

Box 4: Context for India case studies

Two of the case studies are set in India, one in Madhya Pradesh and the other in Maharashtra. India has
a population of almost 1.39 billion, with a median age of 28.4 years; 9.6% of the population are in the
stage of early adolescence (10 to 14 years of age) and 10.1% are in late adolescence (14 to 19 years of
age). Males marginally outnumber females in this age group – 20.2% compared to 19.3%.20

In addition to all of the international commitments applicable to India, the National Child Policy21 and the
National Youth Policy have a direct bearing on both case studies. The first National Youth Policy22 was
announced in 1988 for the age group 15 to 35 years. It sought to socialize youth by instilling in them an
awareness and respect for constitutional principles. This was revised in 2003 to change the age group to
13 to 35 years and focused on the need for developing future leaders who would lead the fight against
all manner of inequalities. In 2013, the government announced its commitment to safeguard, inform,
include, support and empower all children below the age of 18 years in the National Policy for Children.
This policy recognizes the right of children to express their views in matters affecting them. The National
Youth Policy was revised23 again in 2014 to define youth as a group between 15 to 29 years and the vision
is to empower youth to achieve their full economic and social potential.

20 Worldometer, ‘India Population’, undated, <www.worldometers.info/world-population/india-population>, accessed 18 August 2021.

21 Ministry of Women and Child Development, The National Policy for Children, 2013, Gazette of India, Part I-Sec.1, New Delhi, 2013, <www.wcd.
nic.in/sites/default/files/npcenglish08072013_0.pdf>, accessed 18 August 2021.
22 Mukherjee, Jhumpa, and Shoma Choudhury, ‘Revisiting the National Youth Policy’, Economic and Political Weekly, Vol. 45, Issue No. 26–27,
Mumbai, 2010, <www.epw.in/journal/2010/26-27/commentary/revisiting-national-youth-policy.html>, accessed 18 August 2021.
23 Press Information Bureau, Introduction of National Youth Policy – 2014, Government of India, Ministry of Youth Affairs and Sports, New Delhi,
2014, <www.pib.gov.in/newsite/PrintRelease.aspx?relid=102398>,accessed 18 August 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 13

© UNICEF/UN0570142/Altaf Ahmad

14 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

2 Safe City Initiative,
Madhya Pradesh, India

“They [the children] have a clear understanding of the Bhopal Municipal Corporation
[…]. For a common citizen it is difficult to understand where to approach. The Safe City
Initiative helped children to associate and understand the organization structure,
who to interact with and so on; for example, there were no streetlights and there was
street harassment due to that – they got in touch with our team, and interacted with
the local parshad [councillor], and got a street light installed.”

KVS Choudhary, IAS

Commissioner, Bhopal Municipal Corporation,interview (online) with CWC, June 2021

“Many suggestions have been given by you related to infrastructure, related to lack of
drinking water in schools, separate toilets for girls and boys, electricity, liquor shops
near the school… Do identify these concerns and inform us, and we will definitely
take appropriate action.”

Mallika Nigam,
Additional Commissioner, Bhopal Municipal Corporation
(in response to children who raised various issues during Bal Samvad [Child Dialogue]
2017) 24
© UNICEF/UN0276228/ Boro

Introduction in governance in India. This initiative,

which is based in Bhopal, Madhya
The Safe City Initiative (SCI) is a unique Pradesh, has been active since 2014
urban example of children’s participation and embodies a strategic approach to

24 UNICEF Madhya Pradesh, Bal Samvad, Video, 2017.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 15

 upholding children’s right to protection Issues faced by children in
within a rights framework. Children’s Madhya Pradesh
right to participation has been embedded
– intentionally and strategically – in this Madhya Pradesh is the second largest
framework since its inception. state in India by area and is also home
to the largest tribal population (21.1%).26
The initiative
started with a Working in close conjunction with the The indigenous tribes are generally
community-led Government of Madhya Pradesh and considered to be the most economically
participatory CSOs, UNICEF Madhya Pradesh began marginalized and deprived groups in
mapping the SCI as an urban slum-focused initiative the region, especially as they inhabit
exercise aimed at building safe communities for the forested and hilly areas. Madhya
involving children in response to the high levels Pradesh has committed to achieving the
children and of violence against children in the state. 2030 Sustainable Development Goals.
youth in eight It was also an attempt to operationalize However, the data related to the SDG
electoral wards child protection services in urban areas, indicators shows there are significant
of Bhopal, with especially given that these services are challenges that need to be overcome
the results
mostly designed for rural communities. to meet this commitment. Published
informing the
In addition, the initiative emphasized in 2020, the 2018 Sample Registration
design of the
robust community-based protection System Statistical Report 27 records that
programme,
focusing mechanisms. the state has the highest infant mortality
on systems rate, at 54 per 1000, with 31,586 deaths in
strengthening The initiative started with a community-led 2018; and, in 2019–2020, Bhopal had the
and empowering participatory mapping exercise involving highest number of infant deaths out of
children, children and youth in eight electoral wards all districts, with 1,431 deaths.28 Gender
adolescents and of Bhopal, with the results informing the inequity is a major concern, as reflected
community design of the programme, focusing on in the high under-five mortality rate for
members to systems strengthening and empowering girls; it is also reflected in fewer female
develop a children, adolescents and community newborns being admitted to the special
protective members to develop a protective and newborn care unit than boys. The 2015–
and safe
safe environment for children.25 The 2016 National Family Health Survey 29
environment for
programme is now gearing up for shows that Madhya Pradesh has a high
children.
expansion into more cities of Madhya stunting rate of 42%. In addition, in the
Pradesh, steered by the Government of under-five age group, 3.3 million children
Madhya Pradesh, with technical support are stunted and 2.7 million are wasted.30
from UNICEF Madhya Pradesh. The SCI
has tremendous potential to inform and Although the enrolment rates for
stimulate a ‘safe city concept’ that is elementary school are high in Madhya
grounded in children’s participation in Pradesh, the learning achievement
the region. surveys show that learning levels in

25 UNICEF Madhya Pradesh and Action for Children’s Environments (ACE), A Safe City for Children in Bhopal – Infographic, UNICEF and ACE,
New Delhi and Bhopal, December 2018.
26 Seven Scheduled Tribes have been recognized as ‘Primitive Tribal Groups’ in Madhya Pradesh: Pahari Korwa, Baiga, Avujhmariya, Bhariya,
Kamar, Sahariya and Birhor.
27 Government of India, Sample Registration System Statistical Report 2018, Figures at a Glance, Office of the Registrar General and
Census Commissioner, India, Ministry of Home Affairs, New Delhi, June 2020.
28 Saxena, Deshdeep, ‘Madhya Pradesh Tops National Chart with Highest Infant Deaths in 2019–20’, The Times of India, 17 July 2020, <www.
timesofindia.indiatimes.com/articleshow/77007337.cms>, accessed 13 September 2021.
29 International Institute for Population Sciences (IIPS) and Inner City Fund (ICF), National Family Health Survey (NFHS-4), 2015–16: India,
IIPS, Mumbai 2017.
30 Ibid.

16 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

the early grades are poor. In addition, it (Table 5B.1).37 This is an increase from
is estimated that 450,952 children are 2014, when the National Crime Records
out of school, the majority of whom Bureau ranked Bhopal 15th out of 53
are from marginalized families.31 The mega cities for kidnaping and abduction
annual average dropout rate at the upper (Table 2.2) and there was not a single
primary level is 7.6%, which is higher case under the Juvenile Justice (Care and
The Safe Cities
than the national average of 5.6%.32 In Protection of Children) Act (Table 2.4).38 Initiative was
addition, the 2011 Census estimates that conceived by
there are approximately 700,000 child About the project UNICEF India
workers aged 5–14 years in the state. in its 2012–2017
According to UNICEF India, the state Genesis of the initiative plan to develop a
“faces challenges in ensuring inclusive ‘safe community’
equity and sustainable quality in its The Safe Cities Initiative39 was conceived model for
service delivery mechanisms”.33 by UNICEF India in its 2012–2017 plan to children in three
develop a ‘safe community’ model for cities: Bhopal
In 2020, the National Crime Records children in three cities: Bhopal (tier-240 (tier-2 city),
Mumbai and
Bureau reported34 that Madhya Pradesh city), Mumbai and Kolkata (tier-1 cities),
Kolkata (tier-
had the highest number of crimes against with the intention that such models
1 cities), with
children in the country, with 17,008 could be replicated in similar cities in
the intention
cases,35 mainly of kidnaping, abduction India. According to Lolichen Pullemplavil, that such
and rape. It also has the highest UNICEF Child Protection Specialist, the models could
number of juveniles in conflict with SCI was initially anchored around a child be replicated in
the law (4,819) and the second highest protection framework in urban spaces, similar cities in
number of children registered under not as an issue-based, but as a system- India.
the Protection of Children from Sexual based, initiative.41 The initiative is not just
Offences (POCSO) Act.36 According to the about addressing child labour or child
same report, Bhopal city ranked highest marriage or the issue of children on the
among 34 metropolitan cities in 2020 for streets in programmatic silos, but trying
kidnaping and abduction cases (Table to make the entire city safe for children
2D.1) and crimes committed by juveniles through a systems approach.

31 UNICEF, ‘Children in Madhya Pradesh’, UNICEF India, undated, <www.unicef.org/india/where-we-work/madhya-pradesh>, accessed 13

September 2021.
32 Department of School, Education & Literacy, ‘District Information System for Education 2016–2017’, UDISE+, Ministry of Education,
Government of India, undated, < https://udiseplus.gov.in/>, accessed 10 January 2022.
33 UNICEF, ‘Children in Madhya Pradesh’, undated, <www.unicef.org/india/where-we-work/madhya-pradesh>.
34 National Crime Records Bureau, Crime in India 2020, Statistics – Volume-1, National Crime Records Bureau, Ministry of Home Affairs,
Government of India, 2020.
35 Total number of cases registered under the Indian Penal Code, 1860 and under Special and Local Laws (SLL).
36 Ibid., note 30.
37 Ibid.
38 National Crime Records Bureau, Crime in India 2014, Tables, National Crime Records Bureau, Ministry of Home Affairs, Government of India,
2014.
39 Josantony, Joseph, Roshni Nuggehalli, and Santosh Shinde, Review and Upscaling of Strategies that Emerged from “Safe City Initiative”,
UNICEF, Bhopal, 2018.
40 Indian cities are classified as X (tier-1), Y (tier-2) and Z (tier-3) by the government based on the population density. There are eight metropolitan
tier-1 cities (Delhi, Mumbai, Bangalore, Chennai, Hyderabad, Kolkata, Ahmedabad and Pune), 104 tier-2 cities, and the remaining fall into the
tier-3 category.
41 Interview (online) with CWC, August 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 17

 Box 5: Adolescent participation

“We used to fight among ourselves with people abusing each other saying you have filled more water
than others. So we decided to make a group and started discussing the problems we faced – water,
illness, beating of children, etc. We had a meeting of our Azad Jugnu Club and discussed the water
problem. Together we went to Geeta Tomar, the Councillor for our Ward, and submitted an application
to her – we visited her office two or three times, but to no avail – so we put more pressure… and
finally ensured that a tanker came…”
Source: Azad Jugnu Club members of Gautam Nagar, Ward no. 58, in ‘Bringing Water Home’ (short film) 42

UNICEF’s strategy UNICEF India’s 2013–2017 Country

Programme Document43 highlighted
While the SCI fell broadly under urbanization as one of the three lenses
UNICEF’s child protection mandate, for programming, along with social
UNICEF’s strategy UNICEF Madhya Pradesh recognized inclusion and gender. The SCI evolved in
was to render the importance of child participation close conjunction with the Government
children visible, and chose to integrate participation into of Madhya Pradesh and UNICEF Madhya
enhance their the protection agenda in a systematic Pradesh, which identified government
role in designing manner. This meant including the most spaces where children received services
the process of
marginalized in the initiative as agents of regularly and could be further engaged
participation and
change, instead of seeing them merely as in the initiative, such as anganwadis
enable child-
beneficiaries. UNICEF’s strategy was to (childcare centres), schools, primary
led research to
identify their render children visible, enhance their role health centres, and police stations.
protection needs. in designing the process of participation The idea was to facilitate children to
and enable child-led research to identify influence these institutions through their
their protection needs. This would inform participation. UNICEF Madhya Pradesh
child-led advocacy on protection needs in worked closely with government officials
the community, and children would then and departments to sensitize them to
be linked to government systems and listening to and acting on suggestions
schemes to meet their needs. Quality made by the children.
engagement was ensured through the
periodic review of participation modalities
and outcomes.

Box 6: Participatory mapping

The participatory mapping44 was carried out by children and youth in bastis (slum settlements) in six
wards of the city, supported by adults and with technical support from the CSO, Action for Children’s
Environment (ACE). The seven themes they explored were safety and security, protection, environment,
education, health, recreation, and participation. The methods used were household surveys, observation
checklists, focus group discussions, risk mapping through transit walks, and interviews. Both physical
and social vulnerabilities were identified, and the children were able to locate safe and unsafe places
in their part of the city.
Source: A Safe City for Children in Bhopal: Mapping with Children 45

42 UNICEF Madhya Pradesh and Muskaan, Bringing Water Home, Short Film, UNICEF, 2017.
43 Internal document.
44 UNICEF Madhya Pradesh and ACE, A Safe City for Children in Bhopal – Infographic, 2018.
45 UNICEF Madhya Pradesh and ACE, A Safe City for Children in Bhopal: Mapping with Children, UNICEF and ACE, New Delhi and Bhopal,
2017.

18 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

 participation processes in other
Some programme factors that enriched
locations.
the participation processes in the SCI
included:
 The continuous engagement of,
Children of the Safe City
and advocacy with, government
Initiative
functionaries on integrating child
participation across the planning
In the last 2011 Census, Bhopal had a
process so that plans prepared by the population of 1.8 million. There were 380
children at the basti (slum settlement) registered slums in the city with over
level could be integrated into 183,989 households containing more than
government initiatives and schemes. half of the city’s population. In addition,
a further 120 to 150 unregistered slum
 The capacity building of government
pockets were reported. It is also estimated
functionaries for child participation
that 9% of all children in Bhopal city
to enable a systemic approach. To
between 5 and 19 years are engaged in Field
actualize this, UNICEF conducted
some form of labour such as employment observation
several workshops to introduce the
at dhabas (roadside eateries), tea stalls visits were
concept of children’s participation to also arranged
and restaurants, meat stalls, garages,
government functionaries and elected by UNICEF for
domestic labour (particularly of girls), rag
members of local government. its partners to
picking, construction, and various forms
 Appropriate civil society partners obtain first-
of vending (e.g., newspapers, vegetables,
with youth engagement experience hand exposure
scrap, etc.). Children are also involved
were selected to enhance the quality to ideas and
in street-based activities, especially at practices from
of the process and embed the
traffic signals, including begging and evolved child
community engagement processes
selling knick-knacks.46 The migration of participation
they had developed in participatory
children, with families or by themselves, processes in
planning, with guidance, review and
is also a serious concern, as this is a other locations.
mentorship provided by UNICEF.
major reason for children coming into the
 Field observation visits were also city. Bhopal is a railway junction and there
arranged by UNICEF for its partners are a number of children either on the
to obtain first-hand exposure to ideas move through the railways or who fend
and practices from evolved child for themselves on the railway platforms.

Box 7: Slums of Bhopal

Most slums in Bhopal are located in the heart of the city, as opposed to on the outskirts, which is
the case in many urbanizing cities. At least four of the six slums in the study are in areas considered
untenable due to geographical constraints, such as hilly terrain or lakes. Such locational characteristics
put them at risk, with frequent episodes of fooding, waterlogging, and disease outbreak. Children
living in settlements are exposed to environmental hazards and experience frequent bouts of illness.
Source: A Safe City for Children in Bhopal: Mapping with Children,
Key findings and impacts of hazards on children 47

46 UNICEF Madhya Pradesh and ACE, A Safe City for Children in Bhopal – Infographic, 2018.
47 UNICEF Madhya Pradesh and ACE, A Safe City for Children in Bhopal: Mapping with Children, 2017.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 19

 The focus of the SCI has been on the in 15 wards. Other partners that have
marginalized children of Bhopal, who are contributed to the programme include
at greatest risk and in need of protection. the Uday Social Development Society,51
The marginalized include poor migrants the National Institute of Women, Child
who belong to tribal groups, Scheduled and Youth Development (NIWCYD)
Castes, Other Backward Communities Bachpan,52 Aide Et Action,53 Debate
(OBCs) and religious minorit y Lok Nyas,54 and Action for Children’s
communities, as well as street children, Environment,55 among others.
working children and orphaned children,
all of whom have little access to services Most of these partners began working
and are discriminated against by virtue of with children in their respective
their sometimes multiple marginalizing constituencies, but have learnt from their
identities. The transformation of this experiences to take up other issues.
cohort from a set of beneficiaries into a Muskaan, for instance, tried to get tribal
The group that claims and realizes their rights children admitted into formal schools, but
transformation was UNICEF Madhya Pradesh’s focus in the children felt alienated by the language
of this cohort this initiative. and the textbooks and faced prejudice
from a set of from teachers. The organization realized
beneficiaries
Partners that issues of malnutrition, gender and
into a group
ethnic violence had to be addressed,
that claims and
UNICEF Madhya Pradesh in collaboration together with school enrolment. Similarly,
realizes their
rights was with the Department of Women and Aarambh began capacity building for the
UNICEF Madhya Child Development (DWCD), Madhya self-employment of street children, while
Pradesh’s focus Pradesh Government, Madhya Pradesh training them on their legal rights as
in this initiative. Police and Bhopal Municipal Corporation, child labourers. At the same time, they
worked with three CSOs – Aarambh,48 took up community issues of inadequate
Eka Communicators’ Collective49 and water and sanitation. Eka began working
Muskaan50 – to pilot an initiative to with the minority community in the old
create child safe environments in city, which led to a focus on working
Bhopal. This was initially a three-year children. Uday, which joined SCI after the
programme (from 2014 to 2017) and pilot, set up coaching centres for slow
the focus was on all the children in learners and dropouts from the slums,
over 2,700 households in 12 selected then mobilized women self-help groups
bastis (slums) in the city. From early for community-based programmes for
2018, the SCI was re-strategized, both health and waste management, and
in terms of its programming approach linked them to government schemes.
and partnerships, and scaled up to cover Hence, these CSOs have all found that
the entire city of Bhopal. From 2018, the the rights of marginalized children are
initiative prioritized system strengthening linked to their community issues, and
across the city, while community- that education plays a role in empowering
based interventions were deepened children and their families.

48 www.aarambhbpl.org/about-us.html>,.
49 www.ekabhopal.com>
50 www.muskaan.org/about/history>
51 www.udaysocietybhopal.org>
52 <www.niwcyd.org>
53 <www.aea-southasia.org>
54 <www.debateloknyas.com>
55 <www.acetrust.net>

20 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Implementation of pilot of marginalized groups from beneficiaries
into agents.
This sub-section describes the process
of implementing the SCI pilot. The The mapping exercise revealed
steps were progressive as well as vital indicators about the children’s
simultaneous and included participatory vulnerabilities on which they could build
mapping and collectivization, support advocacy: 74% were affected by water-
and engagement with governance, and borne diseases; 32% of boys and 31%
review and replication.

Box 8: Safe City Initiative pilot

“The pilot focused on developing a strengthened and functional system that delivers preventive and
responsive services for children, nurtures the agency of children and empowers communities for the
protection of children. Influencing urban development planning to integrate safety and protection of
children was central to this model. Child-led participatory mapping helped children understand their
own vulnerabilities and their rights… they took the lead in finding solutions to their problems.”
Source: The Bhopal Model – Safe City for Children (Short Film) 56

Participatory mapping and girls dropped out of primary school; and

collectivization of children although 69% felt that the police were
accessible, only 15% said they were
The pilot phase of the Safe City Initiative responsive. The children felt unsafe at UNICEF
began in 2014. UNICEF identified and police stations, cinema halls, liquor shops, identified
engaged with CSOs as implementing busy roads, and under bridges. There was and engaged
partners, building on their existing child fear of gamblers and drunkards at play with CSOs as
participation experience and expertise sites, of sexual harassment and bullying, implementing
in order to create a holistic and inclusive and of restrictions by adults. More than partners,
building
participation model for governance. 85% felt that the authorities were not
on their
UNICEF organized meetings with its responsive to their problems.58
existing child
partners to “organically build a cohesive
participation
participation agenda that linked young The outcomes of the child-led mapping experience
people and their voices on safety to brought out the nuances of children’s and expertise
systemic local government responses”.57 realities, which emerged from processes in order to
The partners began by prioritizing children in which they were proactive and create a holistic
in the selected 12 bastis (slums), and affirmative. Such processes go beyond and inclusive
basti-specific children’s groups were conventional research, which may not participation
invited to participate in designing and capture the full picture of children’s model for
implementing the tools for mapping their realities. Equally important is the fact governance.
vulnerabilities, interpreting the data that that, in child-led mapping, children also
emerged, and making decisions about own their information and are more likely
how to raise their concerns with the to use their findings for their own analysis
authorities. This was a critical element and advocacy, which is necessary for
in conceptually transforming the children the meaningful participation of children.

56 UNICEF Madhya Pradesh, The Bhopal Model – Safe City for Children, Short Film, UNICEF, 2017.
57 Lolichen Pullemplavil, Child Protection Specialist, UNICEF Madhya Pradesh, interview (online) with CWC, August 2021.
58 Ibid.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 21

 Box 9: Ethical protocols for participation

Mapping with children needs to be anchored in strong ethical protocols that range from maintaining
confidentiality on sensitive issues to ensuring that children are safe and not exposed to different forms
of abuse. Researchers anonymized the data to protect the identities of the children and community
members participating. Due consideration was given to involving different groups of children or individual
children, taking into account age, gender, disability and other aspects of identity and inclusion.

Considering the sensitivity of issues relating to children’s experiences of growing up in slums, each
local mapping team included staff trained in listening and providing psychosocial support to children.
The local teams were also aware of referral services in the area, in case of the disclosure of abuse or
other significant concerns during the mapping.

Data, especially visual data, generated by any method that takes time for the children to create, should
clearly be owned by the children themselves. Researchers in the mapping ensured that the data was
recorded, leaving the original outputs in the custody of UNICEF’s partners at the Child Resource Centres,
where the children can easily access their work (this was necessary to protect the children from any
kind of risk if they took these materials home or to other community settings).
Source: A Safe City for Children in Bhopal: Mapping with Children 59 and Infographic 60

Support and engagement with shared experiences on child and youth

governance participation and UNICEF provided
key inputs to develop the conceptual
As these patterns emerged from the perspective – which was then woven into
mapping, a three-day participatory the project design. Resource centres and
workshop was organized by UNICEF basti-level child protection committees
Madhya Pradesh, at which non- were set up to support the children’s
governmental organizations (NGOs) groups, as well as promote the formation
working in both urban and rural areas of federations and alliances.

Box 10: Collective strength: Federating children’s groups under the Safe City Initiative

Under the Safe City Initiative, children’s groups were formed in 15 out of 85 wards in Bhopal city,
Madhya Pradesh. In 2018/19, when the children’s groups had evolved and strengthened their capacities,
the groups federated at the programming cluster level (at the level of each partner) and at the Bhopal
city level. The key objectives of federating the children’s group included:
 To develop a sense of solidarity, collective strength, and representation among various children’s groups
at the community level, for stronger advocacy and actions on child rights
 To enhance coherence for action and advocacy

The process of forming the federations was supported by the CSO Muskaan, which also played a key
role in advocating for the identity and acceptance of the federated structures, in collaboration with
UNICEF Madhya Pradesh.61

59 UNICEF Madhya Pradesh and ACE, A Safe City for Children in Bhopal: Mapping with Children, 2017.
60 UNICEF Madhya Pradesh and ACE, A Safe City for Children in Bhopal – Infographic, 2018, pp. 23–24
61 Seema Deshmukh, Programme Coordinator, Safe City Initiative, Muskaan, interview (online) with ADAP, UNICEF ROSA, November 2021.

22 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

 The formation of cluster-level federations by children was consolidated into the Bhopal city-level
Federation under the Safe City Initiative. The criteria for the selection of children included ability to
represent and collaborate; a demonstrated understanding of child rights; and inter- and intra-group
communication, advocacy and delivery skills. The formation of federated structures also ensured
gender and community diversity.

Federation has been very effective in strengthening the voices of children in their advocacy with the
government system. It created an enabling environment for listening to children, and addressing their
issues.62 According to Seema Deshmukh of Muskaan, the federated children’s clubs allowed for the
consolidation of children’s issues, and gave the children a collective voice and identity. Children were
also able to understand the issues of other children’s groups, such as those faced by de-notified tribes
(DNTs) and children in settlements. They were also able to collectively understand the laws and policies
that affected their lives, such as those affecting children in detention, which enabled them to challenge
institutions that did not uphold these laws. The involvement of marginalized groups, such as girls from
DNTs and boys from settlements, in policy discussions has also been enabled through this structure.63

Through the federated structure, children were able to carry out collective multiple-cluster actions as
part of the Aagaz: Voices for Child Protection (Aagaz meaning ‘the beginning’) campaign, enabling
city-wide visibility. Members of the federation played an active role in the study Ripple Effects of the
Pandemic: Evidencing Violence Against Children in the Context of COVID 19 in Urban Areas of Bhopal
– A Participatory Study with Children;64 their contribution included identifying representative children
from across the city through clusters for participating in the study, and collecting data through group
discussion and one-to-one peer interviews. They used the findings from the study to advocate with
stakeholders at their local, district and state level.

While continuing the good work has been a challenge during COVID, at the time of this report, the
meetings and engagements have restarted.65 Under the Aagaz initiative, some of the federation members
have received an Aagaz internship, and they intend to use to strengthen the federation initiatives. As a
part of this revival, during annual Child Rights Week, they have coordinated many activities, including
child rights webinars, bal melas (children’s cultural, sports and arts events), and so on.

UNICEF, jointly with its CSO partners labour and the DWCD), secretaries to
and children, has organized extensive the Government of Madhya Pradesh,
and sustained advocacy addressing ministers, elected representatives
municipal corporation functionaries, including members of parliament, and
commissioners, senior police officers, High Court judges. This has enabled
and senior bureaucrats in different children’s groups and federations of
departments (such as for education, groups to place their concerns before

62 For example, see: Patrika, ‘Expectations of Children from New Government on Occasion of Child Rights Day, Patrika, 14 December 2018,
<https://epaper.patrika.com/nationaledition/madhyapradesh-chhattisgarh/2021-12-27/199/page-1.html>, accessed 10 January 2022; and
Muskaan, Impact of COVID-19 on Children’s Education, 2020–2021, A Mini-Study by Youth Groups and the Children’s Federation, in
collaboration with Muskaan, Bhopal, Madhya Pradesh, 2021.
63 Seema Deshmukh, Programme Coordinator, Safe City Initiative, Muskaan, interview (online) with ADAP, UNICEF ROSA, November 2021.
64 UNICEF, The Ripple Effects of Pandemic: Evidencing Impacts of COVID 19 on Violence Against Children in Urban Slums of Bhopal,
UNICEF Madhya Pradesh, 2021.
65 Rashtriya Hindi Mail, ‘Making Bhopal the Safest City in the Country for Children’, Rashtriya Hindi Mail, 14 February 2021, <http://epaper.
rashtriyahindimail.in/epaper.php?city=bhopal&date=271221>, accessed 23 December 2021; People’s Samachar, ‘Puppet Show Performed to
Convey Child Marriage is Wrong’, People’s Samachar, 14 December 2021, <https://epapers.peoplessamachar.in/epaper/edition/6530/bhopal-
city>, accessed 23 December 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 23

 authorities and obtain their responses potential partners, and scale were
and assurances for follow up. The key gauged. The review also made valuable
element in this exercise was that children recommendations, and those found
had to be organized. As Shivani Tarneja relevant by UNICEF and the CSOs
of Muskaan said, “We have been able were integrated into partnership plans,
to build a positive equation with WCD based on the situation of children in the
[women and child development], but we programme areas and their external
find change happens only when there is environments.
pressure from the community”.66
Methodology
“Many children’s groups have been
able to make a dent in informal This case study was documented
governance spaces for children and mainly through online interviews
women […] the outcomes we see […] conducted with adolescents, CSOs,
which has also sustained [has been] anganwadi (child care) workers, police
a kind of acceptance of the visibility personal and government officials.
of children as influencers, having Special tools were developed for the
opinions.” discussions with adolescents including:
Source: UNICEF Madhya Pradesh, (1) a simple Q&A based on the ‘areas
interview (online) with CWC, of enquiry’; (2) guided focus group
4 September 2020
discussions regarding children’s own
organization and their engagement with
Review and replication the initiative; and (3) administration of
the balloon tool to learn about children’s
The programme implementation included collectivization (see Annexure F for tools
quarterly review meetings conducted of engagement). Unfortunately, due to
by UNICEF with its partners, in which restrictions imposed to curb the spread
issues and challenges related to the of COVID-19, not all online consultations
participation of children were discussed. with adolescent groups (informal and
This facilitated peer learning, critical unorganized) could be carried out.
review, and strategic planning, with a
focus on children’s agency and building Online interviews were conducted with
the capacities of CSOs, as well as the 15 adolescents selected by Muskaan
UNICEF team, to facilitate children’s and 6 by Uday from among their
participation. children’s groups. Seven adolescents
from Aarambh’s programme areas were
At the end of the pilot period in supposed to join, but could not do so,
2018, a comprehensive review 67 was because of COVID-19 safety protocols;
commissioned by UNICEF, in consultation instead, we received a description
with children, community members, of their activities from Aarambh. The
CSOs and all other stakeholders to tool for assessing the knowledge and
assess the merits and scope of the experiences of the adolescent groups
strategies, including participation was used only in this case study and
strategies, employed in the pilot. Their only with one group from the DNT
potential for replication, possible ways community, which was facilitated
forward in terms of opportunities and by Muskaan, as COVID restrictions

66 Shivani Tarneja of Muskaan, interview (online) with CWC, 20 January 2021.

67 Josantony, Joseph, et al., Review and Upscaling of Strategies that Emerged from “Safe City Initiative”, 2018.

24 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

prevented its application in the other three Agency
case studies. Twenty-two adolescents
participated in the balloon tool exercise Agency is defined as the evolving capacity
conducted by Muskaan and another set and confidence of adolescents to engage
of tribal children who were not part of with decision makers and structures and
any group were also asked to participate their autonomy in expressing opinions
in the balloon tool exercise. In addition, and taking action: Did they drive, initiate
two Muskaan facilitators who conducted or manage projects? Did they make
the exercise filled in forms to share their choices? What was the impact of other
perceptions. The three CSOs that took actors on their agency?
part in the online discussions on two
occasions were Muskaan, Aarambh, and Evolving adolescent capacity to
Uday. We were unable to interact with engage
Eka and NIWCYD Bachpan. They had
The adolescents we interviewed had expressed
Six anganwadi (child care) workers participated in the mapping exercise their agency
selected by UNICEF took part in one in their localities and mobilized around by interacting
online group discussion and individual adolescent issues such as child with officials
and decision
online interviews were held with the marriage, abuse of and violence against
makers. The
Commissioner of the Bhopal Municipal children, child labour, school admission,
UNICEF office
Corporation, the Additional Director ‘eve-teasing’ (street harassment),
for Madhya
General (Training) of Madhya Pradesh playgrounds, and police atrocities, Pradesh
Police, the accountant at the Zonal Office among other things. They had expressed reported
of the Bhopal Municipal Corporation, a their agency by interacting with officials that the
ward officer, the Zonal Officer for Zone 5, and decision makers. The UNICEF office participation
an Assistant Director and Joint Director for Madhya Pradesh reported that the capabilities of
of the DWCD Bhopal District, a labour participation capabilities of adolescents adolescents
inspector, the District Education Officer have been greatly enhanced by the SCI.68 have been
from the Bhopal Education Department, greatly
and two ex-councillors for Bhopal Our exercises with adolescents enhanced by
Municipal Corporation from different revealed many facets of their evolved the SCI.
wards. Interviews were also conducted understanding of participation in local
online with the Child Protection Specialist governance. The balloon tool (see
and Child Protection Officer at UNICEF ‘Methodology’, Chapter 1 and Annexure
Madhya Pradesh and UNICEF’s Regional F) exercise was conducted with two
Advisor for South Asia for ADAP. Many groups of adolescents in Barkhedi –
conversations took place during this one group that was included in the SCI
time with three members of UNICEF and another that was excluded – and
ROSA, both online as a group as well it showed the different ways in which
as separately over the phone. the included and excluded adolescents
thought of different issues, their aims
Findings and goals for the future, and the factors
holding them back. Figure 1 shows how
The findings of the case study are much more agency was expressed
presented according to the ASPIRE by the included group than the group
framework set out in Chapter 1. excluded from the initiative.

68 UNICEF, ‘Children in Madhya Pradesh’, undated, <www.unicef.org/india/where-we-work/madhya-pradesh>.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 25

 Figure 2: Expression of agency by adolescents included in and excluded from the SCI

Organized adolescents included in SCI Unorganized adolescents excluded from SCI

Aims: Get land titles; live in a clean place in a Aims: Enjoy ourselves; get good work; earn more;
pucca house; eat two square meals a day; stop fly kites on the basti road; get two good meals a day
child marriage; study up to college level (especially
girls)

Achievements: More children (especially girls) NA

can read; violence reduced; basti (slum) road built;
identity papers received; waste bins constructed;
child marriage decreased
Weaknesses: It must be good to work together*
Weaknesses: Rude behaviour in government (referring to the children in the basket); feel bored
offices; not all children organized*; community in meetings; cannot read and write; unable to
discrimination against girls understand; feel shy

Strengths: Community support; elected NA

representatives; CSO workers; some officials;
need to converse with and organize the excluded
around their* dreams

* The statements in bold relate to the expression of agency and organization by excluded/included groups.

26 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

What stood out clearly is the sense of Impact of other actors on agency
entitlement of the organized adolescents,
their clarity about the accountability of Adolescents commented on adult
duty bearers to them, and their own support and willingness to listen, but
commitment to raising issues. In addition, also on adult resistance to action on
they seem to grasp that the sense of issues such as domestic violence. This
agency they have acquired needs to be is supported by the 2018 review of the
communicated to those adolescents SCI, which notes that the community
who are excluded and whose dreams cohesively fights violations against their
and aspirations may be different, because children.69 Adolescents acknowledged
their priorities are based primarily on the significant support of CSO workers
earning a living. in training to articulate, mobilize and
advocate. Both staff of CSOs and Adolescents
Adolescent autonomy to express anganwadi (child care) workers agreed commented on
and act that training played a critical role in adult support
helping adolescents to mobilize. The and willingness
to listen, but
The adolescents spoke of how they ex-councillors were witness to the fact
also on adult
had conducted rallies and performed that the children raised their issues, but
resistance to
street theatre, designed posters and said that, as representatives, they could
action on issues
newsletters to express their views, only act within the limits of their power. such as domestic
and organized child helpdesks on violence.
their own. They had demanded plots The documents, videos and discussions
as compensation when their families with UNICEF also contain examples
were evicted from the slums, rejecting of how local governments, district
the allocation of flats in multi-storied administrations and other agencies of the
buildings as inappropriate. They had also government have listened to children and,
pressed decision makers for livelihood on several occasions, responded to their
opportunities, water supply, drains, requests. Decision makers were more
streetlights, roads, sewage disposal, inclined to listen to them because UNICEF
and the establishment of police posts worked closely with state, district and
and police patrols. Adolescents reported local-level officials and functionaries, and
intervening on behalf of adolescents as elected representatives to strengthen
well as communities demanding their child rights and the implementation of
entitlements. child protection policies.
© UNICEF/UN0569840/Altaf Ahmad

69 Josantony, Joseph, et al., Review and Upscaling of Strategies That Emerged From “Safe City Initiative”, 2018.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 27

 Box 11: Films showcasing outcomes of children’s agency

In 2017, UNICEF produced six short films to recreate the achievements of SCI:
 The Bhopal Model – Safe City for Children: This film introduces the SCI and its underpinnings, along with
what it hopes to achieve.
 Bringing Water Home: Explores the efforts of members of the Azad Jugnu Club to ensure regular water
supply in Gautam Nagar.
 Girls Back to School: Highlights the struggle of young Muslim girls in Aishbagh in accessing education
and how education nurtures agency and protagonism.
 Information is Power: Looks at how adolescent groups in Shankaracharya Nagar used the Right to
Information Act to press for construction of a drain.
 Negotiating Custodial Violence: Documents how a children’s group submitted their report on police
violence faced by Pardhi children to the authorities.
 Police by our Side: Presents events leading to the formation of a Child Resource Team in Bajariya to
tackle the issue of the street harassment.

These films are powerful renditions of the importance of the SCI and its potential to inspire the agency
of children in other locations.

In another State Integrating adolescent participation

basti (slum), in governance
police extortion, The mandated role of the state is
arbitrary arrest, to integrate and sustain adolescent The perceptions of different stakeholders
and violence
participation in governance and ensure regarding the state’s response to issues
topped the list
subsidiarity in planning, with the raised by adolescents in the SCI vary
of issues, so the
devolution of decision-making power to significantly. The examples mentioned
Children’s Club
submitted a report the lowest possible tier of government: in the 2018 review of the SCI 70 include
to the Additional How are States able and willing to how the children’s group had gone to
Superintendent integrate adolescent participation in the Ward Councillor to talk about a
of Police and, governance? How are current economic dirty drain, and he announced that the
after following forces that transfer welfare functions drain would be cleaned; later the drain
up regularly, “in from state to non-state actors influencing was cleaned. In another basti (slum),
some of these the ability and willingness of States to police extortion, arbitrary arrest, and
communities invest in their mandate for meaningful violence topped the list of issues, so
where youth adolescent and community participation the Children’s Club submitted a report
collectives have in governance structures? to the Additional Superintendent of
been successfully
Police and, after following up regularly,
formed, there has
“in some of these communities where
been a perceptible
youth collectives have been successfully
lessening in the
oppressive actions formed, there has been a perceptible
of the police”. lessening in the oppressive actions of
the police” (emphasis added).71

70 Josantony, Joseph, et al., Review and Upscaling of Strategies that Emerged from “Safe City Initiative”, 2018.
71 Ibid., p. 13.

28 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

 Box 12: UNICEF’s advocacy

“Overall the SCI has had a great connect with the district system, with quarterly coordination meeting
of the District Child Protection Committee (DCPC) […] Separately, we have had coordination meetings
with police, continued as regular meetings helping us in the expansion and deepening of the programme
[…]. The local administration has become sensitised through the different interventions and processes
led by children and adolescents to become open to children’s participation and their views […]. The
endorsement of the Ward plans by the local government indicates buy-in by the State. UNICEF
recognises that continuous advocacy and influencing at the senior level and mid-level, along with
demonstration of praxis at the ground has to be continued as children’s participation is yet to be fully
integrated into the system’s policies and implementation in Madhya Pradesh.”
Source: Review and Upscaling of Strategies That Emerged From “Safe City Initiative”, 2018 72

Some anganwadi (child care) workers, become increasingly attentive to children

who are the first interface between the and have even integrated some of their
state and the community, felt that state concerns into their actions. The key to
officials were very helpful, while others integration appears to be the mobilization
argued that it took a lot of collective of adolescents into organized groups and
effort to make the administration their acceptance in governance structures.
responsive. One tellingly observed, “The
administration and the police did not Willingness to invest in meaningful Lack of
listen earlier, but the intervention of the participation commitment
didis [literally translated as elder sisters, by officials is
but referring to CSO workers], and the During our own interviews with the one problem,
but actual
pressure of the organized adolescent adolescent groups, three years after
implementation
groups has had a lot of impact, with the the SCI began expanding from the pilot
may be under
administration now becoming openly phase to all wards in Bhopal, most of the
the jurisdiction
supportive”.73 adolescents felt that their participation of another
had enhanced the effectiveness of the department,
A senior official, the Commissioner initiative through their interventions and it is often
of the Bhopal Municipal Corporation, to stop child marriage and child unclear who
although new to the SCI, acknowledged labour, as well as to obtain things like the appropriate
the importance of children’s participation drainage, water, and electricity in their decision maker is.
and gave the example of how during communities. However, they said that
COVID-19 children had supported relief government officials did not pay due
work in communities and ensured that attention and, even when decisions were
they received their entitlements. He felt announced, there was no investment
that their participation could enhance in implementation by the concerned
the delivery of services by corporation authorities. Lack of commitment by
officials. Reviewing some of the officials is one problem, but actual
documents and based on discussions implementation may be under the
with UNICEF Madhya Pradesh, we jurisdiction of another department, and
learnt that several mid-level and senior it is often unclear who the appropriate
representatives of the government, decision maker is. At the same time the
both administrative and elected, have resources to provide services are also

72 Josantony, Joseph, et al., Review and Upscaling of Strategies That Emerged From “Safe City Initiative”, 2018.
73 Anganwadi (child care) workers, focus group discussion (online) with CWC, August 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 29

 limited because of the government’s The two former elected representatives
cutbacks to welfare services. were aware of the SCI processes, had
engaged with children personally, and
A labour inspector told us about how spoke of how they had been personally
he is restricted to departmental targets enriched by children’s views. However,
and guidelines related to child welfare. their concern was that their own scope
This includes the coercive re-enrolment of work as members of the local
of out-of-school children without any government was limited, as were their
attempt to ascertain why they dropped resources available to address any
out in the first place. He argued that it concerns raised by children.
A labour is not practical to fully implement the
inspector told Juvenile Justice Act,74 so it is better to Participation
us about how make people aware that there should be
he is restricted no child labour. A few mid-level officers we Participation is the interface between
to departmental spoke to also seemed to see their role as the agency of children and governance
targets and being confined to their job descriptions, structures: What are the factors that
guidelines which do not necessarily include being enable meaningful engagement between
related to child
receptive to children’s concerns. The adult institutions and adolescents
welfare. This
Municipal Zonal Accountant saw his role and adolescent groups? What are the
includes the
as only responding to right to information boundaries and limits imposed on
coercive re-
enrolment of (RTI) requests and giving information on adolescent participation (direct and
out-of-school issues asked for by children, and the indirect; individual and collective; local
children without Ward Officer regarded the collection of and national) by state actors, adults,
any attempt to property tax as his main work. and hierarchical structures? What
ascertain why are the opportunities for adolescents
they dropped The Additional Director General of to represent themselves in order to
out in the first Police acknowledged that there is question and change those boundaries?
place. discrimination within the police against
those from tribal groups and slum Opportunities for adolescent
dwellers, and sensitization can only take participation
place through systematic inputs into
training. She argued that hierarchies exist In an interview, the Assistant Director
within their official systems, so there is a of the DWCD identified departmental
need to convince the senior person, who meetings as where participation took
can then relay orders down the line to place. In these meetings, children
ensure that children’s rights are upheld. engaged with officials around issues
She agreed that accountability has to be such as begging and issues were
introduced in the system and that we taken up for resolution. The Assistant
should not be dependent on individual Director also pointed to the District Child
officers to champion this cause. Protection Committee meeting, in which

74 The Juvenile Justice Act was passed in 2015 to replace the earlier Juvenile Delinquency Law and the Juvenile Justice (Care and Protection
of Children Act) 2000, and amended again in 2021. It has two parts: (1) Children in Need of Care and (2) Children in Conflict with Law.
Child Welfare Committees, Juvenile Justice Boards, District Child Protection Units and Special Juvenile Protection Units are entrusted with
administration of the Act. The 2021 amendment was triggered by the Delhi rape case and formulated on the basis of a report filed by the
National Commission for Protection of Child Rights in 2018–2019, in which over 7,000 child care Institutions were surveyed and it was found
that 1.5% do not conform to the rules and regulations of the Act. However, the amended 2021 Act has been hotly contested by child rights
groups, because it gives increased powers and responsibilities to district magistrates (see: Roy, Esha, ‘Explained: What Changes in JJ Act
for Juvenile Offenders and District Magistrates?’, Indian Express, 5 August 2021, <www.indianexpress.com/article/explained/juvenile-justice-
amendment-bill-2021-explained-7429971>, accessed 23 August 2021).

30 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

all departments were included under the lack of sustained support from women’s
SCI and some selected children were groups and other senior community
heard. However, there was no separate leaders in relation to accountability for
budget to respond to issues raised by funds spent on community welfare.
children. The Zonal Officer identified the They were also very clear that in order
Parent Teachers Association as another to be heard they needed to be organized,
interface where he could take the have adequate information, mobilize
problems that children brought to him community support, and be persistent.
and then motivate the Association to
take up other activities as part of their The CSOs interviewed agreed that the
social work. These examples point to community and youth are beginning to The CSOs
the structural barriers facing the SCI, understand the government system and interviewed
as it cannot be delinked from other are learning to advocate in a way that yields agreed that the
government initiatives for protection. The positive results, at least occasionally. community
SCI is located in a larger environment in However, it was not yet common for and youth are
which some of the state programmes government agencies to be receptive beginning to
meant to protect children may, by to, or invite, children’s views. There were understand the
government
design or otherwise, violate the rights also variations in the approach of CSOs
system and
of children. and their ability to build rapport with state
are learning
agencies, depending on their recognized
to advocate
Most of the officials we spoke with association with officials or quasi-official in a way that
accepted that children were enabled to mechanisms. Archana, from Aarambh, yields positive
participate in decisions when they were reflected, “We are a partner in setting results, at least
organized; a few of them were individually up of ChildLine, and can access the occasionally.
more receptive; and most continued Child Welfare Committees constituted
to see their own responses within the under the JJ [Juvenile Justice] Act; yet
confines of their routine departmental we experienced a lot of bureaucratic
work. As the initial focus of the Safe City hurdles, and it took time to convince
Initiative was to enable children’s own every new official about the initiative”.75
agency, UNICEF subsequently decided
to create an environment favourable to UNICEF has shared that a critical part of
children’s participation and facilitated a participation has been the dialogues and
training of trainers for personnel from discussions that children and adolescents
concerned departments and provided have had with a range of systemic
capacity building for other stakeholders stakeholders from district authorities,
in governance. state authorities and the Bhopal
Municipal Corporation. They feel that
Boundaries and limits on specific capacities that were developed
participation with the CSO staff have contributed
to this. In the recent past, however,
While their work in the community funding constraints have contributed
has been noted and adolescents have to short-term partnerships, the slowing
received some support from their of processes and lack of continuity in
communities, the adolescents we spoke planning, affecting the depth and scope of
to reported that one of the barriers to children’s participation and the expansion
participation they experienced was the of the programme on the ground.

75 Archana Sahay, Aarambh, interview (online) with CWC, January 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 31

 Inclusion cleaning. The group from Uday related
how Valmiki, a youth from a Scheduled
Within adolescent groups there are those Caste, dropped out of the group when
individuals who are socially, culturally and he saw that they were not receiving
economically stronger and likely to be any benefit. In one area where there
more articulate, thereby excluding the were many school dropouts and working
already marginalized from participation children, eve-teasing, harassment and
processes: What actions were taken alcoholism were not initially considered
to promote inclusion, particularly in issues of immediate concern by the
relation to viewing and working with children involved in the SCI initiative.
the most marginalized groups as agents
and partners? Actions for inclusion as agents

Exclusion of marginalized During the interviews and discussions,

adolescents we learnt about efforts to bring
The SCI was
together children from across religions,
initiated
The SCI was initiated with a clear focus age groups and gender groups. The
with a clear
focus on girls, on girls, marginalized adolescents and young people we spoke with were
marginalized their communities (including ethnic predominantly outspoken girls, who had
adolescents minorities) in Bhopal. Despite this focus, taken leadership roles and been part of
and their many still remain outside the reach the programme for a longer time than
communities of the initiative on account of socio- some of the boys we spoke to. The group
(including ethnic cultural constraints and other pressures. from Uday had learnt that in order to
minorities) in According to adolescents, those who encourage more participation they had to
Bhopal. Despite are yet to participate include: younger engage in activities that were meaningful
this focus, many children, working children (as they are to other adolescents and youth. They had
still remain away at work during meetings and a lot of discussions and training with
outside the reach
activities), and children who are married excluded children to explore the reasons
of the initiative
or are studying. They also mentioned why they could not go to school or had
on account of
that there are several girls who are not to work, after which links could be made
socio-cultural
constraints and allowed by their families to participate. to lack of education, liquor shops on
other pressures. According to them, the main children the way to school, lack of streetlights,
who are not interested in joining are domestic violence, child marriage, and
those using drugs. drug abuse (often to reduce fatigue at
work).
From reading and discussions, we learnt
how marginalization was prevalent: girls During the lockdown, the active
faced challenges to being part of their adolescents were confined to their bastis
collectives, as did members of DNTs, (slums), which helped them to better
who are highly discriminated against understand the issues faced by excluded
in the city, such that children from children and their communities, including
DNTs would not even cross the path issues of harassment. In addition, their
of members of other communities. association with NGOs prompted other
There was a pronounced bias among children and their families to raise issues
the police and teachers against children and obtain help. While these issues have
from DNTs. The police treated them as become part of their advocacy agenda
criminals, while the teachers would beat and changes are visible, the children’s
them, make them sit in the dirtiest part groups have recognized that their
of the classroom, or make them do the strength lies in the greater mobilization of

32 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

excluded children and their engagement section on ‘Evolving adolescent capacity
in meaningful participation. to engage’, under ‘Agency’, Chapter
2), in particular, had given them an
Many complaints about police violence, understanding of the realities in their
particularly against members of DNT communities. This understanding was
communities, were filed by children’s the basis for them to prioritize those
groups and reported in the media or problems that were of interest to the
through CSO partners. The SCI, especially whole community, such as sanitation,
with the reach and thrust that Muskaan streetlights, eve-teasing, and lack of
brought in, started to focus on specific education. Even when an individual
police stations in terms of interventions, problem emerged, like a child fell into
training and sensitization, with the a pit in a dark locality and fractured
backing of senior officials and advocacy their arm, or a girl was being forced to
by UNICEF. This has put pressure on marry against her wishes, they said they
the police to respond and be more would assess whether or not there was
Consequently,
vigilant. Consequently, over a period of community support and then take up
over a period of
time, particularly in the last two years, the matter for collective action. If the
time, particularly
report​s of police violence ​against children issue did not have support, then they in the last two
have decreased, as corroborated both by would review the matter and modify years, report​s of
UNICEF Madhya Pradesh and Muskaan.76 their resolutions and decisions within police violence ​
the group. against children
Resolutions have decreased, as
The CSOs supported them in this process corroborated both
Organizational structures determine the by organizing training programmes, by UNICEF Madhya
nature of adolescents and young people’s which enabled them to identify the Pradesh and
ability to exercise agency and influence problems through surveys, group Muskaan.
resolutions and decisions. At the same discussions and observations; analyse
time, those charged with promoting the issues through reflective questions;
agency are also those who set limits and prioritize issues on the basis of how
and make the rules on translating the many people were affected. They were
exercise of agency to enact resolutions also supported by CSOs to approach
and decisions: In such a context how are appropriate authorities, sometimes
adolescents able to influence resolutions repeatedly, to ensure resolution of the
and decisions? problems raised. The adolescents said
that once their identity as a group was
Structures that determine the established they could decide on issues/
nature of agency action independently of the CSOs. Those
adolescents whom we interviewed
The adolescents who participated in acknowledged that they were leaders
this study narrated that resolutions and in their groups, but, according to them,
decisions related to their functioning the whole group was free to make
were taken by the group only after taking collective or consensual decisions. The
into consideration everyone’s views. If Additional Director General of Police also
there were differences of opinion, they observed that adolescents who were
followed up by building consensus or more articulate became leaders, but later
through voting. The mapping exercise group participation seemed to overcome
they had carried out (see previous sub- the leader’s position.

76 Corroborated by UNICEF Madhya Pradesh in a personal communication (WhatsApp message), 3 November 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 33

 How adolescents influence At the DCPC [District Child
resolutions Protection Committee] meeting,
the issue of begging came up, so
The adolescents interviewed mentioned ten departments constituted a
that most families were initially reluctant task force and identified the hot
to let them (especially girls) make their spots. The children were rescued,
own resolutions and decisions, but the counselling was done, and parents
strength of the group enabled them were also counselled. Some parents
to persuade their parents to let them did not have identity cards; there
participate. The children had access to were problems of income; they
several decision-making spaces, most had come from outside and taken
often at the local level and occasionally up beggary as an occupation, so we
at the state level or departmental/judicial assisted them. Some children were
Some issues level. However, in relation to raising sent for rehabilitation; even then,
raised by issues with elected members of the a few disappeared, so we had to
children that government, they said they did not recapture them.
are yet to be receive any systemic/official responses. Assistant Director of the DWCD,
responded to When this was mentioned to the (now interview (online) with CWC, August 2021
include the former) elected representatives of the
appropriate local government, they expressed their Some issues raised by children that
timing for
helplessness and complained that the are yet to be responded to include the
midday meals;
Municipal Corporation made resolutions appropriate timing for midday meals; the
the availability
and decisions on its own and did not even availability of food grains, roads, chamber
of food grains,
roads, chamber invite them to participate in ward-level pits and community halls; and the need
pits and planning processes. for police patrols, as well as stopping the
community sale of liquor near schools and controlling
halls; and the “There was a child marriage in street harassment (‘eve-teasing’). The
need for police the Valmiki community, and we unresolved concerns shared by children
patrols, as well came to know that the girl did not from DNT communities include their
as stopping the want to get married so we went as repeated arrest by police, the lack
sale of liquor a group and spoke to the parents, of streetlights, flooded drains, and
near schools and harassment by local thugs. Adolescents
but they didn’t agree, so we spoke
controlling street pointed out that while earlier they had to
to ChildLine, and the parents had
harassment (‘eve-
to stop the marriage.” visit the same office as many as seven
teasing’).
to eight times to be heard, now it takes
UDAY adolescent group,
focus group discussion (online) with CWC, only two to three visits, as they are
12 April 2021 recognized as a yuva samooh (youth
group) by some officials.
At the same time, the Assistant Director
of the DWCD made the following Analysis
observations in relation to adolescents
and young people influencing resolutions Based on the findings above, the
and decisions at departmental meetings potential areas and opportunities for the
(the statement was made with reference enhancement of adolescent participation
to an initiative of the Integrated Child in governance and challenges are
Protection Scheme which involved multi- highlighted in the following sub-sections.
sectoral efforts):

34 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Existing structures and mobilizing them to exercise their agency.
processes for adolescent It was impressive to listen to the children’s
participation groups and sense their confidence and
courage. It was also evident that once
The existing structures and processes77 mobilized in their own groups, the
that we have been able to document solidarity among them and community
under the Safe City Initiative that support received by them are organically
provide an opportunity for adolescent linked. These groups have also tried to
participation are: take up systemic challenges like police
 Structures and processes violence. The support from CSOs had
related to the strengthening been sustained and helped children to
of children’s agency and to preserve the organizational memory of
creating an environment for their child clubs, even when children have aged
participation: These include the out, but continued to support new group It was
participatory mapping exercise, members to sustain their advocacy. impressive
formation of child groups, setting up to listen to
of resource centres and community This is at a time when the data from the the children’s
child protection committees, the National Crime Records Bureau for the groups and
federation of children’s groups, and three years 2018 to 2020 puts Madhya sense their
Pradesh among the top three states (along confidence
building networks within the Safe
and courage.
City Initiative including the CSO with Maharashtra and Uttar Pradesh)
It was also
Alliance for advocacy. for crime against children.78 While crime
evident that
Structures and processes related against children saw a decline in all the
 once mobilized
to devolution and child-friendly three states in the year 2020, it is still in their own
governance: These include the greater in Madhya Pradesh at 59.1 per groups, the
existence of mohalla samitis 100,000 people, compared to 39.8 per solidarity
(neighbourhood committees) and 100,000 in Maharashtra and 17.9 per among them
ward committees, in line with the 100,000 in Uttar Pradesh. Challenges and community
74th Constitutional Amendment, remain in ensuring the participation support
which legally provides for public of the acutely marginalized, which are received by
(including adolescent) participation, aggravated by deepening inequity, them are
and the endorsement of ward plans distress, and poverty due to the COVID-19 organically
pandemic, which has placed thousands linked.
prepared by the government with the
participation of adolescents, which of children in precarious situations.
will provide a precedent for accepting
participatory planning by adolescents These facts seriously underscore both
during scaling up. the need to consolidate the SCI in
Bhopal, as well as to expand it beyond
The first set of structures has served Bhopal, while enhancing its scope,
its purpose well, most of all in relation quality and reach. The initiative cannot be
to the empowerment of children and dependent on the sympathy or sensitivity

77 There are, of course, many other structures and platforms for the participation of children and adolescent that have been set up under different
state schemes – Student Police Cadets, Girls’ Groups under Shaurya Dal (Courage Team), Bharat Scouts and Guides, National Cadet Corps,
the National Social Service scheme, child protection committees, district child protection committees, Kishori Samooh (Girls’ Groups) under
the Scheme for Adolescent Girls, School Cabinets, Saathiya (Peer Educator) under Rashtriya Kishor Swasthya Karyakram (National Youth Health
Scheme), among others – but these are outside the scope of this study.
78 Times of India, ‘Madhya Pradesh in Top Three in Crime Against Children: NCRB’, The Times of India, 18 September 2021, <www.
timesofindia.indiatimes.com/city/bhopal/madhya-pradesh-in-top-three-in-crime-against-children-ncrb/articleshow/86312002.cms>, accessed 4
November 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 35

 of individual officials, but adolescent and Mukhya Mantri Samudayik Netritva
participation has to be integrated into Kshamata Vikas Karyakram 82). The state
the system. This is where the second has also supported non-government
set of structures, related to devolution innovations in child protection and
and child-friendly governance, is critical. education, leading to informed
Constituting and devolving power to participation and empowerment. While
the mohalla samitis (neighbourhood high and mid-level officials are aware
committees) and ward committees in that these schemes exist, the quality of
Constituting all cities, along with mobilizing children their implementation on the ground has
and devolving into recognized groups that ensure been dependent on the political will of
power to the continuity, is essential to ensure that the the party in power.
mohalla samitis
participatory plans are accepted, funded
(neighbourhood
and implemented and that governments In relation to political decentralization,
committees) and
are held accountable. state buy-in is demonstrated by the
ward committees
in all cities, along support for devolution under the 74th
with mobilizing State buy-in and accountability Amendment of the Indian Constitution.
children into However, centrally promoted urban
recognized groups At the city level, sustained advocacy schemes like the National Urban
that ensure by UNICEF has resulted in several Renewal Mission and Smart City Mission
continuity, is government officials from departments have been adopted in ‘mission’ mode,
essential to like the DWCD, as well as departments meaning that centralized corporate
ensure that the for education, police and health, and institutions have been set up to facilitate
participatory elected local government members in private investment and plan for rapid
plans are accepted, the community supporting the SCI. As infrastructure development. As seen in
funded and
the programme is located in the state most of the urban capitals, as well as in
implemented and
capital, CSOs and UNICEF have also Madhya Pradesh, earlier state buy-in to
that governments
been able to engage with state level welfare, social security and devolution
are held
accountable. officials and elected representatives. Yet, policies is now being weakened by the
as we have seen from the responses state’s focus on a market-led economy,
of the few officials we interviewed, the which is transforming public services like
inclusion of children’s views and thinking education, health, sanitation, water, and
outside the dominant protectionist view housing into profit-making enterprises.
has not spread widely within the system,
which still fails to respect the agency Therefore, ensuring that the SCI’s core
and dignity of children. principles are upheld in the face of these
schemes will require strategic planning,
The state has a long history of sustained advocacy and dedicated
commitment to support children’s resources. There is an implicit danger
protection initiatives; for instance, early that if SCI initiatives focus on working
acceptance of the Integrated Child with government departments more
Protection Scheme and adoption of than with elected local governments and
several state schemes by the DWCD community and children’s groups, they
(such as Ladli Laxmi Yojana,79 Atal Bal are likely to strengthen bureaucracy and
Mission,80 Lado Abhiyan,81 Shaurya Dal, undermine participatory and democratic

79 Translated as ‘Protection of Girl Child’, this scheme provide financial support on the birth of a girl child and for her education.
80 This scheme by the Atala Behari Vajpayee Mission was for child health and nutrition.
81 The Beloved Campaign gives awards for stopping child marriage.
82 The Chief Minister’s Community Leadership Development Scheme is for youth wishing to initiate decisive actions for the development of their
areas.

36 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

governance. These forces are already During the COVID lockdowns, some
at work within centralized schemes for of these groups took the initiative to
urban development. Weakened elected coach and organize vocational courses
municipal bodies and unaccountable for younger students; promoted social
special purpose vehicles are not going distancing through campaigns; and raised
to serve the most marginalized. the issue of the increased consumption
of drugs and liquor during lockdown,
“The Councillors from six wards which has adversely affected the ability
said that they would discuss with of some families to fulfil other needs. Based on
schools about the condition of Based on their earlier experience with their earlier
playgrounds and explore whether participatory mapping, these groups experience with
children received water and to participatory
have participated as both key informants
mapping, these
ensure that they were not beaten up. and joint researchers with adults to
groups have
They also said that they could talk understand the prevalence of violence
participated
about alcohol not being permitted against children during the period 2020 as both key
to be sold to children, and about not to 2021. The information from the study informants and
employing children in such shops. about their lived experiences, gathered joint researchers
They were also confident that they through discussions and interviews, has with adults to
could speak about this to the public.” strengthened their ability to represent understand the
Source: Review and Upscaling of themselves and their communities. These prevalence of
Strategies that Emerged from experiences show that collectivization is violence against
“Safe City Initiative” 83 children during
crucial for children from marginalized
communities, as they can jointly present the period 2020
Adolescent representation their views on protection and safety to to 2021.
government agencies in consulted and
The key strategies84 that have been agreed ways and their organized strength
followed in the SCI in Bhopal have has strong advocacy impacts.
enabled adolescents and children to
organize themselves into groups and Within the adolescent groups, the
raise the issues that concern them, more articulate members have taken
as well as those of the community. on lead roles, but observers have
For instance, adolescent groups have noted the gradual emergence of wider
frequently flagged the issue of school representation. There was no specific
enrolment and successfully taken it mention of any systems in place for
up with education officials. Tribal and the leaders reporting back to their own
working children and adolescent groups groups – although this seems to be
have intervened to stop child marriage done informally during group meetings.
and child labour, reported anti-social This process of the democratization of
activities in their locality (at the risk representation needs to be strengthened,
of being treated as informers), and while mainstreaming the SCI to all 85
protested against police harassment wards in Bhopal, mobilizing many more
and violence, especially against children youth and communities and building
from DNTs. alliances (even with other children’s

83 Josantony, Joseph, et al., Review and Upscaling of Strategies that Emerged from “Safe City Initiative”, 2018.
84 These strategies include the participatory mapping of child protection issues and needs, collectivization and organized participation of children,
mobilization and strengthening of youth, resource centres as safe and empowering spaces, linking children with educational and vocational
skill building, creating safe spaces for children, setting up of community child protection committees, strengthening child protection systems
and allied systems, advocacy with key government stakeholders, using the law for change, communication as a strategy, and building
networks.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 37

 organizations outside the ambit of the or if should they be strengthened and
initiative), otherwise there will not be be accountable to local governments
significant representation at the city or and communities, as mandated by the
higher levels. 74th Constitutional Amendment and its
Schedules.
Strategies for expansion
“The project is expanding to all
The Government of Madhya Pradesh 85 wards, but there has to be
is expanding the Safe City Initiative to absolute replication, including
five more cities in the state, integrating participation and decision making
the key strategies of the SCI in Bhopal. by the adolescents. Vociferous and
Whether or not the institutional learning numerically large groups get more
from adolescent participation in the attention, as they have the vote;
Bhopal initiative will form the basis for but children will not have the vote
expansion will depend on the extent to until 18 and the family structure
which its process integrity is ensured and also disempowers them. The idea of
Whether or not
the capacity of the various stakeholders children as the property of parents
the institutional
learning from is built. It may be recalled that UNICEF has to be discarded.”
adolescent paid great attention to training, capacity Anuradha Shankar,
Indian Police Service, Additional Director
participation building, and advocacy during the early
General (TRG), Madhya Pradesh Police,
in the Bhopal phases of piloting, and that this has been interview (online) with CWC, 9 June 2021
initiative will the foundation of the SCI’s effectiveness.
form the basis Whether or not the intensity of training
for expansion and advocacy will be retained as Exclusion and inequity
will depend expansion takes place, and whether
on the extent
or not there will be enough focus on The adolescents and most of the other
to which its
enhancing the agency of adolescents stakeholders did not mention exclusion
process integrity
and children, are critical factors. and inequity as issues of concern, and
is ensured and
the capacity we were unable to enquire further into
of the various The success of the expansion will depend this in the online format. However, those
stakeholders is on the government’s commitment to adolescents who are unable to participate
built. guarantee investment, devolve finances clearly have pressing economic needs
and responsibilities to the lowest tiers or have been historically discriminated
of urban governance, build structures to against as ‘slum-dwellers’ or ‘criminals’,
promote and accept participatory plans, children from DNTs, girls, children from
provide strong departmental support minority groups, and working children.
for implementation, and link up with Instances of child marriage, although
able partners who can mobilize children, decreasing, are also of concern to
youth and communities. The nature of adolescents, as they highlight significant
UNICEF’s engagement and its technical gender inequalities. Once they are
support at such expanded levels will also mobilized into groups and engaged in
impact on the quality of the expansion. participatory processes, adolescent
UNICEF and the CSOs implementing groups undoubtedly try to challenge the
the SCI will need to reflect on whether status quo and access their entitlements.
all parastatal and governmental bodies
(such as government schoolteachers, The two main challenges to inclusion
anganwadis and accredited social health that have been highlighted are:
activists [ASHA]) will function under and family and community resistance as
report to state and city governments, adolescents, especially girls, attempt

38 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

to make decisions about their own approaches, but the SCI has brought
lives; and bureaucratic inertia, which some level of integration between CSO
dissuades officials from recognizing and state initiatives. CSOs have made
and responding to adolescent agency. optimal use of UNICEF’s leveraging
Frontline government workers and ability for advocacy at the state level
elected community representatives do in favour of children’s rights. The role
seem to respond much better, because, of CSOs in creating a mutual synergy
of necessity, they have to be close to between them and UNICEF on behalf
the community base. But economic of the children is appreciable.
inequality is an outcome of the larger
development paradigm being followed The CSOs that were part of developing
by the state. Unless that paradigm is the project framework prior to the
questioned, along with the decline of commencement of the project, and the
democratic devolution, exclusion and members of the CSO Alliance, have the
inequity are likely to remain. potential to develop into a very strong
advocacy group to bring about state- The CSOs that
Role of CSOs level policy changes that may directly were part of
and indirectly strengthen the SCI in urban developing
CSOs have played a major role in areas and its counterpart rural initiatives the project
encouraging the formation of children’s in Madhya Pradesh. The members of the framework
groups, enabling them to share across CSO Alliance could also be engaged in prior to the
wards, collaborating with each other, implementing the SCI in other cities and commencement
and sensitizing officials. They have providing technical support on the ground of the project, and
implemented the basic strategy for the in partnership with UNICEF. the members of
participation of adolescents through the CSO Alliance,
“At the level of participation of have the potential
organizing, training, mapping and
children and adolescents, the past to develop into
prioritizing needs, mobilizing other
a very strong
adolescents and adults, and consistently six years have been a learning
advocacy group
engaging in evidence-based advocacy experience for all of us. We have all
to bring about
with the relevant authorities. CSOs have believed children, we respect them
state-level policy
also played a major role in the capacity- – the sense of participation was changes that
building of children and youth groups, new to us, we understood what it may directly
with technical support provided by meant and what we were not doing – and indirectly
UNICEF, and in strengthening the linkages doing something for children versus strengthen the
with the community organizations that children leading the way is very SCI in urban
existed prior to the SCI. different.” areas and its
Shivani Taneja, counterpart rural
During the course of SCI implementation, Muskaan (SCI partner CSO), interview initiatives in
(online) with CWC, 21 January 2021 Madhya Pradesh.
CSOs have learnt that doing something
for children is quite different from children “That participation should be top
leading the way – especially when the priority in the Safe City Initiative
children are organized. One of the CSOs was very much there from the
claimed that even UNICEF has learnt beginning – that every decision has
how to better integrate collaboration to be with child participation – along
among multiple internal sectors from with child protection.”
the issues raised by children. Access to Archana Sahay,
authorities is not the same for all CSOs, Aarambh (SCI partner CSO), interview
(online) with CWC, 21 January 2021
as they have different constituencies and

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 39

 Role of UNICEF convergence that UNICEF was building
across different departments, adolescent
UNICEF Madhya Pradesh has paid close groups and CSOs brought out concerns
attention to the voices of children in its related to multiple issues, beyond those
project areas and has ensured that they traditionally linked to care and protection,
are heard within their own communities such as distress migration and skills
– right up to the state level. In partnership development. To address these, there
with CSOs, it has created platforms is a need for increased support for the
and opportunities for children to speak SCI programme. UNICEF also recognizes
directly to decision makers at various that its funding challenges have slowed
levels and provided support for children’s down the work of the SCI through
meaningful participation. UNICEF has partnerships and led to diminished
made a significant attempt to integrate coordination among state agencies. In
participation into protection by initiating, such a context, all stakeholders feel a
guiding and expanding the SCI, while need for UNICEF to increase its capacity
UNICEF building the capacities of partner CSOs building, promotion of innovations,
has made a to facilitate children’s participation. It has training, and advocacy.
significant provided the key training inputs that have
attempt to developed the strategy for promoting UNICEF Madhya Pradesh has been
integrate adolescent participation in governance trying to expand participation with
participation in the initiative. a ‘light touch approach’. However,
into protection although this approach may report
by initiating, At the same time, UNICEF Madhya big numbers, it does not have quality,
guiding and Pradesh has provided information and depth and sustainability in terms of the
expanding
opportunities for community level participation of children and adolescents.
the SCI, while
government representatives, such as Community-based engagement is critical
building the
anganwadi (child care) workers, to raise to build the capacity of children, and their
capacities of
partner CSOs issues related to children’s participation in consequent participation, to influence
to facilitate higher official settings, which they were decision making. The SCI has not reached
children’s not previously able to do with the same a stage where the government’s capacity
participation. rigour. It has also strategically leveraged strengthening will lead to the meaningful
state support at all levels of governance and rights-based participation of children
through consistent advocacy. In the in governance processes. For such
process, UNICEF has enunciated and quality engagement, the community
popularized the key principles of children’s level engagement of UNICEF through
participation, in line with international its partners is critical. In order to make
agreements ratified by the Government this happen, investment is needed.
of India. It has, thus, been able to build
consensus on the rights that underlie the Enhancing participation
SCI. Its periodic participatory review of
progress with partners and communities The adolescents that took part in
has helped retain the focus on rights. this study felt that their participation
had improved the work of the SCI by
In the future, CSOs feel that UNICEF leveraging their organized strength to
could play a stronger role in making all assist state agencies to deliver services.
policy developments more participatory, Key to their understanding was the fact
including those related to the expansion that they had come together to form
of the Safe City Initiative. The groups, which gave them the strength

40 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

to participate, and that they needed could also be drawn into commenting on,
to expanded these groups and form and helping formulate, UNICEF’s future
networks of groups. They also thought strategy for training and advocacy.
that their participation could be further
enhanced if women’s groups and other “Before UNICEF, our ways of
senior leaders in the community were working were very different…
to provide more support, and if they Now it is much better, children
were able to ask for accountability for speak much more openly about
their issues. Earlier we only gave However, they
the funds being spent for community
pointed out
and child welfare. importance to what we had to
that this alone
say, but now we listen to the kids.
would not have
The CSOs supported the idea of enhancing Uday Society training helped us to
been enough
adolescent participation through the better understand about children. to facilitate
strategy of mobilizing, mapping, and CSOs offer a lot of support… we ask children, or to
advocacy, detailed in the current phase of them for support when there are advocate along
the SCI. Other stakeholders emphasized problems, and without the support with children, if
that the training they received made child from UNICEF and CSOs it would be the continuous
participation acceptable and possible for difficult to do this work, they trust support that
them. However, they pointed out that us a lot. We give a lot of support to they required
this alone would not have been enough kids and families, even if there is a to understand
to facilitate children, or to advocate problem in the middle of the night children’s
we go and help, for example, when rights and
along with children, if the continuous
the necessity
support that they required to understand there is a fight between a couple,
of their
children’s rights and the necessity of their we try to make them understand.”
participation in
participation in governance had faltered. Anganwadi (child care) workers
governance had
from different parts of Bhopal,
The participatory evaluation of these faltered.
focus group discussion (online) with
case studies by the adolescent groups CWC, 3 July 2021
could be another step forward in the
enhancement of their participation. They
© UNICEF/UNI229754/Altaf Qadri

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 41

 Recommendations are not heard and acted upon by the
authorities; use child protection and
Based on our findings and analysis, we ward committee meetings to present
make the following recommendations to your views and experiences and ask
enhance the participation of adolescent that they be conducted regularly in your
and young people in governance. community; and suggest a framework
(social audits and participatory evaluations
Adolescent groups of the Safe City Initiative, UNICEF, CSOs,
CWC, etc.) to ensure the accountability
Use community Recommendation 1. Strengthen of state and non-state agencies and to
resource centres, adolescent groups: Organize more make them more effective.
city-wide adolescents and young people;
alliances and continually identify your agenda for Recommendation 3. Build alliances:
federations to
action and advocacy; practise collective Use community resource centres, city-
build friendships
leadership and informed decision making; wide alliances and federations to build
and solidarity;
be ‘your own first line of defence’; and friendships and solidarity; seek out
seek out
adolescents take part in capacity building with a adolescents and young people from
and young direct bearing on your advocacy issues marginalized and vulnerable groups and
people from (participatory mapping, priority ranking, encourage their participation; identify
marginalized collective leadership, child budgeting, common spaces (anganwadis [child
and vulnerable presentation skills, para-legal training, care centres], parks, schools etc.) to
groups and skill development, and recording discuss developments that impact on
encourage their organizational memory to pass on the adolescents; debate changing realities
participation. learning to the next set of adolescents). (pandemic, communal and linguistic
disharmony, online education, abuse
Recommendation 2. Be heard: Ask of digital and social media, privatization
for the establishment of oversight of services) to bring them into the
institutions to which you (supported framework of child protection; and invite
by CSOs) can appeal when your views government authorities, department
© UNICEF Madhya Pradesh/India

42 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

officials, anganwadi (child care) empowered participation of adolescents
workers, people’s representatives, and and young people; and revisit the
CSO officials to participate in these prioritization of agendas, in conjunction
discussions. with adolescents and young people,
so that their own capacities for self-
CSOs protection can be increased.

Partner CSOs Other CSOs

Recommendation 1. Strengthen Recommendation 4. Expand

participation: Ensure the meaningful participation: Engage with other
participation of adolescents and young CSOs working with allied human and
people, especially in emergency children’s rights (whether in the same
situations when intensified protection bastis [slums], other parts of Bhopal, or
concerns require an extra focus on in other cities as the Safe City Initiative
safegaurded participation. produce and expands); mainstream adolescents’ and Ensure the
meaningful
disseminate capacity building modules young people’s agency and their right
participation of
for developing attitudes, knowledge and to participation with all stakeholders in
adolescents and
skills in participation with adolescents all urban programmes; and embed a
young people,
and young people; enlarge the CSO participation agenda in all existing work, especially in
Alliance in partnership with UNICEF to through micro-level initiatives that can emergency
facilitate, mobilize, and provide support be gradually expanded in scope. situations when
to adolescent groups; assist in federating intensified
children’s groups with other organizations Recommendation 5. Build state-level protection
on common issues; and conduct internal alliances: Sustain efforts by other CSOs concerns require
monitoring of the goals of the Safe City in support of a safe city concept for an extra focus
Initiative. all sections of society; and integrate on safegaurded
children’s organization and participation participation.
Recommendation 2. Share experiences: in all matters affecting them and their
Create a platform for the regular sharing community rights – both directly and
of experiences to build a vision of how indirectly.
to enhance adolescent participation
in governance; promote child-led State
documentation, mapping, audits, and
evaluations of all care and protection Central government
activities at regular intervals; integrate
community organization and city-wide Recommendation 1. Integrate
actions into child protection; and conduct adolescent participation across all
peer sharing and training to ensure schemes: Gather lessons from the Safe
continuity in participation and to build City Initiative in Bhopal to embed the
organizational memory. participation of adolescents and young
people in all urban schemes by providing
Recommendation 3. Nurture spaces for adolescents and young people
understanding: Closely track the to organize and assert their agency.
emerging challenges in relation to
children’s protection in various urban Recommendation 2. Uphold national
renewal programmes; develop the and international commitments:
required political, ideological and ethical Actively support children’s rights through
grounding to facilitate the meaningful legislation and policy, as stated in the

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 43

 National Child Policy, UNCRC and Recommendation 6. Build the capacity
other national and international legal of all agencies in participatory
instruments. governance: Facilitate all existing
government and non-government
Recommendation 3. Allocate financial agencies in the state to promote
resources: Allocate financial and other participatory governance at the ward,
resources to strengthen mechanisms municipal and state levels. Embed the
for the participation of adolescents and agenda of adolescent participation,
young people. including their right to frame policy, and
denounce violence against marginalized
Provide State government communities in all training and
anganwadi capacity building programmes for state
(child care) Recommendation 4. Democratize government functionaries, especially
workers who, and devolve power and finances, the police, so as to continually sensitize
unlike CSOs, are according to legal provisions: Accept them about these issues.
present in every as a government mandate the full
community, implementation of the 74th Constitutional Recommendation 7. Strengthen
with better Amendment, including the principle of frontline workers to be more effective:
working subsidiarity and devolution of power Provide anganwadi (child care) workers
conditions and and finances, with defined budgetary who, unlike CSOs, are present in
by recognizing
allocation for adolescent participation every community, with better working
their work;
and the capacity building of state conditions and by recognizing their
provide them
government functionaries. Review work; provide them with the support
with the support
they require to programmes like the government’s they require to be an effective first
be an effective Safe City Project and Smart City Mission line of contact for children in need of
first line of to ensure that they do not undermine protection; and enable them to embed
contact for the democratic principles, intent and the participation of adolescents and
children in need practice of the Safe City Initiative and young people in their work.
of protection; the 74th Amendment with respect to the
and enable them participation of adolescents and young Recommendation 8. Allocate financial
to embed the people. resources: Allocate financial and other
participation of resources to strengthen mechanisms
adolescents and R e c o m m e n d a t i o n 5 . I n vo l ve for the participation of adolescents and
young people in
adolescents and young people in young people.
their work.
policy consultations and evaluations:
Provide adolescents with the opportunity Local government
to conduct a social audit of the Safe City
Initiative to build their capacities and Recommendation 9. Democratize and
agency. Implement the Madhya Pradesh devolve power and finances to the
Child Protection Policy in consultation lowest tiers: Ask for devolution of power
with adolescents and young people and and finances, with defined budgetary
commit to the principles that guide the allocation for adolescent participation and
Safe City Initiative. Use the learnings of the capacity building of local government
the Safe City Initiative to involve more functionaries; ensure the participation of
adolescents and young people in training adolescents and young people in policy
for state government functionaries, with making at the local level by conducting
adolescents and young people leading social audits and evaluations of the Safe
the sessions on certain modules. City Initiative; and ensure that children’s

44 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

voices are sought, heard and acted UNICEF
upon by elected representatives and
administrative officials. Recommendation 1. Evolve the strategy
for the integration and expansion of the
Recommendation 10. Build the capacity Safe City Initiative: Integrate critical
of all government functionaries: Establish lessons from the Safe City Initiative on
spaces for adolescents and young people how adolescents and young people are
to gather, discuss and debate issues of enabled to participate in governance,
concern to them with local government around both protection and community
functionaries; embed the agenda of issues, into an evolving strategy at the
participation of adolescents and young regional and national levels. Design Adopt
people and the non-discrimination of the expansion strategy considering its planning that is
marginalized communities in all training impact on democratic devolution as influenced by
and capacity building programmes well as state accountability to children. the nuances of
for local government functionaries, Include advocacy at the highest levels participation
especially the police; and involve more of governance, capacity building, highlighted
adolescents and young people in training developing knowledge products, building in this report
for local government functionaries, with and strengthening partnerships, and including
adolescents and young people leading mobilizing resources. reinforcing
the instruction on certain modules. in UNICEF
planning
Recommendation 2. Internalize
the fact that
Recommendation 11. Provide participation across sectors within
adolescents and
protection to adolescents and young UNICEF: Highlight UNICEF’s contribution
community
people and workers participating in in design and implementation so that needs are often
governance: Strengthen anganwadi it can provide a roadmap for continued related to each
(child care) workers, who, unlike CSOs, institutional engagement with multi- other.
are present in every community, by sectoral convergence. Adopt planning
providing better working conditions that is influenced by the nuances of
and by build mechanisms to recognize participation highlighted in this report
and appreciate the support they extend including reinforcing in UNICEF planning
for children’s protection. Ensure that the fact that adolescents and community
adolescents and young people, as well needs are often related to each other.
as their communities, have safe spaces Include competence in adolescents’ and
in which to participate and express their young people’s participation as part of
views. In the event of their suppression the job description of professionals in all
(especially by power-holders), include sectors of UNICEF as part of children’s
mechanisms for adolescents and young rights. While rights-based participation
people to raise their issues with trusted should be integrated into all sectors in
adults or through structures like child- UNICEF, a lead sector should be identified
friendly post-boxes and ensure their and designated with clear deliverables
confidentiality. around strengthening the 73rd and
74th Constitutional Amendments
Recommendation 12. Allocate financial and integrating the participation of
resources: Allocate financial and other adolescents and young people as part
resources to strengthen mechanisms of devolution.
for the participation of adolescents and
young people. Recommendation 3. Institutionalize
participation across all programmes:
Ensure that the participation of

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 45

 adolescent and young people is workers) at all levels and expand them
embedded within systems across to the middle tiers of both government
all programmes, rather than being and CSO structures where it is most
incumbent on individual functionaries required. While engaging with large
and their willingness. Conduct extensive cadre-based programmes like the
consultations with sectoral departments, National Service Scheme (NSS) and
both within and outside UNICEF. Insert Nehru Yuva Kendra Sangathan (NYKS)
Ensure that the
generic and institutional protocols with to support the Safe City Initiative, keep
participation of
indicators, advocacy tools and resource in mind that the participation and agency
adolescent and
young people allocations for mainstreaming adolescent of adolescents and young people may
is embedded participation into project design to ensure not be the focus of these groups and,
within systems the transparency and accountability of all therefore, they may requiring further
across all stakeholders. Capacities should be built capacity building in this area.
programmes, internally among UNICEF programme
rather than teams in the area of rights-based Recommendation 5. Enable adolescent
being incumbent participation of adolescents and young groups to build federations and alliances
on individual people and integrated into programming. with other groups, even outside the ambit
functionaries Also provide adolescents and young of the Safe City Initiative, on common
and their people with the opportunity to conduct issues to empower their united agency.
willingness.
a social audit of the Safe City Initiative.
Conclusion
Recommendation 4. Build the capacity
of CSOs and government functionaries: The Safe City initiative in Bhopal is a
Continue the capacity building of novel attempt by UNICEF to take up
CSOs and government functionaries urban issues, especially with respect to
(with special attention to advocacy for empowering the agency of adolescents
improving of the working conditions from vulnerable communities. Hence,
of anganwadi [child care] and health there is a need to learn from it before
© UNICEF Madhya Pradesh/India

46 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

expanding it, as well as an opportunity to can become effective agents of change if
place it in the context of other centralized they are enabled (with necessary support
urban development schemes and draw and skills) to respond to the demands
lessons from them about their impact of the organized adolescents. A pioneering
(positive or adverse) on participatory initiative,
democracy. It is clear from this case A pioneering initiative, the SCI has the the SCI has
study that when structures are put potential to impact on adolescents the potential
in place for adolescent participation, and young people, communities and to impact on
adolescents respond remarkably well, governance in several ways, including adolescents and
especially when they are mobilized by reducing violence and increasing the young people,
and given information on their rights acceptance of marginalized communities. communities
and governance
and responsibilities. The other actors The scaling up of the SCI through the
in several
that have been facilitated by UNICEF government is crucial to achieve this
ways, including
to promote adolescent participation and, as the SCI is rolled out to other
by reducing
include government agencies at the local, cities, the lessons from Bhopal must violence and
municipal, district and state levels. CSOs inform the programme design. To sustain increasing the
have been strong partners, organizing this programme, UNICEF’s financial acceptance of
groups, transferring skills and enabling and technical backing, as well as the marginalized
processes at the ground level. Anganwadi incorporation of programme indicators communities.
(child care) workers, the police and local for monitoring the meaningful rights-
government functionaries, who already based participation of children, will be
have roots in vulnerable communities, crucial.
© UNICEF/UN0215328/Vishwanathan

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 47

© UNICEF/UNI215084/Panjwan

48 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

 Children’s Participation

3 in Child-Friendly
Local Governance,
Maharashtra, India

“We, the Bal Panchayat [children’s council] members conduct meetings (Bal Sabhas)
[children’s collectives] of children in the age group 11–18 years. In these we discuss
child rights and other issues and take them up with Gram Panchayats. Now our
Gram Panchayat members and community do listen to us and are aware of our
rights. Earlier they used to think ‘what do children know?’ Now our Gram Panchayat
and people create platforms for us to speak, they respect our views and opinions
and act on them. Our Gram Panchayat has included our suggestions and demands
into Gram Panchayat plans. For example, water filters for communities and CCTV
cameras on school roads. We not only stand up for our own rights, but for those of
the community as well. We actively initiate and contribute to social development
activities in the village. We have started campaigns like ‘plastic free village’, ‘open
defecation free village’, etc. to raise awareness. We want such platforms for children’s
participation at the district and state levels too.”

Kajal,85 member of Bal Panchayat, at the UNICEF South Asia Engaged and Heard
Participation Guidance Launch, 5 November 2020
© UNICEF/UN0214956/Vishwanathan

Introduction This case study looks at the specific

focus of the CFLG on child participation.
The Child-Friendly Local Governance It includes the overall evolution of child
(CFLG) initiative in Maharashtra was participation in governance at the local
visualized and led by the Social Policy gram panchayat level, as well as its
division of UNICEF Maharashtra, in transformative impact on inclusive and
partnership with the state government. responsive planning, both upstream at

85 Kajal is a 17-year-old member of the Bal Panchayat, the committee elected by the children’s assembly of the village.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 49

 The Child- the state level and downstream at the are the guidelines issued by the 14th
Friendly community level. Finance Commission for implementation
Panchayat of the Gram Panchayat Development
programme is India has a long tradition of local Plan (GPDP).
embedded in governance by village panchayats,86 but
this devolution it was only through the 73rd Constitutional Issues faced by children in
of rural
Amendment of 1992 that the system of Maharashtra
governance,
Panchayati Raj (meaning rule through
as are the
panchayats) was formally introduced into Maharashtra is located in the west-
guidelines
issued by the the legal framework, thereby mandating central region of India and is the third
14th Finance the existence of gram panchayats in India largest state in India by area and the
Commission for at the local government level, with the second largest by population. The capital
implementation gram sabha 87 being the smallest and of Maharashtra is Mumbai, a bustling
of the Gram only permanent unit of the system.88 metropolis and the financial capital of
Panchayat The Amendment also introduced the 11th the country. The 2011 Census of India
Development Schedule into the Constitution of India, reported a rural population of almost
Plan (GPDP). which covers 29 matters to be devolved 55%, a literacy rate of 82.9% (77%
to local governments. The Child-Friendly literacy in rural areas; almost 90% in
Panchayat programme is embedded in urban areas).89 Maharashtra has been
this devolution of rural governance, as a pioneer in institutionalizing local self-
governance, with the Maharashtra Village
Panchayats Act coming into force in 1959,
amended and modified over the years.
The state has 34 district panchayats
with 27,891 village panchayats covering
a total of 44,345 villages.90 Children
(below 18 years) constitute 32.1% of the
population of the state, and 16% of its
© UNICEF/UNI207726/Katragadda

total budgetary expenditure in 2020/21

was on children (about 2.2% of its GDP).
However, only 0.05% of the budget was
spent on the health needs of children
and 0.81% of the budget was allocated
to addressing malnutrition, while child
protection had the lowest provision at
0.1% of the children’s budget.91

86 The word comes from panch (or five), meaning five elders selected to preside over village meetings and decide on the issues raised at the
meeting. The selection of the elders was often mediated by the dominant caste/class and family hierarchies.
87 A gram sabha consists of all persons registered in the electoral rolls in the area of the villages, and the gram panchayat is the elected village
council.
88 Participatory Research in Asia (PRIA), ‘Panchayat, a Knowledge Hub: What is a Panchayat’, undated, <www.pria.org/panchayathub/panchayat_
text_view.php>, 26 August 2021.
89 Government of India, Census of India 2011: Primary Census Abstract 2011 Slum-India (Bhārata kī janagaṇanā 2011: prāthamika
janagaṇanā sāra), Office of the Registrar General & Census Commissioner, Ministry of Home Affairs, Government of India, New Delhi, 2011.
90 Government of India, ‘Local Government Directory’, Ministry of Panchayati Raj, undated, <www.lgdirectory.gov.in/>, accessed 26 August
2021.
91 Singh and Nair, Child Responsive Budgeting for Maharashtra – A Way Forward, June 2021.

50 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

 Box 13. Children’s participation in the Maharashtra State Policy for Children

Maharashtra has a State Policy for Children,92 which is in line with the principles of the UNCRC and
India’s National Policy for Children. The policy, while promising to uphold the rights of children through
various programmes and schemes, also recognizes the “consultation and participation of children, in
an age-appropriate manner, in all matters affecting them” as an inalienable right. It advocates for the
establishment of bal panchayats at the state, district, taluka 93 and gram panchayat level to ensure
children’s participation in issues related to them. It also states that “the state shall pilot and institutionalise
successful models of child participation in accordance with its obligations under UNCRC”. In addition,
children’s organizations/clubs shall be created in all schools, villages, institutions and housing societies
to enable children to voice their concerns and desires. Every department shall be equipped with the
facilities enabling children to express their opinions.94 UNICEF is leading the revision of the Child Policy
and has submitted a draft to the relevant department for approval. Suggestions include extending child
participation to local bodies like ashram shalas 95 and care homes; developing the capacities of both
adults for facilitating participation in safe spaces and adolescents for meaningful participation; federating
platforms for adolescent participation; making resources (financial, knowledge) available to promote
participation; and establishing monitoring mechanisms and protocols for participation.

In 2018/19, the school drop-out rate women in the state were married before
in Maharashtra was 2.2% in upper completing 18 years of age.99
primary school and 13.3% in secondary
school. The crimes against children in The gender budget for the state of Out of this
Maharashtra increased from 18,892 Maharashtra in 2020/21 was just 1.8% 3% allocation,
the bulk was
in 2018 to 19,592 in 2019, dropping to of the total state budget.100 Within the
spent on
14,371 in 2020.96 In Chandrapur district, gender budget, education, an enabling
installing CCTV
where the pilot was conducted from 2016, environment and economy accounted for
cameras and
child marriage and teenage pregnancy nearly 81%, while only 3% was allocated not on direct
decreased between 2015/16 and to ending gender-based violence. Out of interventions
2019/20.97 There are regional disparities this 3% allocation, the bulk was spent against gender-
in the state that leave a large number on installing CCTV cameras and not on based violence.
of children stunted, underweight and direct interventions against gender-
wasted. Furthermore, the infant mortality based violence. The total allocation for
rate is high at 19 per 1,000 live births.98 gender responsive health and nutrition
Of the total child population, 3.5% accounted for about 0.2% of the state’s
are labourers and one-third of married total budget. Nearly 77% of this was

92 Government of Maharashtra, Child Policy 2014: A Commitment on Child Development in Maharashtra through Holistic, Integrated and
Planned Approach, Women and Child Development Department, Government of Maharashtra, 2014, <https://womenchild.maharashtra.gov.in/
upload/579d811619e34Maharashtra%20State%20Child%20Policy.pdf>, accessed 22 November 2021.
93 A taluka is part of a district.
94 Government of Maharashtra, Child Policy 2014.
95 An ashram shala is a rural residential school.
96 Table 4A.1, Crime against Children (IPC+SLL) – 2018–2020, National Crime Records Bureau, Crime in India 2020, Statistics – Volume-1,
National Crime Records Bureau, Ministry of Home Affairs, 2020, p. 301.
97 UNICEF, Child Policy 2021: Situation Analysis in View of 2014 Policy and Way Forward, UNICEF Maharashtra, May 2021.
98 Ibid.
99 UNICEF, Realizing Rights of Every Child Through Local Governments: Maharashtra, UNICEF Maharashtra, undated.
100 Das, Shoumeli, and Anuradha Nair, ‘How Maharashtra Invests for Gender Equality and Women’s Empowerment: A Gender Budget Analysis’,
Review of Market Integration, vol. 12, issue 3, pp. 139–158, 2020, <file:///C:/Users/Susan/AppData/Local/Temp/How%20Maharashtra%20
Invests%20for%20Gender%20Equality_Das%20Nair.pdf>, accessed 24 January 2022.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 51

 invested in nutrition for pregnant and This also encouraged inter-generational
lactating women and on accredited social solidarity, with women and young people
health activists (ASHAs).101 The remaining at the centre.
investment was for antenatal and
postnatal care, institutional deliveries, In 2008, at the request of the Government
and menstrual hygiene management. of Maharashtra, UNICEF also initiated the
Deepshikha project, as part of UNICEF’s
A study of the GPDP 102 in 2019 found Building Young Futures programme.104
that while an average of 34 adolescent This project aimed to empower young
girls (in 66.8% gram panchayats) and women and adolescent girls aged 12–18
36 boys (in 53.3% gram panchayats) years to come together to protect their
attended gram panchayat meetings, rights and build their futures, while
the main activity had been purchasing actively participating in the development
sanitary pads for adolescent girls. The of their communities. Phase 1 (2008–
This also monitoring framework for the GPDP 2012) covered 70,000 adolescent girls
encouraged focused on elementary education, child in the rural blocks of Chandrapur, Latur
inter-generational marriage, child labour, outdoor sports, and Nandurbar and in the urban slums of
solidarity, with and the number of meetings of bal three wards in Mumbai. In Phase 2 (2012–
women and young sabhas (children’s collectives).103 Some 2015), the Government of Maharashtra
people at the
issues, such as school drop-out, crime replicated the model in the 125 most
centre.
against children, and infant mortality, disadvantaged community development
do not appear to have been addressed. blocks in 25 districts, benefiting more
than 300,000 girls.
About the project
Sumedh Gurjar, Director of the
UNICEF’s early interventions Research and Documentation Cell at
the Yashwantrao Chavan Academy of
UNICEF’s experience in promoting Development Administration (YASHADA),
adolescent participation in Maharashtra stated:
first started in 2006 in three districts
with the training of local government The UNICEF-initiated Deepshikha
officials on child rights, and then programme is one of the most
extended to micro-planning pilots based powerful social programmes I have
on an appreciative enquiry approach, come across where girls brought in a
whereby communities and authorities lot of change in traditional processes
were encouraged to recognize their by taking on power structures. The
collective strength, reaffirm their sense programme has created a strong
of responsibility, and take ownership networking of social capital through
of the health, education and protection the youth and trainers.
of their children, while committing to Sumedh Gurjar, Director of Research and
achieving a set of aspirational goals Documentation Cell, YASHADA, interview
(online) with CWC, August 2021
within a mutually defined timeframe.

101 An ASHA is an adult, literate woman who is a resident of the village, selected by the gram panchayat under India’s National Rural Health
Mission to provide primary medical care for minor ailments such as diarrhoea, fever, and first aid for minor injuries, as well as report on births,
deaths and any unusual health problems/disease outbreaks in the village. She is not a government employee with proper benefits.
102 SIGMA Foundation, Maharashtra GPDP Study Key Findings and Recommendations, UNICEF, 2019.
103 Government of Maharashtra, Monitoring Framework for Gram Panchayat Development Plan, Rural Development and Panchayat
Department (RD&PR), Government of Maharashtra, 2020.
104 UN Women, Making Women Count: An Annual Publication on Gender and Evaluation by UN Women Multi Country Office for India, Bhutan,
Maldives and Sri Lanka, Multi Country Office (MCO) for India, Bhutan, Maldives, and Sri Lanka, November 2015.

52 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

 Box 14. UNICEF’s pilot interventions

The pilots started with education, then moved to health, WASH, and nutrition, with child protection as
a recent addition. The focus was on community managed programming, young people’s participation,
and volunteerism, among other things. The pilots asked: How do we mobilize the community? How do
we improve planning? How do we build an ecosystem for child responsive governance? The lessons
from these pilots created a comprehensive model that influenced the gram panchayat-based planning
in Maharashtra. Half the trainers came from the state machinery, and half came from the resource pool
created earlier through community-based models, creating foot soldiers for the state. The social capital
generated by these initiatives was instrumental in the capacity building and implementation of many
state-led programmes like the Maharashtra State Rural Livelihoods Mission (MSRLM) and the GPDP.
Anuradha Nair, Social Policy Specialist, UNICEF Maharashtra, interview (online) with CWC, September 2020

Gram Panchayat Development This success led UNICEF to focus

Plan and Child-Friendly Local on the meaningful participation of
Governance initiative children in governance by building
the capacities of local governments
Influenced by the community-centric to create child-friendly panchayats.
participatory planning pilots carried out The CFLG was piloted by UNICEF in
with UNICEF and CSOs, the Government partnership with the Department of
of Maharashtra adopted the GPDP in Rural Development and Panchayati Raj This success
2015. UNICEF began working with (RD&PR), supported by YASHADA and led UNICEF to
YASHADA, the administrative training the Maharashtra State Commission for focus on the
meaningful
institute of the government, to identify Protection of Child Rights (MSCPCR),105
participation
entry points for influencing participatory to promote child sensitive governance
of children in
planning under the Backward Region with the meaningful participation of
governance
Grants Fund (BRGF) and the Human children. The institutions for children’s by building
Development Mission. The earlier model engagement were formalized at the the capacities
of collaboration with CSOs was replaced village level to ensure that they had of local
with partnerships with gram panchayats a platform to discuss issues, were governments
established through YASHADA’s Centre heard in community decision-making to create
for Community Managed Programming processes, and could influence the child-friendly
(CCMP), which acted as the key training Government of Maharashtra’s guidelines panchayats.
facilitator. State institutions became on child participation in gram panchayat
responsible for transforming training planning.106 The diagram in Figure 2
into implementation. explains the links between bal sabhas,
bal panchayats, gram sabhas, gram
panchayats and different committees.

105 The Maharashtra State Commission for Protection of Child Rights was set up in July 2007 as a statutory body under Commission for
Protection of Child Rights Act 2005 (4 of 2006) to protect, promote and defend child rights in the state.
106 Eka, We, the Children – The Making of a Child Friendly Panchayat, An Activity Book for Children, Department of Rural Development and
Panchayati Raj, Maharashtra State Commission for Protection of Child Rights and UNICEF Maharashtra, February 2018.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 53

 Figure 3. Child participation model pilot in Child and Gender Responsive Panchayat programme

Bal sabha Gram sabha/mahila sabha

Elects Elects

Bal Gram
Sets up panchayat panchayat

Assisted by
School monitoring
Health- Child committee/village
Nutrition Education health and services
hygiene protection
committee committee nutrition committee
committee committee

Source: Adapted from Child Participation: The Right to be Heard, Maharashtra Advocacy Brief 107

This approach led to state ownership with the 14th Finance Commission’s
The underlying of the programme and eventually to a recommendations and gram panchayat
principle national level roll out of integrated micro plan preparations and budgeting.
throughout the planning, along with YASHADA assisting According to Anuradha Nair, Social
programming the Planning Commission of India in Policy Specialist, UNICEF Maharashtra,
has been drafting a manual on Integrated District the specific guidelines for Maharashtra
community – Planning for the Country in 2007.108 The were the “start of the institutionalization
and adolescent underlying principle throughout the process at planning level”,109 as they
– led initiatives,
programming has been community made mandatory the investment of
volunteerism,
– and adolescent – led initiatives, 25% for social development and 10% for
and the creation
volunteerism, and the creation of social women and child development, making
of social capital.
capital. The turning point for UNICEF’s it a total of 35% investment at the gram
work in Maharashtra came about when panchayat level, the highest in all of India.
it influenced the State Guidelines in line

107 UNICEF Maharashtra, Child Participation: The Right to be Heard, Advocacy Brief, UNICEF Maharashtra, undated.
108 Roy, M.N., and SIGMA Foundation, Strengthening Gram Panchayat Development Plan for Maharashtra, Government of Maharashtra,
August 2019, p. 5.
109 Anuradha Nair, Social Policy Specialist, UNICEF Maharashtra, interview (online) with CWC, September 2020.

54 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

 Box 15. Mandate for child-friendly panchayats

The Panchayati Raj system came into existence with the enactment of the 73rd Amendment to the
Constitution of India, giving a constitutional mandate to the gram panchayats. As an institution of local
governance, the gram panchayat is mandated to prepare local plans for economic development and
social justice, implement schemes and perform functions for matters listed in the 11th Schedule (Article
243G) of the Constitution. Point 25 of the Schedule lists women and child development as a subject
within the domain of the panchayats. This means that all schemes and programmes of government that
deal with women and child development are now the responsibility of the Panchayati Raj institutions.
A child-friendly panchayat is, thus, a constitutional body that has a legal mandate and responsibility to
undertake measures for the development of women and children within the gram panchayat’s area.

The child-friendly panchayat will only evolve when the gram panchayat creates space for children to
participate in the governance process. The gram panchayat can define strategies to bring children into
the focus of all development initiatives and provide them with an environment that is conducive to
their participation in those initiatives.
One example is the effort in Maharashtra to promote children's collectives such as the bal sabha and
the bal panchayat. The children in the bal sabha elect their bal panchayat. Village facilitators assist the
bal sabha and bal panchayat. To synchronize these efforts between the gram panchayat and the bal
panchayat, both panchayats share plans with each other on issues concerning children in the village.
For this, it is essential that the gram panchayats acknowledge facilitators, allocate resources and create
inclusive spaces to enable children's participation.
Source: In the Right Direction: Aiding Child Friendly Panchayats 110

UNICEF’s strategy The main village-level facilitators UNICEF

nominated by gram panchayats to conduct Maharashtra’s
UNICEF Maharashtra’s strategy was training are the preraks or prerikas (male strategy was to
to institutionalize the participation of and female ‘inspirers’), which are posted institutionalize the
women and children in local governance, in every gram panchayat to conduct participation of
through the mahila sabhas (women’s training and help adolescents mobilize women and children
committees) and bal sabhas (children’s into bal sabhas and elect bal panchayats, in local governance,
collectives), and also to qualitatively which then participate in gram panchayat through the mahila
influence budgeting and examine meetings to articulate the viewpoints and sabhas (women’s
whether or not there is scope for better suggestions of children. UNICEF played committees) and bal
sabhas (children’s
investment. Through the facilitation a major role in training these facilitators
collectives), and
of training and technical support, and through YASHADA, which was critical
also to qualitatively
continuous capacity building, UNICEF in ensuring the participation of children
influence budgeting
has been instrumental in influencing and sustaining community connections. and examine
the evolution of child and adolescent whether or not there
participation in villages in Maharashtra, is scope for better
both directly and indirectly. investment.

110 Eka, In the Right Direction:Aiding Child Friendly Panchayats, Handbook for PRI Functionaries, Department of Rural Development and
Panchayati Raj, Maharashtra State Commission for Protection of Child Rights, and UNICEF Maharashtra, Mumbai, February 2018, <https://rdd.
maharashtra.gov.in/sites/default/files/IN%20THE%20RIGHT%20DIRECTION%20PART%201_0.pdf>, accessed 22 November 2021

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 55

 Box 16. Realizing children’s right to information and skills

In 2018, the Government of Maharashtra in conjunction with UNICEF Maharashtra published an

excellent set of resource materials for children for bal panchayats and gram panchayats. These detail
the various aspects of the child-friendly panchayats in a simple and easy to understand way. These
materials creatively contribute to the development of the agency of children by providing them with
knowledge and awareness, such as on the role of bal sabhas and the kinds of issues that bal sabhas
and bal panchayats can work on, with strong real-life examples of how children have effected change.
Developed and published jointly by the Department of Rural Development and Panchayati Raj, the
Maharashtra State Commission for Protection of Child Rights, and the UNICEF office for Maharashtra,
the Resource Kit111 consists of five booklets:
1. On an Equal Footing – Children as Partners in Governance112
2. In the Right Direction – Aiding Child-Friendly Panchayats113
3. We the Children – the Making of a Child-Friendly Panchayat114
4. In My Defence – Introducing Laws for Children115
5. Triggering Change – Handbook for Facilitator in Gram Panchayats116

Ranging from explaining ‘who is a child’ to the needs of children from different vulnerable groups,
these booklets touch on the rights of children under the UNCRC and explain them in simple language,
outline the laws, policies and systems for the protection of children, and describe the roles and
functions of the gram panchayats, bal panchayats and bal sabhas. This resource kit is an example of
the implementation of Article 17 of the UNCRC on children’s right to information.

The draft UNICEF also focused on building governance. The training needs study
focuses on the evidence on the capacities of gram brought out issues around training and
induction of all panchayats for planning, budgeting, training content and the requirements,
newly elected and monitoring for woman and child as felt by elected representatives. These
representatives development, in partnership with select trainings were incorporated under
of the gram CSOs. For example, with the Resource the Rashtriya Gram Swaraj Abhiyan
panchayat, and Support Centre for Development, (National Village Self-Rule Campaign).
covering the UNICEF conducted a perspective study UNICEF, in partnership with the SIGMA
need for regular on training needs and the need for Foundation, undertook an assessment of
capacity building an induction policy. The draft focuses the implementation of the GPDP,117 and
and other on the induction of all newly elected the findings of this study influenced state
provisions to be representatives of the gram panchayat, decisions around capacity building, gram
made available to covering the need for regular capacity panchayat planning, monitoring systems
them for better building and other provisions to be and policies for child participation in
governance. made available to them for better governance.

111 Department of Rural Development and Panchayati Raj, Maharashtra State Commission for Protection of Child Rights, and UNICEF
Maharashtra, Child-Friendly Panchayat Resource Kit, Department of Rural Development and Panchayati Raj, Maharashtra State Commission
for Protection of Child Rights, and UNICEF Maharashtra, 2018.
112 <https://rdd.maharashtra.gov.in/sites/default/files/ON%20AN%20EQUAL%20FOOTING_1.pdf>
113 <https://rdd.maharashtra.gov.in/sites/default/files/IN%20THE%20RIGHT%20DIRECTION%20PART%201_0.pdf>
114 <https://rdd.maharashtra.gov.in/sites/default/files/WE%20THE%20CHILDRAN_0.pdf>
115 <https://rdd.maharashtra.gov.in/sites/default/files/IN%20MY%20DEFENSE%20READY%20TO%20PRINT%20OPEN% 20FILE%20
INDESIGN_0.pdf>
116 https://rdd.maharashtra.gov.in/sites/default/files/TRIGGERING%20CHANGE_0.pdf
117 SIGMA Foundation, Maharashtra GPDP Study Key Findings and Recommendations, UNICEF, 2019.

56 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Methodology two facilitators for Child-Friendly
Panchayats, from Chandrapur and Latur
As a result of the restrictions imposed districts – two of the three districts
to control the spread of COVID-19, visits where child-friendly panchayats had
to the programme areas by the study been initiated. We required two rounds
team were not possible. Instead, online of discussion with these respondents;
interviews and group discussions were during one of these we also spoke to a
conducted, which imposed several trainer in Latur associated with village
limitations in terms of the availability planning, Deepshikha and child-friendly
of children and discussants, as well panchayats.
as limiting the rapport that could be
established. Extensive preliminary The panchayat officials interviewed were:
discussions took place with the team an up-sarpanch (elected deputy head
members of UNICEF Maharashtra, in of the gram panchayat) from the pilot
particular with Anuradha Nair and Rejani gram panchayat of Anantwadi in the
Pavithran. District of Latur; an ex-sarpanch (former
elected head of the gram panchayat)
The study team spoke to seven from the pilot gram panchayat of Bhatala
adolescents, who were bal panchayat in Chandrapur; and a prerak (village-level
members118 from Chandrapur district on facilitator) in Pizdura gram panchayat
a video call from two locations. These in Chandrapur. We also spoke to state
adolescents belonged to two different officials, namely: a block development
panchayats, one was part of the initial officer who was earlier posted in Taloda,
pilot programme and the other had Nandurbar district; a block development
been added more recently in the CFLG officer who was earlier in Warora (the first
expansion stage. As they were all from child-friendly panchayat in Maharashtra)
the same district, they were aware of and is now Deputy Chief Executive Officer
the early years of the initiative, as well (CEO) of Parbhani; the Deputy CEO of
as the more recent developments. We Chandrapur in 2014; an official from the
were ably supported with translations State Project Management Unit (and
by Pramod Kalekar, a UNICEF consultant earlier State Director of Rashtriya Swaraj
with YASHADA. Gram Abhiyan); and an official from the
State Institute of Rural Development.
The CSOs we had discussions with were
senior members of the Resource and During the interviews and discussions we
Support Centre for Development, a state- discussed in detail the role of YASHADA
level network of CSOs engaged with with the Director of the Research and
communities, especially those from the Documentation Cell, YASHADA; the
most marginalized communities. We also Coordinator of the Project Monitoring
had discussions with representatives Unit, Research and Documentation
of Sparsh, a key partner of UNICEF in Cell, YASHADA; and a consultant with
the implementation of the Deepshikha YASHADA.
programme. Our discussants included

118 The bal panchayat members were Sanket Gaurkar, Ashwini G, Imlata Wankhede, Venkatesh Ralegaokar, Kajal Ralegaokar, Asmita Wakudkar
and Bhagyashree Khobre.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 57

 Findings to tell about how they participated
in planning processes and how they
The findings of the case study are managed to influence gram panchayat
presented according to the ASPIRE decisions. For example, they identified
framework set out in Chapter 1. a flooded rivulet that they had to cross
often and analysed how to have it
Agency covered, marched through the village
to pressure the gram panchayat, and
Agency is defined as the evolving capacity succeeded in having action taken. In
and confidence of adolescents to engage addition, they conducted advocacy in
with decision makers and structures and the gram panchayat to fill all teacher
their autonomy in expressing opinions vacancies; installed CCTV cameras
and taking action: Did they drive, initiate outside the school for the security of
or manage projects? Did they make girls; set up a filter for well water; built
choices? What was the impact of other a playground and a dam; accessed the
The adolescents
actors on their agency? services of a lawyer for legal advice;
have now learnt
and stopped child marriages. On their
how to engage
with the gram Evolving adolescent capacity to own initiative they celebrated Savitri Bai
panchayat, engage Phule119 and her advocacy on women’s
the sarpanch rights; persuaded the father of one of
(elected head The adolescents who were interviewed the boys to run karate classes for girls;
of the gram felt that their confidence and strength and obtained money from the Gram
panchayat), came from the training and guidance Sewak to provide nutrition to a needy
the block they had received from the prerak/prerika child among them.
development who, along with their schoolteachers,
officer, and the guided them on how to leverage the “Our new sarpanch is young, he
collector of the collective strength of their bal panchayat is from our generation and will
district (revenue support even with new ideas and
and how to approach decision makers
head for the
on a given issue. They shared that they technology. He speaks very politely
district).
were often unsuccessful on their first to us, especially if we are very young
attempts, but had persisted. When […]. We have some good experiences
they succeeded, it emboldened them now and will be happy to work in
to take up the next issue. Subsequently, NGOs, even in UNICEF!”
the authorities also started to respond Sanket Gaurkar, Kajal Ralegaonkar,
Bal Panchayat member, discussion (online)
favourably. The adolescents have now
with CWC, 15 April 2021
learnt how to engage with the gram
panchayat, the sarpanch (elected head
of the gram panchayat), the block Many of the officials we interviewed
development officer, and the collector of supported this perception of adolescents,
the district (revenue head for the district). as stated in the box above. A prerika
recounted how issues such as the abuse
Adolescent autonomy to express of alcohol and drugs, misuse of funeral
and act grounds, and trouble incited by anti-social
elements were all taken up by adolescent
The adolescents who were part of the groups. The master trainer added that
CFLG initiative had a range of stories children convinced the gram panchayat

119 Savitri Bai Phule is an Indian reformer and educationist who was a trailblazer in the Indian feminist movement and pioneer in the education of
girls.

58 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

to hand the keys of the gram panchayat of these suggestions were accepted,
library to the prerika so that they could because they were from the children
access books when convenient. An who belonged to the panchayat. As the
up-sarpanch (deputy head of the gram gram panchayat’s understanding of rights
panchayat) recalled that the adolescents grew, they too started adopting a rights
raised concerns about toilets, waste and framework for community demands.
water management. As an ex-sarpanch Such negotiations highlight the power
commented, the more the children were struggles between adults and children,
mobilized and their strength grew in which require constant engagement and
numbers, the more their self-confidence resolution.
grew. Subsequently, they demanded
even more space to participate.120 State

Impact of other actors on agency The mandated role of the state is to

integrate and sustain adolescent
Initially, there
The ex-block development officer of participation in governance and ensure
was some
Taloda recalled that, in the beginning, the subsidiarity in planning, with the
resistance from
children were shy and did not participate devolution of decision-making power to community
in the gram panchayat meetings, as the lowest possible tier of government: elders to what
they saw them as an adult space and How are States able and willing to they saw as
were apprehensive about how the integrate adolescent participation in encroachment
adults would respond to their requests. governance? How are current economic on their
Initially, there was some resistance from forces that transfer welfare functions decision-
community elders to what they saw as from state to non-state actors influencing making space
encroachment on their decision-making the ability and willingness of States to and money
space and money being diverted for invest in their mandate for meaningful being diverted
children’s interests, like training, midday adolescent and community participation for children’s
interests,
meals, and health camps. The ex-block in governance structures?
like training,
development officer said that earlier he
midday meals,
had received mainly requests for funding Integrating adolescent participation
and health
construction work. But after about six in governance camps.
months of training, as the adolescents
started to articulate their needs, the State involvement with, and buy-in to,
elders gradually began to find that there this project has had a twofold trajectory.
was value in the ideas of the children and The first is the adoption of democratic
they supported them to exercise their devolution in the State of Maharashtra,
agency and take up community issues. in tandem with people’s rights-based
movements. The second has been
Similarly, the ex-block development the active involvement of UNICEF and
officer of Warora was appreciative of YASHADA in the state’s social policy,
how the confidence of the members of linking children’s rights, community
the bal panchayat grew incrementally. participation and bottom-up planning
When children learnt about their share – laying the foundations for CFLG and
of the budget, they suggested that its emphasis on the formation of bal
teaching aids, sporting material and panchayats. The implementation of
materials for skill development be projects like Deepshikha within this
purchased. At the gram panchayat, most trajectory has provided an impetus

120 Various interviews and discussions (online) with CWC, 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 59

 was much more than ‘civil work’ (or
construction). It also led to the inclusion
of bal sabhas and bal panchayats in
decision-making and suggestions for
local task-based training of new officers
in adolescent participation.

“When the woman president of the

gram panchayat was asked to speak,
she was very nervous, but when
encouraged over time she became
much more expressive. The principle
is the same from pilot to scale up: it
© UNICEF/UN0276228/Boro

requires time for exposure in better-

performing areas and expansion
cannot just be done suddenly.”
NP Mitragotri, State Project Management
Unit, interview (online) with CWC,
4 June 2021

for young people to access enabling One of the significant aspects of the
information, skills and opportunities for project was the conversion of the oral
collective bargaining. form of learning for transmission of
knowledge from one generation to the
One of the “We take great pride in the manner next in the villages into formal text-based
significant in which this programme has training modules that could be used by
aspects of the
developed. Lots of questions were master trainers and others to convey the
project was the
raised; the children were very happy practices of CFLG. The Coordinator of the
conversion of
they could express themselves; and Centre for Research and Documentation
the oral form
of learning for persuaded their mothers also to at YASHADA disclosed that it was a
transmission of demand their rights.” dilemma that was met by bringing
knowledge from Sushila, prerika, many practitioners of the oral tradition
one generation interview (online) with CWC, 24 July 2021 together to document songs and stories
to the next in to capture the essence of participation
the villages into The training by YASHADA added to the by adolescents in various activities, but
formal text- officials’ understanding of children’s keep it open to periodic revision based
based training rights and the CFLG initiative, so they on evolving practices. These were then
modules that could then guide the adolescents as offered as a guideline that trainers could
could be used by
well as resolve conflicts. A Deputy contextualize.
master trainers
CEO began to appreciate the tribal
and others to
adolescents’ understanding of issues Willingness to invest in meaningful
convey the
practices of like child marriage and the freedom of participation
CFLG. girls. Officials from the State Project
Management Unit and the State During the pilot project, YASHADA
Institute of Rural Development began was involved in providing training on
looking forward to the participation of micro planning, village planning and
adolescents. The visit to Kerala prompted so forth. When the CFLG was scaled
prerikas and the ex-block development up, UNICEF’s level of engagement in
officers to learn that ‘development’ the capacity programmes decreased

60 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

and there has been a dilution of the Participation
quality and effectiveness of the training
programmes, according to some Participation is the interface between
discussants. In relation to this, CSOs the agency of children and governance
and officials have requested that UNICEF structures: What are the factors that
be involved in quality assurance. The enable meaningful engagement between
CSOs also feel that YASHADA needs adult institutions and adolescents
to respond dynamically to the CFLG and adolescent groups? What are the
capacity building needs. boundaries and limits imposed on
adolescent participation (direct and
Going forward, the Director of YASHADA indirect; individual and collective; local
thought that scaling up was possible and national) by state actors, adults,
through the formal administrative training and hierarchical structures? What
of civil servants and networking with are the opportunities for adolescents The CSOs
existing trained youth and trainers. He to represent themselves in order to made sure
too emphasized the need for UNICEF’s question and change those boundaries? that legally-
continued and deep engagement in mandated
all aspects of CFLG as government Opportunities for adolescent school
institutions “need out-of-the-box participation management
committees
interventions”121 from time to time.
were set
State processes also ensured adolescent Several mechanisms have been used
up in each
participation in the design of training. at the community level to strengthen
village with
Bal panchayat members were part of adolescent participation. Earlier the CSOs representation
deciding training content and processes had translated the concept into specific from children
in the Child-Friendly Panchayat Resource activities, like placing a suggestion box in and all other
Kit.122 a public place; disseminating information stakeholders,
through games; making safety maps; to ensure that
The pilots initiated under UNICEF- conducting competitions; training one girl adolescents
YA S H A DA - R u r a l D e v e l o p m e n t and one boy from each class to mobilize were able to
Department (RDD)/Government of children; and entrusting teachers to keep participate in
Maharashtra partnership influenced records of all the issues that emerged to planning.
mandates for child participation in the present at monthly meetings. The CSOs
gram panchayats, as well as earmarking made sure that legally-mandated school
funds for what the children defined as management committees were set up
their needs. GPDP guidelines helped in in each village with representation from
creating a more enabling environment children and all other stakeholders, to
with funds at the disposal of gram ensure that adolescents were able to
panchayats for social development participate in planning.
through participatory planning. UNICEF
Maharashtra is also in conversation with The Director of YASHADA said that they
the Government of Maharashtra to bring tried to bring in adolescents’ concerns
in an ecosystem for child- and gender- through the participatory mapping
responsive planning and budgeting in process. Adolescents explained that
the state. they regularly sat in on bal panchayat
meetings; created their own ballot
papers for voting; and asserted their

121 Sumedh Gurjar, Director of Yashada, interview (online) with CWC, August 2021.
122 Department of Rural Development and Panchayati Raj, et al., Child-Friendly Panchayat Resource Kit, 2018.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 61

 collective strength through public that in order for these processes to
meetings. According to the prerak, the be prioritized, UNICEF’s technical
prabhat pheris (early morning marches and financial support was needed for
through the village) were very effective expansion.
in promoting participation and creating
a child-friendly environment. The two Inclusion
ex-block development officers felt
that information and communication Within adolescent groups there are those
technology has assisted in making individuals who are socially, culturally and
governance accountable. economically stronger and likely to be
more articulate, thereby excluding the
Boundaries and limits on already marginalized from participation
participation processes: What actions were taken
Working to promote inclusion, particularly in
children did not The adolescents wanted continued input relation to viewing and working with
have the time from the master trainers (engaged by the most marginalized groups as agents
to participate. UNICEF), as well as facilitators from and partners?
Other working CSOs,223 to learn more about governance
children who mechanisms; how to get more children Exclusion of marginalized
migrated with
to participate through games and theatre; adolescents
their families
and information about government and
lost access to
other schemes. They regretted that There were a few examples of adolescents
midday meals
and schooling. all training had stopped because of being excluded. Adolescents spoke of a
The ex-sarpanch the pandemic, thereby weakening the naughty child who was always given the
asserted that participatory process. task of cleaning the toilet. Working children
caste hierarchies did not have the time to participate. Other
were very Many of the officials interviewed working children who migrated with their
strong, supplemented the views of the children families lost access to midday meals and
with their own observations. The prerika schooling. The ex-sarpanch asserted that
(mobilizer), for instance, felt that less caste hierarchies were very strong, and
attention has to be paid to paperwork he had to struggle to challenge them. The
and more to children’s participation prerika also mentioned discrimination
and empowerment through sports and against the pardhi tola (the settlement
cultural activities. The master trainer of the DNTs formerly classified as
observed that it took about five years ‘criminal’).224 Girls expressed their own
for bal panchayats to really become issues around protection somewhat
active and for the gram panchayats differently from what experts had to offer,
to understand that adolescents will and even from what came out of the Safe
eventually become aware citizens, even Communities Mapping.
though the bal panchayats may have
become formally functional in the first These observations of exclusion are
two years. The mobilizers (prerikas and supported by a 2021 study,225 which
preraks), and master trainer all insisted reported that the needs of the children

123 The adolescents interviewed by the team mentioned facilitators from organizations such as the Magic Bus Foundation and Lumpen
Foundation.
124 Pardhis are a tribe that was notified as being a ‘criminal’ tribe during the colonial period and de-notified after independence, but the
discrimination against them is still visible, evidenced by the fact that they have to live in a tola (settlement) outside the village.
125 Singh, Chandrika, and Anuradha Nair, Child Responsive Budgeting for Maharashtra – A Way Forward, June 2021.

62 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

from marginalized sections were official from the State Institute of Rural
not prioritized in Maharashtra when Development also felt that issues of
budgets were prepared. Children from social justice were implicit in the training
marginalized groups were more likely to modules, with attention to the needs of
drop out of school early, because they weaker sections. A remarkable action
and their families were excluded from was taken by some of the boys in the
welfare schemes with low budgets. The village, who requested the master trainer
stunting levels among children from to accommodate them in the gender
Schedule Castes and Schedule Tribes training classes.
were much higher than for children
from other social and ethnic groups. "Learnings… are being integrated into
Caste-based violence was frequently the state's revised Gender Equality
experienced by children from Schedule and Women’s Empowerment
Castes/Schedule Tribes in schools in the Policy 2021 and State Policy and Members of
form of corporal punishment, bullying Action Plan for Children 2021… adolescent
and verbal abuse. In addition, the study focused on making planning and groups
reported that children with disabilities budgeting processes at all levels interviewed
also faced social exclusion and were child and gender responsive and sought to
often discriminated against. improving participation... UNICEF include the
has supported the revision and excluded in
the initiative,
Actions for inclusion as agents development of the policies for the
because they
state."
perceived that
Members of adolescent groups Anuradha Nair,
the more they
Social Policy Specialist, UNICEF
interviewed sought to include the enhanced their
Maharashtra, interview (online) with CWC,
excluded in the initiative, because they September 2020 organized
perceived that the more they enhanced strength, the
their organized strength, the more they more they
would be able to influence decision Resolutions would be able
makers in formulating child-friendly to influence
policies. For instance, they offered the Organizational structures determine the decision makers
gram sabha that all children could clean the nature of adolescents and young people’s in formulating
toilet by turn. When only nine members ability to exercise agency and influence child-friendly
policies.
were elected to the bal panchayat, they resolutions and decisions. At the same
formed more committees to enable those time, those charged with promoting
adolescents who did not get elected to agency are also those who set limits
take up leadership roles and have input and make the rules on translating the
into the bal panchayat. Working children exercise of agency to enact resolutions
were drawn into the group by explaining and decisions: In such a context how are
to their parents why they should be adolescents able to influence resolutions
studying and not working. and decisions?

The CSOs cited the case of how the Structures that determine the
children had persuaded their gram nature of agency
panchayat to write to another gram
panchayat asking it to provide services to Adolescents said that they have
migrant children. Gender-based violence raised issues in relation to their rights,
as an issue was taken up in the training schemes, police harassment, welfare
courses, according to the official from committees and observation homes,
the State Project Management Unit. The but that resolutions and decisions were

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 63

 How adolescents influence
resolutions

“The children made a list of

suggestions that emerged out of the
competition and the safety audit
regarding the roles of the police
the gram panchayat, key political
representatives, the protection
officer, the women’s committee, and
the facilitator. But then they had to
make the budgetary provisions for
each and forward them to the gram
panchayat. It was only when they
petitioned the gram sabha that some
of their issues were included in the
gram panchayat plan, but still there
© UNICEF/UNICEFUN0591698/Bhardwa

was no clarity on funding.”

CSOs, focus group discussion (online)
with CWC, 13 March 2021

Manisha Kamble, a sarpanch (elected

head of the gram panchayat) in one of
the pilot gram panchayats at Bhatala
(and one of our interviewees), attended
a three-day training organized by
made by the gram panchayats and UNICEF, at which she learnt about the
sarpanch. CSOs cited the example of rights of children for the first time, and
a suggestion box installed to receive that led to the formation of the first
complaints about officials, asking which bal panchayat.126 Other adolescents
official would be entrusted with opening observed how officials who had initially
the box! According to both the ex-block failed to pay attention to them gradually
development officers, there are vested paid more attention to children as the
interests who challenge lower allocation bal panchayats were instituted in every
for civil works and higher spending on village. The first support came from the
child protection. The master trainer, prerikas, who explained to the gram
prerika, up-sarpanch and ex-sarpanch panchayats why adolescents should
all mentioned that funding decisions attend the gram panchayat meetings to
went up the chain to the district level, share their ideas, feedback, and opinions.
sometimes to the collector and even Once the adolescents began to attend,
the secretariat, and there was a long they began to freely express their views
wait for children’s issues to be tackled. and were heard.

126 Madhuri, N.V., Bijita Devsharma, and Ruchira Bhattacharya, Child-Friendly Local Governance: Documenting Good Practices from India,
Child Rights Resource Unit (NIRDPR-UNICEF-CRRU), Centre for Gender Studies and Development, National Institute of Rural Development
and Panchayati Raj, Ministry of Rural Development, Rajendranagar, Hyderabad, 2021, <http://nirdpr.org.in/nird_docs/manuals/Child-Friendly-
Local-Governance280621.pdf>, accessed 12 January 2022.

64 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

In relation to the state budget, Deepshikha and other CSO programmes
adolescents said that while 10% of the that promoted adolescent participation
budget was supposed to be reserved in communities, were able to make
for women and children, there was no effective use of the CFLG programme.
mechanism through which they could Some Deepshikha trainees later
monitor the distribution of funds. All the became resource persons for the CFLG
other discussants agreed that financial programme. In Phase 2 of Deepshikha,
powers had to be devolved to the gram the Government of Maharashtra adopted
panchayat level. the model for replication in the 125 most
disadvantaged community development
Analysis blocks in 25 districts to benefit more than
300,000 girls. This clearly demonstrates
Based on the findings above, the that when adolescents are empowered
potential areas and opportunities for the they are better able to make the use Maharashtra
enhancement of adolescent participation of structures such as CFLG. UNICEF has a State
in governance and challenges are Maharashtra’s work between 2006 and Policy for
highlighted in the following sub-sections. 2015 enabled the creation of a huge Children that is
reservoir of active adolescents in the in line with the
UNCRC and the
Existing structures and state, which created an environment
National Policy
processes for adolescent for adolescent participation.
for Children.
participation
The new
State buy-in and accountability Child Policy
During its inception, the pilot highlights
programmes in selected panchayats Maharashtra has a State Policy for the need for
focused on process, with a very strategic Children that is in line with the UNCRC investment in
and successful first level of expansion and the National Policy for Children. the capacity
to three districts. These ‘micro planning The new Child Policy highlights the building of gram
pilots’ were conducted by UNICEF need for investment in the capacity panchayats to
in partnership with the government building of gram panchayats to facilitate facilitate child
through YASHADA, as an active partner, child participation and mandates bal participation
setting up of the Centre for Community panchayats. Budgetary allocation for the and mandates
bal panchayats.
Managed Programming (CCMP) to health needs of children, malnutrition
facilitate the process.127 There was active and child protection have low priority.
involvement by the district administration This has resulted in a significant rise in
and government functionaries, with the drop-out rate from secondary school.
child-friendly panchayats leveraging “the The crime rate against children has also
existing government staff, government increased. The gram panchayats have
funds, volunteerism and existing legal and made admirable efforts to move from
policy frameworks to make processes, infrastructure-based development to
systems and behaviour in institutions social development in the GPDPs, but the
more child friendly”,128 along with the specific mandatory investment of 25% of
extensive and sustained engagement the budget for social development and
of UNICEF. 10% for women and child development
remains unfulfilled.
A large number of adolescents, enabled
through earlier programmes like

127 UNICEF, Realizing Rights of Every Child Through Local Governments: Maharashtra, UNICEF Maharashtra, undated.
128 Ibid.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 65

 Institutionalizing the capacity building participatory mechanisms and engage
of elected members of the local with dissenting opinions, especially with
governments and local officials in regard to decisions and funding priorities,
CFLG, which is being conducted by so as to enhance innovative and inclusive
UNICEF in partnership with YASHADA, planning. UNICEF Maharashtra has
is an excellent strategic move. It has been actively involved in advocating
the potential to ensure the continued for mandating these structures by
commitment of the state to CFLG, and law, and these could be strategically
the role of UNICEF in ensuring this integrated into the provisions of the 73rd
is commendable. The challenge is to Amendment for devolution.
Institutionalizing sustain this over five-year cycles for
the capacity newly elected panchayat members, who Expansion, from the pilot to the state
building of will again require training in CFLG, and level, must be through much more
elected members to devolve financial power to the gram facilitation of training and technical
of the local panchayat level. UNICEF Maharashtra support, and continuous capacity
governments has submitted a draft induction policy for building, which UNICEF has been
and local elected representatives to cover regular instrumental in influencing in villages in
officials in CFLG, trainings for all, including on child rights, Maharashtra, both directly and indirectly.
which is being gender, and CFLG. The main village level facilitators (preraks
conducted by
and prerikas) are the real conduits for
UNICEF in
Strategies for expansion training and helping adolescents to
partnership
organize themselves and influence the
with YASHADA,
is an excellent In the formative years of the CFLG gram panchayats. A similar strategy will
strategic move. It initiative and up to the present stage, clearly have to be followed during any
has the potential there has been a focus on devolution, further expansion.
to ensure the but in terms of tasks and decisions, as
continued opposed to the decentralization of power Exclusion and inequity
commitment and finances. Although aligned with the
of the state to 73rd Amendment to the Constitution, Caste-based violence is experienced by
CFLG, and the the State of Maharashtra is yet to lower caste children and children from
role of UNICEF devolve rights and responsibilities to tribal communities in schools and is
in ensuring this the panchayats in full measure, as has reported in the literature as taking the
is commendable.
been done in some other states, such form of corporal punishment, bullying and
as Karnataka. The bal sabhas and bal verbal abuse. The same is true for children
panchayats are also not mandated by with disabilities and special needs.
state law, as they are in Karnataka, Very few of the people we interviewed
although they are in place in several reported exclusion, but this does not
districts of Maharashtra. Another model mean that social barriers do not exist. The
to look at could be the Kudumbashree- deficits in the gender budget at the state
led model in Kerala, 129 which has level indicate gender inequalities that are
successfully helped to initiate bal sabhas reflected in some of the interviews and
in all the gram panchayats of Kerala. documents. These include girls’ concerns
about their education, early marriage,
A strategy for expansion, therefore, has dowry, domestic violence and menstrual
to put in place structures that strengthen hygiene. There were also stories about

129 Kudumbashree is the poverty eradication and women’s empowerment programme implemented by the State Poverty Eradication Mission
(SPEM) of the Government of Kerala (<www.kudumbashree.org/pages/171>).

66 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

how adolescent groups tried to address there was a limitation imposed by the
these issues, ranging from asking for absence of support from CSOs, which
cameras at bus stops and along the have historically encouraged strong
road, to stopping early marriages and discourse and action around child rights.
organizing self-defence classes for girls
as well as boys. For example, the Resource and Support
Centre for Development, a network of
Barriers to equity are also often over 161 core partners from regional
perceived through the lens of pre- networks, women groups, cooperatives,
existing prejudices. More exposure to, NGOs, community based organizations
and understanding of, the challenges (CBOs) and people’s movements, which Barriers to
of tribal communities, including the was associated with the earlier phase equity are also
notion that they are ‘backward’, gives of child participation, is known to have often perceived
rise to appreciation of the fact that done important work on prioritizing through the lens
they understand their own problems, women’s governance in Panchayati Raj of pre-existing
as well as the likely solutions to these institutions and mobilizing people on prejudices. More
problems, better than external agents. issues of food security and violence exposure to, and
Instructional materials that specifically against girls. 130 Their approach and understanding
include the context of discrimination skills set to facilitate children is quite of, the
challenges
due to caste, gender, tribal status and unique and not all CBOs are as well
of tribal
disability will better enable marginalized versed in working with children. Where
communities,
groups to voice their agency as a primary good combinations of adult and child
including the
need. In addition, as the pandemic has engagement exist, the results are clearly notion that they
illustrated, there is a great need for the evident and also sustained. are ‘backward’,
state to reinvigorate training during gives rise to
crisis situations, which will, in turn, With the transfer of facilitating training to appreciation
promote participation to address issues state institutions, the role of CSOs has of the fact
of exclusion. apparently diminished. However, their that they
role may be enhanced again, especially understand
Role of CSOs by building their capacities to engage their own
with adolescents. problems, as
Before UNICEF linked directly with well as the
likely solutions
villages/communities, local-level Role of UNICEF
to these
work was facilitated by community-
problems, better
based CSOs, the Master Trainers’ The provision of technical support and
than external
Alliance and those working for political policy development at the state level agents.
decentralization. Their role has been by UNICEF has been a critical input,
important, both in laying the ground for especially as the programme was initiated
CFLG and supporting children and their and nurtured by the Social Policy Division
communities to make good use of the of UNICEF. This support has been long
opportunities that emerged when CFLG lasting and UNICEF has engaged with
was implemented. While master trainers representatives of local government and
and preraks/prerikas were trained on child administrative officials at multiple levels
rights, and implemented this training to of government. More than two decades
the best of their capacities during CFLG, of such groundwork has enabled UNICEF

130 Resource and Support Centre for Development, ‘Journey’, RSCD, 2016, <www.rscdgovernance.org/index.php/journey/>, 8 October 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 67

 to push for democratic decentralization communities to strengthen adolescent
in rural governance to be embedded in participation, as well as the innovative
While financial
inputs from policy. development of textual materials to
UNICEF, which supplement and support the oral tradition
were critical at While financial inputs from UNICEF, of learning, have greatly enhanced the
the inception which were critical at the inception of confidence of adolescents to assert their
of the project, the project, may not be as essential now views and agency.
may not be as considering the increased state buy-in,
essential now it is nevertheless important to sustain More micro case studies focusing in
considering the technical support and guidance greater depth on how children have
the increased that was made available by UNICEF to been given the space to participate
state buy-in, it ensure the quality and impact of the and how they have not only made full
is nevertheless
child participation processes within the use of that space, but also impacted
important to
CFLG. All stakeholders believe that this on adults and officials to further expand
sustain the
role must continue, with added emphasis that space would be useful in expanding
technical
support and on the further devolution of power – the scope of adolescent participation
guidance that both administrative and financial – with throughout the state. If these case
was made structures for greater accountability at studies are disseminated as part of the
available the local level. oral and visual traditions prevalent in
by UNICEF different localities then they would be
to ensure Enhancing participation even more effective, as demonstrated
the quality in the experience of CFLG so far.
and impact It is evident that the greater the
of the child opportunities provided to adolescents Recommendations
participation to participate, the more their capacity
processes within
has developed to come together and Based on our findings and analysis, we
the CFLG.
contribute to development planning. This make the following recommendations to
has also resulted in adults accepting and enhance the participation of adolescent
appreciating their contributions. Several and young people in governance.
mechanisms that have been used by
© UNICEF/UNI239754/Vishwanathan

68 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Adolescent groups groups and communities; empower
them to fend off external interference
Recommendation 1. Collectivize and sustain continuity through active
and strengthen your engagement as engagement with outgoing members;
adolescents: Collectivize and strengthen and support them with modular
your engagement as adolescents to training, information, education and
ensure that all young voices are heard communication materials and media
and influence decisions together; include programmes.
marginalized groups that are distanced
from decision-making bodies; define Recommendation 2. Broaden
your needs through mapping and priority engagement with CFLG programmes:
ranking; and federate at multiple levels Broaden engagement with CFLG
so that you can advocate to decision programmes by strategically engaging
makers at higher levels. with other CSOs working on children’
rights, as well as village child protection
Recommendation 2. Build support committees and their network partners,
systems: Build support systems with to play a key role in building the
CBOs, CSOs, media persons, other capacities of village elected bodies and
community groups, and stakeholders committees to facilitate the participation
to strengthen your capacity for research, of adolescents and young people and
representation, and advocacy and to gain to create an environment in which their
community support for your issues, participation can be nourished.
as well as to effectively raise shared
concerns that are not on the agenda of Recommendation 3. Engage actively
decision makers. with YASHADA and other institutions:
Actively engage with YASHADA and
Recommendation 3. Request and obtain other institutions to develop and transfer
sustained inputs: Request and obtain modules, strategies and resources to build
sustained inputs about children’s rights the capacities of children (including the
(including the right to self-determination most marginalized), local governments,
and the agency of children) and to build a and CSO member organizations for
strong base with good internal systems the effective implementation of CFLG
for making decisions and collective through the bal panchayats (children’s
leadership that resist the hijacking of councils) and bal sabhas (children’s
adolescent agendas by vested interest collectives).
groups.
Recommendation 4. Maintain an
CSOs independent voice for democratic
values: Play the role of an independent
Recommendation 1. Enable bal voice for democratic values and inspire
panchayats to learn more about CFLG: adolescents and young people to stand
Enable bal panchayats to learn more by the universal principles of equality and
about CFLG to facilitate their informed rights for all children and to raise their
participation; build their capacity for voices against all manner of exclusion,
democratic participation and participatory marginalization and inequity through their
leadership; include the most vulnerable engagement in the CFLG structure.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 69

 State State government

Central government Recommendation 3. Establish

Institutionalize appropriate legal mechanisms: Drawing
the participation Recommendation 1. Provide guidance on the Kerala Kudumbashree model,
of adolescents to support devolution in all states: Nepal CFLG model, and Karnataka
and young
Provide guidance to support devolution in Panchayati Raj Act, establish appropriate
people in
all states based on the model legislation legal mechanisms to devolve financial
bottom-up
in Karnataka, which devolves functions, powers to the lowest tiers of governance
planning and
budgeting for all finances and functionaries and mandates (including gram panchayats and bal
state legislation children’s participation in the Panchayati panchayats); discard unitary governance
and policies Raj Act. Establish clear guidelines for systems and uphold principles of
and ensure that roles, responsibilities and accountability subsidiarity and proximity; and enact
these policies at all levels of government for the 29 rules, guidelines and circulars, with
commit financial functions listed in the 11th Schedule of corresponding budgetary allocations,
resources for the 73rd Amendment to the Constitution to enforce CFLG and make Maharashtra
adolescent of India. into a model system of adolescent
participation participation in governance.
structures, Recommendation 2. Institutionalize
implement
the participation of adolescents and Recommendation 4. Establish
participatory
young people in bottom-up planning: provisions and safeguards for the
decisions and
Institutionalize the participation of participation of adolescents and
reach the most
marginalized adolescents and young people in bottom- young people: Establish provisions
groups. up planning and budgeting for all state and safeguards for the participation of
legislation and policies and ensure that adolescents and young people to ensure
these policies commit financial resources that participation determines the nature
for adolescent participation structures, and quality of the departmental services
implement participatory decisions and that children require, especially for
reach the most marginalized groups. marginalized groups; provide protection
from retaliation when children raise
© UNICEF Maharashtra/India

70 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

contentious issues, especially in conflict and technical support to respond to the
prone areas; and pay attention to their issues raised by children.
safety and protection, especially for girls.
Recommendation 8. Develop local
Recommendation 5. Renew and guidelines for the facilitation of bal
reinvigorate partnerships with civil panchayats and gram panchayats:
society organizations: Renew and Develop local guidelines for the
reinvigorate partnerships with CSOs facilitation of bal panchayats to support
that initiated the process of forming their mobilization, empowerment and
bal sabhas for CFLG implementation; networking at the gram panchayat
study the lessons that emerged from level, as well as for gram panchayats
the initial phase; and leverage these to integrate bottom-up planning,
lessons to enhance CSOs’ facilitation include rights-based programming and
of adolescent participation and local participatory monitoring and evaluation;
government engagement at the local provide recognition to prerikas; and create
levels. special provisions for the participation of
girls, children with disabilities, sexual
Recommendation 6. Strengthen and gender minorities, ethnic groups,
capacity building inputs by the State children from migrant communities, and
Institute of Rural Development: all marginalized groups so their concerns Renew and
Strengthen inputs by the State Institute are addressed by the gram panchayat. reinvigorate
of Rural Development to provide partnerships
adequate training; update and translate Recommendation 9. Engage the with CSOs
the Resource Kit on child-friendly support of civil society organizations that initiated
panchayats, developed by UNICEF with expertise: Engage the support of the process of
Maharashtra in conjunction with the CSOs with expertise and that possess forming bal
Government of Maharashtra, into local the conceptual clarity, experience sabhas for CFLG
languages (other than Marathi) and and capacities to provide technical implementation.
circulate them to different panchayats and thematic support to local-level
across the state; develop guidelines to institutions; that can provide for peer
support mobilization, empowerment and learning among representatives of
networking by bal panchayats; and evolve local governments for the sharing of
guidelines for the government to support good practices, mitigation of risks and
prerikas and collaborate with CSOs. sustaining of positive outcomes; and that
can translate the updated Resource Kit
Local government on child-friendly panchayats, developed
by UNICEF Maharashtra in conjunction
Recommendation 7. Sustain systems in with the Government of Maharashtra,
capacity building programmes: Sustain into different local dialects (other than
systems in capacity building programmes Marathi).
using tools such as marginality mapping,
priority ranking, and frequent safety Recommendation 10. Ensure the
audits, and by training newly-elected financial and operational sustainability
gram panchayat members (through of bal panchayats and bal sabhas:
prerikas), as well as older members, to Ensure the financial and operational
enable children to identify localities and sustainability of bal panchayats and
sectors in which they experience severe bal sabhas when devolving financial
vulnerabilities, so that communities may power to the gram panchayat level and
be provided with additional financial ensure that the stipulated allocation of

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 71

 10% of the budget for women and child building systematic marginality mapping
development takes place. mechanisms for engagement with
marginalized groups on the participation
Partner government agencies of adolescents and young people; and
by ensuring investment in participation
Recommendation 11. Enhance and strategies as a core component of all
ensure regular training: Enhance and programme work.
ensure regular training by studying
and adopting good practices from the Recommendation 2. Develop indicators
state’s bal sabhas in all gram panchayats, and mechanisms: Develop indicators
Deepshikha and the In-school Life- and mechanisms for monitoring
skill Education scheme, YASHADA and evaluating the participation of
and Kerala’s Kudumbashree, including adolescents and young people to
their experience in capacity building examine how to enhance participation
and innovative information, education during CFLG review; use the reviews
and communication models, using to advocate for adequate resources
the lessons to train panchayats and to ensure adolescents and young
adolescents in the principles of CFLG. people from the most marginalized
Develop communities can participate in local
indicators and
Recommendation 12. Assist in planning processes as partners; and
mechanisms for
updating, translating and disseminating pay specific attention to the Panchayat
monitoring and
the Resource Kit: Assist in updating, Extension to Scheduled Areas (PESA) Act
evaluating the
participation of translating and disseminating the in the tribal areas of Maharashtra, as it
adolescents and Resource Kit on child-friendly panchayats, safeguards the traditions and customs of
young people developed by UNICEF Maharashtra in tribal communities, especially due to the
to examine conjunction with the Government of alienation of land to non-tribal persons.
how to enhance Maharashtra, into different languages
participation and dialects (other than Marathi); help Recommendation 3. Create learning
during CFLG circulate them in panchayats across exchanges: Create learning exchanges
review. the state to enhance awareness and with regional good practices such as that
action on child-friendly panchayats; and of the Child-Friendly Local Government
disseminate and advocate across states, process in Nepal and the Kudumbashree
especially the YASHADA modules, which model in Kerala, to enhance the
were built on the oral tradition of learning capabilities of the Maharashtra CFLG.
and knowledge transfers. Sponsor the updating and translation
of the Resource Kit on child-friendly
UNICEF panchayats, developed by UNICEF
Maharashtra in conjunction with the
Recommendation 1. Mainstream Government of Maharashtra, into several
adolescent participation in governance languages for other state teams to refer
as a programme strategy in CFLG: to while developing their own resources
Mainstream adolescent participation and circulate these kits through regional
in governance as a programme offices to enhance awareness and action
strategy in CFLG across all institutions on child-friendly panchayats.
and delivery platforms in UNICEF to
strengthen cross-sectoral engagement Conclusion
by ensuring the realization of concepts of
participation that foreground the agency Remarkable work has been done through
of marginalized adolescent groups; by the CFLG programme in Maharashtra

72 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

in promoting child participation in gram framework around child participation,
panchayats. Its direct linkage with the and for the Child Policy to be revised
73rd Amendment of the Constitution to mandate child-friendly panchayats,
of India, which devolves functions, as well as budgets for facilitating child
finances and functionaries to the lowest participation. But this is dependent
tiers of governance, has embedded the on strong political commitment for
CFLG programme firmly in governance supporting democratic participation in
structures. The testimony of both governance, irrespective of the political
adolescents and state officials indicates party in power.
that this approach is now well accepted.
The agency of children, their eagerness It has to be recognized that there is a
to bring about positive changes in their dilemma inherent in such participation
communities, and their awareness about being facilitated. On one hand,
how the local governments need to stakeholders realize that it is building
be responsive to all citizens, including the base for an active and engaged
children, is inspiring. citizenry in the future. On the other
hand, some stakeholders fear that such
However, without further devolution a citizenry, even at the adolescent stage,
of financial power, in line with the can hold governments to account. With
Constitution of India, and the allotment governments increasingly becoming
of the required budget for CFLG, the investor-friendly and policies becoming
momentum of the programme may market-led, this dilemma needs urgent
diminish over time. UNICEF Maharashtra resolution.
is engaged in advocating for a legal
© UNICEF/UNI215019/Panjwani

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 73

© UNICEF Nepal

74 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

4
Child-Friendly
Local Governance,
Nepal

“I am so grateful to be a part of CFLG. I have learnt a lot and built on the past experiences
of child clubs. In the entire country, every district should be CFLG-compliant. There
should be spaces for all children to speak up without fear. Our education system
must become more viable and accessible to all children. We need to have political
stability and corruption free CFLG for a beautiful Nepal.”

Rachana Bhusal,131 President, Municipality Child Club, Nawalparasi, interview

(online) with CWC, July 2021

Introduction decades of working for children’s rights.

Since the early 1980s their efforts to
As a relatively young democracy, Nepal establish child clubs have had the support
has been very open to progressive of local administrations and recognition
ideas and in its response to children’s from national governments.
rights related advocacy initiatives. Nepal
became a member of the United Nations Organizations such as Child Workers
(UN) in 1956 and, in 1990, a year before in Nepal (CWIN)133 have been at the
a multi-party parliamentary system was forefront of children’s rights and
established in Nepal,132 it ratified the UN democracy-related movements in the
© UNICEF/Nepal

Convention on the Rights of the Child country. In 1992, CSOs working with
(UNCRC). The CSOs of Nepal, the UN, children formed the Children at Risk
and other national and international Network. This network and other efforts
agencies have a history of almost four by CSOs were supported financially and

131 Rachana is now 20-years-old and has been associated with child clubs for over 7 years. She was the president of the ward level child club at
16.
132 It had been established briefly in 1951, but replaced by the Panchayat system in 1960 (see <https://en.wikipedia.org/wiki/Nepalese_
democracy_movement>).
133 <www.facebook.com/cwin.org.np>

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 75

 technically by UNICEF and international children. In addition, it mandates that
agencies such as Save the Children and the best interests of children must be
World Vision. the core concern. The National Child
Rights Council of Nepal was set up in
In the late-1990s, when the Act Relating 2018 under this Act, as a special body,
CSOs, UNICEF to Children was being amended, in accordance with Clause 59 (1) for the
and international Nepal was facing an armed conflict.134 protection and promotion of the rights
agencies sustained The members of the Children at Risk of children.
a campaign for Network were involved in creating
the recognition ‘zones of peace’ in collaboration with Issues faced by children in
of children’s local governments to protect children Nepal
rights in the 2015
and contribute to a strong pro-democracy
Constitution and,
movement. In spite of a period fraught Nepal comprises 125 ethnic groups,
consequently,
with anxiety and polarization, with shifts made up of people with diverse religious
the ‘Rights of
Children’ were in political balances, Nepal finally became beliefs who speak over 123 languages.138
upheld in the a democratic republic in 2008. Children,135 It has about 28.6 million inhabitants, of
Constitution, CSOs, UNICEF and international whom about 25% are between 10 to 19
as part of agencies sustained a campaign for the years.139 According to Section 2(A) of the
fundamental recognition of children’s rights in the Act Relating to Children (2018), the term
rights. 2015 Constitution and, consequently, “‘Children’ means persons who have not
the ‘Rights of Children’ were upheld in attained the age of eighteen years”.140 The
the Constitution, as part of fundamental Labour Act (1992) puts the age limit of a
rights: “Part 3: 39. (3) Every child shall child at 14 years. The Nepal Citizenship
have the right to elementary child Act (1963) considers persons below 16
development and child participation”.136 to be minors. The Child-Friendly Local
Governance Implementation Guidelines
The new Act Relating to Children (2018)137 consider children as those less than 18
translated the provisions of the UNCRC years,141 in line with the UNCRC and the
and the Constitution into a national legal Act Relating to Children (2018).
mandate. It ensures 13 basic rights of
children, sets out the responsibilities of In 2017, the number of students enrolled
the State to uphold these rights, refers in primary school was 3,970,016, but this
to the institutions required by children dropped to 3,730,602 in 2018 (the net
and for children, the role of parents and enrolment rate decreased from 97.2%
the media in the realization of children’s to 96.6%). The number of children with
rights, and also includes the duties of different types of disabilities enrolled

134 The Maoist insurgency lasted from 13 February 1996 to 21 November 2006 (see <https://en.wikipedia.org/wiki/Nepalese_Civil_War>).
135 Government of Nepal, Naya Sambhidan ko Nirman, Bal Adhikar ko Purna Samman, National Campaign, Government of Nepal, 2008–2009.
136 Government of Nepal, Constitution of Nepal 2015, Government of Nepal, 2015.
137 Government of Nepal, Act Relating to Children, 2075 (2018), Act Number 23 of the year 2075, Law Commission, 2018, <www.
lawcommission.gov.np/en/wp-content/uploads/2019/07/The-Act-Relating-to-Children-2075-2018.pdf>, accessed 23 November 2021.
138 Castillejo, C., Ethnic and Indigenous Groups in Nepal’s Peacebuilding Processes, Norwegian Centre for Conflict Resolution (NOREF),
March 2017, <www.reliefweb.int/sites/reliefweb.int/files/resources/2dcad865860b5424320ba4720b19442a.pdf>, accessed 17 September
2021.
139 Statista, ‘Nepal: Age Distribution from 2010 to 2020’, undated, <www.statista.com/statistics/422727/age-distribution-in-nepal>, accessed 17
September 2021.
140 Government of Nepal, Act Relating to Children, 2075 (2018).
141 Ministry of Federal Affairs and General Administration, Child-Friendly Local Governance Implementation Guidelines, Government of Nepal,
Kathmandu, 2021.

76 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

dropped from 45,655 to 39,820 in the The State of Children in Nepal of 2017148
same period.142 Similarly, the total number notes that 47,570 children living in 14
of students enrolled in grades 1–12 was districts affected by the 2015 earthquake
7,391,524 in 2017 and decreased to are considered at risk. In addition, 18,665
7,214,525 in 2018.143 The Nepal Labour children were affected by armed conflict
Force Survey of 2017–2018 reported that in 20 conflict affected districts. The same The State of
some 286,000 children under the age report refers to the deterioration of the Children in
of 17 years are involved in economic quality of school education and children’s Nepal of 2017
gains. The Population Monograph, diminished educational performance. notes that 47,570
2014144 and the Nepal Multiple Indicator children living
Cluster Survey 2019145 show that 22.7% Now, post-COVID, “the side-effects of the in 14 districts
affected by the
of women and men aged 20–24 years pandemic across South Asia, including
2015 earthquake
were married or in a union before the the lockdown and other measures, have
are considered at
age of 18, and this percentage increases been damaging for children in numerous
risk. In addition,
to 32.8% when looking at just women. ways”, 149 explained Jean Gough, former 18,665 children
UNICEF Regional Director for South Asia: were affected by
In the year 2017, 2,330 children (923 boys armed conflict
and 1,407 girls) were reported missing, But the longer-term impact of the economic in 20 conflict
increasing to 3,422 children (1,051 boys crisis on children will be on a different scale affected districts.
and 2,371 girls) in the following year.146 entirely. Clearly there will be disruptions to The same report
The report State of Children in Nepal, all aspects of children’s lives and their affect refers to the
2019 indicates a significant number of will be lasting and also irreversible in the deterioration of
reports of violence against children.147 foreseeable future. Without urgent action the quality of
now, COVID-19 could destroy the hopes school education
and children’s
In the year 2017/18, a total of 995 cases and futures of an entire generation.150
diminished
of rape of girls under 18 years were
educational
registered with the police and in the next According to UNICEF, when schools
performance.
year there were 1,420 cases. According closed, 8.3 million children from
to police records, from 2017–2019, 1,230 preschool to grade 12151 in Nepal had
children below the age of 10 years, 3,273 to rely on remote learning, which only
children between 11–16 years and 916 partially filled the gap; many households
children aged 17–18 years experienced – especially in rural areas – have no
sexual violence.

142 Government of Nepal, State of Children in Nepal, 2018, Ministry of Women, Children and Social Welfare, Central Child Welfare Board, 2018.
143 Ibid.
144 Central Bureau of Statistics, Population Monograph, Government of Nepal, National Planning Commission Secretariat, Central Bureau of
Statistics, Kathmandu, 2014.
145 Central Bureau of Statistics Nepal, Multiple Indicator Cluster Survey, 2019: Survey Findings Report, Central Bureau of Statistics, National
Planning Commission Secretariat, Government of Nepal and UNICEF Nepal, Kathmandu, 2020, <www.unicef.org/nepal/reports/multiple-
indicator-cluster-survey-final-report-2019>, accessed 14 December 2021.
146 Government of Nepal, State of Children in Nepal, 2018.
147 Government of Nepal, State of Children in Nepal, 2019. Ministry of Women, Children and Senior Citizens, National Child Rights Council,
Lalitpur, 2020.
148 Government of Nepal, State of Children in Nepal of 2017, Ministry of Women, Children and Social Welfare, Central Child Welfare Board,
Lalitpur, 2017.
149 UNICEF, ‘Urgent Action Needed to Safeguard Futures of 600 Million South Asian Children Threatened by COVID-19: UNICEF’, Press Release,
23 June 2020, <www.unicef.org/nepal/press-releases/urgent-action-needed-safeguard-futures-600-million-south-asian-children-threatened>,
accessed 20 August 2021.
150 Ibid.
151 Nepal Education Cluster, COVID-19 Education Cluster Contingency Plan, Education Cluster, Kathmandu, July 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 77

 electricity, let alone internet access.152 […] the governance process that
Under the present circumstances, the institutionalises issues of child rights
significance of, and urgent need for, an like child protection, child safety, child
empathetic, alert and proactive CFLG development and meaningful child
system is greatly heightened. participation that are based on non-
discrimination, the best interests of the
About the project child, overall development and the principle
of meaningful child participation into local
A flagship Project description level policies, planning, structuring and
programme working processes.154
of UNICEF The Child-Friendly Local Governance
Nepal, it has an (CFLG) programme, introduced across CFLG Nepal is further guided by principles
exciting history the entire country in 2011, presents of respect for children’s participation
of bringing an excellent example of promoting and opinions, as well as principles of
together two and nurturing children’s participation in proximity, inclusion and community-
core strands: governance on a national scale. A flagship based development. It focuses on
children’s programme of UNICEF Nepal, it has an involving children and communities in
participation
exciting history of bringing together two identifying and prioritizing problems,
and making local
core strands: children’s participation and and children’s engagement with local
governments
making local governments accountable governments to develop plans and
accountable
to children as to children as citizens. Children, the deploy budgets. It lays out systems for
citizens. Consortium of Organisations Working social accountability and transparency
for Child Participation, UNICEF and and suggests specific indicators for
international agencies like Save monitoring. The programme also has
the Children have made significant mechanisms for the convergence of
contributions in defining CFLG as a: different government departments
and different levels of governance in a
[…] strategic framework that promotes strategic manner.
child rights through practicing good
governance for children at the local level. The law also empowers the CLFG
It involves planning for and with children, system to be responsive, as the Local
encouraging local governments to allocate Self Governance Act, 1999 contains
adequate resources for children, and to provisions for local bodies to prioritize
create spaces and mechanisms to listen projects that directly benefit children.
to their voices.153 It says that activities related to children
should be carried out in the best interest
Evolving further, the most recent version of children and their welfare (Sections
of the Child-Friendly Local Governance 28, 96, and 189). Local bodies are
Implementation Guidelines, 2021, define assigned the responsibility to plan and
CFLG as: implement programmes related to child
and maternal health care, vaccination and
nutrition, and to set up and operate a
special fund for women and children.155

152 UNICEF, ‘Urgent Action Needed to Safeguard Futures of 600 Million South Asian Children Threatened by COVID-19: UNICEF’, 23 June 2020.
153 UNICEF, Child-Friendly Local Governance (CFLG), Nepal 2001–2016, UNICEF ROSA, Kathmandu, 2017.
154 Ministry of Federal Affairs and General Administration, Child-Friendly Local Governance Implementation Guidelines, 2021.
155 Government of Nepal, Local Body Financial Administration Regulation, Rule 23 and 54, Government of Nepal, Kathmandu, 2007.

78 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

According to the State of Children in The engagement of child clubs
Nepal, 2019,156 three municipalities – commenced when a VDC decided
Kanchanarup, Bhimeshwar, Devchuli to adopt CFLG and sought their
and Sunwal – in different provinces ‘meaningful participation’. The child
were declared as having child-friendly clubs then took decisions about the
governments. Apart from these, at least nature and scope of their participation,
one ward in each of 35 local governments supported by village facilitators through
was declared child friendly. Currently, the Local Government and Community
34 district development committees, Development Programme (LGCDP). The engagement
33 municipalities and 982 village UNICEF supported the capacity building of child clubs
development committees (VDCs) of village facilitators, while the LGCDP commenced
have adopted CFLG;157 of them, 1 sub- was a multi-donor supported project. when a VDC
metropolitan, 1 municipality and 11 VDCs VDCs had to ensure that 15% of their decided to
were announced to be child-friendly.158 budget was allocated for CFLG and fulfil adopt CFLG and
the mandatory conditions prescribed. sought their
UNICEF’s strategy They were monitored by the central ‘meaningful
ministry. participation’.
The child clubs
In the 1990s, UNICEF, with the support
then took
of partners such as the Norwegian After several iterations, the National
decisions about
Government and other agencies such CFLG Strategy and its Operational
the nature and
as World Vision, Plan International and Guidelines were adopted by the Council scope of their
Save the Children, started working with of Ministers in 2011 and initiated in 34 participation,
women and children at the grassroots districts and 14 municipalities by 2012. supported
level under the principles of decentralized After the federal system of governance by village
planning. In 2007, UNICEF facilitated was introduced in 2015, the Operational facilitators
the travel of a national delegation Guidelines had to be revised to be in through
to the Philippines to gain exposure harmony with the federal structure. The the Local
to CFLG, following which in-country CFLG Implementation Guidelines 159 Government
discussions were initiated. UNICEF remained in incubation for six years. They and Community
facilitated the mapping of disadvantaged were finally announced in March 2021 Development
Programme
groups of children within the country in as the core policy document for CFLG.
(LGCDP).
collaboration with CSOs to prioritize VDCs
with highly vulnerable communities. Methodology
District development committees then
chose 50 VDCs for the pilot, while other Because of COVID-19, the study team
VDCs were free to implement CFLG with was unable to visit the programme areas.
their own resources. UNICEF’s strategy Instead, online interviews and group
was to ensure the participation of child discussions were conducted, which
clubs and their networks to identify the imposed several limitations in terms of
needs of children and to be involved at the availability of children and discussants,
every stage of planning and programme as well as limiting the rapport that could
implementation. be established. It also did not allow us

156 Government of Nepal, State of Children in Nepal, 2019, Ministry of Women, Children and Social Welfare, Central Child Welfare Board,
Lalitpur, 2020.
157 Ibid.
158 Ministry of Federal Affairs and General Administration, Child-Friendly Local Governance Implementation Guidelines, 2021.
159 Ibid. As the document is in Nepali, our reflections about it are based on the unofficial translation of the document, which was translated for
our reference by ADAP, UNICEF ROSA.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 79

 to observe implementation of CFLG us of the past as well as the present
and its impact in person. Following the situation, from their experiences as
scoping study, we held discussions with children and now as members of the
UNICEF representatives to learn about National Forum. These conversations
the overall history, present status of the were followed by discussions with senior
programme, and identify discussants. representatives from World Vision and
CWIN Nepal. The work of UNICEF and its
We had developed interactive tools for support for the projects were described
discussions with children. However, as by former CFLG focal persons. Inputs
children were unable to gather due to from the Deputy Mayor of Devchuli
COVID-19 restrictions, we used FGDs, Municipality provided insights about the
guided by the list of ‘areas of enquiry’. present situation, along with specific
We were ably supported with translations details of how the CFLG functioned in
by Ramchandra Gaire (provided by her VDC.
UNICEF). Our discussions with members
(and former members) of child clubs The Child-Friendly Dialogue series,160
revealed their experiences as well as produced by the National CFLG Forum,
reflections as representatives of these provided enriching information and access
clubs at the ward, municipal, district and to interviews with senior government
provincial levels. Unfortunately, due to officials whom we were not able to reach
the pandemic, we could not meet with during this documentation process. The
as many young people (and their parents early years of CFLG are well documented
and community members) as planned. in the legacy document, Child-Friendly
We were also unable to obtain input Local Governance (CFLG), Nepal 2001–
from children who were not part of the 2016,161 so we studied developments
child clubs. beyond that period. We also reviewed
secondary sources related to local
The CSOs that took part in the FGDs governance systems, with a focus on
were also members of the National CFLG the post-2015 period, when the federal
Forum. Several of them were former system was introduced. Throughout
members of child clubs. They apprised our interviews and secondary studies,
© UNICEF Nepal

160 National CFLG Forum, Child-Friendly Dialogue, Video Series, Nepal, 2020, <https://www.youtube.com/channel/
UC7m7aqewGCxJYnUV2oxhIfw >, accessed
April 2021 (subsequently removed); National CFLG Forum, Child-Friendly Dialogue with Basanta Adhikari Joint Secretary, Ministry
of Foreign Affairs and General Administration, Episode 2, National CFLG Forum, Nepal, 30 November 2020, <www.youtube.com/
watch?v=CjtOo1mwXBA>, accessed 20 August 2021.
161 UNICEF, Child-Friendly Local Governance (CFLG), Nepal 2001–2016, UNICEF ROSA, Kathmandu, 2017.

80 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

we had periodic discussions with Child clubs in Nepal are often self-
representatives of UNICEF Nepal and initiated as community-based or
the ROSA ADAP team. school-based organizations; some are
interest groups, like working children
Findings or adolescent girls. By the mid-1990s,
By the mid-
these clubs were a platform for sharing
1990s, these
The findings of the case study are information among children regarding
clubs were
presented according to the ASPIRE issues such as health and hygiene. Later
a platform
framework set out in Chapter 1. they provided a platform for children to for sharing
come together and learn from each other information
Agency about children’s rights and issues of among children
common concern. All of the international regarding
Agency is defined as the evolving capacity organizations working for children’s issues such
and confidence of adolescents to engage rights also incorporated the formation as health and
with decision makers and structures and of child clubs into their programmes. A hygiene. Later
their autonomy in expressing opinions review of the child clubs conducted in they provided
and taking action: Did they drive, initiate 1999 recommended that VDCs provide a platform for
or manage projects? Did they make affiliation to the clubs, include child club children to
come together
choices? What was the impact of other representatives in the council meetings,
and learn from
actors on their agency? and provide them with financial support
each other
for long-term sustainability.164
about children’s
Evolving adolescent capacity to rights and issues
engage During our discussions with child club of common
members, their energy, confidence, concern.
The Nepal’s child rights movement communication skills and commitment
commenced in the early 1980s. The to children’s rights were evident. Rachana
‘Hatemalo children’s radio show’ Bhusal, President Municipality Child Club
started in 1982, with a peer exchange Nawalparasi, has been able to mobilize
and learning focus, the first of its kind children, host events, discuss with
in South Asia. It inspired and facilitated officials at the municipal level and deliver
children to come together to form clubs. speeches before the Municipal Assembly.

Box 17. Hatemalo radio programme

“From the perspective of the historical development of child clubs in Nepal, they may be considered
an extended feature of children's groups that were involved in various sports and cultural programmes
including football and deusi-bhailo.162 However, there are no written documents available regarding these.
In 1982, the Hatemalo Child Radio Programme was started on Radio Nepal for children. It advocated
on various issues related to children, including disability, health and child rights. Hatemalo Sanchar has
reported that in 1983 Hatemalo Child Listener’s Clubs were established as an extension of the Radio
Programme. These listener’s clubs may be considered the first child clubs in Nepal.”
Source: (Extract) Situation of Child Participation in Child Club, Survey conducted in Kathmandu valley, 2010 163

162 Part of the festival of Tihar, similar to carolling.

163 Thakuri, Sanjog, Situation of Child Participation in Child Clubs, Unpublished Survey, Hatemalo Sanchar, Lalitpur, 2010.
164 Hart, R., J. Rajbhandari, and C. Khatiwada, The Child Clubs of Nepal: Evaluation of a Democratic Experiment, Save the Children Alliance
and the Children’s Environments Research Group, Nepal, 2001.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 81

 She spoke of the need to bridge the have shared information with friends,
gap between the requirements at the parents and extended communities.
local level and decisions taken at the Their awareness on topics such as
provincial level. Ashma Aryal critiqued sexual and reproductive health and
discrimination between boys and girls: adolescents’ legal rights was enhanced
“Gender disparity is very common in and they had gained confidence to
villages. The liberty and freedom that discuss such matters in their immediate
boys enjoy, the girls do not. We have circles. As explained by Parbati Tiwari,
During the same raised these issues and it is tough to the Deputy Mayor of Devchuli, this high
review, adults in address them.”165 Child marriage and level of confidence did not come about
the community child labour are other key issues she overnight, but is the result of a long
not only wishes to address. campaign, in which VDCs have supported
acknowledged children’s participation over many years.
what children
Adolescent autonomy to express and act CBOs, mothers’ groups and political
had gained as a
parties have all contributed to children’s
result of their
The 2018 Nepal Country Report, 166 empowerment and participation in her
involvement in
child clubs, but developed as part of the Knowledge municipality.
also how adults in Management Study on the programme
the community Improving Adolescents’ Lives in South Impact of other actors on agency
had benefited Asia167 and launched by ADAP section
from children’s at UNICEF ROSA, reviewed three During the same review, adults in the
participation programmes: the Rupantaran training community not only acknowledged what
in terms of sessions for life-skills improvement, the children had gained as a result of their
improved access Saathi Sanga Manka Kura (translated involvement in child clubs, but also how
to services and as ‘Chatting with My Best Friend’) adults in the community had benefited
facilities, as well radio programme and the partnership from children’s participation in terms of
as how children
with religious leaders of the National improved access to services and facilities,
had positively
Inter-Religious Network. This report as well as how children had positively
influenced adult
presents how these programmes have influenced adult participation. However,
participation.
increased the confidence of young according to one of our discussants, at
people, especially adolescent girls, and the national level, the National Child Club
enhanced their ability to reflect, engage Network, which provided opportunities
and participate. for children to learn from each other,
is not active now and has not met for
In the Strategic Review of Support to over four years now. Although able to
Child Clubs168 carried out in 2011–2012, discuss, with some degree of openness,
it was evident that participation in the issues such as gender and caste-based
clubs had given children self-confidence discrimination and harmful gender-based
and access to information, as well as practices, the children found it difficult to
the knowledge and skills to claim some challenge long-standing negative social
of their entitlements. Young people practices.

165 Ashma Aryal, youth club member, former President of Nawalparasi Child Club, focus group discussion (online), with CWC, 16 April 2021.
166 Ernst & Young India, Nepal Country Report: Developing Skills in Youth to Succeed in the Evolving South Asian Economy, UNICEF ROSA,
Kathmandu, 2019.
167 Ibid.
168 Ratna, K., S.K. Shrestha, and S. Maharjan, Strategic Review of Support to Child Clubs, UNICEF, Kathmandu, 2012.

82 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

According to Ashma Aryal, 169 the Integrating adolescent participation
external environment now may be more in governance
favourable for children’s participation
than when she started out, but she is In Nepal’s 2015 Constitution, concerns
concerned that the new generation is not about child participation have been spelt
eager to be part of child clubs. Child clubs out. The federal structure provides for
used to be the only forum for children for ‘shared rule’ between different levels
peer interaction, but now children can of government. The newly established
also turn to social media. This may affect 293 urban municipalities and 460 rural In Nepal’s 2015
the sustainability of the child clubs. She municipalities are overall larger in size Constitution,
feels that the social distancing imposed than earlier structures and vested concerns
by COVID-19 could also be a reason for with greater authority. They are further about child
children not attending clubs. She is very subdivided into wards, which have the participation
have been spelt
concerned about the social disconnect. responsibility to fulfil CFLG indicators,
out. The federal
declare their wards as child-friendly, and
structure
“The situation is more favourable for promote CFLG at the local level.170 The
provides for
members of child clubs now than it was 2018 Act Relating to Children171 states ‘shared rule’
before, as people are more aware and that children have the right to express between
children have more forums to speak their views, seek information, set up different levels
out. While an environment favourable organizations and take part in assemblies. of government.
to children’s participation has been The newly
created to some extent, we should In March 2021, the new CFLG established
continue to tap into the opportunities Guidelines172 for a federal structure were 293 urban
that have come our way.” developed. At present, the agenda of municipalities
President, child club, the CFLG appears to be well known and 460 rural
FGD (online) with CWC, 28 July 2021
and is noticeably owned by children, municipalities
are overall
members of the government and CSOs.
larger in size
State The guidelines mention the prioritization
than earlier
of the needs and issues of children in
The mandated role of the state is structures
both annual and periodic plans and and vested
to integrate and sustain adolescent
programmes. It makes children’s, with greater
participation in governance and
ensure subsidiarity in planning, with including adolescents’, participation authority.
the devolution of decision-making mandatory in the implementation of
power to the lowest possible tier of policies, plans and laws at the local level.
government: How are States able It also provides for the capacity building
and willing to integrate adolescent of institutions and personnel to support
participation in governance? How are CFLG and collaboration between the
current economic forces that transfer government and CSOs working with
welfare functions from state to non- children. The strategy and action plans
state actors influencing the ability and suggested for CFLG implementation are
willingness of States to invest in their listed under ten specific headings,173 and
mandate for meaningful adolescent and
action plans indicated for each. There is
community participation in governance
structures?

169 Ashma Aryal, youth club member, former President of Nawalparasi Child Club, focus group discussion (online), with CWC, 16 April 2021.
170 Ministry of Federal Affairs and General Administration, Child-Friendly Local Governance Implementation Guidelines, 2021.
171 Government of Nepal, Act Relating to Children, 2075 (2018).
172 Ministry of Federal Affairs and General Administration, Child-Friendly Local Governance Implementation Guidelines, 2021.
173 The ten headings are: mainstreaming; lobbying for policy advocacy and awareness; institutional development; capacity building; promotion
of collaboration and partnership; community mobilisation; social accountability and transparency; equity; behavioural transformation through
information; education and communication; and monitoring and evaluation.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 83

 a directive to ensure that the action plan At present, the district coordinating
is contextualized and compatible with committees, provincial governments and
local requirements and realities. its agencies, and the federal government
Local bodies are to monitor and provide feedback
are instructed Willingness to invest in meaningful to ensure that CFLG is effective, but
to implement participation the monitoring mechanisms are weak,
CFLG in their despite the fact that the new guidelines
respective areas Every local government has the provision attempt to specify monitoring and
and set aside at of spending 50,000–60,000 Nepali evaluation guidelines in relation to
least 10% of their rupees (approximately USD 420–500) on minimum indicators relating to CFLG,
annual budget
the implementation of CFLG. A general mechanisms for participatory monitoring,
for children
observation of most discussants was that and the rewarding of excellence by
(15% if CFLG
this budget is quite adequate. However, stakeholders, including children and
is declared)
and develop a the local governments need support adolescents, in realizing CFLG.175 Some
plan through in terms of capacity building and also wards have declared themselves as
participatory guidance to develop investment plans. CFLG-compliant, without providing
approaches. Local bodies are instructed to implement clarity on the indicators met or processes
CFLG in their respective areas and set followed, especially with regards to
aside at least 10% of their annual budget meaningful participation.
for children (15% if CFLG is declared)
and develop a plan through participatory
approaches.

Box 18. Nepal’s CFLG National Strategy

The CFLG National Strategy, 2011 is an overarching policy document. Although revised in the latest
Guidelines,174 this strategy indicates the state’s prevailing position on CFLG from a decade ago. It
contains the following minimum indicators for children’s participation:
 Children aged 12–18 years participate in the decision-making processes of local bodies through the
development of an institutional participation mechanism.
 The plans and programmes related to children are incorporated in the plan for the implementation of
local bodies.
 An arrangement is in place for an institutional mechanism for hearing the voices of children in local
school management committees.
 Child clubs are represented on the local health management committee.
 A functional child club network is formed in each VDC and a child club is formed in each ward of the
municipality.
 District and municipal level child networks are formed.

174 Ministry of Federal Affairs and General Administration, Child-Friendly Local Governance Implementation Guidelines, 2021.
175 (1) Inform the stakeholders regarding the minimum indicators related to child-friendly local governance, and monitor the effectiveness of
the conducted programme; (2) Develop a mechanism so that the local level voluntarily takes responsibility for managing the child-friendly
local governance programmes and engage in a participatory monitoring; (3) Make arrangements to include indicators related to child-friendly
local governance while evaluating and monitoring the work executed by the government and non-government bodies; (4) Encourage and
duly reward child groups, community bodies, ward, rural municipality or municipality, development partnership organizations and individuals
displaying excellent performance while working in the field of child-friendly local governance.

84 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Parbati Tiwari, the Deputy Mayor of issues, the indicators which need to be
Devchuli, said that prior to becoming a fulfilled and also the budgets required
municipality, her VDC had already been for them”.177 The children mentioned that
declared CFLG and she is committed to through their bal bhela, where children
ensuring that the entire municipality is of the village gather, they can discuss
CFLG compliant. But in her jurisdiction issues with government officials and
child marriage is increasing for a number raise their concerns. Others are actively
of reasons (there is a mixed population involved in capacity building, awareness
of multiple ethnicities, it is geographically activities and sports.
diverse, and education levels are low).
This makes meaningful participation even Where child clubs do not already exist,
The children
more complex. children are facilitated to form them by
mentioned that
community focal persons or CSOs and
through their
Participation registered at the municipal level. Asmin bal bhela, where
Kafle, president of the child club for children of the
Participation is the interface between Madhyabindhu Municipality, described village gather,
the agency of children and governance how they ensured the availability of free they can discuss
structures: What are the factors that sanitary pads in all schools by demanding issues with
enable meaningful engagement between them. Later, when this example was government
adult institutions and adolescents shared by children in other meetings, officials and raise
and adolescent groups? What are the including at the national level, the practice their concerns.
boundaries and limits imposed on was emulated by all other municipalities. Others are actively
adolescent participation (direct and Other children also spoke about child involved in
capacity building,
indirect; individual and collective; local marriage and elopement and their partial
awareness
and national) by state actors, adults, success in addressing these issues.
activities and
and hierarchical structures? What
sports.
are the opportunities for adolescents The Deputy Mayor of Devchuli said that
to represent themselves in order to her government has ensured children’s
question and change those boundaries? representation in all committees, as
prescribed by the CFLG Guidelines.178
Opportunities for adolescent Child club members in this municipality
participation were actively involved in school
enrolment drives, visiting households
In the municipalities, every ward has to collect information about out-of-school
provision for one child club per school. children and preparing reports. According
Nawraj Pathak, the President of the to the Mayor, at present there are no
municipal-level child club network in children out of school in her municipality,
Madhyabindhu Municipality, said that because of such action. She also said
they chose three issues to highlight, that adults have responded favourably
of which two were prioritized by child to CFLG and the elected representatives
clubs and the third is one of the CFLG in her municipality are comfortable with
indicators.176 A young person we spoke children’s involvement in planning and
to said that “Within the clubs, we mostly budgetary discussions.
discuss what disturbs us – the current

176 Nawraj Pathak, President of the Madhyabindhu Municipality Child Club, interview (online) with CWC, 2021.
177 Focus group discussion (online) with CWC, 16 April 2021.
178 Ministry of Federal Affairs and General Administration, Child-Friendly Local Governance Implementation Guidelines, 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 85

 Boundaries and limits on governments were not functioning
participation during that time. A similar situation has
prevailed during the COVID-19 pandemic.
Nawraj Pathak pointed out that with
the provincial structure, even though According to Sumnima Tuladar, General
decisions can be from the local level Secretary of CWIN:183
upwards, it is difficult to work when
the budget is inadequate.179 Earlier, a […] the local governments do recognize their
minimum of 10% of the budget had to responsibility to ensure the wellbeing of
be allocated to issues related to or raised children, to fulfil the indicators associated
by children. The present guidelines do with child rights friendly governance.
The present not prescribe any specified percentage Those oriented to children’s rights and who
guidelines do of funds, stating that the “necessary understand the importance of children’s
not prescribe budget for child-friendly local governance right to participation do make the effort
any specified at the local level will be managed by to create the environment and space for
percentage the local level from its annual budget children to speak to them. However, a
of funds,
management”. 180 Critiquing this, Ashma, significant number of them are yet to gain a
stating that
a member of the provincial children’s deep understanding of children’s rights and
the “necessary
club, said that, due to shifting priorities, yet to view child friendly local governance
budget for child-
friendly local children may not have access to any in a comprehensive manner.
governance at budget at all if they are not able to
the local level advocate for it strongly.181 According to Inclusion
will be managed Resham Sharma, there is resistance to
by the local listen to children and there is no budget Within adolescent groups there are those
level from its to spend on building their capacity, as individuals who are socially, culturally and
annual budget governments have used the budget for economically stronger and likely to be
management”. infrastructure development.182 more articulate, thereby excluding the
already marginalized from participation
Children gave examples of negative processes: What actions were taken
responses from teachers when to promote inclusion, particularly in
conventional teaching methods and relation to viewing and working with
corporal punishment were challenged. the most marginalized groups as agents
Apart from decisions being delayed by and partners?
bureaucratic procedures, children also
raised matters related to safety, teachers Exclusion of marginalized adolescents
not working with lesson plans, lack of
playgrounds, children unable to pursue Members of child clubs raised concerns
education and the care of children who about children engaged in exploitative
are forced to beg because of poverty. The work, but the participation of working
decade-long armed conflict also posed a children in the clubs was not evident
barrier to participation, as elected local among the children we spoke with. A

179 Nawraj Pathak, President of the Madhyabindhu Municipality Child Club, interview (online) with CWC, 2021.
180 Ibid.
181 Ashma Aryal, youth club member, former President of Nawalparasi Child Club, focus group discussion (online), with CWC, 16 April 2021.
182 Focus group discussion (online), with CWC, 16 April 2021.
183 Sumnima Tuladar, General Secretary, Child Workers in Nepal, interview (online) with CWC, 20 July 2021.

86 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

review184 of child clubs in 2012 expressed to COVID-19, include loss of income due
concern at the exclusion of the most to closure of brick kilns, disrupted access
marginalized children. It is not clear to education and development projects,
if children on the street, Bhutanese immediate and long-term impacts on
refugee children in Nepal, or those in care their families’ livelihood, as well as
environments are currently involved in increased vulnerability in all aspects of
the CFLG programme, although advocacy their young lives. While all children are
efforts are underway to include them. severely affected, girls, children with
disabilities, children in contact with street
Sanjog Thakuri, a former child club situations and those in very remote areas
graduate, makes the following are even more so.
observation in his article:185 Some street-
Actions for inclusion as agents connected
Of the 20 child rights networks active at children have
the present, only five networks have been The former members of the child clubs also been able to
led by three former child club members we spoke to said that all children in raise their issues
before concerned
– all of whom are men. There has never the local community are welcome and
authorities, with
been a Dalit or a woman former child club encouraged to be part of the clubs. If
CSO facilitation,
member who reached the leadership of some children are not members of the
when the
these networks… It is also commented that club, the members visit them and request situation
the child clubs mostly have boys in the main them to take part in club activities, at demanded.
leadership role, while girls are side-lined least briefly to gain exposure. If they However, efforts
to the posts of vice-chairs or treasurers. face any family hurdles, the members to do so are ad
talk to the parents and guardians and try hoc, rather than
The COVID-19 pandemic has also had to convince them to send their children systemic.
an effect on inclusion. In a discussion to the clubs. The young people we
with members of the National CFLG spoke with were confident that most
Forum,186 Basanta Adhikari, the Joint of the children in their community were
Secretary of the Ministry of Federal members of the child clubs.
Affairs and General Administration,
accepted187 that, post-COVID, children Some street-connected children have
have not been able to attend schools also been able to raise their issues
and been exposed to illness and mental before concerned authorities, with
stress including depression and that CSO facilitation, when the situation
local-level institutions (LLIs) have not demanded. However, efforts to do so
been able to focus on children and are ad hoc, rather than systemic. It is
their needs adequately. According to also heartening that girls from the Balika
an article188 on the children of in-country Peace Home, a transit centre run by
seasonal migrant workers in Nepal, the CWIN, have been able to play a leading
challenges these children face in relation role in ward and municipal child advisory

184 Ratna, et al., Strategic Review of Support to Child Clubs, 2012.

185 Thakuri, S., Feminist Analysis of Nepali Child Rights Movement, National Democratic Institute for International Affairs, Kathmandu, 2021.
186 National CFLG Forum, Child-Friendly Dialogue, Video Series, Nepal, 2020, <https://www.youtube.com/channel/
UC7m7aqewGCxJYnUV2oxhIfw >, accessed 25 April 2021 (subsequently removed).
187 National CFLG Forum, Child-Friendly Dialogue with Basanta Adhikari, Joint Secretary, Ministry of Foreign Affairs and General
Administration, Episode 2, National CFLG Forum, Kathmandu, 30 November 2020, <www.youtube.com/watch?v=cjtoo1mwxba>, accessed
20 August 2021.
188 Daly, A., A. Hillis, S. Man Shrestha, and B.K. Shrestha, ‘Breaking the Child Labour Cycle Through Education: Issues and Impacts of the
COVID-19 Pandemic on Children of In-country Seasonal Migrant Workers in the Brick Kilns of Nepal’, Children’s Geographies, 19:5, 622–628,
2021, DOI: 10.1080/14733285.2021.1891406.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 87

 committees, after initiating dialogue with they raise controversial issues (such as
the respective local governments. age of consent or LGBTQI rights), they
face quite a bit of resistance and even
Resolutions backlash.

Organizational structures determine the How adolescents influence

nature of adolescents and young people’s resolutions and decisions
ability to exercise agency and influence
resolutions and decisions. At the same Child clubs have been active for three
time, those charged with promoting decades in Nepal and it is the activism
agency are also those who set limits of children that has built the CFLG
and make the rules on translating the structures for consultations; enabled
exercise of agency to enact resolutions child participation in planning; enabled
Child clubs have and decisions: In such a context how are representation in various governmental
been active for
adolescents able to influence resolutions committees and CBOs; and built child
three decades in
and decisions? club networks. In some areas, children
Nepal and it is
are also in discussion with forest groups,
the activism of
children that has Structures that determine the mothers’ groups, and CBOs. Their
built the CFLG nature of agency participation has prompted adults in the
structures for community, including religious leaders,
consultations; While reviewing the nature and scope to learn about the rights and entitlements
enabled child of resolutions and decisions that have of young people. Child protection
participation resulted from CFLG, a distinction needs systems have also been strengthened by
in planning; to be made between those areas that bringing together multiple stakeholders
enabled were part of the CFLG pilot and those local working on different sectors to enable
representation governments that have been peripherally an integrated and coordinated approach
in various involved with CFLG. While the former to address the needs and aspirations
governmental
demonstrates a high degree of sensitivity of children. All of these things were
committees
to issues raised by children and issues reflected in the confidence with which
and CBOs; and
that have a bearing on children’s well- the adolescents spoke with us.
built child club
networks. being, the latter is less sensitive to
issues raised by children. Even in the At the same time, CSOs also shared
long-standing CFLG areas, when children several constraints and challenges they
raise issues that are acceptable to adults, have faced in ensuring the meaningful
they are considered more favourably. If participation of children in CFLG, despite
the presence of numerous child clubs
and their networks. Due to restricted
funding, it has been difficult for CSOs
to sustain the active engagement of
children. Since federalization in 2015,
clarity related to CFLG has been lacking
and consultations with children have
been discontinued or become tokenistic,
lacking opportunities for children to think,
discuss, formulate their views, express
their opinions, and be heard.
© UNICEF Nepal

88 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Analysis It will take sustained intervention to
retain the momentum for change and
Based on the findings above, the to build further on the very important
potential areas and opportunities for the strides taken. Our review highlights
enhancement of adolescent participation the importance of the continued
in governance and challenges are empowerment of young people and of
highlighted in the following sub-sections. strategies that dovetail with a range of
social actors, decision makers, forums,
Existing structures and opportunities, and resources coming
processes for adolescent together to uphold the rights of children
participation and adolescents. For that, the agency
of children and adolescents has to
The child clubs are the basic structures be fully understood in its true spirit,
that provide a safe forum for children within the framework of their right to Our review
highlights the
to discuss among each other and voice self-determination. But there seems to
importance of
their concerns, thus firmly embedding be a lack of competence among those
the continued
children’s right to participation in Nepal. responsible for CFLG implementation
empowerment
The bal bhelas are the sites where they at the various levels of governance and of young
come together to share experiences across sectors. people and of
and build networks. The discussions strategies that
and decisions that emanate from State buy-in and accountability dovetail with a
these two structures then percolate range of social
into the governance structures through Even though some of the policy and actors, decision
the municipalities, VDCs and district programmatic links are yet to fully makers, forums,
development committees. They provide emerge, the extent to which the opportunities,
fertile ground for adolescent participation national legislation and policies of Nepal and resources
to be nurtured and for them to engage uphold children’s right to participation coming together
to uphold
with decision makers. and their engagement in governance
the rights of
is unprecedented in Asia. The CFLG
children and
In some communities the environment system in Nepal has run parallel with
adolescents.
is still not fully conducive to children’s the continually evolving nature of
participation. Long-standing biases Nepal’s democracy, federalization, and
remain and children find it difficult to the devolution of power and funds to
be heard and feel that they are not local government. However, after the
listened to, especially in relation to endorsement of the Local Government
budgetary allocations. They face hurdles Operation Act, 2017, and the subsequent
in relation to participation when they changes in governance structures, the
raise controversial issues and many years implementation of the CFLG National
of effort are not prioritized by leaders. Strategy 2011 was uncertain, without
While institutional capacity building has the CFLG Guidelines190 being revised
gained attention in the latest version of until 2021.
the CFLG Guidelines,189 it is not clear
how and from where the resources and At the national level, one of the concerns
the technical support required to do so expressed by the Honourable Parbat
will be provided to the stakeholders Gurung from the Ministry of Women,
concerned.

189 Ministry of Federal Affairs and General Administration, Child-Friendly Local Governance Implementation Guidelines, 2021.
190 Ibid.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 89

 Children and Senior Citizens in the Child- governments in key deliberative spaces.
Friendly Dialogue series,191 is that many Local government representatives on the
of the concerns raised by children involve Intergovernmental Fiscal Council, the
multiple ministries, such as the Ministry body that is tasked with coordinating
of Labour, Ministry of Federal Affairs, and finance management between the
Home Ministry, to name a few. Due to three spheres of government, are
lack of coordination among the concerned nominated at the recommendation
ministries and unwillingness to take up of their provincial government. It has
certain responsibilities, there are delays been argued that this is not in line with
and lapses. The delay in framing the the principle of subsidiarity and may in
guidelines indicates either a hesitation by fact enable provincial officials to co-opt
There is clearly
the government or a lack of prioritization local governments’ interests. This has
an absence of
of CFLG. During this period, there has critical implications, also in relation to the
institutional
capability been a clear need for a proactive political ability of local governments to respond to
enhancement, response, as CFLG is in line with the children’s needs and uphold their rights
capacity building Constitution of Nepal and Nepal’s many in the CFLG programme.
and technical international commitments.
support at the Adolescent representation
local level. There There is clearly an absence of institutional
is a need to capability enhancement, capacity During the discussions with child club
quicken the pace building and technical support at the network members, they explained how
of interventions local level. There is a need to quicken the their choice of representative for their
and increase pace of interventions and increase the club was taken collectively in the club.
the level of
level of investment in children. All of the Once representatives were selected, it
investment in
steps involved in the CFLG intervention was not clear what their relationship with
children.
require timely follow up and mid-course their constituency was and if there were
corrections. In its policy framework, systems or processes in place for them
the Government of Nepal has indeed to be accountable to them in any way. At
demonstrated the political will to uphold present, the number of children in a club
the rights of women and children. and in the local-level networks is already
Considering the imminent national large enough to inculcate transparent and
scale-up of the CFLG, it is important to inclusive decision-making processes in
make sure that the State’s recognition all matters that concern them. The child
of child clubs is not replaced by State club graduates we interviewed were
‘control’ over them. The perception of also keenly aware of the foundations
adolescents (and youth) by the State and pillars of children’s rights, frequently
as a demographic ‘dividend’, as well referring to them in their reflections.
as future ‘good’ citizens, appears to
be focused on an economic paradigm As the national coverage of CFLG in
of productivity and not the principle of Nepal will involve thousands of children
adolescent participation. in over 700 local government areas, it will
be important to enable both direct and
The Local Government Operation Act representative participation of children
does not provide strong safeguards for and to build this into their facilitation and
the representation and voice of local training in participatory democracy. Many

191 National CFLG Forum, Child-Friendly Dialogue with Hon. Parbat Gurung, Ministry of Women and Child and Senior Citizens, Episode 1,
National CFLG Forum, Nepal, 2020.

90 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

active young people are on the verge impressive was the enthusiasm of the
of aging out. The means that in order to girls, which bodes well for expansion.
sustain their impact, ways to preserve There are thousands, if not millions, of
their experiences in organizational child club members and graduates in
memory will have to be included in the Nepal, and they can have a tremendous
facilitation. It was interesting, but not impact if they can come together to
surprising, to note that children have extend their support for expansion.
been extending their support to local
governments in proactive ways. They are However, during the period when the
involved in COVID-19 related awareness locally elected officials did not have the
creation, locating children who require legislation to enable them to perform
The focus of
care and bringing them into the local their constitutionally envisaged functions,
the central
government’s ambit, and providing a they were guided by executive orders
governance has
space for security and comfort. They and directives by the federal government. changed from
have also been assisting in the enrolment Even now there is an overreach by the interventions in
of children in school, community clean federal government and administrative the social sector
up initiatives, and carrying out innovative and service provision systems by way to infrastructure.
climate safety projects. of ‘governance by historical convention’. This has resulted
The focus of the central governance in inadequate
The publication, A Journey in Children’s has changed from interventions in the budget allocation
Participation,192 which describes different social sector to infrastructure. This has for children,
types of adult-child engagement, states resulted in inadequate budget allocation especially since
that: for children, especially since the previous the previous
modality of
modality of compulsory allocation of
compulsory
[…] in situations where children have control 10% of total budget for children (15%
allocation of 10%
over their own spaces and participation, in case of CFLG declared Institutions) is
of total budget
they are in a position to negotiate with no longer practised. for children
adults from a point of strength. They can (15% in case of
then actively determine the roles each of Exclusion and inequity CFLG declared
them takes on in a given situation. It is Institutions) is no
this, which actually determines the level Our understanding of this is obviously longer practised.
of children’s participation. limited by the fact that we could not
trace and meet those who may not have
Strategies for expansion been included, which would have been
possible if we had been able to visit
The participation of adolescents and the different locations and enquire more
young people is the strongest element deeply. However, the adolescents and
that we saw evidence of, with legal young people we interviewed did bring
and administrative sanctions, and their up the issue of discrimination based
participation being valued by decision on gender and ethnicity and how they
makers for its relevance. In our interviews wished to contribute to a reality where
with young people, we found that child these things do not exist.
club graduates played an active part
at the local level and are now active The data on children in Nepal highlights
campaigners for the rights of children the many vulnerable situations of children.
at multiple levels. What was particularly The most vulnerable are supported by

192 Reddy, Nandana, and Kavita Ratna, A Journey in Children’s Participation, The Concerned for Working Children, Bangalore, India, 2000.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 91

 CSOs in several locations. However, of the most vulnerable groups of children
in the CFLG process their presence is and have developed strategies to bring
minimal, if they are present at all. Due to them into the CFLG process.
a lack of clarity of some of the provisions
of the CFLG National Strategy, the most In this study, we learnt that there are
marginalized children. including children currently about 20 actively working
from migrant communities and refugee networks for children’s rights in Nepal.
groups, children affected by disasters, Two of these networks have been the
and children belonging to gender and most deeply connected to CFLG, from
sexual minorities, are ignored. Some the perspective of children’s participation:
In this study, we of the most vulnerable children are in Consortium Nepal193 and the National
learnt that there the cities – without systemic access CFLG Forum. 194 Consortium Nepal
are currently to local governments. While struggling works to enhance the understanding
about 20
for their own survival, which has been of children’s participation among its
actively working
further exacerbated by COVID, it remains own members and key stakeholders.
networks for
very challenging for them to take part in Its members facilitate the formation
children’s rights
in Nepal. Two of CFLG. In addition, there is no specific of child clubs at the local level and
these networks provision for child centric disaster risk support the formation of provincial and
have been the reduction in Nepal – which needs to national level federations. The Forum
most deeply be addressed, as Nepal has become was formed primarily to support the roll
connected to increasingly environmental fragile, due out of the CFLG programme across the
CFLG, from the climate change and the over exploitation country. Its core objective is to bridge
perspective of the environment. the gap between CFLG policy and its
of children’s implementation at different levels. Both
participation. Role of CSOs are led by enthusiastic and committed
child club graduates.
The role of CSOs in laying the
foundation for children’s participation According to the CSOs, many local
in Nepal over the past four decades, government representatives and
and their involvement in every stage functionaries lack conceptual clarity
of the evolution of CFLG, is important related to the agency of children and their
to acknowledge. The vibrant presence citizenship. Ashok Khanal, a member of
of child clubs is in no small measure the Forum said, in a press note, that local
due to the support that children have representatives have been progressive
received from CSOs to strengthen their to declare their areas as ‘child friendly’,
organizations, critically reflect upon their however, they lack competency in CFLG
own realities, access relevant information, and there is a huge gap in capacity
and learn research and advocacy skills. building programme targeting policy
CSOs have also played a key role in makers, child club members and relevant
creating a favourable environment for stakeholders.195 The role of CSOs is to act
children’s participation at the community as a watchdog, to spot these deficiencies
level and conducting advocacy among and the challenges of CFLG, and engage
officials and elected representatives at in determined advocacy and training to
various levels. They have been cognizant bring CFLG back to its original ideals.

193 <www.consortium.org.np>
194 <https://ncflgforum.org/>; <www.facebook.com/ncflgforum>
195 Khanal, Ashok, Press Note, National CFLG Forum, undated.

92 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Role of UNICEF covered a wide range of issues, from the
facilitation of children and decentralized
In Nepal, the role of UNICEF in planning and budgeting, right up to
the conceptualization, piloting and national policy advocacy on all related In Nepal, the role
mainstreaming of CFLG – both in policy legislation. Starting with the facilitation of of UNICEF in the
and practice – has been outstanding. the CFLG exposure visit of senior officials conceptualization,
Programmatically, it had outcomes to to the Philippines, UNICEF has been piloting and
mainstreaming
fulfil with regard to CFLG and budgetary very focused and strategic in leveraging
of CFLG – both
provisions for working with governments the legacy of child clubs and child rights
in policy and
from the local to the national level. It also CSOs and the Government of Nepal has
practice – has
supported the grassroots work of CSOs been willing to pilot and mainstream been outstanding.
with financial and technical assistance. CFLG across the entire country. Programmatically,
It facilitated support to networks of it had outcomes
child clubs for peer learning, collective As a major stakeholder in the to fulfil with
advocacy and to build public opinion in implementation of CFLG, UNICEF has regard to CFLG
favour of CFLG. It has also collaborated garnered a high degree of multi-sectoral and budgetary
with and supported the work of convergence in the programme. It has provisions for
Consortium Nepal and the National CFLG enjoyed the involvement of all the working with
Forum since their inception. thematic sectors in UNICEF Nepal and governments from
also benefited from the guidance and the local to the
national level. It
Earlier, UNICEF worked intensively with support of senior management. As a
also supported the
the concerned ministries and senior UN agency, it has a bilateral relationship
grassroots work of
officials from all concerned departments with the Government of Nepal, which
CSOs with financial
and kept up the advocacy at the central has contributed to several policy level and technical
level. It has invested resources in the achievements, which have been critical assistance.
capacity building of children and adults. to the evolution and sustenance of CFLG
Its capacity building programmes have in Nepal.

A few years after CFLG was mandated for implementation in the country, UNICEF’s role was reduced
for a period of time due to the transitional steps that were being undertaken in relation to the
governance structures in Nepal. There are emerging commitments to invest in the renewed CFLG
processes, which would do well to integrate robust child participation mechanisms. To better align
its programme cooperation with the ongoing federalization process, UNICEF Nepal reprioritized its
strategic focus on CFLG with the creation of new output in the current result structure of the Country
Programme Action Plan 2018–2022.

The new output contributes to implementing child-friendly local governance priorities, as envisioned
by the recently-endorsed CFLG implementation guideline 2078 (2021). It also complements the outcome
and output of the ongoing provincial and local governance support programme. The focus of the new
output is to support evidence generation, sectoral assessment, planning and capacity building and
foster the meaningful participation of children to develop integrated and child sensitive development
plans at the local level. The participation of children, adolescents and their families is critical for child-
friendly development and equitable delivery of goods and services at the local level.
Statement to CWC, Toya Nath Subedi,
Planning and Monitoring Specialist, UNICEF Nepal, August 2021

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 93

 In order to build Several members of UNICEF hold the to play in CFLG and that phasing out its
a conducive view that its role was, and continues to historical engagement with CFLG has
environment for be, critical to ensure the effective roll had a detrimental effect.
young people’s out of CFLG in Nepal. There is a need
participation, for technical support at the local level for Enhancing participation
UNICEF proposes children and government representatives
to support to ensure the participation of children and In order to build a conducive environment
adolescents and
to respond to children’s demands and for young people’s participation,
youth to engage
requirements. There is also a need for UNICEF 196 proposes to support
with governments
strategies and implementation processes adolescents and youth to engage
and civil society
and empower at the national level to incorporate and with governments and civil society
them to develop mainstream CFLG. In addition, it is timely and empower them to develop and
and advocate for to identify the potential for enhanced advocate for policies that are related to
policies that are adolescent participation in UNICEF’s their priority issues, as well as lobby the
related to their strategic cross-sectoral planning to government on the use of technology
priority issues. support existing good practices. The to increase their access to information
CSO leaders we interviewed were also and to quality public services. It also
of the opinion that UNICEF had a role proposes to support existing adolescent
© UNICEF Nepal

196 Beyond Group, UNICEF Nepal and UNICEF ROSA, Empowering Adolescents and Youth in Nepal as Partners in Innovation for
Development, UNICEF Nepal, Kathmandu, 2021.

94 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

and youth councils in the provinces and national levels through CFLG; share
districts to strengthen national policies learning and advocacy; support peers
and guidelines, to organize local advocacy to become part of CFLG; and ensure
groups, and to form multi-stakeholder continued engagement in different
coalitions. The CFLG process could be activities; collectively generate and
organically linked to this, from the local gather relevant information to form a
to the national level. strong basis for arguments on behalf
of children.
Recommendations
Recommendation 4. Ensure
Based on our findings and our analysis, we inclusiveness: Ensure inclusiveness in
make the following recommendations to your clubs; identify the most marginalized
enhance the participation of adolescent and vulnerable children; provide additional
and young people in governance. support to them to express their agency;
and seek the help of local governments
Adolescent groups or CSOs to do so.
Ensure
inclusiveness
Recommendation 1. Strengthen CSOs in your clubs;
awareness about children’s rights: identify the most
Strengthen awareness about children’s Recommendation 1. Be an independent marginalized
rights by popularizing the right to agency voice for human rights: Be an and vulnerable
and self-determination of children; taking independent voice for human rights; children; provide
part in peer learning and exposure visits; inspire children and adolescents to stand additional
carrying out campaigns that protect by the universal principles of equality and support to them
children’s rights; spreading the word rights; build the capacity of adolescents to express their
about CFLG and its opportunities for for democratic and informed participation; agency; and seek
the help of local
participation and training; and reviewing collaborate with other CSOs working
governments or
CFLG indicators to understand and in the area of democratic devolution;
CSOs to do so.
modify them for your own communities. and develop strategies to embed rights-
based programming in local government
Recommendation 2. Become financially institutions and thematic ministries.
resourceful: Become financially
resourceful by reducing dependence Recommendation 2. Support child
on CSOs; mobilizing local resources and clubs: Support child clubs to fend off
local government support; collaborating political interference and co-option by
with CSOs and other stakeholders to the government; ensure their financial
strengthen your cause; committing independence; sustain the continued
human capital resources for the involvement of child club graduates;
participation of adolescents and young facilitate their informed participation in
people in governance; and leveraging CFLG; guide them to form networks
the mechanisms, capacities and norms at various levels; provide them with
required for adolescent participation in information and skills to meaningfully
governance. engage with governments; provide them
with training modules; and promote
Recommendation 3. Build a network of intergenerational dialogue.
child clubs and organizations: Build a
network of child clubs and organizations Recommendation 3. Provide special
at the ward, municipal, provincial and support to the most vulnerable: Provide

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 95

 special support to the most vulnerable children; roll out a strategy for CFLG
including by providing counselling and with timelines up to 2030 to meet the
emotional support; creating a knowledge mainstreaming goal for CFLG; ensure
base about marginalized communities that the CFLG National Strategy is in line
for critical engagement; optimizing local with the Operational Guidelines, 2021
resources and community support for by modifying the indicators to respond
them; providing logistical and technical to the concerns of the most vulnerable
support to ensure their participation; children and children from marginalized
assisting local-level institutions to reach and minority communities; and ensure
them; and ensuring their participation in functional and fiscal devolution to counter
child clubs and CFLG. a unitary system of governance.

Recommendation 4. Strengthen Recommendation 2. Allocate budget

collaboration between civil society for social mobilization: Allocate budget
organizations: Strengthen collaboration for social mobilization to equip all
between existing CSO networks like stakeholders with the knowledge,
Consortium Nepal and the National attitudes and skills for CFLG
CFLG Forum; attempt to bring in implementation; develop guidelines
Allocate budget conceptual clarity about the participation and mechanisms for co-financing by
for social
of adolescents and young people; various stakeholders to establish child-
mobilization
challenge sectoral concerns about the friendly and child responsive structures
to equip all
effective implementation of CFLG; and services; apply the principles of
stakeholders
with the contribute personnel and resources to subsidiarity and proximity to increase
knowledge, act as an independent advocacy coalition; budget allocation for local governments;
attitudes and collectively strengthen child clubs and and reserve 10% of the local budget for
skills for CFLG children’s organizations to become the children.
implementation. main actors; and ensure that their agency
is not overshadowed. Recommendation 3. Set up mechanisms
for monitoring: Set up mechanisms for
Recommendation 5. Research, the effective monitoring of CFLG at
document and train: Carr y out federal and provincial levels; compare
participatory research into CFLG; the pre- and post-federal system of
identify good practices; make training governance to identify good systems;
modules for local leaders and institutions; set up a Child Rights Commission and
develop modules to build the capacities engage the National Child Rights Council
of CSOs; and develop guidance manuals and National Planning Commission to act
and reference materials for frontline as independent watchdogs; and evolve
development workers on facilitating mechanisms to amend directives and
child assemblies. policies related to children when they do
not uphold children’s rights and represent
State their best interests.

Federal government Recommendation 4. Provide forums for

the engagement of child club graduates:
Recommendation 1. Develop review and Provide forums for the engagement of
revise strategies: Develop review and child club graduates for the effective
revise strategies such as streamlining implementation of CFLG and to
the agenda of CFLG in Nepal’s Ten enable child clubs; to facilitate child
Year Strategic Plan (2021–2030) for rights awareness at the national level

96 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

addressing issues such as discrimination, and young people to debate their views
inequity, violence and abuse of children; freely; to map localities where children
to enable shared learning and advocacy experience severe vulnerability; to
among members of child clubs; and access additional financial and technical
to allow CSOs to deepen their role in support; to ensure that the principle
empowering children and enabling local of subsidiarity is adhered to with
governments. the effective devolution of functions,
functionaries and finances; and to
Provincial government allocate financial and human resources
for establishing policies, mechanisms,
Recommendation 5. Support local capacities and norms for the participation
governments: Support local governments of adolescents and young people.
to fine-tune the CFLG indicators as
relevant to their specific local context; Recommendation 8. Create and lead
build the capacities of village-level convergence platforms: Create and lead
facilitators and CFLG focal persons; convergence platforms to bring together
leverage the mandate and priorities of all child clubs, development partners
the Provincial and Local Government and community-based organizations to
Support Programme (PLGSP); sharpen support the implementation of CFLG;
their understanding of the ‘agency’ of provide mechanisms for effective
children; institute awards for institutions monitoring, evaluation, and grant
that effectively implement CFLG; making; create spaces to ensure the
facilitate exchange programmes for rapid communication of examples of
shared learning; and allocate resources children’s agency; and for shared learning
for policies, mechanisms, capacities and and appreciation of good practices.
norms for the participation of adolescents
and young people. Recommendation 9. Support local-
level institutions: Support local-level
Recommendation 6. Develop guidelines institutions to fine-tune the CFLG
for facilitation: Develop guidelines to indicators as relevant to the specific
facilitate child clubs including mobilization, local context and to the issues raised
empowerment and networking at the by children; build the capacities of
local, ward, municipal and provincial village-level facilitators and CFLG focal
levels; to enhance collaboration with persons; integrate bottom-up planning
CSOs for the empowerment of child for the meaningful participation of
clubs; to ensure the representation of adolescents and young people; address
children in all committees and forums; the concerns and participation of the
and to create district-level platforms for most marginalized; mobilize child club
sharing ideas on adolescent participation. graduates and enlist their support for
CFLG; and provide forums at the local
Local government level for members of child clubs to share
learning and advocacy.
Recommendation 7. Build CFLG bottom-
up with child clubs as its foundation: Recommendation 10. Engage the
Build CFLG bottom-up with child clubs support of appropriate civil society
as its foundation to respond rapidly organizations: Engage the support
to issues raised by children when the of CSOs with the conceptual clarity,
provincial government has a role to play; experience and capacities to provide
to provide opportunities for adolescents technical and thematic support to

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 97

 local-level institutions; create a local of Nepal to reach its goal of making all
environment that welcomes CSO local-level institutions in Nepal CFLG
engagement; engage CSOs to organize complaint by 2030.
campaigns for child rights awareness
at the local level addressing issues Recommendation 2. Support national
of discrimination, inequity, violence networks of civil society organizations
and abuse of children; and support with capacities and required resources:
Strengthen
the facilitation their successful pilot projects, like Support national networks of CSOs with
of internal ‘child-friendly school environment‘, for capacities and required resources for
convergence mainstreaming. the effective implementation of CFLG;
and continuity to implement all the recommendations
within UNICEF UNICEF listed above under ‘CSOs’; to conduct
to enhance national events such as the National Child
technical Recommendation 1. Strengthen the Club Network meet and the National
capacities and facilitation of internal convergence and CFLG conference; and to provide spaces
advocacy for continuity within UNICEF: Strengthen for shared learning and strategizing.
strong child the facilitation of internal convergence
and adolescent
and continuity within UNICEF to enhance Recommendation 3. Support the federal
participation
technical capacities and advocacy for government with technical support:
agendas in CFLG.
strong child and adolescent participation Support the federal government with
agendas in CFLG; to develop a shared technical support to implement all the
vision among all key stakeholders for recommendations listed above under
CFLG; to consider the socio-economic- ‘federal government’ and partner with
political context of the country, as well state institutions to develop modules and
as the COVID-19 pandemic and its programmes for the capacity building of
aftermath, in order to evolve a common local governments in CFLG components.
action plan; and to assist the Government
© UNICEF/UN0347310/Altaf Ahmad

98 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia

Recommendation 4. Document the “As children, now we know what
next phase of CFLG implementation: we want, and we are able to speak
Document the next phase of CFLG up. We all need to continue learning
implementation to be shared as a role and contributing. Then Nepal will
model, not only for South Asia, but have a good future.”
globally; develop operational guidelines
Ashma Aryal,197 youth club member,
for strengthening institutional capacities former President of Nawalparasi Child Club, The Child-
for enabling adolescent participation interview (online) with CWC,
28 July 2021 Friendly Local
based on ADAP ROSA’s regional Government
framework; and include the Claiming initiative
Citizenship framework of agency, state, The agency and participation of children in Nepal is
participation, inclusion and resolutions and adolescents must remain at the an excellent
(ASPIRE) as a lens that governs the core of the CFLG framework, moving example of the
implementation of the operational beyond the ritualistic participation of promotion of,
guidelines. children. The inclusive participation of and investment
children in the CFLG framework will not in, adolescent
Conclusion be realized until inclusivity and inter- engagement and
participation
sectionality is addressed in all sectors
practices,
The Child-Friendly Local Government of child development.
including
initiative in Nepal is an excellent example
strengthening
of the promotion of, and investment in, CSOs and agencies like UNICEF must the capacities
adolescent engagement and participation dedicate themselves to ensure that and mechanisms
practices, including strengthening the voices of adolescents and young for adolescent
the capacities and mechanisms for people are heard on all matters that engagement
adolescent engagement that the UNICEF affect them, not only at the local level, that the UNICEF
interventions have catalysed based on but also at the federal level. The many interventions
earlier child and CSO-led engagements. inspiring examples practised by various have catalysed
CFLG has been creatively piloted in Nepal local governments and municipalities based on earlier
and has been effectively in existence must be promoted and replicated, so child and CSO-led
for several years. Its achievements that CFLG becomes an organic structure engagements.
and challenges have had a multiplier that is also unilaterally respected by all
effect across the entire country. It is political parties. This will guarantee the
time for the institutionalization of the institutionalization of CFLG, irrespective
CFLG mechanism in all of Nepal’s 753 of the political party in power.
governance structures.
If UNICEF does not engage with CFLG
To ensure that CFLG attains its full with rigour and commitment at this
potential, it needs to be further critical juncture, it will undoubtedly
consolidated to put in place adolescent be a downward spiral for the CFLG
participation mechanisms in clubs, programme in the entire country and a
families, and communities, as well as loss for the entire region. UNICEF, other
local, provincial and national governments, international agencies and CSOs must
through the continued engagement of support CFLG strategically and multi-
UNICEF for at least another 5–10 years. sectorally and bolster it at all levels to
ensure that it flourishes in the years
ahead.

197 Now 20-years-old, Ashma Aryal is a child club graduate and has been associated with child clubs since the age of 10.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 99

© UNICEF/Bhutan/SPelden

100 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
 Adolescent and Youth

5 Participatory Review
of the National Youth
Policy, Bhutan

“For us, participation means more than asking youth to take part in community
services, we are trying to promote child participation in decision-making
processes and local governance. Engaging young people in the National Youth
Policy is an entry point to show that if we give young people a chance, good
results are possible”.

Sonam Wangchuk,
UNICEF Bhutan, interview (online) with CWC, November 2020

Introduction Hinduism, with a small minority following

folk religions 201 While Bhutan’s official
The Kingdom of Bhutan spans language is Dzongkha, there are about 20
a p p r ox i m a t e l y 3 8 , 14 0 s q u a r e languages spoken in the country, with the
kilometres198 with a total population of most common being Tshangla (spoken by
727,145 (48% females; 52% males), of members of the Sharchop community).
© UNICEF/Bhutan/SPelden

which 38% live in urban areas and 62% Nepali is also spoken widely in Bhutan,
in rural areas.199 The main ethnic groups due to the presence of the Lhotshampa
in Bhutan are the Bhutia (Ngalops), (‘people of the south’) community, which
Nepalese (Gurungs) and Sharchops. is made up of different Nepali ethnic
About three quarters of the population groups and constitutes over a quarter
follow Buddhism;200 the remainder follow of the population.202

198 World Bank, ‘Indicators: Bhutan’, undated, <www.data.worldbank.org/indicator/AG.LND.TOTL.K2?locations=BT>, 20 August 2021.

199 National Statistics Bureau, ‘Bhutan Interactive Data Portal: Population’, 2021, <www.nsb.gov.bt/bhutan-interactive-data-portal/population>,
accessed 20 August 2021.
200 Norbu, Dawa, and Pradyumna P. Karan, ‘Bhutan’, Britannica, undated, <www.britannica.com/place/Bhutan>, accessed 20 August 2021.
201 National Statistics Bureau, ‘Bhutan Interactive Data Portal: Population’, 2021.
202 Minority Rights Group International, ’World Directory of Minorities and Indigenous Peoples. Bhutan: Lhotshampas’, 2021, <www.
minorityrights.org/minorities/lhotshampas>, accessed 17 August 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 101
 Bhutan officially transitioned to a Issues faced by children in
democratic constitutional monarchy in Bhutan
2008, under the leadership of His Majesty
the King Jigme Singye Wangchuck, The mandate for child rights in Bhutan
who initiated and was deeply involved arises from the Constitution of Bhutan,
in the democratization process. The 2017 and the Child Care and Protection
emergence of a new democracy marks Act, 2011. Article 9(18) of the Constitution
Bhutan’s the significance of this case study among states that:
democracy is the four selected for study. Bhutan’s
grounded in the democracy is grounded in the philosophy The State shall endeavour to take
philosophy of of Gross National Happiness (GNH), a appropriate measures to ensure that
Gross National unique concept that 203 “implies that children are protected against all forms
Happiness (GNH), sustainable development should take of discrimination and exploitation including
a unique concept
a holistic approach towards notions of trafficking, prostitution, abuse, violence,
that “implies
progress and give equal importance to degrading treatment and economic
that sustainable
non-economic aspects of wellbeing”. exploitation.207
development
should take a
holistic approach The Gross National Happiness Index The Child Care and Protection Act, 2011
towards notions (GNHI) was created to measure and aid and the Child Care and Protection Rules
of progress in increasing Gross National Happiness and Regulations of Bhutan, 2015 state
and give equal in policy making in Bhutan. 204 The that the best interests of the child shall
importance to 2015 GNH Report found that 43.4% be the primary consideration.
non-economic of Bhutanese people are ‘deeply or
aspects of extensively happy’.205 However: Organizations such as Respect, Educate,
wellbeing.” Nurture and Empower Women (RENEW),
The GNH levels among youth are lower founded by Her Majesty Gyalyum Sangay
than other age groups, and changes are Choden Wangchuck in 2004, have had a
evident. For example, in 2010, nearly long-standing impact on child rights and
80% of youth aged 15–25 thought that protection issues. RENEW works closely
lying could never be justified, but this had with the United Nations Population
plummeted to about 60% of youth by Fund on issues related to the sexual
2015. The youth need to be engaged and and reproductive health of monks and
energised to value GNH and make it their nuns,208 to address their lack of access
own priority. 206 to comprehensive education on sexual
and reproductive health. RENEW 209 also
works with the National Commission
for Women and Children (NCWC) and
the Government of Bhutan on issues

203 Oxford Policy and Human Development Initiative, ‘Bhutan’s Gross National Happiness Index’, undated, <www.ophi.org.uk/policy/gross-
national-happiness-index>, accessed 17 August 2021.
204 Ibid.
205 Centre for Bhutan Studies and GNH Research, A Compass Towards a Just and Harmonious Society: 2015 GNH Survey Report, Centre for
Bhutan Studies and GNH Research, Thimphu, 2016.
206 Ibid., p. 7.
207 Government of Bhutan, Constitution of the Kingdom of Bhutan 2017, Supreme Court, Royal Court of Bhutan, 2017.
208 United Nations Population Fund, ‘Nuns and Monks Break the Silence on Sexual and Reproductive Health and Rights in Bhutan’, 4 November
2019, <www.unfpa.org/news/nuns-and-monks-break-silence-sexual-and-reproductive-health-and-rights-bhutan>, accessed 20 August 2021.
209 <www.renew.org.bt/mission>

102 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
of domestic violence, sexual assault A United Nations Population Fund
and gender-based violence through sponsored study reported that, from
preventive and curative interventions 2000–2014,116 33% of mental health
and cross-cutting services. outpatients were adolescents and young
people (aged 10–24). Drug abuse and
The results of a 2017 NCWC study 210 on substance addiction is a major issue in
violence against women and girls “show Bhutan, along with drug-related crimes,
that about 3 in 10 women aged 15–49 which have been increasing. Bhutan also According
that had ever been partnered are likely to has a high per capita consumption of to UNICEF,
experience at least one form of a specific alcohol. Reportedly, the National Drug 6 out of 10
type of intimate partner violence (IPV) in Use Survey of 2017 found that about children have
their lifetime”.211 An earlier 2016 NCWC 67% of university students used their experienced
study 212 on violence against children pocket money to buy drugs.117 some form
of physical
and young people in Bhutan found that
violence, and
“More than 6 out of 10 children (64.1%) Finally, unemployment and the lack of
traditional
had experienced some form of physical livelihood options seem to be a major
practices such
violence at least once in their lifetime, and continuing concern for young people as corporal
often occurring for the first time before 13 in Bhutan, as reported by the Bhutan punishment and
years of age”,113 with only a few reporting Centre for Media and Democracy child marriage
the incidents to child protection agencies. (BCMD)118 as well as in other studies. are common.
The most common forms of physical The COVID-19 pandemic has deepened
violence reported (44%) were corporal this concern.
punishment by parents, caretakers and
other relatives. Furthermore, the study About the project
reported that “More than 1 out of 10
children (12.8%) had experienced sexual Project description
violence at least once in their lifetime” and
the “Prevalence among young men was Bhutan’s National Youth Policy (NYP)
highest, with nearly one in five (17.1%) 2011 aims to respond to the needs
having experienced sexual violence at of young people (which includes
least once”.114 According to UNICEF, 6 out older adolescents) in Bhutan by
of 10 children have experienced some “providing a broad framework within
form of physical violence, and traditional which all stakeholders can contribute
practices such as corporal punishment comprehensively and in a coordinated
and child marriage are common.115 manner to youth development”.219 It is

210 NCWC, Study on Violence against Women in Bhutan, National Commission for Women and Children, Royal Government of Bhutan,
Thimphu, 2017.
211 Ibid.
212 NCWC and UNICEF, National Survey on Violence against Children and Young People in Bhutan, UNICEF, Thimphu, June 2016.
213 Ibid.
214 Ibid.
215 UNICEF, ‘Protection…for Every Child’, UNICEF Bhutan, undated, <www.unicef.org/bhutan/protection-%E2%80%A6-every-child>, accessed 18
August 2021.
216 Dorji, L., S. Gyeltshen, C. Jamtsho, T. Minten, T. Dorjee, P. Namgay, and T. Wangchuk, Crime and Mental Health Issues among the Young
Bhutanese People, National Statistics Bureau, Thimphu, 2015, p. 113.
217 Tshomo, Dechen, ‘Alcohol and Substance Abuse Rampant Among Students’, Kuensel, 28 July 2017, <www.kuenselonline.com/alcohol-and-
substance-abuse-rampant-among-students>, accessed 20 August 2021.
218 BCMD, Youth Voices: Youth Matters Report, 2020.
219 Government of Bhutan, National Youth Policy, Department of Youth and Sports, Ministry of Education, 2011, <www.youthpolicy.org/national/
Bhutan_2011_ National_Youth_Policy.pdf>, accessed 20 August 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 103
 strongly rooted in the philosophy of The review exercise was envisaged as
Gross National Happiness and its four a participatory process, to “transcend
pillars. While agencies working with tokenism in youth participation,”228 one
young people implemented components in which youth could be substantively
of the policy’s activities, the NYP 2011 involved in the review, enabling them to
was not formerly operationalized in its advocate for the policy, increasing their
fullest sense.220 ownership, and ensuring implementation
of the policy.229 The Youth Initiative
The review The review of the NYP 2011 began in members were selected through
exercise was 2020, led by the policy’s custodians, the registration with a motivation letter and
envisaged as a Department of Youth and Sports (DYS) the FGD participants were comprised of
participatory of the Ministry of Education121 and young people from 11 different youth
process, to supported by UNICEF, 222 employing an groups (monks, nuns, those living with
“transcend inclusive123 and participatory approach.124 disabilities, in rehabilitation, in conflict
tokenism in youth The Youth Voices in Youth Matters 225 with the law, creative arts, sports,
participation” participatory component was designed students, entertainment [drayang],
one in which by the BCMD as a ‘collaborative seeking employment, and LGBTQI
youth could be research project’,226 employing a mixed- young people) across six districts.230 The
substantively
methodology approach. The project was exercise ensured that young people’s
involved in the
comprised of three parts: rights to express themselves freely, to
review, enabling
 A 9-day residential camp was held be heard, and to participate in matters
them to advocate
for the policy, with 24 youth, who were part of concern to them were realized in all
increasing their of the Seventh Cohort 227 of the three parts of the project.
ownership, BCMD’s Youth Initiative for Debate,
and ensuring Deliberation and Dialogue, who During the 9-day residential camp, the 24
implementation reviewed the NYP 2011 and presented pre-selected Youth Initiative 231 members
of the policy. their findings at the end of the camp. gathered to discuss and reflect on issues
 From among the 24 youth, 18 were affecting them, the root causes of these
trained to be facilitators to conducts issues, and their vision for a better
FGDs with youth groups across the world for themselves. At the end of the
country. camp, the young people presented 232
“their aspirations, challenges and
 In addition, an online survey was
gaps in the 2011 policy document, and
administered through Facebook.
recommended revisions to stakeholders”.

220 BCMD, Youth Voices: Youth Matters Report, 2020, p. 9.

221 BCMD, Youth Voices: Youth Matters Report, 2020, p. 14.
222 UNICEF, Youth People Lead Research to Inform the National Youth Policy in Bhutan, Case Study Series: Experiences in Adolescent &
Youth Engagement, UNICEF Bhutan, Thimphu, December 2020, <www.unicef.org/bhutan/media/2296/file/Bhutan_AY-Engage_Case_Study.
pdf>, accessed 8 October 2021.
223 BCMD, Youth Voices: Youth Matters Report, 2020, p. 6.
224 UNICEF, Youth People Lead Research to Inform the National Youth Policy in Bhutan, 2020.
225 Ibid.
226 Ibid.
227 BCMD, ‘The Youth Initiative for Debate, Deliberation & Dialogue: The Seventh Cohort’, 2020, <www.bcmd.bt/yibhutan/cool_timeline/the-
seventh-cohort/>, accessed 16 August 2021.
228 BCMD, Youth Voices: Youth Matters Report, 2020, p. 15.
229 Ibid., p. 15
230 The six districts are Thimphu, Paro, Chukha, Punakha, Trongsa and Trashigang.
231 The Youth Initiative for Debate, Deliberation & Dialogue (or Youth Initiative) is a youth engagement process facilitated by BCMD (see www.
bcmd.bt/yibhutan/cool_timeline/the-seventh-cohort/).
232 BCMD, Youth Voices: Youth Matters Report, 2020, p. 16.

104 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
The 18 young people who were trained as the youth policy expected to be finalized
facilitators of the FGDs were organized in December 2021.236
into pairs to interview different youth
groups across the country. Altogether, UNICEF’s strategy
114 young people participated in the
FGDs. The mission of UNICEF Bhutan’s
Ad o l e s c e n t D eve l o p m e n t a n d
The reach of the review process was Participation (ADAP) programme has
expanded with an online survey. The been to empower adolescents to The mission of
BCMD had aimed to reach 2,000 actively engage and participate in civic UNICEF Bhutan’s
respondents, however, only 1,099 affairs across programme areas 237 Adolescent
youth responded, which is a response and national strategies. For example, Development
rate of 55%.233 The survey included UNICEF’s Child-Friendly Cities Initiative and Participation
questions related to both qualitative conducted an initial assessment of (ADAP)
and quantitative aspects of youth the capacity and potential for child- programme has
related programmes and services, even friendly local governance in the three been to empower
though it did not include provisions for pilot districts of Trongsa, Lhuentse, and adolescents to
elaboration. The online survey was to Pemagatshel. It will now embark on a actively engage
and participate
measure the level of satisfaction of series of workshops in partnership with
in civic
young people related to different aspects various government departments and
affairs across
under six thematic groups, while the the Youth Development Fund, a local
programme areas
FGDs provided qualitative feedback CSO steering youth development in and national
based on young people’s experiences Bhutan, along with the teams from the strategies.
and observations.234 three pilot districts to design and test a
government-led guideline and action plan
The culmination of this process was for a nationwide CFLG roll-out.238 Young
the BCMD Youth Voices: Youth Matters people’s participation in the enactment of
Report,235 which presented the findings CFLG is seen as a strong component of
of the research, forming a part of the the work. It will be steered by the ADAP
ongoing NYP review exercise. Some programme and the Social Policy unit of
representatives of youth groups are UNICEF Bhutan.
presently involved in the stakeholder
consultations for the Action Plan, led CFLG is at a nascent stage in Bhutan,
by the DYS, a process supported by as is the evolving devolution of power to
UNICEF to engage diverse young people local government administration. While
to review the policy and action plan, with Article 88239 of the Local Government
Act of Bhutan 2009 provides for ‘public
participation’ to be ensured by the local
government in the formulation of the
five year and annual plans, this does

233 Ibid., p. 14
234 BCMD, Youth Voices: Youth Matters Report, 2020, p. 16.
235 Ibid.
236 This second phase is not a part of the present study.
137 UNICEF, Strategy Note on Adolescent Programme 2019–2023, UNICEF Bhutan, 15 January 2020.
238 <www.childfriendlycities.org/bhutan>
239 Article 88 of the Local Government Act of Bhutan, 2009 reads: “A member of the Local Government shall ensure public participation from his/
her constituency in the formulation of five year and annual plans”.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 105
 not usually include the participation and institutions.242 The total number
of children in practice. The initiative of clubs in the year 2017 was 2,015,
documented in the present case study, with 7,193 registered members. 243
and multiple other participation strategies Participation in the Democracy Clubs is
for adolescent and young people, is voluntary. Building on the Democracy
anticipated to support the embedding Clubs, the Bhutan Children’s Parliament
of their participation in CFLG. was established in 2015 by the Election
Commission of Bhutan, with the first
As a new democracy and a constitutional session taking place in 2016.244 However,
monarchy, Bhutan represents unique in 2017, there was a public debate
challenges in analysing the participation regarding the need to continue the
of adolescents and young people Children’s Parliament and its legitimacy
in governance, as reflected in the and legality,245 with some National
discussion. Democratization has brought Council members afraid of ‘politicizing’
about many changes for Bhutan, which youth. By this time, the Bhutan Children’s
have been slow and challenging, while Parliament had completed two sessions,
Meanwhile,
independent, enriching at the same time. in 2016 and 2017, before being put on
volunteer- hold in 2019.
driven and Young people
CSO-led youth Meanwhile, independent, volunteer-
movements in According to a 2012 UNICEF study, driven and CSO-led youth movements
Bhutan have Bhutan has a very young population.240 in Bhutan have been strong. Groups
been strong. More than half of the population are under such as Team Change and the Bhutan
28 and about one-third are between 10– Scouts Association work on diverse
24 years of age.241 As the National Youth issues including unemployment and
Policy 2020 is a national-level policy, all environment. The Young Bhutan Network,
of the young people of Bhutan will form an umbrella platform established by
a part of the constituency. The NYP of the Department of Youth and Sports
2011 defines young people as those (Ministry of Education) includes these
between 13–24 years of age, while the and other organizations such as the
United Nations defines young people as Youth Advocacy Network Bhutan.246
between 15–24 years of age. Pride Bhutan works on LGBTQI issues,
and the decriminalization of gay sex in
In 2015, the Election Commission of Bhutan in December 2020 has given
Bhutan set up Democracy Clubs to act as the organization renewed meaning.
a ‘Mini-Election Commission’ to promote The Young Volunteers in Action (Y-VIA),
understanding of the Bhutanese electoral under the Youth Development Fund,
system and processes, democratic is a network of young volunteers
governance and institutions, and to established in 2003 to represent the
encourage student participation in the perspectives of youth in development
decision-making processes of schools activities, dedicated to “achieving GNH

240 <www.unicef.org/bhutan/adolescent-development-and-participation>
241 Ibid.
242 <www.bcp.ecb.bt/index.php/map-of-democracy-club>
243 Ibid.
244 Ibid.
245 Business Bhutan, ‘ECB Negates Council’s Views on Children’s Parliament’, Business Bhutan, 30 August 2017, <www.businessbhutan.
bt/2017/08/30/ecb-negates-councils-views-on-childrens-parliament>, accessed 17 August 2021.
246 Young Bhutan Network @BhutanYoung on Twitter <www.twitter.com/bhutanyoung?lang=en>.

106 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
[Gross National Happiness] through data management system to inform The VMIS has
volunteerism and leadership”.247 coordination and collaboration for young 3,451 registered
volunteers, of
people’s participation in governance and
which 1,948
On International Youth Day on 12 democracy building.
are female.
August UNICEF,248 the Bhutan Youth
A pioneering
Development Fund, Department of Youth Methodology and likely
and Sports, Ministry of Education, Loden path-breaking
Foundation and BCMD jointly launched As a result of the restrictions imposed to effort, there is
the Volunteer Management Information prevent the spread of COVID-19, it was great potential
System (VMIS) to address the lack of not possible for the CWC team to visit for this data
data on young people and volunteerism the programme area. Online interviews management
in Bhutan, which was leading to a lack and discussions were held instead, which system to inform
of efficiency in working together.249 imposed several limitations in terms of coordination and
The VMIS has 3,451 registered the availability of discussants, as well collaboration for
volunteers, of which 1,948 are female. as limiting the rapport that could be young people’s
participation
A pioneering and likely path-breaking established. We drew heavily on the in-
in governance
effort, there is great potential for this depth report produced by BCMD and a
and democracy
building.
© UNICEF/Bhutan/SPelden

247 <www.m.facebook.com/bettertodaybrightertomorrow>
248 UNICEF, Mapping Youth Volunteerism in Bhutan: A Database of Youth Group Led Activities, Skills and Programmes for Young People,
UNICEF Bhutan, 12 August 2021, <www.unicef.org/bhutan/stories/mapping-youth-volunteerism-bhutan>, accessed 20 August 2021.
249 Ibid.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 107
 few other documents for our secondary speak to anyone living with a disability
research, to gain a sound understanding or young people in care institutions,
of the youth consultation process and drayangs (youth in creative arts), young
its outcomes. people in contact with the justice system
including incarcerated youth, or young
The CSOs we had online discussions monks and nuns. All of the young people
with included the BCMD and members we did speak to were comfortable with
of the Youth Development Fund. We also English, so we have no insights from
spoke with state officials from the DYS non-English speaking youth. We were
of the Ministry of Education, members also not able to talk to parents and
of the Children Division of the NCWC, community members to obtain their
and officials of the GNH Commission. insights.
We had developed interactive tools for
discussions with children. However, as The research was ably supported by
COVID-19 did not allow youth to gather the teams from ADAP and the Social
in one place, we felt that it would be Policy unit at UNICEF Bhutan, and by
more appropriate to hold FGDs, guided Choeying Dolma, Intern with UNICEF
by our list of ‘areas of enquiry’. We spoke Bhutan, who helped organize the
to three youth who were part of the meetings and recordings, along with
Youth Initiative cohort in the residential the overall continued and timely support
camp, eight youth who were not a part of Dharshini Seneviratne from UNICEF
of the review process, but were part of ROSA. Throughout our interviews, we
other youth groups,250 and two youth continued our discussions with both
to discuss the BCMD report – most of representatives of UNICEF Bhutan and
whom were from urban backgrounds. the ADAP team, to seek clarifications
where needed. Secondary sources were
We could not meet with as many young reviewed, especially in relation to GNH,
persons as we had planned or with as well as the fledgling genesis of CFLG
children from marginalized or vulnerable in Bhutan. The official version of the NYP
groups in Bhutan. We were unable to 2020 was not available to us at the time
© UNICEF/Bhutan/SPelden

250 The discussants were from Team Change, Bhutan Scouts Association, and Youth Advocacy Network Bhutan.

108 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
of the study, as it was before the GNH Agency was expressed in various ways.
Commission for review. A Draft Version A member of Team Change spoke of
of the National Youth Policy 2020 dated how they address the sexual assault
24 September 2020 was provided to us of young people and children, which is
by UNICEF Bhutan. seen as a significant problem, by going
to schools to create awareness about
Findings sexual harassment. Another discussant
from a religious group stated that they
The findings of the case study are worked on engaging youth in religious
presented according to the ASPIRE activities to instil discipline, for instance,
framework set out in Chapter 1. by building a statue of the god of
medicine in various schools. The Youth
Agency Development Fund also conducted the
South Asia region-wide adolescent-led
Agency is defined as the evolving capacity appreciative enquiry process – SParking
and confidence of adolescents to engage Wellbeing – initiated by ADAP ROSA,
with decision makers and structures and which enabled enquiry and action into Young people’s
their autonomy in expressing opinions the impact of the COVID-19 pandemic agency in
and taking action: Did they drive, initiate on young people,251 enhancing young articulating
or manage projects? Did they make people’s agency and action by helping traditionally
choices? What was the impact of other them to overcome apathy and stress.252 unseen aspects
actors on their agency? of policies and
Young people talked to us about the planning was
Evolving adolescent capacity to challenges brought about by the COVID-19 clear during the
engage pandemic and working online through youth policy
Facebook and other media channels to process.
It was observed through interactions maintain engagement on issues. Some
with the young people we interviewed of them were already using technology
that while their agency was evolving, extensively prior to the pandemic, such
their capacity and willingness to as Team Change with their group chat
engage with decision makers and option on Facebook, to address problems
state representatives, as well as their such as youth unemployment, sexual
perceptions of themselves as right- assault and issues within families.
holders with entitlements, including the
right to seek and access information Adolescent autonomy to express
and the right to participate in policy- and act
processes and governance, are at a
nascent stage. This was apparent in the Young people’s agency in articulating
gratitude that many of the respondents traditionally unseen aspects of policies
felt for decision makers and others in and planning was clear during the youth
positions of power for the ‘opportunity’ policy process. According to Ngawang
they had been provided to take part in Rigsar, Programme Officer for BCMD,
the review process. the process enabled youth perspectives
and the experiences of young people

251 UNICEF, SParking Wellbeing: Selected Learnings from an Adolescent-Led Engagement and Enquiry during COVID-19 – Bhutan
Country Report, UNICEF Bhutan, July 2021, <www.unicef.org/rosa/media/16001/file/SParking%20Wellbeing%20Appreciative%20
Enquiry%20Selected%20Learnings.pdf>, accessed 24 November 2021.
252 Ibid.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 109
 as service users to be heard and Impact of other actors on agency
considered, including establishing the
relevant opening hours for youth centres, Young people often felt that their agency
and highlighting the mismatch between was constrained by cultural factors.
skills and education and existing The draft NYP 2020 emphasizes that
livelihoods opportunities.253 Chencho there is a clear need to internalize
Lhamu, Executive Director of BCMD, core Bhutanese values,258 such as Tha
Critical also reported how the process and young Damtshig (the sacred commitment to
adolescent people’s voices had led to mental health others in society)259 and Ley Jumdrey
and youth being placed more strongly on the youth (good begets good).260 The preservation
services, such policy agenda.254 In addition, young of culture and tradition is an integral
as counselling, people made specific links between part of Bhutan’s national ethos. Many
were also felt mental health issues and the overuse young people highlighted the nature
to constrain of technology. The agency of LGBTQI of the promotion of culture. One
empathetic and youth was also enabled, with their voices respondent felt that it was a “…must
youth agency-
critically informing youth policy priorities, (to) follow our culture”, while another
driven responses
and LGBTQI youth finding satisfaction in said that “culture and traditions must
to young
this involvement, as highlighted by the also evolve with time”. 261 Members of
people’s mental
stress issues. The representative of NCWC. the LGBTQI community felt that they
findings of the were constrained in some, although not
BCMD report Roma Pradhan, Senior Programme all, cultural and policy contexts. The third
show that youth Coordinator, Youth Development pillar of GNH being ‘cultural preservation’,
shared doubts Fund,255 observed that there is a trend the struggle between the preservation
about the ethics of young people acting as ‘agents of of culture and cultural heritage, and self-
of counsellors, change’ at the community level and they expression and ‘modernization’, which
as they felt that are interested in contributing to local may not involve cultural traditions, can
confidentiality is government.256 Members of the Bhutan create tension among young people and
not respected or Scouts Association gave examples of affect their agency. Traditional concepts
protected.
how they exercised their agency on are also sometimes in conflict with
issues such as preservation of the modern attitudes of agency propagated
environment, something that they, as by the global media.
young people, had actively chosen to
advocate for by creating awareness in Critical adolescent and youth services,
schools against the use of plastic. They such as counselling, were also felt to
also highlighted youth-led promotion constrain empathetic and youth agency-
and advocacy for sexual education and driven responses to young people’s
generating awareness among young mental stress issues. The findings of
people about sexual assault.257 the BCMD report show that youth shared

253 Ngawang Rigsar, BCMD, interview (online) with CWC, June 2021.
254 Chencho Lhamu, Executive Director, BCMD, interview (online) with CWC, June 2021.
255 Roma Pradhan, Youth Development Fund, interview (online) with CWC, June 2021.
256 Innovate Bhutan – Centre for Social and Business Innovation “aims to wed social and business innovation and forge empowered leaders to
create socially and environmentally innovative ventures in Bhutan” (see <www.bhutanyouth.org/lab>).
257 Members of the Bhutan Scouts Association, interview (online) with CWC, June 2021.
258 Tashi Choden, National Consultant, ‘Draft National Youth Policy 2020’, Revised on 24 September 2020, Submitted to DYS, Ministry of
Education and UNICEF Bhutan.
259 Wangyal, T., ‘Ensuring Social Sustainability: Can Bhutan’s Education System Ensure Intergenerational Transmission Of Values?’, Journal of
Bhutan Studies, Volume 3, No.1, Summer 2001.
260 Ibid.
261 Young people, interviews (online) with CWC, June 2021.

110 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
doubts about the ethics of counsellors, mandate for children’s participation in
as they felt that confidentiality is not decisions that affect them is found in
respected or protected. 262 Lack of guidelines rooted in the Child Care and
confidence that incidences of abuse or Protection Act of Bhutan 2011, whereby
corporal punishment shared by youth a child placed in an ‘appropriate’ home264
would not be revealed due to hierarchies shall be “consulted about and allowed to
of adult-youth relations were also participate in making decisions affecting
highlighted by Chencho Lhamu of BCMD. the life of a child”.265 Similar provisions The Monarchy
She also identified top-down parenting, exist in the Guidelines for Accreditation and the GNH
which is common in Bhutan and is of Service Provider, 2017, by the NCWC. Commission
reinforced by the education system, The extension of this right to participate have an
as part of the reason why youth were in governance is embedded in the important
experiencing mental health issues.263 stakeholder discussions for the Action role to play in
Plan for the National Youth Policy 2020 enhancing the
State and very minimally in the new Child participation of
young people in
Policy.
governance.
The mandated role of the state is to
integrate and sustain adolescent The Monarchy and the GNH Commission
participation in governance and ensure have an important role to play in enhancing
subsidiarity in planning, with the the participation of young people in
devolution of decision-making power to governance. Karma Tshering Samdrup
the lowest possible tier of government: (Research and Evaluation Division) and
How are States able and willing to Lekema Dorji (Children Division of GNH
integrate adolescent participation in Commission) elaborated on this when
governance? How are current economic they informed us that the 2020 NYP had
forces that transfer welfare functions been submitted to the GNH Commission,
from state to non-state actors influencing where it is being screened through the
the ability and willingness of States to lens of 9 domains and 22 variables to
invest in their mandate for meaningful ensure that “it is in line with GNH”, after
adolescent and community participation which it will be presented to the Cabinet.
in governance structures? According to Lekema Dorji, they “wish to
take a systems approach (to issues like
Integrating adolescent participation unemployment), but research and data
in governance are limited at the moment”.266

Bhutan ratified the Convention on the Willingness to invest in meaningful

Rights of the Child on 1 August 1990, participation
but is not a signatory to the International
Covenant on Civil and Political Rights or Varying perspectives and experiences
the International Covenant on Economic exist on the meaningful facilitation of
and Social Rights (ICESR). The norm of participation. On the one hand, there are
‘Gross National Happiness’ forms the instances, such as recounted by Chencho
basis of all policy making, including the Lhamu of BCMD, of adult discomfort
NYP 2020 and the Child Policy. The legal in providing permission when a group

262 BCMD, Youth Voices: Youth Matters Report, 2020, p. 34.

263 Chencho Lhamu, Executive Director, BCMD, interview (online) with CWC, June 2021.
264 Section 12, The Child Care and Protection Act of Bhutan 2011.
265 Section 12 (c), The Child Care and Protection Act of Bhutan 2011.
266 Lekema Dorji, Gross National Happiness Commission, interview (online) with CWC, June 2021

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 111
 of youth in a rural community took the showcase the work of local CSOs at the
initiative to attend a village level meeting. international level.270 Chencho Lhamu
On the other hand, Roma Pradhan of the spoke positively about the pivotal role
Youth Development Fund states that: of UNICEF in bringing together the DYS
and BCMD in 2020 for the NYP review
When young people got an opportunity process, which would have been difficult
to take part in the village meeting, they for CSOs to achieve alone.271
were able to understand how to plan for
development and brought up new issues, “With regard to the implementation
Rinzin such as rural-urban youth migration of the NYP – youth can evaluate
Wangmo, DYS, and of young people abusing drugs and how the policy is progressing. In
stressed that alcohol […]. The local leaders were taken such a system of M&E [monitoring
coordination and by surprise by the seriousness of these and evaluation], they will have
collaboration issues.267 opportunities to demand their
between right to livelihood etc. So, when
government Rinzin Wangmo, DYS, stressed that M&E for the youth policy was being
agencies is coordination and collaboration between developed, as I believe young people
what they wish should be involved, I specifically
government agencies is what they wish
to focus on.
to focus on. She said “right now, we asked for its inclusion.”
She said “right
are all working in silos, so things tend Karma Tshering Samdru, Research and
now, we are all
working in silos, to fall through the cracks. If we all do Evaluation Division, GNH Commission,
interview (online) with CWC, June 2021
so things tend not all come together, no single agency
to fall through can address all the concerns of young
the cracks. If people”.268 Wangmo reiterated the need Participation
we all do not all to:
come together, Participation is the interface between
no single agency […] have a system in place where all the the agency of children and governance
can address all agencies that are developing policies structures: What are the factors that
the concerns of should collaborate and involve young enable meaningful engagement between
young people.” people. At present such a system is adult institutions and adolescents and
not there. In the new revised policy, adolescent groups? What are the
we want to have a system in place boundaries and limits imposed on
where young people can be involved in adolescent participation (direct and
all the development of policies related indirect; individual and collective; local
to them.269 and national) by state actors, adults,
and hierarchical structures? What
Roma Pradhan emphasized that UNICEF are the opportunities for adolescents
plays a very important role in avoiding to represent themselves in order to
the duplication of efforts and helps to question and change those boundaries?

267 Roma Pradhan, Youth Development Fund, interview (online) with CWC, June 2021.
268 Rinzin Wangmo, Chief Program Officer, DYS, interview (online) with CWC, June 2021.
269 Ibid.
270 Roma Pradhan, Youth Development Fund, interview (online) with CWC, June 2021
271 Chencho Lhamu, Executive Director, BCMD, interview (online) with CWC, June 2021.

112 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Opportunities for adolescent “Counsellors promise that they will
participation maintain confidentiality, but then the
next day, rumours are everywhere. This
The number of young people who scares students and they do not find it
participated in the first stage of reviewing useful”.275
the 2011 NYP was small, with only 24
Youth Initiative members at the workshop, Boundaries and limits on
114 youth in FGDs, and 1,024 participants participation
in the online survey on Facebook. Many
youth networks like Team Change and In the course of our discussions, young Going forward,
Young Bhutan Network were not included people referred to the strong culture of substantial
and claim they were not aware of the obedience in the country, where it is the resources are
review process. This limited reach was norm for adults to speak on behalf of needed to
acknowledged in the BCMD report, with children. Ngawang Rigsar from BCMD ensure wide-
the COVID-19 pandemic cited as one of identified the intergenerational gap ranging and
the main reasons for this. Going forward, as affecting mental health.276 Rinzin representative
substantial resources are needed to Wangmo of DYS pointed out that “It is in-person
consultative
ensure wide-ranging and representative difficult to bring young people on board
processes.
in-person consultative processes. State for policy-making processes, because
officials said they were ensuring that they feel it is tokenism”.277 The NCWC
many of the groups that had been left members took note of these serious
out could take part in the development of concerns, but said they laid most of their
the Action Plans for the implementation emphasis on the ‘protection’ aspect
of the 2020 NYP. of child rights, because the right to
participation is yet to be embedded in
Kinzang from Team Change stated that the work of state authorities involved in
if they were a part of it, they would children’s issues.278
have raised issues of livelihood and job
creation, as well as about the sexual Youth also raised the issue of
assault of young people and children.272 unemployment and the need for job
Mental health and depression were creation. Team Change, for instance, said
issues of major concern, which were that they were working on ‘creating jobs
also highlighted in the BCMD report ourselves’. Wangchuk Zangmo, NCWC,
Youth Voices: Youth Matters.273 Tenzin admitted that studies conducted point
from Pride Bhutan said, “Mental health to a huge gap in the number of skilled
is not considered a priority, there is workers needed in the country. But she
stigma related to it because culturally stated that youth are not interested in
we have been brought up like that”. 274 the jobs that are available, such as in the
Young people also critiqued the State construction sector, part of the ‘Build
services set up to address this: Bhutan’ project.279

272 Kinzang, Team Change, interview (online) with CWC, June 2021.
273 BCMD, Youth Voices: Youth Matters Report, 2020.
274 Tenzin, Pride Nepal, interview (online) with CWC, June 2021.
275 Young people, interview (online) with CWC, June 2021.
276 Ngawang Rigsar, BCMD, interview (online) with CWC, June 2021.
277 Rinzin Wangmo, Chief Program Officer, DYS, interview (online) with CWC, June 2021.
278 NCWC members, focus group discussion (online) with CWC, June 2021.
279 Wangchuk Zangmo, NCWC, interview (online) with CWC, June 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 113
 Inclusion participated included monks, nuns, youth
with disabilities, youth in rehabilitation,
Within adolescent groups there are those youth in conflict with the law, youth in
individuals who are socially, culturally and creative arts (drayangs), youth in sports
economically stronger and likely to be and students,283 youth in entertainment
more articulate, thereby excluding the centres, youth seeking employment and
already marginalized from participation LGBTQI youth.284 There was a clear
processes: What actions were taken to intention to involve marginalized groups
promote inclusion, particularly in relation and those from vulnerable backgrounds.
to viewing and working with the most While it is not clear why the Young Bhutan
marginalized groups as agents and Network, established under the aegis of
The BCMD study
partners? the DYS, was not a part of the initial
also found that
NYP process, they have nevertheless
incarcerated
youth and those Exclusion of marginalized been part of the subsequent youth policy
in rehabilitation, adolescents action planning consultations led by the
as well as those DYS and supported by UNICEF.
from the LGBTQI The BCMD shared that due to the
community, faced COVID-19 pandemic and scope of the The BCMD study also found that
discrimination programme design, youth participation incarcerated youth and those in
and was not as representative as had been rehabilitation, as well as those from the
stigmatization, earlier envisaged.280 Tenzin from Pride LGBTQI community, faced discrimination
and that Bhutan and Rinzin Wangmo of DYS said and stigmatization, and that they wished
they wished that the process should have included for a social environment more accepting
for a social
more people with disabilities.281 Rinzin of them.285 The DYS has asked the Young
environment
also felt that the needs of young Bhutan Network to invite young people
more accepting of
monks and nuns were not adequately to participate in the consultations for the
them.
considered in the 2011 NYP, especially Action Plan for the NYP 2020 to ensure
issues related to their health, education that groups excluded in the review
and psychosocial well-being. She also process may be facilitated to give their
pointed out that issues of young LGBTQI input.
people are new in Bhutan and so they
need to find a place in the proposed Resolutions
2020 NYP.
Organizational structures determine the
Actions for inclusion as agents nature of adolescents and young people’s
ability to exercise agency and influence
The BCMD reports282 that a total of resolutions and decisions. At the same
1,193 young people participated in the time, those charged with promoting
research; the youngest being 13 and the agency are also those who set limits
oldest 29. In the FGDs, the 114 youth who and make the rules on translating the

280 BCMD, interview (online) with CWC, 2021.

281 Tenzin, Pride Nepal, interview (online) with CWC, June 2021; Rinzin Wangmo, Chief Program Officer, DYS, interview (online) with CWC, June
2021.
282 BCMD, Youth Voices: Youth Matters Report, 2020, p. 18.
283 Students include those in schools, colleges and technical training Institutes (TTIs) (Ibid., p. 15).
284 Ibid.
285 BCMD, Youth Voices: Youth Matters Report, 2020, p. 26.

114 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
exercise of agency to enact resolutions from the secondary research, whether
and decisions: In such a context how are or not participation by youth has led to
It is reassuring
adolescents able to influence resolutions any decisions in Bhutan, at the local or
that the proposed
and decisions? national levels. As mentioned by the
NYP and Action
representatives of the government, it Plan have been
Structures that determine the is likely that the lack of coordination partly shaped
nature of agency and collaboration between agencies by advocacy by
is fracturing efforts, making youth youth groups,
The now-defunct Bhutan Children’s participation largely a consultative, ad- opening the space
Parliament had adopted resolutions at hoc exercise. One of the intentions of the once again for
their two sessions to facilitate adolescent NYP is to create structures and processes recommendations
participation, in particular urban-rural through which youth can impact on by youth to
student interactive programmes.286 It decisions that affect their lives. influence
is not clear from our discussions, or decisions that
affect their lives.
© UNICEF/Bhutan/SPelden

286 Resolutions adopted by the Second Session of the First Bhutan Children’s Parliament (see <www.bcp.ecb.bt/index.php/bcp-resolutions-2>).

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 115
 How adolescents influence of design, it is clear that the existing
resolutions and decisions Democracy Clubs and the revival of the
Bhutan Children’s Parliament have great
It is reassuring that the proposed NYP potential to enhance young people’s
and Action Plan have been partly shaped participation.
by advocacy by youth groups, opening the
space once again for recommendations The Young Bhutan Network, with 15
by youth to influence decisions that affect youth groups and more than 20,000
their lives. This highlights awareness volunteers, under the aegis of the DYS,
of the need for local, periodic, and is active in facilitating collaboration and
sustained participation by young people networking. The different youth groups
in decision-making processes, as well in the Network work on issues such
Through these as in monitoring plans. Decision-making as unemployment, the environment,
structures, mechanisms are often influenced by how peer pressure, and drug abuse. With
and with a context specific they are and also how volunteers driving these efforts, the
nationally
they are able to transform dynamically in reach of these groups is wide and there
active CFLG,
harmony with the agency of adolescents is scope for significant bargaining power
children and
and young people. with the State. However, some of the
young people in
Bhutan can be young people in our discussions were
drawn into the Analysis either reluctant to reach out directly to
participatory the government or did not see it as an
governance Based on the findings above, the option, choosing instead to focus on
framework, as potential areas and opportunities for the campaigning and advocacy, especially
the mandate enhancement of adolescent participation through social media and online channels.
exists in in governance and challenges are
the Local highlighted in the following sub-sections. The potential of the recently-launched
Government VMIS, which has around 3,500
Act 2019 to Existing structures for volunteers registered so far, as well as
ensure ‘public
adolescent participation ongoing online and offline advocacy, is
participation’.
also apparent. So is the opportunity for
The Democracy Clubs and the Bhutan virtual participation through social media,
Children’s Parliament are good examples which is already being admirably used
of how youth in Bhutan have been involved by the youth who were not a part of
in democracy building, along with the role the NYP review process. As Ngawang
of young people, as clearly envisaged Rigsar of the BCMD pointed out, there
in the NYP 2011. However, their impact may be a problem with respect to those
on adolescent and youth participation in who cannot access the technology.287
governance is not clear. Most discussants Yet youth and adolescents have been
were unaware of their exact role and a few creating their own structures (like Gay
referred to the Democracy Clubs as school Pride and Team Change) to campaign on
clubs. They were not able to articulate specific issues such as LGBTQI rights
whether or not they had a positive impact and unemployment.
on participative democracy. Yet, in terms

287 Ngawang Rigsar, BCMD, interview (online) with CWC, June 2021.

116 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Through these structures, and with a cannot be completely realized through
nationally active CFLG, children and these aspects if participation is not part
young people in Bhutan can be drawn of programming.288 Child protection
into the participatory governance and provisioning divorced from child
framework, as the mandate exists participation cannot have a lasting
in the Local Government Act 2019 to impact on child rights, as rights are
ensure ‘public participation’. The third not something that can be ‘given’ and
pillar of GNH, ‘cultural preservation’, can children’s right to determine the quality
both aid and impede participation and and nature of the provision and protection
independent self-expression by children must be respected.289 If agencies are
and young people, specifically when such working in silos and are not aware of how
expression or participation is seen as to involve young people in policy making
being at odds with cultural preservation. that affects them, that too reflects on the UNICEF Bhutan
Conversely, it also has the potential to State’s lack of buy-in and accountability. has begun
aid participation if participation is seen engaging with
Scout volunteers
as crucial and essential for increasing Adolescent representation
across 20
GNH and for nation-building, especially
districts to
given the first pillar of GNH which is The steady move from an absolute
sensitize them
‘good governance’. monarchy to a democratic constitutional to the NYP –
monarchy in Bhutan has impacted on this process
State buy-in and accountability youth and adolescent participation was, however,
in governance, especially on how hampered by
Child protection is the focal point of adolescents and young people view the COVID-19
child-rights related work in Bhutan. A themselves via-a-vis the State and their pandemic, but
discussant from NCWC spoke about rights and entitlements. Adolescent and UNICEF hopes to
how children’s right to participation is youth representation is still seen as a continue these
important and the NCWC and Ministry kind benevolence, rather than a right. efforts in 2022.
of Education must ensure that all the This view has partly shifted due to the
agencies embrace children’s participation review process for the 2011 NYP. The
as essential in decision making. The DYS DYS is engaging with young people to
representative also explained that adults refine the policy and provide inputs into
making a policy for youth would not be the action plan, and it was reported by
able to produce a fully comprehensive UNICEF that the DYS is visiting schools
policy embracing all of the issues facing and colleges to sensitize and gather
youth without youth participation. Hence, feedback from students.
it is crucial to involve youth in youth
policies. However, this understanding The BCMD is organizing online advocacy
appears to be on paper only, with to highlight the key issues of young
insufficient clarity on how it translates people and garner support from different
into action, including how exactly the stakeholders. UNICEF Bhutan has begun
NCWC might ensure, or has already engaging with Scout volunteers across
ensured, participation by children and 20 districts to sensitize them to the NYP
the monitoring of such participation. – this process was, however, hampered
by the COVID-19 pandemic, but UNICEF
While protection and the provision of hopes to continue these efforts in 2022.
services are crucial, children’s rights These activities indicate a willingness

288 Reddy, Nandana, and Kavita Ratna, Introduction to Child Rights Programming, 2019.
289 Ibid.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 117
 to enhance adolescent representation by the Ministry of Education, supported
and to carry out mid-course corrections by UNICEF Bhutan, to ensure that youth
when required. groups have access to funds and other
technical support, so that they can
Strategies for expansion raise issues within their communities,
which are then brought to the attention
According to the 2021 UNICEF of the DYS. Whether the Young Bhutan
assessment of CFLG in Bhutan: Network has been successful in
There are mixed feelings about children’s ensuring a more representative form
The CFLG participation in decisions that are generally of participation, including the seeking out
assessment considered as adult matters, but most of of, and providing space for, voices and
shows there those interviewed are open to the idea. issues from vulnerable and marginalized
is potential Where it suits them, communities are communities, remains to be seen.
to include already using the voices of children.
children’s
In Drakten Gewog, communities are The mainstreaming of young people’s
participation
strengthening their case against closing participation as a right across all relevant
in governance
their school and relocating their children policy frameworks would be a timely
in Bhutan
at the local to another gewog [group of villages] by intervention through existing structures
government arguing that their children are against the like the Democracy Clubs. This would
level. However, idea.290 improve the participation of adolescents
the lack of a and young people in governance and
legislative or The CFLG assessment shows there is democracy building, beyond the current
policy mandate potential to include children’s participation narrow focus on elections and towards
to ensure that in governance in Bhutan at the local a broader understanding of participation
it is followed is government level. However, the lack of in practice. But it would require the
likely to result a legislative or policy mandate to ensure Democracy Clubs to expand into
in over-reliance that it is followed is likely to result in communities and be linked strategically
on the agenda of
over-reliance on the agenda of individual with CFLG and initiatives for child-
individual local
local government functionaries, who friendly cities, as well as a legal mandate
government
are already limited by the scope of their to embed adolescent participation in
functionaries,
who are already power and duties. governance structures.
limited by the
scope of their National processes such as the NYP Exclusion and inequity
power and review, in which a policy is reviewed
duties. with individual youth members, are at The NCWC study 291 on violence against
risk of being merely an ‘event-based’ children detailed serious findings related
programme, in the absence of a base or to physical, emotional, and sexual
an association (like a youth organization violence against children in Bhutan,
or a youth group) to ensure the continuity especially corporal punishment in
of engagement. For strategic expansion, school and at home. However, in
it will be crucial to sustain and incentivize our discussions with youth, this was
the continued engagement of youth, not expressed spontaneously as a
even in the programme design. serious issue, perhaps because of the
sensitivity of the issue and the stigma
The Young Bhutan Network, under the associated with speaking openly about
aegis of the DYS, is a concerted effort it. However, other issues such as those

290 UNICEF, ‘Child Friendly Local Governance Assessment Bhutan’, Bhutan, 28 January 2021, p. 26.
291 NCWC and UNICEF, National Survey on Violence against Children and Young People in Bhutan, June 2016.

118 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
faced by young people with disabilities, in Action (7000 members). There are also
those from rural areas, and those who several other youth volunteer groups not
identify as LGBTQI were expressed associated to any CSO and dedicated to
as significant, with mental health as a community and social works. Some of
cross-cutting issue. Unemployment and them have been brought under the umbrella
livelihoods were also major concerns, of Young Bhutan Network by the MoE
which were linked to mental health [Ministry of Education]. Most of the clubs
concerns, due to the inadequacy of the and groups are focused on youth problems
education system and the poor mismatch such as drug and alcohol addiction and
between what is taught in schools and social work, and less on addressing policy The work of CSOs
colleges and what is required in the job and service-related issues within their active in the child-
market, leading to dissatisfaction and communities. In fact, many LG members rights space focuses
feelings of despair among youth. This are not aware of such group.292 mainly on child
was exacerbated by the poor access to protection and
violence against
mental health support and the inability Role of CSOs
children, such
to speak to adults, including parents and
as with RENEW
teachers, about mental health issues. The BCMD played a major role in the
and the Youth
National Youth Policy review process. Development Fund.
Marginalization and vulnerability due to Their engagement was also linked to Participation does
identification with certain communities their extensive work with the Youth not appear to be
or gender identities was a big barrier to Initiative. Other CSOs working with child a core component
social equity, including the inability to and youth networks, such as RENEW and of this work at
express themselves in terms of clothing Young Bhutan Network, are exclusively present, even
or other forms of self-expression, due engaged in consultations related to the though they
to cultural impositions, including dress review of the NYP. While some youth have had some
norms (as expressed by a member of groups did find a place in the stakeholder involvement in the
the LGBTQI community). The LGBTQI consultation for the action plan, the initiation of CFLG.
groups routinely challenged the status review process itself had a very small
quo and expressed themselves more sample of Youth Initiative members (also
freely. Other issues of less visible members of Young Bhutan Network),
marginalized groups may also need to who were trained to conduct FGDs with
be brought out more explicitly through other groups (see ‘Findings’ section
inclusive discussions and deliberations above).
across diverse communities living in
Bhutan. The work of CSOs active in the child-rights
space focuses mainly on child protection
According to the CFLG Assessment and violence against children, such as
report by UNICEF Bhutan: with RENEW and the Youth Development
Fund. Participation does not appear to
Besides many CSOs have their youth be a core component of this work at
wings. This includes Tarayana Clubs (5000 present, even though they have had
members), RENEW’s Druk Adolescent’s some involvement in the initiation of
Initiative on Sexual Awareness Network CFLG. UNICEF Bhutan may consider
(700 members), BYDF’s [Bhutan Youth deepened its engagement with CSOs
Development Fund’s] Young Volunteers to provide technical support to them to

292 UNICEF, ‘Child Friendly Local Governance Assessment Bhutan’, 2021.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 119
 ensure children’s right to participation capacities for the sustained participation
as a core principle. of young people in CFLG.

Role of UNICEF Enhancing participation

The NYP review process, led by the At the time of discussion, the Youth
BCMD, was a UNICEF supported project; Initiative group members informed us
thus, UNICEF’s role was significant. that were not aware how many of their
However, UNICEF could have facilitated recommendations had made it into the
the involvement of a wider array of youth final draft of the NYP 2020. A participatory
organizations and youth groups working monitoring and evaluation component
on a wide range of issues, in different was not envisaged or included as part of
parts of the country to elicit a more the policy review process. There is a need
comprehensive response to the NYP. to ensure participatory monitoring and
These evaluation in the NYP review process and
limitations on Young people who were part of the in the development of the subsequent
design should be review process are happy that they were Action Plans. Consultative processes
addressed now able to provide their input into a policy are only the beginning. Mechanisms and
by UNICEF to of national importance. However, they structures to monitor the implementation
ensure that the must see it as sustained involvement, of decisions taken are important to build
consultation continuing beyond the first consultation. in all processes of adolescent and youth
will not become Young people could be supported by participation in governance, be it CFLG
a once-off UNICEF, for example, to review the extent or Democracy Clubs, to ensure that the
exercise and can to which their input was incorporated state is accountable to young people
instead provide
in the policy; how they may contribute and to enhance their participation on a
a spring-board
to the Action Plans; and how they can national scale.
for continued
be involved in monitoring the policy’s
engagement.
implementation, among other things. Recommendations

These limitations on design should be Based on our findings and analysis, we

addressed now by UNICEF to ensure that make the following recommendations to
the consultation will not become a once- enhance the participation of adolescent
off exercise and can instead provide a and young people in governance.
spring-board for continued engagement.
This is important, especially as there Adolescent and youth groups
are no base groups of adolescents and
youth in Bhutan that are able to engage Recommendation 1. Seek information
with national processes on their own. It on, and engagement with, national
would also be timely for young people policies: Seek information on and
to be informed and facilitated to sustain engagement with national policies such
their involvement and to demonstrate as the National Youth Policy, the Child
how their genuine efforts can contribute Policy, the National Youth Action Plan,
to the development of their nation. and the Child-Friendly Local Governance
initiative (which are currently all at different
The initiation of CFLG in Bhutan is stages of the policy-making process);
anchored by the Social Policy Unit of become aware of the opportunities they
UNICEF. This unit could work closely can provide for the participation of young
with other sections of UNICEF and with people at the local level; and use this to
local governments to strategize and build engage with policy-making processes.

120 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Recommendation 2. Organize communities; ensure the continued
yourselves as children, adolescent, and bottom-up engagement of young people
youth groups: Organize yourselves as in policy making and governance space,
children, adolescent, and youth groups, especially the ongoing National Youth
either geographically or thematically, Policy and Child Policy; and examine
whichever is most appropriate; participate other ways in which the different youth
in Democracy Clubs; access the groups can be brought together.
information required to make informed
choices; and collectively ask elected Recommendation 2. Support inclusive
representatives and local government processes: The collective bargaining
officials for entitlements and services. processes of youth groups are at a
nascent stage, so ensure that any policy
Recommendation 3. Initiate and involving children, adolescents and youth
engage in learning: Initiate and is presented to different marginalized
engage in learning through sharing and groups, such as monks, the LGBTQI Use the VMIS
association with local CSOs, as well as community, disabled youth, refugee platform to contact
youth groups in other parts of the world; groups and others, even though their other youth
use the VMIS platform to contact other numbers may be small. organizations;
youth organizations; gain information gain information
management and advocacy skills from State management and
participatory research; expand your advocacy skills
understanding of issues such as gender Central government from participatory
and sexuality through regional networks; research; expand
and advocate for the VMIS platform to Recommendation 1. Ensure the your understanding
of issues such
be used by youth groups to connect with participation of young people that is
as gender and
each other, as well as with government inclusive: Mandate the incorporation and
sexuality through
agencies when required. integration of young people’s participation
regional networks.
across all processes; broaden the
Recommendation 4. Engage directly base of youth groups providing input
with government agencies: Engage into the National Youth Policy and its
directly with government agencies on Action Plan; expand the Young Bhutan
advocacy programmes and campaigns; Network umbrella through the VMIS and
hold them accountable through these other platforms; and include interactive
direct interactions; build awareness structures on the VMIS platform for
campaigns for people to also engage with young people to directly connect with
them; and advocate for a direct feedback government agencies.
loop mechanism from government
agencies and representatives through Recommendation 2. Establish CFLG
a public grievance redressal system. as a nationwide programme: Establish
CFLG as a nationwide programme rooted
CSOs in the notion of ‘child-friendly cities’, in
line with the mandates of the Local
Recommendation 1. Map out existing Government Act 2009; establish the
adolescent and youth groups: Use the meaningful participation of adolescents
recently launched VMIS platform to map and young people as the core of CFLG;
out existing adolescent and youth groups conduct a CFLG pilot in one gewog
across CSOs, governments and the (group of villages), in partnership with
private sector; include specific interest UNICEF; and include the lens of children’s
groups and members of marginalized rights and youth rights, as defined in the

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 121
 CFLG Guidelines on participation, in the and other resources for documenting
review of policies on the GNH indicator youth groups in the country and the
framework. various issues that they work on and
advocate for; for disseminating this
Recommendation 3. Allocate financial information along with the work of
and other resources: Allocate financial youth groups registered on the VMIS;
and other resources to strengthen and for training and capacity building
participation mechanisms; ensure to strengthen youth participation
local implementation structures for mechanisms.
the National Youth Policy; involve local
government institutions in the process; UNICEF
establish capacity building programmes
on the participation of adolescents and Recommendation 1. Ensure the
young people for public functionaries; credibility of review processes: Ensure
establish and implement a mandate that multiple youth groups from diverse
for seeking the input of young people and marginalized backgrounds participate
in all matters concerning them; and in the NationalYouth Policy and Action Plan
evolve laws to embed young people’s formulation and review processes; review
participation in governance mechanisms. which inputs and recommendations are
Integrate incorporated; and extend this to the
young people’s Local government design and implementation of future
participation review processes facilitated or funded
at all levels of Recommendation 4. Integrate young by UNICEF in Bhutan.
policy, planning, people’s participation: Integrate young
implementation, people’s participation at all levels of Recommendation 2. Conclude the
and review;
policy, planning, implementation, and process of piloting and implementing
provide avenues
review; provide avenues at the local CFLG: Enable the prompt implementation
at the local level
level for young people to participate in and presentation of the findings of
for young people
to participate decisions and issues that concern them; the pilot CFLG to the central and local
in decisions and establish structures to provide more governments; scrutinize the scope of
and issues that space for young people to be able to CFLG as a nationwide programme; and
concern them; present and debate their views frankly continue to work on building child-friendly
and establish and freely. cities in Bhutan with a focus on CFLG.
structures to
provide more Recommendation 5. Partner with Recommendation 3. Advocate for
space for young government agencies: Partner with forums for taking up sensitive issues:
people to be government agencies to seek input on Advocate for safe spaces for young people
able to present policy from diverse youth groups under to discuss issues like mental health,
and debate their
the Young Bhutan Network umbrella violence against children, unemployment,
views frankly
platform; establish and implement a education, drug addiction and traditional
and freely.
mandate to ensure the participation of culture; recommend the revival of the
young people in all policies affecting Bhutan Children’s Parliament as a venue
them; and design a platform (on VMIS) for for taking up such issues; liaise with
young people to demand accountability government agencies to ensure that the
from governance structures. recommendations of young people are
considered seriously; and encourage
Recommendation 6. Allocate financial schools, clubs and CSOs to invite children
and other resources: Allocate financial and young people to engage on sensitive
issues.

122 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Recommendation 4. Continue with the Conclusion
pioneering efforts for the VMIS: Enable
the VMIS platform to help youth groups The collaborative research project and
The collaborative
in Bhutan to engage with youth groups review of the National Youth Policy
research project
in other parts of the world; expand of Bhutan by the BCMD and DYS, in
and review of
the scope of the VMIS platform to partnership with UNICEF, is a good
the National
contribute to embedding young people’s example of a successful partnership Youth Policy of
participation in governance; and establish to open up consultative spaces for Bhutan by the
a mechanism on the platform through adolescents and youth to be heard by BCMD and DYS,
which young people and youth groups the State. It has also built the capacities in partnership
can directly liaise and connect with the of the youth who took part in the process with UNICEF, is
government and its agencies and hold to engage with the State and with policy a good example
them accountable through monitoring. matters to advocate for their issues of of a successful
concern. However, in order to ensure partnership
Recommendation 5. Allocate substantial the widespread and representative to open up
financial and other resources: Allocate participation of youth in the review of consultative
spaces for
substantial financial and other resources policies affecting them, these good
adolescents and
for advocacy, training, and capacity practices need to be scaled up to enable
youth to be heard
building and to support the piloting of broader and more inclusive participation.
by the State.
initiatives that have been suggested in This will ensure that good practices are
these recommendations. not a once-off process, but are aligned
with continued representative and
inclusive youth engagement across all
policy processes of relevance to young
people.

As Bhutan is a young democracy, youth

and adolescent participation stands to
gain ground in Bhutan. It is an opportune
moment for UNICEF to establish itself
as a catalyst for adolescent and youth
participation in governance and to
showcase the positive and long-term
impacts of their participation. The
establishment of the VMIS is a welcome
step in this direction. With the mandate
of ensuring public participation in line
with the Local Government Act of 2019,
and UNICEF’s mandate to ensure child-
friendly cities, CFLG can go a long way
to ensuring that young people play a
significant part in Bhutan’s ongoing and
evolving democratization.
© UNICEF/Bhutan/SPelden

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 123
© UNICEFBhutanSPelden

124 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
6 Overall Conclusions

Adolescent participation in governance replacing it with social development. This

upholds children’s right to participation, prepares adolescents for consultative
which is critical for building egalitarian and democratic decision making and
societies. The participation of children is advocacy. It prioritizes the people of a
a democratic right and an end in itself. In nation, especially when they are young,
the case studies presented in this report, and ensures long-term social benefits.
adolescents and young people have Hence, the participation of children,
consistently demonstrated how, when including adolescents, should a cardinal
given the opportunity to participate, principle of all just and peaceful societies,
they express their agency, gain self- because it ensures public participation at
confidence, learn critical thinking and an early age to debate and put in place
analysis, build connections, develop sound policies, as well as to demand
empathy, uphold social justice, and public accountability from all agencies
challenge regressive social practices. responsible for implementing those
Their participation enhances their policies.
understanding of citizenship and enables
them to claim their entitlements. They UNICEF’s commitment to support
articulate their concerns and aspirations initiatives that enable and strengthen
and demand accountability from state adolescent development and participation
and other service providers. They in local and national governance practices
also enable other sections of society in the South Asia region is, therefore, of
to appreciate and adopt participatory critical importance and in accordance
practices. with a range of international conventions
and declarations, based on the historic
© UNICEF/UN0238930/Vishwanathan

C h i l d r i g h t s p r o g r a m m i n g by United Nations Declaration of the Rights

governments and CSOs that has of the Child in 1959 and the United
adolescent participation at its core Nations Convention on the Rights of
invests in young citizens, who become the Child in 1989. ADAP ROSA rightly
aware, informed, and experienced in, and emphasizes the need for “developing
committed to, democratic processes. capacities for autonomy and expression”
This challenges normative assumptions of adolescents and for “strategies [to]
about infrastructure development, be designed, and opportunities to be

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 125
 provided for their full engagement in their The four key lessons that have emerged
communities and nations, including in from this documentation and analysis of
decisions at all levels and in all spheres the four case studies are:
that affect their lives”. 293
Lesson 1. Wherever opportunities have
This context provides the backdrop been offered to adolescents to participate
against which the four case studies in this in the processes of governance,
Wherever
report document UNICEF’s important the expression of their agency and
opportunities
have been offered technical and advocacy support to protagonism has been remarkable,
to adolescents initiatives in the states of Madhya Pradesh their engagement with governance
to participate in and Maharashtra (in India), Nepal, and invigorating, and, in some cases, the
the processes of Bhutan. The Safe City Initiative in Bhopal development outcomes transformative.
governance, the city Madhya Pradesh is an example of
expression of participation in governance by children Lesson 2. This adolescent energy has
their agency and from the most vulnerable communities been greatly facilitated by efforts to
protagonism has in an urban setting; the Child-Friendly inform, train, build capacity, and organize
been remarkable, Local Governance initiative in rural by CSOs, trainers, frontline workers
their engagement Maharashtra has a specific focus on and local governments, supported by
with governance
child participation policies and structures UNICEF.
invigorating, and,
at multiple levels of governance; Child-
in some cases,
Friendly Local Governance in Nepal is Lesson 3. Advocacy, policy guidance
the development
outcomes now present on a national scale; and and capacity building by UNICEF at all
transformative. the participatory review of the National levels of government has paved the way
Youth Policy 2021 in Bhutan has enabled for adolescents to collectively present
young people to vocalize multiple issues their views and ask for accountability.
of concern to them in relation to the
National Youth Policy. Hence, all four Lesson 4. The enthusiastic participation
cases are illustrations of UNICEF’s by adolescents has also had positive
innovative guidance and support of impacts on their families, elders,
local, provincial, and national efforts communities, CSO workers, government
and stakeholder collaborations aimed at functionaries and elected representatives,
drawing adolescents into the structures at personal and inter-personal levels.
and processes of governance.
© UNICEF/UN0331413/Das

293
UNICEF ROSA, South Asia Approach Paper for Adolescent Development and Participation (ADAP) Section, 2020.

126 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Good practices for structures and of livelihood, shelter, citizenship, safety,
processes that may be emulated for welfare, education, health, transport,
scaling-up are: and all other social and civic services
empowers all sections of society.
Practice 1. The integration of adolescent
participation into child protection, Practice 4. Engaging with all levels
social protection and governance of government to persuade officials,
Engaging with
efforts through mapping, research, functionaries and agencies of the
all levels of
campaigns, and policy reviews, as well importance of adolescent participation government
as by building community awareness and to build their capacities to uphold to persuade
and alliances in all available spaces children’s rights provides opportunities officials,
by adolescents organized at multiple for decision makers to engage with functionaries
levels of governance, strengthens their children and to be accountable to them. and agencies of
empowerment. the importance
Practice 5. As highlighted in the ADAP of adolescent
Practice 2. Accessible and simple ROSA model for participatory institutions, participation
modules for sharing information, building the capacities of institutions in and to build
principles, and good practices, when they the processes and elements specified their capacities
to uphold
are widely disseminated through training equips them and makes them conducive
children’s
of trainers and peer learning, serve to to community and adolescent-engaged
rights provides
build capacities, organize groups, and planning and provision.
opportunities for
provide pathways for participation and decision makers
engagement by adolescent groups. Practice 6. It is important to capitalize, to engage with
strengthen and leverage the role of local children and to
Practice 3. A holistic approach that governance structures (rural and urban) be accountable
connects children’s well-being and in promoting and advancing adolescent to them.
development to the concerns of their participation, through training, exposure
families and communities about issues visits and model building.

Figure 4. ADAP ROSA institutional dimensions of participation

Are adolescents and young people’s participation and priorities considered in ...?

Policy Decisions Planning Implementation

Information Creation Review and

Budgeting
and provision Evaluation

Human Resource
Governance Safeguarding
Strengthening

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 127
 Against this larger backdrop, for
rigorous and meaningful expansion of
each initiative documented here and
for creating similar initiatives in other
countries in the region, these challenges
need to be addressed:

Challenge 1. The lessons about

adolescent participation that have already
emerged from the cases, especially
adolescents’ informed mobilization into
collectives, need to be integrated as
holistically as possible into governance
structures and processes across sectors
at UNICEF before expansion strategies
are put into place.

Challenge 2. Without involving the

most demonstrably effective agents for
encouraging adolescent participation,
such as existing children’s groups, CBOs,
CSOs, frontline workers and training
institutions, expansion will only be
ritualistic.

Challenge 3. All the initiatives could

enhance their reach to include those most
vulnerable and excluded groups who are
presently outside their scope, who are
discriminated against, marginalized and
have no access to either information or
organization to be able to demonstrate
their own protagonism.

Challenge 4. Even when adolescents

are enabled to collectively present
their views and demands and obtain
assurances, without the devolution of
decision-making power and finances
to the lowest tiers of governance, their
participation will be frustrated by lack of
tangible responses and action.

Challenge 5. There is a political dilemma

© UNICEF/Bhutan/SPelden

facing all democratic governments in

South Asia: to promote a child-friendly
citizenry, which requires public sector
accountability, or to meet the demands of
an investor-friendly market economy that

128 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
privileges private sector priorities. This nurture collective learning, visioning and
dilemma has wide ranging implications, action. They also need to democratize
which will need to be addressed locally as digital technology for participation, as this
well as by the highest levels of decision is creating another inequity in relation to
making by all key stakeholders. participation and voice in governance.

Challenge 6. Disasters, such as the Recommendation 3. Central/federal

COVID-19 pandemic, induce deep governments must uphold international
distress and dislocation in society and and national commitments to adolescent
the economy, which de-prioritize the participation; ensure policy commitments
opportunities available for adolescent to realizing participation rights; provide
participation in governance decisions public institutions with support for wider
that can make (or unmake) their futures. inclusion and monitoring; implement
This has to be cautiously pre-empted and legal instruments for the devolution of Adolescent
responded to. governance to local levels and uphold groups must
the principle of subsidiarity; and ensure inform
Challenge 7. Without internal integration that disaster mitigation measures are themselves;
organize
across sectors like education, health, securely in place at the national level.
democratically
protection, sanitation, employability, skills In addition, adequate resources must
within; build
and climate change, UNICEF will not be be allocated at the appropriate levels to
linkages; include
able to evolve a long-term strategy at this realize these agendas. members of
historic juncture when technical support vulnerable and
is greatly needed to nurture and further Recommendation 4. Provincial marginalized
adolescent participation in governance governments and their partner communities
in different nations with different political institutions have to strengthen the as agents and
approaches to the dilemmas facing them. understanding, empathy and capacity partners; carve
of their functionaries to assist child- out structures
Taking the strengths and challenges into friendly participation processes and for debate and
consideration, detailed recommendations structures; suitably recognize and reward advocacy; and
have been offered for each case study their frontline workers; evolve laws, learn to use
disasters as an
in the preceding chapters. These guidelines and safeguards for promoting
opportunity to
recommendation are summarized into adolescent participation in governance;
influence policy
the following broad themes: provide for devolution to the lowest tiers
and governance.
of governance; and sustain a continuous
Recommendation 1. Adolescent groups process of evaluation and review.
must inform themselves; organize
democratically within; build linkages; Recommendation 5. Local governments
include members of vulnerable and need to demand the devolution of power
marginalized communities as agents and finances; build more structures in
and partners; carve out structures for which adolescents can participate; and
debate and advocacy; and learn to use build convergence in their procedures
disasters as an opportunity to influence and policies so that the participatory
policy and governance. expression of the needs of adolescents
and their communities can be met in
Recommendation 2. Civil society the shortest time possible. In addition,
organizations should support adolescent local governments should develop
groups to construct processes for indicators and processes for social/
greater participation; help them to build children’s monitoring and the continued
capacities and alliances; and share and participation of adolescents and young

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 129
 © UNICEF/UN0591869/Bhardwaj

people in creating communities that are with specific guidance on adolescent

inclusive. participation in policy processes, planning,
implementation, information provision,
Recommendation 6. UNICEF should budgeting, review and evaluation,
celebrate what has been achieved and institutional governance, and capacity
continue to strengthen the ability of its building regimes based on ADAP ROSA’s
thematic sectors to embed informed regional framework for institutional
adolescent participation in policies, strengthening for participation. The
programming, technical assistance ‘Claiming Citizenship’ ASPIRE framework
and policy advocacy by strengthening (agency, state, participation, inclusion and
the capacities of governments and resolutions) may be included as the lens
stakeholders, including communities, that governs the implementation of the
for enhancing adolescent participation operational guidelines.
in decision making.
Recommendation 9. UNICEF must
Recommendation 7. UNICEF must invest in strengthening local governance,
embed adolescent participation as a both urban and rural, and through these
critical strategy across all programme structures develop models for adolescent
sectors, and plan systematic staff and youth participation.
capacity building regimes for integrating
adolescent participation across sectors. Recommendation 10. UNICEF must
create platforms for adolescent and youth
Recommendation 8. UNICEF must participation, including policy making and
also develop operational guidelines, monitoring, and invest in developing
and support their implementation, for resources for building the capacities of
strengthening institutional capacities, adolescent and youth groups.

130 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Recommendation 11. UNICEF should initiatives here, which need to be This is a historic
strengthen the capacities of social sustained, also provide examples of moment for
workers, health workers, community policies and practices to be adopted UNICEF to
workers, frontline workers, and after suitable modification. strengthen the
decision makers in health, education, participation
child protection, water and sanitation, This is a historic moment for UNICEF to pillar across
climate change and social protection strengthen the participation pillar across sectoral areas.
to enable adolescent participation. sectoral areas. UNICEF must construct UNICEF must
construct a long-
Investing in enhancing the potential of a long-term strategy to financially
term strategy
youth service officers, youth workers (a and technically support initiatives by
to financially
professional category involved in youth adolescent groups to learn, mobilize,
and technically
empowerment), and ministries holding include, ally, and become active agents support
portfolios and liaising for youth, children for change. We hope that the findings initiatives by
and women’s issues will ensure valuable of this study and the recommendations adolescent
and long-term impact. emerging from this report will help groups to learn,
other countries and initiatives in mobilize, include,
Recommendation 12. UNICEF must ROSA’s jurisdiction to further rationalize ally, and become
continue to invest in systematic and investment in participatory structures for active agents for
intentional initiatives to build the agency adolescents, including attendant capacity change.
of adolescents to be informed and building, systems strengthening, and
capacitated participants in governance policy formulation.
processes. The four UNICEF supported
© UNICEF/UN0440017/Boro

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 131
© UNICEF/UNI214318/Panjwani

132 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
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140 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
 Annexures

Annexure A. List of areas of enquiry

After preliminary discussions with mapping and working with the most
UNICEF an exhaustive list of areas of marginalized
enquiry developed for assessing existing Safeguarding and confidentiality
policies and mechanisms of participation, mechanisms
as relevant to each case study: Existing accountability structures
Adolescent participation as a and provisions for the participation
democratic right and a strategic of adolescents and young people, as
priority for achieving SDG targets well as accountability to them
more effectively Informed participation and access
Differentiating adolescent participation to information, including adolescent
from generic youth participation to capabilities of creating their own
avoid being subsumed by the more information and knowledge
formal youth participation structures, Informed participation in adolescent
which can often marginalize budgeting and monitoring and
adolescents evaluation of programmes for
Freedom of association of adolescent adolescents
groups and capacities for collectivizing, The link between adolescent
organizing and voice of adolescent participation in governance and actual
groups decisions on resource allocations and
Democratic representation through programme implementation
adolescent entities with a focus on The impact of child work and child
informal adolescent groups and their labour on participation
potential as well as existing practices Limitations of previous programmes
Subsidiarity in planning and adolescent in terms of adolescent participation;
participation from the most local gaps in UNICEF goals
governance structures and upward Capacities of local governments
Political, socio-economic and cultural and how they affect adolescent
contexts at the national and local engagement and responsive action
levels on the ground
Equity as a cornerstone of designing, Extent to which existing laws,
implementing, and measuring government orders, notifications
outcomes of development etc. impact on the presence and
programmes for adolescents sust ainabilit y of adolescents’
Inclusion of the most marginalized in participation in governance
programme and policy influencing, Sustainability of programmes at the
with systematic processes for state and community levels and vis-
à-vis UNICEF’s engagement

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 141
Annexure B. List of discussants

UNICEF ROSA – ADAP CSOs

Dharshini Seneviratne, UNICEF Archana Sahay, Director, Aarambh

Regional Adviser, ADAP ROSA
Seema Deshmukh, Muskaan
Aruna Pant, Partnership Specialist,
Shivani Taneja, Muskaan
ADAP ROSA
Saba, Muskaan
Abdul Alim, Social Policy Adviser,
Rakhi Raghuvanshi, Uday Society
UNICEF
Karuna Gawai, Uday Society
Madhya Pradesh
State officials
Adolescents (Muskaan)
Anuradha Shankar, Additional
Divya, 19 years, Gautam Nagar Director General of Police
Manisha, 20 years, Bapu Nagar Ashish Maurya, Ward Officer, Ward
Rani, 16 years, Sargam 48, Bhopal Municipal Corporation

Manjana, 16 years, Rajiv Nagar, Pardhi Shailesh Chouhan, Zonal Officer,

Mohall Zone 5, Bhopal Municipal Corporation

Sanjana, 16 years, Rajiv Nagar, Pardhi Abhishek Kumar, Accountant, Zone

Mohall Office, Bhopal Municipal Corporation

Muskaan, 20 years, Rajiv Nagar, Suresh Tomar, Joint Director (IEC

Kathputli Bureau), DWCD

Anisha, Sevaniya Gond Ram Gopal Yadav, Assistant Director,

DWCD, Focal Point for SCI
Poona, 17 years, Suraj Nagar, Banjara
Mayank Dixit, Labour Inspector,
Neelam, 15 years, Barkhedi, Agariya
Labour Department, Coordinating
 Deepak, Navagraha
Person of the Labour Department
for SCI
Adolescents (Uday Society) Nitin Saxena, District Education
Officer, Bhopal Education Department
Lalit Bighane
A k h i l e s h C h a tu r v e d i , C h i l d
Soniya Prajapati Development Project Officer (CDPO),
Rishi Salve Govindpura, DWCD
Mayur Gajbhiye Shiva Khare, Child Development
Kiran Project Officer (CDPO), Chandbad,
DWCD
Vijay Ahirwar
Poonam Soni, Integrated Child
Anita Gosai
Development Ser vices (ICDS)
Ranjan Vishwakarma Supervisor, Banganga Project, DWCD
Diksha KVS Choudhary, Indian Administrative
Bharti Gupta Service (IAS), Bhopal Municipal
Corporation Commissioner

142 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
 Monu Saxena, ex-Corporator, Ward Ziya Bano Syed, from Latur
27, Bhopal Municipal Corporation
Santosh Kasana, ex-Corporator, Ward
State officials
29, Bhopal Municipal Corporation
Rupa Malviya, anganwadi worker Sharad Magar, Block Development
Maya Sen, anganwadi worker Officer, Nandurbar (for child-friendly
panchayats)
Anita Ingle, anganwadi worker
O m P r a k a s h Ya d a v, B l o ck
Sarita Sikarwar, anganwadi worker
Development Officer and then,
Sunita Singh, anganwadi worker
Deputy CEO, Chandrapur
Afshaa Akhter Khan, anganwadi
Rajesh Rathod, Deputy CEO,
worker
Chandrapur (2014) and presently
Deputy CEO, Water & Sanitation,
UNICEF Madhya Pradesh Gondhia
Jagdevi Sugave, Trainer in Latur
Lolichen Pullemplavil, Child Protection
(associated with village planning/
Specialist, Madhya Pradesh, UNICEF
Deepshikha/child-friendly panchayat
Advaita Marathe, Senior State programmes)
Consultant, Madhya Pradesh, UNICEF
Government agency in partnership
Maharashtra – YASHADA

Adolescents Sumedh Gurjar, Director, Research

and Documentation Cell, YASHADA
Sanket Gaurkar Pradnya Dasar war, Coordinator,
Ashwini G Project Monitoring Unit, Research
Vynkatesh Ralegavkar and Documentation Cell, YASHADA

Kajal Ralegavkar Pramod Kalekar, UNICEF consultant,

YASHADA
Asmita Wakudkar
Bhavyashree UNICEF Maharashtra

CSOs Anuradha Nair, Social Policy Specialist,

UNICEF
Datta Gurav, Resource and Support Rejani Pavithran, State Consultant for
Centre for Development, Navi Child-Friendly Local Governance and
Mumbai (Resource and Support Decentralized Planning at UNICEF
Centre for Development) Mumbai
Malti Sagne, State Convenor,
Resource and Support Centre for Nepal
Development
Anant More, Director, Sparsh Adolescents
(Deepshika partner organization)
Ashma Aryal, 20 years, Nawalprasi
Dilip Deotale, Sparsh
Rachana Bhusal, 20 years, Nawalprasi
Nita Magar, Sparsh
Nawraj, 19 years, Madhyabindhu
Shital Bodhe, child-friendly panchayat,
trainer and district coordinator Ashmin, 16 years, Madhyabindhu
(UNICEF’s In School Life Skill Punam Kumar, 18 years, Sunwal
education)

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 143
 Karma Yangden, Bhutan Scouts
CSOs
Association
Resham Sharma, CFLG Focal Person Neelam Ghalley, Youth Advocacy
Bipana Sharma, Executive Board Network Bhutan
Member, National CFLG Forum Sangay Loday, Youth Advocacy
Sumikshya K, CFLG Officer, National Network Bhutan
CFLG Forum Kimley Pemo, Youth Advocacy
Nirijana Bhatta, Executive Board Network Bhutan
M e m b e r, Yu w a l a y ; P r o j e c t Tseten Zangmo, Youth Advocacy
Coordinator, CWIN Nepal Network Bhutan
Sumnima Tuladar, CWIN Nepal
CSOs
Shyam Adhikari, World Vision Nepal
Chencho Lhamu, Executive Director,
UNICEF Nepal Bhutan Centre for Media and
Democracy
Ashok Jha, Programme Officer,
UNICEF, Nepal working in Planning State officials
and DRR
Yeshey Lham, Children Division,
Madhab Baral, Child Protection National Commission for Women
Officer, UNICEF Nepal working in and Children
Terai (Bihariganj)
Wangchuk Zangmo, Children
Barsha Pradhan, Planning and Division, National Commission for
Monitoring Officer, UNICEF Nepal Women and Children
Pragya Shah Karki, Child Protection Rinzin Wangmo, Chief Program
Specialist, UNICEF Nepal Officer, Department of Youth and
Sports, Ministry of Education

Bhutan Lekema Dorji, Planning Officer, Gross

National Happiness Commission
Adolescents and youth Karma Tshering Samdrup, Research
and Evaluation Division, Gross
Tenzin, Pride Bhutan National Happiness Commission
Sonam Tshomo, college student
Sawan Nepal, Engineer UNICEF Bhutan
Kinzang, Team Change
Sonam Wangchuk, Programme
Rigsel Yangtso, Bhutan Scouts Officer, UNICEF Bhutan
Association
Choeying Dolma, Intern, UNICE
Dechen Namgay, Bhutan Scouts Bhutan
Association
Sonam Tenzin, Bhutan Scouts
Association

144 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Annexure C. Foundational sources for principles of participation

Universal Declaration of Human General Comments of the

Rights, 1948 Committee on the Rights of the
Child
The Universal Declaration of Human
Rights is the seminal document The General Comments of the Committee
enshrining the rights and freedoms of on the Rights of the Child have helped
all human beings, universalizing the interpret and articulate the provisions of
principles of human rights. Article 18 the UNCRC, directing action on ground
details the right to freedom of thought, in terms of legal obligations, especially
conscience and religion; Article 19 under Article 12 of the UNCRC:
the right to freedom of opinion and  General Comment 12 on Article 12
expression; and Article 20 speaks of of the UNCRC: emphasizes the right
right to freedom of peaceful assembly of the child to be heard. The right
and association. Article 26 states that to express views freely in matters
everyone has the right to education affecting them is a right to be assured
and Article 29 states that “Everyone by the State and the importance
has duties to the community in which of meaningful participation is
alone the free and full development of underscored.
his personality is possible”.  General Comment 5 (2003): provides
for measures of implementation of
UN Convention on the Rights of the the Convention on the Rights of the
Child, 1989 Child and states the importance
of governments developing direct
The UNCRC is rooted in the principles relationships with children, rather
espoused by the Universal Declaration than relationships mediated through
of Human Rights and International NGOs or human rights institutions.
Covenants on Human Rights. Specifically,
 General comment 20 (2016): calls
the UNCRC’s Articles 12–17 enshrine on State parties to ensure that
the rights of all children, including adolescents are involved in the
adolescents, to participate in decisions development, implementation and
that affect their lives, have access to monitoring of all relevant legislation,
relevant information and possess a policies, services and programmes
right to conscience and religion. Article affecting their lives, including at the
15 recognizes the rights of the child to local level. It is unique in the scope it
freedom of association and freedom of provides for adolescent participation,
peaceful assembly. Article 3 mandates addressing their evolving capacities
that the best interests of the child shall and emphasizing the importance of
be a primary consideration and Article 6 participation as a means of political
speaks of the child’s inherent right to life. and civic engagement.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 145
 UN Convention on the Rights of UN Convention on the Elimination
Persons with Disabilities, 2006 of All Forms of Discrimination
against Women, 1979
Adolescent participation in governance
is deeply impacted by the specific The UN Convention on the Elimination
vulnerabilities of children, one of which of All Forms of Discrimination against
can be disability and special needs. The Women reaffirms the “equal rights of
Convention on the Rights of Persons men and women”, an important and
with Disabilities recognizes that the fundamental human right, as well as the
full participation of persons with obligation of State parties to condemn
disabilities will result in “their enhanced and eliminate all forms of discrimination
sense of belonging and in significant against women. The Convention also has
advances in the human, social and a very important provision with respect
economic development of society and to child marriage, an issue that plagues
the eradication of poverty...”, as well as most countries in South Asia and is an
the importance of the autonomy and issue in India and Nepal, where three
freedom of persons with disabilities of our case studies are located. Article
to make their own choices. Clause (r) 16(2) states that “The betrothal and the
of the Preamble is especially relevant marriage of a child shall have no legal
as it states that: “Recognizing that effect, and all necessary action, including
children with disabilities should have legislation, shall be taken to specify a
full enjoyment of all human rights and minimum age for marriage and to make
fundamental freedoms on an equal the registration of marriages in an official
basis with other children and recalling registry compulsory”.
obligations to that end undertaken by
States Parties to the Convention on the International Covenant on Civil and
Rights of the Child”. Political Rights, 1966

Further, Article 3(6) states, as a principle, Article 1 of the International Covenant

full and effective participation and on Civil and Political Rights states
inclusion in society. Article 4(3) imposes that all peoples have the right to self-
upon State parties a general obligation to determination; Article 3 provides for the
closely consult with and actively involve equal rights of men and women; and
persons and children with disabilities in Article 24 states that every child without
processes concerning issues related discrimination is entitled to measures of
to them. Article 7 details measures to protection as required by their status as
be taken with respect to children with a minor.
disabilities and, in particular, clause 3
states that children with disabilities International Covenant on
have a right to express their views on Economic and Social Rights, 1966
matters affecting them, on par with
other children, and that the appropriate Article 1 of the International Covenant
assistance must be provided in order to on Economic and Social Rights also
realize this right. states that all peoples have the right
to self-determination. Article 10 states
that children and young persons must be
protected from economic exploitation,
and employment in work that is harmful

146 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
to their “morals or health or dangerous adolescents require access to safe
to life or likely to hamper their normal spaces, the ability to voice their views,
development should be punishable by opportunities to exert their influence and
law”. It also imposes upon States the duty a receptive audience”.
to set age limits below which “the paid
employment of child labour should be UNICEF Strategy Plan 2018–2021
prohibited and punishable by law”.These
are important provisions as many of the With humanitarian action and gender
adolescents participating in governance equality being the two cross-cutting
are child workers and are part of child priorities of the UNICEF Strategic Plan
worker unions, especially in India. for 2018–2021, the Strategic Plan aims
to focus on community engagement
UN Sustainable Development Goals and accountability for affected parties,
2015 including “through communication
for development and platforms for
The UN Sustainable Development Goals adolescent participation”.
(SDGs) set out a plan for the world to
ensure peace and prosperity, reduce UNICEF Guidance document,
inequality, tackle climate change and Engaged and Heard! Guidelines on
enable sustainable development for Adolescent Participation and Civic
all. All the goals have relevance and Engagement, 2020
bearing on child and adolescent rights.
For instance, SDG 1 aims to end poverty Published in July 2020, this document
in all its forms; SDG 2 aims to end hunger explains in detail a theory of change and
and improve nutrition. principles for adolescent participation in
governance, including modes of adolescent
UNICEF Programme Guidance for participation. While the guidance document
the Second Decade: Programming has scope for enhancing methods and
With and for Adolescents principles of adolescent participation in
governance, it is a holistic document that
A key programming principle in this lays down the principles and methods,
document is “support meaningful including strategies, interventions and
and systemic participation”, and tools, for adolescent participation and
“For participation to be meaningful, governance.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 147
Annexure D. Literature reviewed related to the four case studies

India Nepal

The Constitution of India Children’s club

The 73 Constitutional Amendment
rd
Constituent Assembly and Parliament
Act – Child rights Sep–Oct 2014
The 74th Constitutional Amendment Performance report on above Apr–Jul
Act 2014
Final CFLG document 2001–2016
Madhya Pradesh  CFLG Bal Bhela draft version 1 Jun
2016
A Safe City for Children in Bhopal:
 CFLG Nepal Assessment Report
Infographic 2018
 The Constitution of Nepal 2015
A Safe City for Children in Bhopal:
The Local Self Governance Act, 1999
Mapping with Children 2017
National Strategy on Child-Friendly
A Safe City for Children in Bhopal:
Local Governance
Review Report 2018
Structure of st ate and local
UNICEF Meeting Notes Aug 2020
governance
Strategic Action Plan for Adolescent
‘Progress Report 2018–2020’,
Emp. w/focus on Ending Child
National Action and Co-ordinating
Marriage & Violence against Children
Group(NACG-Nepal), December 2020
(Madhya Pradesh WCD)
Info Pack in Hindi
Training manuals Bhutan
Structure of st ate and local State Response 3–5 Periodic Report
governance 12th Five Year Plan 2018–23
Performance Agreement between
Maharashtra PM and Director NCWC 2018–19
Bhutan Youth Policy Methodology –
UNICEF August 2020 Meeting Notes
BCMD approach
Maharashtra Village Panchayat Act
Youth Voice Matters – BCMD report
Maharashtra Stories June 2020
 Maharashtra GPDP SIGMA Youth Policy process video
Foundation Study: Key Findings &
Briefing Note on Integrated Youth
Recommendations
Friendly Centres, Gelephu
 Maharashtra Case Study: On
Youth Friendly Integrated Services
Evolution of GPDP & Child-Friendly
PPT
Panchayats
SOP on Vase Management for
Improving Accountability of Local
Women & Children in Difficult
Government: A PPT by Anuradha Nair
Circumstances
Training manuals
Structure of st ate and local
governance

148 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Child Care & Protection Act 2011 Apart from these documents, the
Child Care & Protection Rules and Draft Approach paper (current draft
Regulations 2015 from November, 2020) by the ADAP
section titled: ‘South Asia Approach
Bhutan Adolescent Participation
Paper for Adolescent Development and
Mapping Form
Participation (ADAP) Section’, as well
The Constitution of Bhutan
as the Internal Guidance Document
The Gross National Happiness Index for UNICEF country offices from South
The National Youth Policy 2011 Asia, from the Social Policy Section
Structure of st ate and local ‘Placing the Children at the Heart of
governance Local Development, A UNICEF Regional
Strategy: Building a Cost-Effective
Framework for Child-Friendly Local
Development in South Asia’, June 2020
were explored in detail as part of the
literature review.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 149
Annexure E. Definitions

In order to reduce ambiguity about Youth engagement is often referred to

terminology, here are the definitions as young people’s involvement in social
we will adhere to: action (U Report/civic action/service,
youth-led research etc.). These are
Accountability: A system whereby important, but are not the only forms
effective measures are in place so that of youth engagement.296
governments or other duty-bearers
are answerable for the protection of Adolescent development/training: For
adolescents’ rights and can be held the purpose of UNICEF programming,
accountable if these rights are not met.294 this would include the holistic and
convergent social, political and economic
Adolescence: In terms of age, early development of adolescents through
adolescence is 10–14 years, late programming in health, education, child
adolescence is 15–19 years and young protection, social policy and other sectors
adults are in the age group, 20–24. and training related to sector-specific
or convergent initiatives. This may or
Adolescents: As per the World Health may not include explicit adolescent
Organization, adolescents are persons empowerment and participation
aged from 10 to 19 years of age. components.297

Adolescent empowerment: Ensuring Adolescent empowerment training:

adolescents have the capacities to This would entail youth work training
develop self-esteem, self-awareness that enhances the capacity of adults
and be protagonists in their own lives.295 and peer youth groups in understanding
and engaging with young people as
Adolescent engagement: Where equal partners for personal growth, and
adolescents develop sust ained social, political and economic learning
connections in their lives. This can occur and empowerment across and beyond
within themselves, in the immediate world sectoral initiatives.298
around them, in society and the wider
world. These sustained connections may Adolescent and youth participation:
be emotional, psychological or cognitive, Young people’s active involvement in
and can be personal or social. It can a range of participatory work including
involve enhancing self-awareness, and community volunteering, innovation,
enhancing social, political and economic influencing policy and practice and
awareness of the world around them. other forms of active action. Training

294 UNICEF, Engaged and Heard! Guidelines on Adolescent Participation and Civic Engagement, 2020.
295 The Concerned for Working Children, Glossary of Terms, 2019.
296 Revised and adapted by ADAP UNICEF ROSA from Commonwealth Secretariat, Youth Work in the Commonwealth: A Growth Profession,
London, 2017, pp. xxviii–xxix, <https://thecommonwealth.org/sites/default/files/events/documents/YouthWorkintheCW_9781849291736.pdf>,
accessed 14 December 2021; and Fletcher, Adam, ‘What is Youth Engagement’, Blog, 10 April 2013, <https://adamfletcher.net/2013/10/04/
what-is-youth-engagement/>, accessed 10 August 2021.
297 The Concerned for Working Children, Glossary of Terms, 2019.
298 Ibid.

150 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
in youth participation would include expected risks and possible benefits,
explicit inclusion of modules on modes and the activities expected of them as
of participation and policy around subjects. In most countries, if assent is
participation mechanisms.299 given, informed consent must still be
obtained from the subject’s parent or
Adolescent and youth participation in guardian or a responsible adult.303
public governance: A specific form of
participation consisting of young people’s Autonomy: The freedom or the right of
active involvement and influencing adolescents to make their own decisions
of public policies, programmes and about what to do, rather than being
evaluation of decisions that affect them, influenced by someone else, told 304
their communities and the world. This what to do or have decisions made on
involves influencing national and sub- their behalf by others.305
national policies, institutional decision
making across a range of government Civic engagement: Individual and
institutions at local government, and collective action in which people
national and sub-national level. This participate to improve the well-being
involves attention to voice, influencing, of communities or society in general.
representation and impact.300
Early adolescence: Persons in the age
Adolescent/youth-led organizations: group of 10 to 14 years.
Organized adolescent groups with
a collective consciousness, working Equality: The state of being equal,
together to achieve the rights of especially in status, rights, or
themselves and their communities opportunities. The central idea of equality
as collectives, with an organizational is that all the individuals receive equal
structure and clear representative treatment in the society and are not
structures for informing State policy discriminated against on the basis of race,
and practice.301 sex, caste, creed, nationality, disability,
age, religion and so forth. This requires
Agency: The capacity of an actor the presence of equal opportunities
to engage with the social structure and state obligations and the absence
exercising autonomy in expressing of discrimination – legal or socially
opinions and taking action for change.302 enforced. Equality is the foundation
of a democratic society that aims to
Assent: Willingness to participate in prevent discrimination and provide
research, evaluations or data collection an equal opportunity to all. However,
by persons who are by legal definition equal opportunities do not necessarily
too young to give informed consent ensure equality. When situations and
according to prevailing local law, but circumstances are unequal, opportunities
who are old enough to understand need to be weighted in favour of the less
the proposed research in general, its privileged.306

299 Ibid.
300 Ibid.
301 Ibid.
302 Ibid.
303 UNICEF, Engaged and Heard! Guidelines on Adolescent Participation and Civic Engagement, 2020.
304 Ibid.
305 Ibid.
306 The Concerned for Working Children, Glossary of Terms, 2019.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 151
 Equity: Equity derives from a concept of from (or denied full access to) various
social justice. It is the virtue of being just, rights, opportunities and resources
even-handed and impartial. It recognizes that are normally available to members
differences and attempts to counteract of a different group, and which are
unequal individual opportunities. Equity fundamental to social integration within
demands fairness in every situation, that particular group (e.g., education,
whether it is the distribution of housing, employment, healthcare, civic
benefits or burdens. Therefore, people engagement, legal recourse, political
are treated fairly, but differently, as participation).310
their circumstances are given weight.
Hence, an individual’s needs and Participation: In a rights frame,
requirements are taken into account participation is defined as the proactive
and treated accordingly. It ensures that engagement of individuals, communities
all the individuals are provided with the or groups in all matters affecting them,
resources they need to have access to in an informed manner. This includes
the same opportunities, as the general influencing attitudes, policies and
population.307 practices that affect their lives and
society. This necessitates that the
Governance: The action or manner of participants are closely involved in
governing a state, organization, etc.308 the economic, social and cultural and
political processes that affect their lives.
Gram panchayat or panchayat: The Participation is an essential element of
gram panchayat is the lowest level of human development and is an overall
administration in the system of local development strategy focusing on
government in India. The term panchayat the centrality of people’s roles in all
refers to both the geographical and spheres of life. Human development
administrative units, as well as the involves the widening of choices and
elected body, which acts as the local greater participation enables people to
council. A panchayat is composed of a access a broader range of opportunities.
cluster of villages and several panchayats Participation can be either direct or
constitute a taluq.309 indirect through representation. It can
be as an individual or as a collective/
Late adolescence: Persons in the age group or union, which brings together
group of 15 to 19 years. individuals with common concerns,
agenda, interests and aspirations.
Marginalization: Marginalization is the As participation requires increased
process of making a group or class of influence and control of individuals as
people less important or relegated to a well as communities, it is enhanced by
secondary position. It is a form of acute increased empowerment in economic,
and persistent disadvantage rooted in social and political terms. All these forms
underlying social inequalities, as a result of participation are intimately linked and
of which individuals or entire communities reinforce one another.311
of people are systematically blocked

307 Ibid.
308 Ibid.
309 Ibid.
310 Ibid.
311 Ibid.

152 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Protagonism: Advocating for ones’ own Systems strengthening for adolescent-
cause. centric work: Building adolescent-
friendly systems that embed adolescent
Social norms: Patterns of behaviour aspirations and participation across the
in a particular group, community or project cycle, in order to build adolescent-
culture, recognized as appropriate and centric programming (adolescent
acceptable, to which an adolescent is engagement and participation, adolescent
expected to conform and breach of which budgeting, youth safeguarding, adolescent
has social consequences. The strength focused research).
of these norms can vary from loose
expectations to unwritten rules.312 Union: When seven or more people
come together to form an association
Social exclusion: Social exclusion is a with a common interest and purpose.317
form of discrimination. It occurs when
people are wholly or partially excluded Vulnerability: The quality or state of
from participating in the economic, social being exposed to the possibility of
and political life of their community, based being attacked or harmed, economically,
on their belonging to a certain social socially, culturally, physically or
class, category or group. Social exclusion emotionally.
occurs on the basis of identities including
race, ethnicity, religion, gender identities, Young adults: Young people in the age
economic status and disability. It is often group of 20 to 24 years.
embedded in social relations and affects
people’s rights and entitlements. It may Youth: Young people in the age group
occur in degrees, ranging from total to of 15 to 30 years.
selective; temporary to permanent;
deliberate and explicit to implicit and Youth work: A specific professional
unintentional.313 categor y that enhances youth
engagement skills. It includes skills
State: A government or politically for building capacities in young people
organized society having a particular for reflection, learning, empowerment
character.314 and fun within enabling non-formal
environments. Transferable skills are
Subsidiarity: Subsidiarity is the principle included in this scope which includes
that a central authority should have a citizenship, agency, employability and
subsidiary function, performing only personal empowerment. (Note: Youth
those tasks which cannot be performed work does not refer to young workers/
at a more local level.315 young professionals.)

Sustainability: Capable of being

sustained.316

312 UNICEF, Engaged and Heard! Guidelines on Adolescent Participation and Civic Engagement, 2020.
313 Concerned for Working Children, Glossary of Terms, 2019.
314 Merriam-Webster Dictionary, ‘State’, undated, <www.merriam-webster.com/dictionary/state>, 3 December 2021.
315 Concerned for Working Children, Glossary of Terms, 2019.
316 Merriam-Webster Dictionary, <www.merriam-webster.com/dictionary/state>.
317 Concerned for Working Children, Glossary of Terms, 2019.

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 153
Annexure F. Tools of engagement

The exercises with adolescents in Bhopal, Madhya Pradesh were conducted using
the following tool:

Tool for exercises with adolescents in Bhopal

Exercise 1: Request all the participants to stand in a straight queue.

There will be 10–15 questions that are to be asked. For each question, there are
three possible answers:
(1) Yes
(2) Don’t know/perhaps
(3) No
a. If the answer is ‘yes’ then the participant takes one step to the left
b. If the answer is ‘maybe/don’t know’ then the participant stays in the same
position
c. If the answer is ‘no’ then the participant takes one step to the right.

The questions are:

1. Are you satisfied with the information about the project (NYP/Safe City/
GPDP/CFLG)?
2. Do you know what adolescent participation means in the project?
3. Is there an adolescents’ group in the project of which you are a member?
4. Do you feel you are an important member of any/the adolescents’ group?
5. When there is a discussion about the project are you invited to share your
views?
6. When you (whether invited or of your own accord) share your views does
someone record or take note or pay attention to them?
7. Do you find that all the other adolescents present agree with or give
importance to your views?
8. Do you find that any adults who are present also agree with or give
importance to your views?
9. When a final decision is taken do you feel your views have been heard?
10. Is the decision implemented after it has been taken?
11. Do you participate in checking whether the decision has been
implemented?
12. Do you feel anything you have participated in gave positive results?
13. If there was a negative result, was it discussed?

154 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
14. Have you had a positive experience with the Municipal members/leaders?
15. Have you had a positive experience with the police?

At the end of Exercise 1, there will be some children on the left; some in the middle;
and some on the right. These will constitute three groups – even if there is only
one participant in a group.

Exercise 2: Each group will now sit separately and focus on the following issues,
discussing these issues among themselves. These issues will be thematically divided.

The adolescents have to keep notes and document the process of discussion in
their groups and present the findings at the end of the exercise.

Facilitators should also document the discussion process for the groups (a separate
format for this will be provided to the facilitators)
I. Type of adolescent participation
1) Do you feel all types of adolescents can take part equally in decision
making and implementation? If Yes, why? If no, why and who are the
people who are more suited?
2) Do you feel adolescents with disabilities can take part in these processes?
3) Are there ways that more adolescents can take part in making the
decisions?
4) Can you suggest how more and more adolescents from all backgrounds
and groups can also be drawn in?

II. Content of participation

1) According to your group and its position at the end of Exercise 1, what
were the positive and/or negative aspects of the activity that made you feel
how much your participation was valued or not valued?
2) Did the project activities following the decisions impact only adolescents
or also adults, other castes, communities, all genders, and different
backgrounds?
3) What were the main problems in your Basti? 1) sanitation, 2) water, 3)
police violence, 4) bars and drugs, 5) lighting, 6) playgrounds, 7) social
exclusion, 8) street and sexual harassment, 9) education, 10) health, 11) job
opportunities, 12) working conditions
4) Can you rate these problems from 1 (most troubling) to 12 (least troubling)?
III. Power structures and hierarchies
1) In your group were there any experiences of disagreement during the
activity and how did you come to a consensus?
2) What do you feel are ways to deal with disagreement and have a process
of agreement on an issue?
3) Do your experiences show that there were some individuals who took the
lead or initiative and made major decisions?

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 155
 4) Why do you think they are able to and taking the lead? Who are they and
what kind of people are they in terms of characteristics, personalities etc.?

During these two exercises, the facilitator’s role will be to just present the exercises
and let the participants go through them in any way they like, and record which
adolescent/group did what.

If the participants have any queries, it would be better for the facilitator to only
repeat the question in such a manner that the participant understands it, or to
ask the participant/group to decide for themselves. Facilitators must not lead the
participants to any one type or nature of discussion or focus their attention on any
particular question or theme.

Exercise 3: Once Exercise 2 is over, the three groups may be brought together so that
they can present their findings to the larger group and reflect on their discussions.

They will then make recommendations about how participation can be improved
so that all the adolescents have a chance to present and argue their views so that
it becomes part of how decisions are taken. These recommendations should be
presented on paper.

At the end of all the Exercises, we expect a report from the facilitator on why three
groups did (or did not) form at the end of Exercise 1; a documentation on the FGDs
in Exercise 2; and the recommendations that come out of Exercise 3.

Balloon tool (modified from the ARC Resource Pack 2009)

At the end of Exercise 3, the facilitators can introduce the simple Balloon tool
(shown below) to the adolescents for a discussion. If they wish, they can work
together on the exercise at that time or they can take it back to their communities
and the facilitators or CSO representatives can carry out the exercise with the tool
at a later stage.
 Introduce the balloon to the adolescents, explaining that the balloon represents
adolescent participation, the pegs below represent barriers to participation – and
if these are removed, then adolescents can have their understanding and vision
of participation.
 Fire is the lifting element that lifts or improves participation and the segments of
the balloon represent components of adolescent participation.
 The clouds are the risks faced by adolescents when participating.
 The basket represents the children who are included.
 The sun is the purpose, the reason for why adolescents should participate.

156 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Facilitator form
Exercise 1

Please write a brief 1–2 paras on why groups formed or didn’t form in Exercise 1.
Do you feel that the exercise could have been done in a different way?

Exercise 2
Please document the nature of group discussion in Exercise 2 thinking of the
following:
 Was the process of discussion collaborative and participative?
 Were the adolescents respectful of each other?
 What were the main findings of the group across:
Theme 1
Theme 2
Theme 3

Exercise 3

Please write down the recommendations of the adolescents?

Any overall feedback on the process?

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 157
Annexure G. Broad list of questions to guide the tools of engagement

Bhopal

1. How were the adolescents’ identified/selected/mobilized?

2. How similar or different is this process from Mumbai and Kolkata?
3. Why and how were the initial four wards selected?
4. How is sustainability defined in relation to this programme?
5. What conversations have taken place and what challenges are expected?
6. Any ‘perceptible change’ in adolescents post the Safe City Initiative?
7. What ‘dents’ have children been able to make in governance?
8. Is there any institutional format for this kind of sustainability?
9. Is there any documentation of adults seeking children’s inputs on issues
such as right to information (RTI)?
10. Can you give more information on the success stories and all the dynamics
involved?
11. How have changes in district level leadership impacted on the programme?
12. Are there any examples of initiation of adolescent participation affecting
other aspects?
13. Is there any plan with respect to change in functioning of district level
authorities?
14. What was the impact on children/protection/communities/decentralized
governance?
15. Are there any struggles with respect to expansion – financial or
programmatic?
16. Are there any struggles with protectionism – and how were these
overcome?
17. Did UNICEF discuss backlash against adolescents with the adolescents?
18. What has been the partners’ perception/role in creating a local mandate?
19. Do any of the partners see a possibility of adolescents driving ADAP?
20. How were the adolescents ‘collectivized’?
20. Were the results of the mapping shared with other adolescents?
21. What were the issues that were focused on? What about livelihoods?
22. How do plans with adolescent inputs compare to plans without?
23. What was the paralegals’ age, backgrounds, selection and training?
24. Did adolescents participate in coordination meetings with the police?
25. Is there any documentation of the work with the police at district level?
26. Did UNICEF work with protection authorities anticipating threats?
27. What was the composition, role, issues covered of/by the CRTs?
28. Was there any back-end facilitation to them?

158 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
29. Any documentation of how CRTs were part of discussion in the bastis?
30. What is the present status of the CRTs?
31. What was the involvement of elected officials/administrators?
32. How does devolution of power in Bhopal compare with Mumbai and
Kolkata?
33. What was the impact on the process as a result of the Patta Land Act?
34. Which issues did the local administration support?
35. Did the adolescents have any role in debating with any ‘insensitive’ officer?
36. How important were the mohalla samitis (neighbourhood committees) for
this project?
37. Compare the first 6 pilot wards, with the expanded 15 and the final 70?
38. What was the involvement of adolescents in the design and/or roll out of
expansion?
39. Can and has this model of expansion been applied elsewhere?
40. How and through whom were the 15 expansion wards chosen?
41. What is the convergence between government departments during
expansion?
42. What institutional changes took place in urban governance for ADAP?
43. What were the changes within UNICEF to make ADAP central to the Safe
City Initiative?
44. Did adolescents give any feedback on tools and design?
45. Please give examples of adolescent participation in the master plans.

Maharashtra

1. Why does ‘livelihood’ not figure in the format for promoting child
participation?
2. What norms were suggested by the children for preventing violence in the
home?
3. How will building the capacity of gram panchayats overcome the limitations
of PlanPlus and ActionSoft?
4. How were the 2 girls and 2 boys selected in each village?
5. What could be specific guidelines for assessing adolescent participation in
the gram panchayat planning?
6. Why were all the selected settlements located on the hazard prone land?
7. Why are there differences between DNA risk and threats and risks from
mapping?
8. How were the issues for discussion by children selected and by whom?
9. Why is there an inference that there is a gap between police and
community?
10. Why has the District Child Protection Committee been given the authority to
review and decide on the Plan?
11. Why is there no convergence between perspectives of experts,
adolescents, and communities?

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 159
 12. Where demand for solutions exists, how has the supply been addressed in
the gram panchayat?
13. How will engaging with JJA and the Integrated Child Protection Scheme
(ICPS) find solutions to child protection issues?
14. Is there any study that documents the impact on policy and stakeholders?
15. What training has been provided by the prerikas to the group members for
adolescent participation?
1.6 Why are there differences between issues of the groups, experts and safe
communities mapping?
17. How is this difference being addressed by the gender resource centre?
18. What was the role of the CP Unit?
19. What was the role of the National Team of ADAP and convergence between
all of the above?

Nepal

1. Why did UNICEF Nepal drop out of ADAP and CLFG?

2. Why is children’s participation missing from planning and budgeting?
3. Why were child clubs set up through LGCDP not involved in this process?
4. On what normative basis do the VDC and community members decide how to
allocate the budget?
5. If the main issue is poverty then how does livelihood training meet the need
and allow schooling?
6. If the CFLG became disorganized at the ground level, what measures were
taken to restructure it?
7. Why did the INGO child clubs not seek support from the government?
8. If the rules were clear under the unitary system. how are the revised
guidelines addressing that?
9. How is the 80% fulfilment measured and monitored to determine if there is
CFLG compliance?
10. How did mainstreaming of CFLG process link to everything else happening
in Nepal?
11. How do you define ‘participation’ by children? Has this changed over time?
12. What percentage of children’s demands were approved by VDC in the
unitary period or federal period?
13. Can we get quantitative figures of plans and budgets after children’s voice is
empowered?
14. With the new Constitution, how have the structures changed?
15. What does it mean to say children’s participation is a fundamental right?
16. What roles do gender, class and caste play in children’s participation in local
governance?
17. What has been the role of child clubs in the CFLG continuum?
18. What are the implications of compulsory registration of child clubs for
engaging with CFLG?

160 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
19. What is the role of CSOs presently supporting CFLG in village or district
levels?
20. What is the link between the children clubs and the National Children’s
Council?
21. How effective are Bal Bhelas – and what is their role in CFLG? Are
vulnerable children involved?
22. What have been the implications of inclusion of children’s rights as a
fundamental right in policy?
23. What are the implications of LGCDP on CFLG?
24. Who are the different stakeholders and how are their capacities built?
25. What is the situation of graduates of child clubs? Are they part of any local
youth processes?
26. In places where the CFLG process is going on effectively, what are the key
elements of the process?
27. What are the challenges to the CFLG process at the village level, provincial
level and federal levels?
28. How autonomous is the government in terms of child policy from the UN and
other donor agencies?
29. How is convergence between different ministries built into the government?
30. How is convergence achieved between different sectors in UNICEF?
31. How different is it now compared to when CFLG and ADAP were separate
sectors?
32. Why were the facilitators and women and child officers dropped under
federalization?
33. Where individual officials were convinced how did they reform the new
structure?
34. Was the priority of local governments influenced by pressure of SDGs and
market interventions?
35. Have the existing child clubs and autonomous agencies reorganized
themselves?
36. When the Provincial and Local Government Support Programme (PLGSP)
began, and now while it is being implemented, why is UNICEF not part of it?

Bhutan

1. What is the role of UNICEF in country in addition to role of youth groups?

2. What were the recommendations from the youth and their critique of
existing youth participation?
3. How is the constitutional reference to ‘citizen’s participation’ linked to youth?
4. What was the engagement of young people in the ‘entertainment’ sector
and their participation in the consultation?
5. How does the Young Bhutan Association function?
6. Why does the demography show violence on such a large scale?

Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 161
 7. What does participation in terms of good leaders for the future mean when
youth are saying they are not involved in decisions?
8. In case the recommendations do not match with other policies already laid
down what will UNICEF/DYS do?
9. Is the earmarked budget adequate for NCWC to carry out the
recommendations?
10. Has the toll free help-line for children been established?
11. Why could the DWCC not be formed for all Dzongkhags?
12. Please give examples of Youth Initiative members selected through
registration with motivation letter.
13. Is there a commitment from the government to accept the
recommendations and for putting in investment?
14. How the culture of obedience is limiting child participation and what is
planned to address it?
15. What will be the role of ADAP?

162 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia 163
Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia
documents UNICEF’s leadership in South Asia in support of adolescent agency and public sector
commitment to working with and for them. It also highlights UNICEF’s decades of collaboration with
rights-based civil society organizations to realize children’s right to participation.

The study brings together selected relatively evolved practices of UNICEF in South Asia through case
studies from India, Nepal and Bhutan on interventions that have strengthened policies, mechanisms,
capacities and relationships to facilitate adolescent agency and their participation in decision-making.
These initiatives have furthered the realization of adolescents’ right to participation and enhanced the
delivery of responsive and relevant services. As the writers observe: “Wherever opportunities have
been offered to adolescents to participate in the processes of governance, the expression of their
agency and protagonism has been remarkable, their engagement with governance invigorating, and, in
some cases, the development outcomes transformative”.

The study also provides recommendations for scaling up embedded, holistic, and cross-sectoral good
practices, with a full appreciation of the economic, social, cultural and administrative challenges, as well
as the vast potential of mainstreaming the participation of adolescents in governance.

CLAIMING CITIZENSHIP
Case Studies of Adolescents Participating in
Governance in South Asia

United Nations Children's Fund

Regional Office for South Asia
P.O. Box 5815
Lainchaur, Lekhnath Marg
Kathmandu, Nepal
Telephone: +977 1 441 7082
Facsimile: +977 1 441 9479
E-mail: [email protected]
www.unicef.org/rosa

164 Claiming Citizenship: Case Studies of Adolescents Participating in Governance in South Asia