64 participatory learning and action

Young citizens: youth and participatory governance in Africa Participatory Learning and Action (PLA) – The International Institute for Environment formerly PLA Notes and RRA Notes – is published and Development (IIED) is committed to twice a year. Established in 1987, it enables promoting social justice and the practitioners of participatory methodologies from empowerment of the poor and marginalised. It also supports around the world to share their field experiences, democracy and full participation in decision-making and conceptual reflections, and methodological governance. We strive to reflect these values in Participatory innovations. The series is informal and seeks to Learning and Action. For further information contact IIED, publish frank accounts, address issues of practical 80-86 Gray’s Inn Road, London WC1X 8NH, UK. Website: and immediate value, encourage innovation, and act www.iied.org as a ‘voice from the field’. We are grateful to the Swedish International This work is licensed under the Creative Development Cooperation Agency (Sida), the UK Commons Attribution-Non-Commercial- Department for International Development (DfID), Share Alike 3.0 Unported License. Recipients are Irish Aid, the Norwegian Agency for Development encouraged to use it freely for not-for-profit purposes only. Cooperation (Norad) and the Ministry of Foreign Please credit the authors and the PLA series. To view a copy Affairs of Denmark (Danida) for their financial of this license, visit http://creativecommons.org/licenses/by- support of PLA. nc-sa/3.0 or send a letter to Creative Commons, 171 Second We would also like to thank Plan UK and the Street, Suite 300, San Francisco, California 94105, USA. Institute of Development Studies (IDS) for providing financial support that enabled the We welcome contributions to PLA. For information and participants and the editorial team to travel and guidelines, please see the inside back cover. participate in the writeshop for this special issue. The views expressed in this publication do not Download past and current issues necessarily reflect the views of the funding All issues of PLA are now free to download from organisations or the employers of the authors. www.iied.org

Participatory Learning and Action 64 Subscribe © IIED, 2011 Subscriptions are free to the South. For more information Order no: 14607IIED please contact: Research Information Ltd., Grenville Court, Cover illustration: Regina Faul-Doyle Britwell Road, Burnham, SL1 8DF, UK. Email: Design and layout: Smith+Bell Design [email protected] Website: Printed by: Park Communications Ltd, London www.researchinformation.co.uk Guest editors: Rosemary McGee, Jessica Greenhalf and Holly Ashley. Purchase back issues Editors: Holly Ashley, Nicole Kenton, and Please contact Earthprint Ltd., PO Box 119, Stevenage, Angela Milligan. SG1 4TP, UK. Email: [email protected] Strategic Editorial Board: Nazneen Kanji, Website: www.earthprint.co.uk Jethro Pettit, Michel Pimbert, Krystyna Swiderska and David Satterthwaite. Participatory Learning and Action (PLA) is an umbrella term International Editorial Advisory Board: for a wide range of approaches and methodologies, including Oga Steve Abah, Jo Abbot, Jordi Surkin Beneria, Participatory Rural Appraisal (PRA), Rapid Rural Appraisal L. David Brown, Andy Catley, Robert Chambers, (RRA), Participatory Learning Methods (PALM), Louise Chawla, Andrea Cornwall, Bhola Dahal, Participatory Action Research (PAR), Farming Systems Qasim Deiri, John Devavaram, Research (FSR), and Méthode Active de Recherche et de Charlotte Flower, FORCE Nepal, Ian Goldman, Planification Participative (MARP). The common theme is Bara Guèye, Irene Guijt, Marcia Hills, the full participation of people in the processes of learning Enamul Huda, Vicky Johnson, Caren Levy, about their needs and opportunities, and in the action Sarah Levy, Zhang Linyang, PJ Lolichen, required to address them. Ilya M. Moeliono, Humera Malik, In recent years, there has been a number of shifts in the Marjorie Jane Mbilinyi, Ali Mokhtar, scope and focus of participation: emphasis on sub-national, Seyed Babak Moosavi, Trilok Neupane, national and international decision-making, not just local Esse Nilsson, Zakariya Odeh, Peter Park, decision-making; move from projects to policy processes and Bardolf Paul, Bimal Kumar Phnuyal, institutionalisation; greater recognition of issues of Giacomo Rambaldi, Peter Reason, difference and power; and, emphasis on assessing the quality Joel Rocamora, Jayatissa Samaranayake, and understanding the impact of participation, rather than Madhu Sarin, Daniel Selener, Meera Kaul Shah, simply promoting participation. Participatory Learning and Jasber Singh, Marja Liisa Swantz, Cecilia Tacoli, Action reflects these developments and recognises the Peter Taylor, Tom Wakeford, Eliud Wakwabubi, importance of analysing and overcoming power differentials and Alice Welbourn. which work to exclude the already poor and marginalised. 1

Contents

Editorial ...... 3 Glossary ...... 9 Abstracts ...... 12 YOUNG CITIZENS: YOUTH AND PARTICIPATORY GOVERNANCE IN AFRICA 1. Seeing like a young citizen: youth and participatory governance in Africa Rosemary McGee and Jessica Greenhalf ...... 21 PART I: FROM YOUTH VOICE TO YOUTH INFLUENCE 2. Digital mapping: a silver bullet for enhancing youth participation in governance? Linda Raftree and Judith Nkie...... 43 3. Kenema youth change lives and perceptions with participatory video in Sierra Leone Sallieu Kamara and Abdul Swarray ...... 55 4. Our time to be heard: youth, poverty forums and participatory video Anderson Miamen and Annette Jaitner...... 65 5. Youth participation in capturing pastoralist knowledge for policy processes Charles Kesa...... 77 6. What business do youth have making HIV and AIDS laws in Nigeria? Fadekemi Akinfaderin-Agarau and Temitope Fashola ...... 85 7. How far have we come with youth in governance? Jennifer Tang ...... 95 PART II: REJUVENATING SPACES FOR ENGAGEMENT 8. Lesotho’s shadow children’s parliament: voices that bridged the policy gap Lipotso Musi and Maseisa Ntlama ...... 105 2 64

9. Catch them young: the young female parliament in northern Ghana Edward A. J Akapire, Alhassan Mohammed Awal and Rahinatu Fuseini ...... 113 10. Young, but capable: youth lead the struggle against violence in Mali Bedo Traore ...... 123 PART III: LEARNING CITIZENSHIP YOUNG 11. As of now, we are stakeholders in local governance Young people from Louga, Senegal with Serigne Malick Fall ...... 133 12. Seeing from our perspectives: youth budget advocacy in Ghana Charlotte Bani-Afudego, George Cobbinah Yorke and Anastasie Ablavi Koudoh ...... 143 13. Local champions: towards transparent, accountable governance in Embakasi, Kenya Edwine Ochieng and Cynthia Ochola Anyango...... 153 PART IV: POWER TO YOUNG PEOPLE 14. Silent voices, unrealised rights – championing youth participation in Zimbabwe Talita Ndebele and Leila Billing ...... 165 PART V: TIPS FOR TRAINERS 15. Exploring expressions and forms of power in youth governance work Salim Mvurya Mgala and Cathy Shutt ...... 175 16. Youth as drivers of accountability: conducting a youth social audit Kenyatta Maita Mwawashe ...... 181 17. The community scorecard process: methodology, use, successes, challenges and opportunities Jephter Mwanza and Nina Ghambi ...... 187 18. Government budget monitoring: as easy as child’s play Christina Nomdo and Alexander Henry ...... 195 19. Drawing up a participatory youth situation analysis in Kenya Edwinah Orowe and Richard Mabala...... 201 REGULAR FEATURES In Touch ...... 209 RCPLA Network ...... 227 3

Editorial

Welcome to issue 64 of Participatory ing skills, form new relationships and de- Learning and Action. velop a set of articles for this issue of Par- All over the world we are seeing exciting ticipatory Learning and Action.During the experiments in participatory governance. writeshop, participants also worked closely But are they working for the young? This together to define the key messages and ob- issue of PLA highlights how young Africans jectives of this special issue (see Box 1). are driving change by challenging the They shared their writing with each other norms and structures that exclude them, for informal peer review, honing their arti- engaging with the state and demanding ac- cle’s content, structure and style. At least countability. We hope that this issue will three of our writeshop participants were enable other participatory practitioners – young people, and many more were in- young and old – to learn from their experi- volved in the earlier drafting stages of each ences. article.

About this special issue Guest editors In March 2011, IIED, Plan UK and the In- Rosemary McGee has been a research stitute of Development Studies (IDS) fellow in the Participation, Power and Social brought together a group of adults and Change Team at the Institute of Develop- young people involved in youth and gover- ment Studies since 1999. She has extensive nance initiatives across Africa to take part work experience in policy and programme in a ‘writeshop’ in Nairobi, Kenya.1 The posts in the international development idea behind the week-long meeting was to NGO sector. Her research and teaching share learning and experiences, build writ- focus in particular on forms of

1 For more information about Participatory Learning and Action writeshops see Milligan and Bongartz (2010). 4 64 Photo: George Cobbinah Yorke Cobbinah George Photo:

Participants came to the writeshop with draft versions of their articles. Bedo Traore from Mali presents his to a group of fellow participants. To his right are Sophie Bide, our translator from Plan UK, and Serigne Malick Fall, a consultant for Plan Senegal.

Box 1: Objectives for this special issue citizen participation in decision-making, During the writeshop, participants jointly governance and rights-claiming processes – decided on the main objectives for this special and on the international aid system, both of- issue. ficial and non-governmental. Her doctoral • To highlight ways in which youth governance research was conducted in a violence-torn approaches differ from – but are just as region of Colombia, as was much of her NGO essential as – mainstream approaches to governance that target adults. work, and she continues to work closely on • To highlight the different approaches to issues of conflict and citizenship and on youth and governance. Colombia as well as other countries in Latin • To document good practice on the America and Africa. She has worked with implementation of participatory approaches to Plan UK and Plan International as an ap- governance and development processes. • To share and be honest about the challenges plied researcher, consultant and advisor on and lessons learnt about engaging youth in several projects related to governance and governance processes, recognising that it is OK young people’s participation. if we do not have it all figured out or Jessica Greenhalf is currently the Coun- completely right the first time – we are try Director of Restless Development learning. • To highlight strategies and approaches which Uganda, a youth-led development NGO promote youth engagement in governance supporting innovative youth programming and development processes. on civic participation, livelihoods and sexual • To promote youth as agents of social change and reproductive health. Prior to this Jes- in Africa. sica was a member of Plan UK’s governance • To promote the justification for youth involvement in governance. team overseeing a five year DfID-funded • To share experiences of good practices youth and governance programme. The pro- around youth in participatory governance in gramme supported participatory gover- Africa while recognising differences in context. nance initiatives involving young people • To influence developmental strategies in across the health, sanitation, education and Africa through better participation of young people in local governance. agriculture sectors in 16 countries. Jessica is a passionate advocate of meaningful youth l Editorial 5 Photo: Holly Ashley Holly Photo:

Participants and authors Cynthia Ochola Anyango, Charlotte Bani-Afudego and Abdul Swarray discussing their articles. In the background, guest editors Jessica Greenhalf and Rosemary McGee discuss the day’s agenda.

participation, with experience supporting French-speaking participants both youth-led and youth-focused programming throughout the writeshop and afterwards. and research and learning processes in Africa, Asia and Latin America. In Touch This issue includes a wide range of re- Acknowledgements sources dedicated to youth and participa- This special issue has been made possible tory governance issues. by the fantastic energy and commitment of our writeshop participants and authors, Other news and especially by our guest editors Rose- mary McGee and Jessica Greenhalf. Their IIED’s annual report excellent writeshop facilitation and edito- 2010–2011: Shaping rial support has generated some very valu- decisions for able learning for the PLA team, which we development look forward to sharing with others in While IIED works in future writeshops. many areas of environ- We would also like to thank Plan UK ment and development, and IDS for their financial support for this a common challenge is issue. Special thanks also to Grace Ogolla at the inequality, injustice Plan International for organising the logis- and lack of sustainability tics for the writeshop and to Caitlin Porter that mark many of the of Plan UK for her continued support and power relations and decision-making in- for taking over as our main Plan UK con- stitutions across the world. tact following Jessica’s move to Restless IIED’S 2010/11 annual report high- Development in Uganda. And we owe a lights this year’s achievements, with a focus huge debt of thanks to Sophie Bide, who on our governance work and highlights this provided tireless translations for our issue of PLA.2 The PLA team also launched

2 Online: http://tinyurl.com/iied-ar-pla64. Full URL: www.iied.org/general/about-iied/annual- report/african-youth-participatory-politics 6 64 Photo: Holly Ashley Holly Photo:

Participants discuss issues affecting organisational learning at the launch of PLA 63: How wide are the ripples? From local participation to international organisational learning, 23rd November 2011.

issue 63 How wide are the ripples? From development of community protocols for local participation to international organ- ABS.3 But there is a danger that standard- isational learning at IIED’s new offices, ised top-down approaches will be adopted which generated a lot of interesting dis- which could undermine community gover- cussion! Read more about the launch in nance of their biocultural heritage. the RCPLA Network pages, this issue. This special issue will be published ahead of the next Conference of the Par- Next issue – PLA 65: Biodiversity, culture and ties to the Convention on Biological Di- rights (June 2012) versity (COP11) in India, in October 2012, The rights of indigenous peoples and local which is also likely to be the first meeting communities over their inter-linked biolog- of the parties to the Nagoya Protocol. It ical and cultural heritage – or biocultural will capture learning from participatory heritage – are increasingly under threat. processes for developing community bio- Recent developments in international law cultural protocols and securing FPIC in should strengthen these rights. Indigenous different contexts. It also aims to raise peoples and local communities now have awareness amongst the biodiversity com- the right to secure their free, prior and in- munity of the importance of community formed consent (FPIC) for any law or pro- designed and controlled processes for de- posed development which affects them. veloping these protocols and FPIC – as ex- And the Nagoya Protocol on access to ge- perience shows that their real value lies in netic resources and equitable benefit-shar- the community-level participatory ing (ABS) requires countries to support the processes they entail.

3 The Nagoya Protocol on access to genetic resources and the fair and equitable sharing of benefits arising from their utilization is an international agreement. It is one of the three objectives of the Convention on Biological Diversity that was adopted by the Conference of the Parties to the Convention on Biological Diversity on 29th October 2010 in Nagoya, Japan. Adapted from source: www.cbd.int/abs l Editorial 7 Photos: Holly Ashley Holly Photos:

Getting creative: results from a participatory snowball session where participants discussed challenges and solutions to writing blocks.

Box 2: Some reflections on the writeshop Throughout the week, we filmed some short interviews with participants. We asked them for their reflections on the writeshop process – and what impact and influence it has had on their thinking around youth and governance issues. Here are some short excerpts:

This week’s writeshop has really helped me to think Left to right: Sophie Bide, Serigne Malick Fall and about applying more detailed analysis to my work on Temitope Fashola discussing what makes a good youth and governance… The process has bridged the article title. gap between learning and application and I am already thinking about how to amend my activity Practical tips on writing an article for PLA plans to accommodate everything I have learnt. Are you thinking about contributing to Leila Billing, ActionAid International Zimbabwe Participatory Learning and Action? We What has really excited me is that issues about young have created a practical guide on writing people in governance are beginning to be placed on an article for PLA which is now free to the table – and on the agenda for NGOs and download.4 governments – as well as learning how this is a Preparing for the writeshop in Nairobi common thread that runs across Africa. Lipotso Musi, World Vision Lesotho was an ideal opportunity to build on our previous PLA writeshop experiences (see The most important thing that you have given back also Box 2). I realised that the sessions on to me is the desire to communicate through writing... how to write an article for the series mer- The PLA approach is demanding, original and innovative all at the same time. And I think it will ited a handout for participants, to com- make me want to look more closely at the journal. plement the PowerPoint presentations I Serigne Malick Fall, a consultant for Plan Senegal. had prepared. The resulting guide includes

4 The writer’s handbook is free to download online here: http://pubs.iied.org/G03143 8 64 George Cobbinah Yorke Cobbinah George

Left to right: Jessica Greenhalf, George Cobbinah Yorke, Fadekemi Akinfaderin-Agarau and Bedo Traore. Then back left to right: Sophie Bide, Sallieu Kamara, Annette Jaitner, Serigne Malick Fall, Lipotso Musi, Rosemary McGee, Edwine Ochieng, Temitope Fashola and Edward Akapire. Then front left to right: Holly Ashley, Kenyatta Maita Mwawashe, Jennifer Tang, Anderson Miamen, Cynthia Ochola Anyango, Linda Raftree, Abdul Swarray, Leila Billing and Charlotte Bani-Afudego.

tips and guidance on our readership and made good friends too, and have enduring how to write an article, as well as lots of memories of everyone’s good humour, practical examples taken from previously energy and enthusiasm. And above all, I published PLA articles. The first draft of was struck by our participants’ dedication, the handbook is now online. If you are passion and commitment to promoting considering writing an article for the PLA the rights of young Africans as active citi- series, I hope that you will find it useful. zens, helping them – and others – to change their lives for the better. Final thoughts… Our writers are supporting youth to Our week in Nairobi was an intense and share their learning, perceptions and re- exhilarating experience. Aside from the flections with an international audience. packed writeshop agenda throughout the They have reminded us that young week, many of our authors worked long Africans are the citizens of the future and hours to improve their articles. I would get that with the right support, they can up at 5.30am to watch the sun rise with a achieve extraordinary things. mug of coffee, before settling down to a Holly Ashley, co-editor, Participatory few hours of reviewing before breakfast. I Learning and Action REFERENCES Milligan, A. and P. Bongartz (2010) ‘Let's write! Running a participatory writeshop.’ In (Eds) P. Bongartz, S. Musembi Musyoki, A. Milligan and H. Ashley. PLA 61 Tales of shit: Community-Led Total Sanitation in Africa. Online: www.iied.org/pubs/G02810 Ashley, H. (2011) ‘Kindling your spark: an editor’s practical advice to writers.’ Unpublished. Participatory Learning and Action free handbook. IIED: London. Online: http://pubs.iied.org/G03143 9

Glossary

Convention on the Rights of the Child are being met. Duty bearers should be clear (CRC) not only about the nature of the rights but The United Nations Convention on the also about their corresponding duties and Rights of the Child (UNCRC) is a legally commitments as a duty bearer. binding international instrument. The CRC Adapted from source: www.right-to- recognises the human rights of children, education.org/node/74 defined as persons up to the age of 18 years. It establishes in international law that Participatory governance states parties must ensure that all children There is a growing consensus that – without discrimination in any form – democratic governance has to involve benefit from special protection measures ample opportunities for citizens and their and assistance; have access to services such organisations to engage with government as education and health care; can develop – what is usually termed ‘participatory their personalities, abilities and talents to governance’.1 Governance can be defined the fullest potential; grow up in an as the interaction between government environment of happiness, love and and civil society – ‘the sphere of public understanding; and are informed about debate, partnership, interaction, dialogue and participate in, achieving their rights in and conflict entered into by local citizens an accessible and active manner. and organisations and by local Source: www.unicef.org/crc government’ (Evans et al., 2005). Stewart (2000) describes governance as Duty bearers concerned with steering community A duty bearer is responsible to a rights development and engaging multiple holder and for making sure that their rights stakeholders.

1 Adapted from source: www.civicus.org/what-we-do/priority-areas/influence-of-civil- society/pg-project 10 64

There are many reasons for the everyone’s basic human rights are met, increased concern with linking development can also best be achieved by participation and governance. There is a enabling people to better secure and fulfill widening understanding that policy their rights: processes are not the sole domain of elected representatives, bureaucrats and experts. A rights-based approach to development They should also be inclusive of citizens and is both a vision and a set of tools; human recognise the importance of different forms rights can be the means, the ends, the of knowledge. Citizens move from being mechanism of evaluation, and the central simply users or choosers of public services focus of sustainable human development and policies made by others, to becoming (Symington, 2002). ‘makers and shapers’ of policies themselves (Gaventa, 2004; Cornwall and Gaventa, Source: Pettit and Musyoki (2004). 2000). According to Gaventa (2004), there are Social accountability several key elements when defining what Social accountability can be defined as an constitutes ‘good governance’: approach towards building accountability • Active and participatory forms of that relies on civic engagement, i.e. in which citizenship, where citizens engage in it is ordinary citizens and/or civil society policies and in the delivery of services. organisations who participate directly or • A need for more inclusion, especially of indirectly in exacting accountability. racial and ethnic minorities, youth, older Mechanisms of social accountability can be people, and others seen as previously initiated and supported by the state, excluded or marginalised. citizens or both, but very often they are • The involvement of multiple stakeholders demand-driven and operate from the in new forms of partnership, which in turn bottom-up. enable wider ‘ownership’ of decisions and Source: Malena et al. (2004). projects. • An emphasis on broader forms of Social audit accountability, which enable multiple A social audit is a systematic, regular and partners to hold institutions and policy objective accounting procedure that makers to account, and which involve social enables organisations to establish social accountability as well as legal, fiscal and values and criteria against which they can political forms. measure external and internal performance Through this approach, participation and plans. They are a practical way to plan, should not only contribute to better manage and evaluate activities and to governance and a more engaged citizenry, create a system for communicating with but also improve community development stakeholders. It provides a framework for and service delivery. organisations to establish their own priorities, strategic plans and performance Rights-based approach measurement criteria, and then monitor The language of rights and rights-based and make decisions about how to maintain approaches has entered the mainstream of or improve their operations. development, taking on various meanings Source: within the policies of development www.locallivelihoods.com/SAOverview.htm agencies. In essence, rights-based approaches can be understood as both a Youth means and an end: if development is The continuing debate on who is a ‘youth’ ultimately about making sure that in Africa has not resolved the confusion l Glossary 11 surrounding this concept. The perception For many, youth is better defined as a of youth varies historically and culturally. period of transition from dependence It also varies from one context to another (childhood) to independence (adulthood), and even within contexts (Chigunta, the nature and length of which varies from 2006; United Nations, 2003). In Africa, one individual or society to another some countries have adopted the United (Curtain, 2003). Here, we have adopted Nations definition of youth of 15 to 24 this transition model, in recognition of the years. Others use the Commonwealth varied national contexts discussed in the definition of 15 to 29 years. For policy articles. Source: McGee and Greenhalf (this purposes, the age range can be even wider. issue).

REFERENCES Chigunta, F. (2006) ‘The creation of job/work opportunities and income generating activities for youth in post-conflict countries.’ Paper presented at an expert group meeting on youth in Africa: Participation of youth as partners in peace and development in post-conflict countries, 14th–16th November 2006, Windhoek, Namibia. Online: www.un.org/esa/socdev/unyin/documents/namibia_chigunta.pdf Curtain, R. (2003) ‘Youth in extreme poverty-dimensions and country responses.’ In: The world youth report 2003: the global situation of young people. Department of Economic and Social Affairs, United Nations. Online: www.un.org/esa/socdev/unyin/wyr Evans, B., M. Joas, S. Sundback and K. Theobald (2005) Governing sustainable cities. Earthscan: London. Gaventa, J. (2004) ‘Participatory development or participatory democracy? Linking participatory approaches to policy and governance.’ In (Eds.) R. Chambers, N. Kenton and H. Ashley. Participatory Learning and Action 50: Critical reflections, future directions. IIED: London. Online: http://pubs.iied.org/G02106.html Malena, C. with R. Forster and J. Singh (2004) ‘Social accountability: an introduction to the concept and emerging practice.’ Social Development Paper 76. World Bank: Washington, DC. Stewart, M. (2000) ‘Community governance.’ In (Ed.) H. Barton, Sustainable communities: the potential for eco-neighbourhoods. Earthscan Publications Ltd: UK. Symington, A. (2002) ‘A rights-based approach to development.’ Women’s Rights and Economic Change 1, August 2002. Toronto: Associations for Women’s Rights in Development (AWID). Pettit, J. and S.M. Musyoki (2004) ‘Rights, advocacy and participation – what’s working?’In (Eds.) R. Chambers, N. Kenton and H. Ashley. Participatory Learning and Action 50: Critical reflections, future directions. IIED: London. Online: http://pubs.iied.org/G02101.html United Nations (2003) World youth report 2003: the global situation of young people. United Nations Department of Economic and Social Affairs, New York. 12 64

Abstracts

1. Seeing like a young citizen: youth and and research which are involving these participatory governance in Africa young people in decision-making spaces. It Rosemary McGee and Jessica Greenhalf asks how can we re-shape how young All over the world citizens are starting to people perceive and exercise citizenship? demand accountability from those in How can we redefine and deepen the power. We are seeing exciting interfaces between young citizens and the experiments in participatory governance. state? But are they working for young people? This overview article to PLA 64 What spaces are most promising for the demonstrates the persistence, passion and participation of children and young enthusiasm that youth bring to governance people in governance? processes – and how they are driving Across Africa youth (particularly boys change in creative and unexpected ways. It and young men) are seen as a frustrated highlights how young Africans are doing and excluded ‘lost generation’ who are this: addressing the documentation gap marginalised from decision-making that surrounds youth and governance in processes. Contributors to this special issue Africa and enabling other participatory demonstrate how this is changing. Young practitioners – young and old – to learn people in Africa are challenging the norms from their experiences. and structures that exclude them, engaging with the state and demanding 2. Digital mapping: a silver bullet for accountability. This article explores how enhancing youth participation in young people are exercising their right to governance? participate and developing the knowledge, Linda Raftree and Judith Nkie skills and confidence to affect to change. It When armed with solid information and examines some of the methods of community backing, young people can communication, appraisal, monitoring successfully engage local and divisional l Abstracts 13 authorities in resolving issues youth care authors of their own stories to take up the about. Starting with the desired goals, challenge. It also provides a critical understanding local context and building contextual analysis of the situations of youths’ self-esteem, building confidence as youth in Sierra Leone, and re-echoes the well as research and communication skills message of these young citizens that they are key. A variety of tools – community are prepared and ready to increase their mapping, participatory video, painting, involvement in governance processes. songs, theatre, dance, photos, cartoons and digital mapping – can support this 4. Our time to be heard: youth, poverty process. Digital mapping is potentially forums and participatory video useful for youth to initiate and follow up Anderson Miamen with Annette Jaitner on conversations with local authorities In this article we reflect on how around allocation of services and participatory processes like participatory resources. However, digital mapping in video (PV) and dialogue forums empower isolation from other participatory youth to engage with public officials and processes holds limited value. This article demand transparency and accountability aims to share experiences with in decision-making around public funds practitioners and theorists interested in and provision of public services. using information and communication Poverty forums and PV are an integral technology for development (ICT4D) in part of the Centre for Transparency and youth and participatory governance work. Accountability in Liberia’s (CENTAL’s) It explores Plan’s use of digital mapping in Poverty and Corruption in Liberia project. the Youth Empowerment Through Both approaches are complementary to Technology, Arts and Media (YETAM) each other as they bring together citizens project in schools and communities in the and their government officials to directly Pitoa, Ndop and Okola areas in discuss local development issues. PV is Cameroon. particularly attractive to youth and can serve to amplify their concerns. We show 3. Kenema youth change lives and practical outcomes and challenges, and perceptions with participatory video how both approaches have contributed to Sallieu Kamara and Abdul Swarray more participatory governance. With this Generally, youth are one of the most article we hope to encourage youth, neglected and socially-excluded groups in development workers, government Sierra Leone. As such, they are ill-prepared officials and national and international to meaningfully contribute to decision- civil society organisations to use making. This article provides insights into participatory approaches to initiate how the youth of Kenema district in Sierra dialogue between young citizens and duty Leone successfully used participatory bearers, engendering positive change. video to engage in governance processes, change citizens’ perceptions about them 5. Youth participation in capturing and position themselves to get elected into pastoralist knowledge for policy district and municipal councils. The article processes provides a practical guide for young Charles Kesa people, youth-serving agencies, This article describes a unique, innovative development practitioners and local and youth-led participatory ‘camel caravan’ communities to the processes involved in process. The camel caravan is a pastoral setting up and running local participatory community survey, and part of Horn video groups. It is intended to build the Relief’s Pastoral Youth Leadership (PYL) confidence of all those wanting to be project in Sanaag Region, a territory 14 64

disputed between Somaliland and 7. How far have we come with youth in Puntland governments. This semi-arid governance? area is mainly inhabited by pastoralists Jennifer Tang whose livelihoods are on the decline. This Around the world, efforts to secure the article shows how determined youth rights of children and youth are involved in the PYL project, as part of their increasingly directed at incorporating learning process, went back to their them in governance processes. This gives pastoral roots amid challenges of rise to a need to critically analyse the insecurity and a hostile environment. The quality of these activities in accordance evidence generated through the survey with child participation and governance brought to the fore the situation of principles. This article describes the first pastoralists in this region. Through the steps in developing an analytical camel caravan process, indigenous framework that explores how to promote pastoralist knowledge was transformed children’s participation in participatory, into policy knowledge that could be taken accountable and transparent governance up and used by government policy makers processes. The beginnings of a framework and development partners such as aid aim to address: spaces, structures and agencies and NGOs. systems; effective processes; and necessary resources for child and youth participation 6. What business do youth have making in governance. Practitioners contributing HIV and AIDS laws in Nigeria? to this special issue of Participatory Fadekemi Akinfaderin-Agarau and Learning and Action were interviewed for Temitope Fashola feedback on the proposed framework. This article highlights how a group of Researchers, practitioners, children and young people in Nigeria were able to youth are invited to examine the analytical influence Nigeria’s national legislation on framework and provide feedback for HIV and AIDS anti-stigma and further development. discrimination bill, in order to make it more responsive to the needs of young 8. Lesotho’s shadow children’s people in the education sector. We explore parliament: voices that bridged the how a youth advocacy group (YAG) policy gap meaningfully contributed to national Lipotso Musi and Maseisa Ntlama policy. We highlight the different strategies In 2010, the Lesotho children’s protection used by the YAG to engage with peers and and welfare bill had been in draft form with policy makers and legislators. It is since 2004. It was time to move the aimed at policy makers and institutions process forward and put pressure on the that work to increase young people’s Lesotho parliament to enact the bill. But participation in governance issues and what would be the most effective method young people themselves. Key lessons to bridge this policy gap? This article is learnt about young people’s participation about the first-ever shadow children’s in the policy-making processes are also parliament (SCP) sitting in Lesotho. The highlighted. It demonstrates that young day-long event, a simulation of a real people do not need a legal background or parliament sitting, took place in June 2010 formal education to participate in in Lesotho’s national parliament buildings legislative processes. No matter how small and included one hundred children. The their number, they can effectively mobilise, key objective of the SCP was policy-related: educate and motivate their peers to action for children to call for the speedy and bring about policy change. enactment of the long-overdue bill, asking legislators to listen to their voices and l Abstracts 15 intentionally plan and budget to address tackle violence by disseminating problems identified and prioritised by the information, raising awareness and children themselves. advocating for change with duty bearers. The children’s parliament is a platform for 9. Catch them young: the young female youth participation and freedom of parliament in northern Ghana expression. Its role is to support the Malian Edward A. J Akapire, Alhassan government to implement national policies Mohammed Awal and Rahinatu Fuseini or initiatives which promote and uphold Women in northern Ghana are children’s rights. The article describes the underrepresented in decision-making at strategies, successes and challenges in all levels. This is due to patriarchal cultural building the capacity of children and young systems and a lack of appropriate skills and people to campaign for their own low self esteem among women. The young protection and enabling them to share their female parliament (YFP), designed by experiences of tackling violence. ActionAid Ghana (AAG) and the Northern Sector Action on Awareness Centre 11. As of now, we are stakeholders in local (NORSAAC) seeks to provide space for governance young women to acquire the necessary The young people from Louga, Senegal skills and confidence to engage in with Serigne Malick Fall participatory governance. It also links In 2009 a group of young people from AAG’s work in promoting girls’ education Senegal took part in a governance project with its work on women’s participation in which gave them the opportunity to decision-making. This article explores why participate in local governance processes young women and girls in northern Ghana which, until then, had been reserved should be engaging in participatory exclusively for adults. This article was governance – and why they require safe written by 37 young people from the Louga spaces in which to build their confidence. region. Their co-author Serigne Malick It presents how the YFP was established, Fall is a consultant for Plan Senegal and discusses challenges and prospects and coordinated the project. This article considers how appropriate the space has describes how they learnt to actively and been. It then shares lessons learnt with effectively participate in the management practitioners, governments and civil of their schools and community society in adopting a female-only structure development planning. The young people to enhance young women’s participation in describe how they organised themselves to governance processes. carry out effective advocacy work with duty bearers, analyse their priorities and 10. Young, but capable: youth lead the participate in their communities’ annual struggle against violence in Mali investment planning sessions. It describes Bedo Traore how the young people have both In Africa, and particularly in Mali, children transformed the context in which they act are exposed to many forms of violence: – and how they are now perceived by the physical, emotional and spiritual. This adults they collaborated with. article examines how members of the children’s parliament in Mali are 12. Seeing from our perspectives: youth advocating for better child protection as budget advocacy in Ghana part of a regional project by Plan Mali in Charlotte Bani-Afudego, George Cobbinah partnership with Save the Children. The Yorke and Anastasie Ablavi Koudoh main objective was to strengthen the The neglect of vulnerable children and capacity of child and youth organisations to youth in policy and budgeting is changing 16 64

in Ghana, as youth gradually become part people to engage with the local of planning and budgeting processes. But administration, including social audits, what are the best strategies to increase policy forums and accountability boards – youth engagement with policy makers? as well as the role of duty bearers in This article recounts the experiences of a promoting participatory governance. It youth budget advocacy process in Ghana discusses challenges and lessons learnt done by Plan Ghana and Integrated Social while reflecting on how to promote good Development Centre (ISODEC). It governance at grassroots level. Given describes a participatory youth budgeting willing allies within government, the training process, and how the youth then participation of young people in decision- went on to apply what they learnt. It also making processes can contribute to the explores the possible impacts of this transparency and accountability of process. What can we learn from the institutions at grassroots level. experiences of these youth groups and their evidence-based budget advocacy? 14. Silent voices, unrealised rights – This article points to the need to monitor championing youth participation in the impact of youth participation in Zimbabwe budgeting for their communities. In order Talita Ndebele and Leila Billing to become active citizens, children and Promoting youth participation in young people need to learn in ways that governance in transitional political promote their own sense of empowerment contexts has its own unique challenges. by being proactive and initiating their own Complex and shifting power dynamics activities – so that the learning process make it difficult for young people to itself becomes a form of active citizenship. penetrate and influence decision-making structures. This article describes how one 13. Local champions: towards rural-based Zimbabwean youth transparent, accountable governance in organisation, Bulawayo Integrated Youth Embakasi, Kenya Survival Programme (BUIYSAP), is Edwine Ochieng and Cynthia Ochola working with ActionAid International Anyango Zimbabwe (AAIZ) to effectively navigate In Kenya, young citizens engage little with such a context, empowering young rights the state. This limits their voice, choice and holders in the process. It describes the consequently their fundamental human participatory methodologies used to build freedom. But this article is about a counter young people’s ability to mobilise and example. In November 2009, a governance constructively engage with duty bearers; programme was introduced by Plan how formerly hostile duty bearers were Kenya. This article illustrates how the brought on board to fulfil their programme responded to governance and responsibilities to young people in their exclusion problems in Embakasi. Co- communities; and the lessons learnt from author Edwine Ochieng is a government creating new participatory decision- official from the district office for gender making platforms for young people in the and social development. Cynthia Ochola project area. The article emphasises the Anyango is a member of the Embakasi and importance of conducting in-depth power Jipange youth organisations. Their analysis and applying a human rights- experiences demonstrate how young based approach while implementing a people are engaging in social participatory governance programme accountability activities around service involving young people in Zimbabwe. It provision and other governance issues. also stresses the need to conduct robust They describe the processes used by young gender analysis to ensure both young men l Abstracts 17 and women are supported to enhance their accountability. Social audits assess systems levels of participation. and processes of government institutions in public finance management at 15. Exploring expressions and forms of community level. This article shares our power in youth governance work experience with other practitioners. Salim Mvurya Mgala and Cathy Shutt Youth governance work requires engaging 17. The community scorecard process: with power. In most countries young methodology, use, successes, challenges people occupy positions in social structures and opportunities maintained by cultural and social norms. Jephter Mwanza and Nina Ghambi This means that their participation in Budget tracking is not viable if national governance processes is subject to and local governments lack openness and constraints. Expressions like ‘they are too fail to provide timely information on young to understand’ reflect commonly budget allocations. The alternative is to held opinions that affect how adults relate look at the final service provided at the to young people. Such attitudes influence point of access – hence the community young people’s self-confidence and scorecard approach. This article covers the frustrate their ability to participate in use and basic functions of a community decisions affecting their lives. Both authors scorecard process. It is a social have been involved in processes that accountability mechanism used to exact suggest that consciously exploring the social accountability from duty bearers vis- nature of power and how it operates can à-vis the state of services in various sectors. enable young people to overcome such The process fosters unity and collective barriers to participation. Here we reflect action within communities for engaging on Salim’s experience working with youth with service providers. Here, the authors councils in Kenya, and Cathy’s research draw on lessons from the community- with student steering committees (SSCs) based monitoring project implemented by in Sierra Leone to propose practical tips Plan Malawi, ActionAid and the Council towards this aim. for Non Governmental Organisations of Malawi (CONGOMA). It covers the 16. Youth as drivers of accountability: methodological approach, steps and conducting a youth social audit decision-making levels at which it is used. Kenyatta Maita Mwawashe It also examines the successes and The demand for social accountability in the challenges – and how innovation has been management of public resources has been used to surmount them. gaining ground in Kenya over the last seven years. Pressure from citizens has 18. Government budget monitoring: as increased for government to account for easy as child’s play the use of public finances in public service Christina Nomdo and Alexander Henry delivery. Since 2009, Plan Kenya’s Understanding how government works is governance programme has been potentially a very complicated topic to organising youth forums and workshops discuss with children. This article for government fund managers to share describes a capacity building initiative information on the public funds destined with children in South Africa to support for community projects and services. Youth them to engage in government budget in Kwale, Kilifi and Nairobi counties have monitoring and advocacy. This initiative been using social audits, which have been used learning through games to make developed as both a participatory tool and difficult governance issues accessible to a participatory process to enhance social children. The project highlighted that 18 64

children, including those with disabilities, (Taasisi ya Maendeleo Shirikishi Arusha, are able to share and learn knowledge and the Institute of Participatory skills relating to governance. We explain Development Arusha) facilitated a series the different approaches used to develop of workshops that enabled young people children’s skills as peer facilitators; to to develop a highly participatory rights- support them to understand and share based youth situation analysis. The information about governance; and to workshops helped young people to break build their confidence to do advocacy. We out of the negative and superficial conclude with tips for adult facilitators stereotypes imposed on them. Using a and child advocates and other variety of participatory tools, the young practitioners who may want to build people documented youth issues from children’s capacity to engage in different provinces and prioritised key governance. issues to be taken forward to a national workshop. The national youth situation 19. Drawing up a participatory youth analysis was successful and presented a situation analysis in Kenya strong and holistic document to the Edwinah Orowe and Richard Mabala ministry of youth and sports. The report The 2007 election violence in Kenya was a examined the underlying issues facing classic example of how young people have young people – and also showed how been caught up in destructive behaviour. much young people can achieve when This articles describes how TAMASHA given the opportunity to do so. 19 THEME SECTION Young citizens: youth and participatory governance in Africa 20 64 21

Seeing like a young citizen: youth and participatory governance in Africa 1

by ROSEMARY McGEE and JESSICA GREENHALF

A girl and boy lounge against a wall, their stares vacant, and their faces etched with boredom. Nails are filed, trainer laces played with, gum chewed. In the background, one adult types madly at a desk without ever looking up and another strides around, looking busy and efficient, but never looking in their direction...

A tight circle of adults surrounds a girl, propelling her from one to the other, from pillar to post. She rebounds around the circle, looking increasingly dizzy and confused. Her mouth is sealed An adult puppet-mistress with masking tape... pulls the strings of a young girl puppet, walking her up a conference hall to the stage. There the puppet curtsies and hands over a rolled-up speech to an adult dignitary, who pats her on the head before she Illustrations: Regina Faul-Doyle is puppeted away... 22 64 Rosemary McGee and Jessica Greenhalf Photo: Holly Ashley Holly Photo:

Writeshop participants spent an afternoon presenting their articles to each other. The discussion helped to generate a better shared understanding of the issues.

The scenes shown in the cartoons were ing event held in early 2010, staff expressed created by contributors to this special issue an interest in sharing their experiences of Participatory Learning and Action on more widely and learning from the experi- youth and participatory governance in ences of others. They also highlighted a Africa. At a writeshop held in Nairobi, the number of challenges that often prevented contributors were asked to show how them from generating good project docu- young people commonly view governance mentation which could be shared for processes and their scope for engagement learning purposes. These included a lack of in them. The scenes they presented spoke time and, for some, limited self-confidence eloquently of the experiences of young in writing for an external audience. people: being treated as a ‘token’ young Prompted by these discussions, in mid- person, condescended to by adults and not 2010 Plan UK proposed to the PLA team at treated with respect; the frustration of IIED an issue focusing on the rapidly grow- being present but not being heard and ing field of youth and participatory having no real influence on decisions. It is governance. Building on previous collabo- these patterns of engagement that the ration, Plan UK also approached the contributors to this issue are working to Participation, Power and Social Change change. team at IDS. The process of developing the This issue is the result of a collaboration issue included a week-long writeshop in between Plan UK, the Institute of Develop- Nairobi, Kenya, which gave contributors ment Studies (IDS) and International the opportunity to develop and share ideas Institute for Environment and Develop- and build writing confidence (see Box 1 and ment (IIED). From 2006–2011 Plan UK later in this article for details of how the coordinated a DfID-funded youth and issue was developed). governance programme supporting proj- This overview article is written by the ects in 16 countries across Africa, Asia, two guest editors/co-facilitators of the writ- Latin America and the UK.1 During a learn- ing and publication process. From our

1 The UK Government’s Department for International Development (DfID). l Seeing like a young citizen: youth and participatory governance in Africa 23 Photo: Holly Ashley Holly Photo:

An intensive afternoon spent working on articles. From left to right: Sallieu Kamara and behind him, Abdul Swarray (Sierra Leone), Bedo Traore (Mali), translator Sophie Bide (UK) and Rosemary McGee (UK).

particular perspectives as a British IDS- spurred us to support shared learning based ‘scholar-activist’ (Rosie) and a British amongst practitioners. Our academic train- Plan UK-based programme officer ing and experience provided us with some (Jessica), we have each been engaged for tools and outlets through which our prac- some time with youth and participatory titioner peers could analyse critically and governance work, including previous work share insights from their own practice. together. Our NGO programme experience To set the scene, we begin by introduc-

Box 1: Developing this special issue of PLA A call for submissions generated 90 abstracts. Eighteen were selected, 13 as full-length articles and five as shorter, ‘tips for trainers’ articles. We took into account: • the quality, originality and transformative potential of the initiative discussed; • the sex, age and origins of the author(s) to ensure a mixture of male and female, younger and older, southern and northern perspectives; • the sectors and issues covered, to capture as far as possible a representative spread of contemporary governance and accountability work. We gave preference to practitioner contributors and to practitioner-scholar collaborative work, and encouraged some shortlisted contributors to co-author their contributions with young participants or other actors involved in the design, funding or implementation of the initiative. The selected articles describe work carried out in Mali, Senegal, Sierra Leone, Liberia, Ghana, Nigeria, Cameroon, South Africa, Lesotho, Zimbabwe, Malawi, Kenya, Somalia and Somaliland. They cover transparency, accountability and anti-corruption in service delivery; local planning and budgeting; political and social empowerment of youth and especially girls and young women; HIV/AIDS; pastoralism; and the application of participatory video and information and communication technologies (ICTs) to address governance challenges. The issue’s content was developed in three stages: • Starting in December 2010, each contributor developed an outline and two successive drafts, with support from the guest editors. • All main article contributors, guest editors and IIED PLA co-editor Holly Ashley participated in a week-long writeshop in Nairobi in March 2011, at which contributors refined their second drafts. • Contributors then finalised their articles in response to feedback from the IIED editorial board. Some details of the writeshop process are included in this overview – see particularly the section ‘Reflecting critically on our experience’. 24 64 Rosemary McGee and Jessica Greenhalf Photo: Holly Ashley Holly Photo:

A crucial early stage in the writeshop was getting to know one another and the work that participants are involved in.

ing the idea of participatory governance – Box 2: Formal and social accountability what it is and why it is needed. We then approaches explain why we have chosen to focus on youth and participatory governance in sub- Formal accountability: formal, established Saharan Africa. After this, we present a institutions e.g. electoral systems, state framework for thinking about citizen commissions, ombudsmen’s offices. In many parts of the world these institutions are under-resourced, engagement in governance, and comment suffer from poorly defined roles and weak mandates, on this from the particular perspectives of and are not accessible to those groups who need young citizens. At the writeshop, contribu- them most. tors used this framework to explore the Social accountability: ‘Social accountability can be initiatives they were writing about. Four defined as an approach towards building broad themes emerged, all familiar ones in accountability that relies on civic engagement i.e. in participatory governance and citizen which it is ordinary citizens and/or civil society organisations who participate directly or indirectly in engagement. However, here we tease out exacting accountability. Mechanisms of social their particular implications and dimen- accountability can be initiated and supported by the sions for young people’s participation in state, citizens or both, but very often they are governance. We then reflect briefly on the demand-driven and operate from the bottom-up’ process of producing this publication. We (Malena et al., 2004). Examples include participatory budgeting, monitoring electoral processes using end not with a conclusion but with an online and mobile technology and citizen evaluation opening into the substance of the special of public services. issue. fulfilment and performance of services What is participatory governance and (Gaventa and McGee, 2010). All over the why is it needed? world we are seeing experiments in ‘partic- It is increasingly evident today that states ipatory governance’. People and are not built nor run through institutions organisations are grasping the opportuni- alone. Organised citizens play vital roles by ties provided by decentralisation and other articulating concerns, mobilising pressure reform processes and demanding more of a for change and monitoring government say in public policy and budget processes. l Seeing like a young citizen: youth and participatory governance in Africa 25

Citizens have begun to demand and Box 3: Definitions of ‘youth’ enforce accountability from those in power. Definitions of who is considered a ‘youth’ in Africa As existing, formal institutions of account- vary historically and culturally, as well as from one ability often fail them, a growing range of context to another and even within contexts citizen-led mobilisation, activism and (Chigunta, 2006; United Nations, 2003). In Africa, demands, known as social accountability, some countries have adopted the United Nation’s is developing (see Box 2). These forms of definition of youth of 15 to 24 years. Others use the Commonwealth definition of 15 to 29 years. For citizen engagement and social accounta- policy purposes, the age range can be even wider. For bility are particularly promising for those many, ‘youth’ is better defined as a period of whose voices are not easily heard in formal transition from dependence (childhood) to policy and governance processes, including independence (adulthood), the nature and length of young people. which varies from one individual or society to another (Curtain, 2003). In compiling this special issue we have broadly adopted this transition model, Why focus on youth in Africa? in recognition of the varied national contexts Exciting as these new social accountability discussed in the articles. approaches are, we need to look harder at them. Experience so far suggests that some have often found their emerging interest in voices, including those of young people, electoral and party politics manipulated to often get left out, just as they do from serve the interests of (often elder) others. formal, electoral, political representation Young people consider African states to processes. We need to know more about have done little for them and to owe them why this is and how it can be overcome. much. Social accountability offers them new In sub-Saharan Africa, as in other parts openings. There is much to learn from the of the world, shortcomings in formal ways that young people are challenging accountability mechanisms have generated norms and structures that exclude them, a range of social accountability responses engaging with the state and demanding (Claasen and Alpin-Lardiés, 2010; McNeil accountability. The articles in this issue and Malena, 2010). However, there is capture some of these experiences. limited analysis of these innovations, except for the two works just cited. Hardly Understanding citizen engagement in any documentation focuses on young governance: a framework people’s perspectives and roles in relation Governance can be thought of as the to accountability. Yet, in Africa, as in many processes by which a state exercises power southern countries, youth constitute more and the nature of relations between the than half of the population (see Box 3 for state and its citizens (see Box 4 for defini- definitions of ‘youth’).2 tions of ‘citizen’, ‘citizenship’ and ‘organised Established channels of political citizens’). Visually, we can represent the accountability are not felt to be an effective connections between the state and organ- way to engage, as demonstrated by Afro- ised citizens, as in Figure 1. The figure barometer’s analysis of young people’s shows organised citizens interacting with mistrust of formal politics (Chikwanha and the state at the local and national levels. Masunungure, 2007). Young people in These interactions are affected by the Africa are more likely to belong to a youth social, cultural, economic and political organisation, school council, neighbour- context within which they take place, as hood association or social movement than well as by the history of the country to a political party or organisation. They concerned.

2 The 2007 World Development Report Development and the next generation puts figures to this ‘youth bulge’: ‘1.5 billion people are aged 12–24 worldwide, 1.3 billion of them in developing countries, the most ever in history’ (World Bank, 2007). 26 64 Rosemary McGee and Jessica Greenhalf

Box 4: Citizens, citizenship and organised citizens How to define ’citizens‘ and ’citizenship’ is the subject of much intellectual and legal debate. We define it here not in terms of voting rights, birthplace or country of residence, but as people with rights – all those covered in the Universal Declaration of Human Rights and ensuing treaties and conventions. These universal rights extend from global North to South; from local to global; from cradle to grave; from individual and private to collective, public and institutional.3 We prefer the term ’organised citizens’ to the more common ‘civil society’ since the latter, like so many development terms and concepts, has become such a buzzword that it tends to obscure understandings of this sphere rather than elucidating them (see Chandhoke, 2007).

Figure 1: Understanding governance ECONOMY HISTORY POLITY

SOCIAL SOCIO-CULTURAL CONTEXT DYNAMICS

N ns at ize io it na c L l d oc G e a o s l i G v e n o r a v n g e m r

r n e

O

n m

t

e

n t

Source: adapted from McGee et al. (2003).

Young citizens and their organisations, As advocates and practitioners of or those working with them, fall within the participation in governance, we are inter- organised citizens’ circle. They are increas- ested in the interfaces (meeting points) ingly significant as populations become between citizens and government in local younger. As we have noted, youth is a tran- and national governance processes. These sitional stage in the life-cycle. As young are represented in Figure 1 by the area people move from childhood to adulthood, where the organised citizen and govern- their places and roles undergo re-definition ment circles overlap. We are also interested and re-negotiation. This has implications in what goes on in the organised citizens’ for the ways young people’s needs and circle because activities there often help interests are represented and pursued. It people to move into, or use more effectively, also affects the opportunities they have to the interfaces they have with government. exercise citizenship and realise their rights. The context – historical, political,

3 See www.drc-citizenship.org for more discussion. l Seeing like a young citizen: youth and participatory governance in Africa 27 Photo: George Cobbinah Yorke Cobbinah George Photo:

A session exploring the nature of relationships between the state and its citizens in governance work – often messy, complicated, unpredictable and in flux. For youth and governance work, what goes on within these overlapping spheres – and how can we use these interfaces in a constructive way?

economic, societal, cultural factors and so strategies are often suggested: on (shown outside the circles in Figure 1) – • Increase citizen representation in the shapes how citizens and government inter- government arena – enhancing citizen act. For example, if civil conflict has voice and influence. occurred and relationships between • Bring more government representatives, government and citizens have broken or higher-level representatives, into contact down, the governance prospects are not with citizens, enhancing government good. On the other hand, in a situation responsiveness. where NGOs and social movements have • Focus on what actually happens at the helped to oust a military dictator and many interfaces that are created between citizens of their members have taken up roles in a and government when they interact, and new democratically elected government, work out how to support and facilitate the prospects might be much better. productive and high-quality engagement. Besides ‘external’ context, the interac- Recent research offers insights into how tions between organised citizens and we can understand and exploit the scope government are also shaped by the compo- for fostering and deepening the interfaces. sition of the different groups interacting, It shows the importance of complement- and the relationships between people ing our considerable contemporary within each group (these are the ‘social knowledge of the state and its workings, by dynamics’ referred to in Figure 1). ‘seeing like a citizen’ (our emphasis) (Eyben and Ladbury, 2006; DRCCPA, 2011) or Promoting young people’s participation taking an ‘upside-down view of governance’ in governance – seeing like a young (Centre for the Future State, 2010). citizen Seeing like a citizen helps shed light on The question that really interests advocates the obstacles, flaws, disincentives and of participatory governance is: how can complications that adults must overcome interfaces between citizens and the state be if they are to engage effectively with gover- fostered and deepened? Three types of nance processes that affect their lives. 28 64 Rosemary McGee and Jessica Greenhalf Illustrations: Regina Faul-Doyle Illustrations:

Contributors to this issue take this one step so that they can engage with the state. For further. Children and young people, despite example, confidence-building activities their demographic weight, are traditionally, carried out with specific groups of young culturally, legally and structurally margin- citizens who are marginalised and disem- alised from decision-making processes. powered, such as girls in northern Ghana Seeing like a young citizen is therefore (Akapire et al., this issue). crucial to our task as advocates of young One contributor, a local government people’s participation in governance. This officer, placed himself in the government is what we were aiming to do at the begin- circle close to the interface. He is working ning of our writeshop in Nairobi when we to increase government responsiveness to asked contributors to act out scenes of youth concerns and trying to take youth engagement in governance colleagues with him. He spoke of the lone- processes, and how young people felt about liness of championing youth engagement them. within a government where the necessary knowledge, skills, attitudes and relation- Using the governance framework ships are lacking (see Ochieng and At the writeshop we used the governance Anyango, this issue). framework shown in Figure 1 to help Many contributors placed themselves contributors analyse their work. We laid in the overlap between citizens and govern- out the two-circles governance diagram on ment. They are building or adapting the the floor using ropes, and invited contrib- spaces where young people engage with utors to position themselves according to state actors, thickening and deepening the initiative they were writing about. what goes on there. Some are even chal- Some contributors placed themselves in lenging the power relations that shape the citizens’ circle. They are working to these interactions. They talked about the construct citizenship among youth and devices and processes they are using to get enhance young citizens’ voice and influence youth voices better heard in these spaces, l Seeing like a young citizen: youth and participatory governance in Africa 29 Photo: Holly Ashley Holly Photo:

Writeshop participants during a snowball exercise to discuss the key messages and objectives for this special issue. Left to right: Fadekemi Akinfaderin-Agarau (Nigeria), Anderson Miamen (Liberia), Lipotso Musi (Lesotho), Linda Raftree (Cameroon), Edward Akapire, (Ghana) and George Cobbinah Yorke (Ghana).

including changing the nature of the spaces budgets are to be relevant to youth, they and the behaviour or range of the govern- need to be informed by their realities, ment actors in them. priorities and perspectives. However, many From this exercise and others used for initiatives designed to involve young people mutual learning at the writeshop, and from have increased young voices in governance the articles themselves, four broad themes spaces, but not young people’s influence emerged: over decision-making – so their participa- • From youth presence, voice and visibility tion may be tokenistic. The article by the to youth influence and rights young people from Louga with Fall, based • Rejuvenating spaces for engagement on Plan Senegal’s governance work, is a • Learning citizenship young refreshing antidote to this tendency. There • Power to young people we read young people’s own perceptions of We use these as our four organising their journey from being ‘little helpers’ to themes to introduce the issue’s content being partners in local development plan- here, and in the issue itself. The themes are ning. interlinked and not all the 13 main articles Voices can be carried away by the and five ‘tips for trainers’ articles fit breeze, with no one held accountable for perfectly into one or another. We have what has been demanded and promised. placed each under the heading most Images are different. Video has public related to its focus and key messages. appeal where television ownership is not widespread and it is also easily accessible From youth presence, voice and visibility online, e.g. via YouTube. It can amplify to youth influence and rights (make louder) and spread the voices of Even when approached from the least young people, as well as being an account- political, most technocratic angle, there is a ability tool. Used to make young people’s strong argument for involving young concerns visible and hold local authorities people in governance. If policies, plans and to account, it can activate and empower 30 64 Rosemary McGee and Jessica Greenhalf

marginalised youth (Miamen and Jaitner; Nomdo and Henry highlight how public Akinfaderin-Agarau and Fashola), even sector support for disability access in South to the point where they step into formal Africa accidentally trumped longstanding local political roles (Kamara and Swar- exclusion. Pastoralist communities, typi- ray). Digital and social media are new cally so little engaged in governance avenues, but are not by definition channels processes, have been afforded some visibil- of progressive social change. Spreading like ity and legitimacy in Somaliland and wildfire and appealing particularly to Puntland through the commitment of younger generations, they can end up as pastoralist youth (Kesa). The stigma and little more than gimmicks, with no impact denial of rights associated with HIV and on development or governance. Like all AIDS in Nigeria have been exposed and social change tools, they are as transfor- translated into successful advocacy initia- mative as the actors using them and the tives through youth-led university campus processes in which they are used. Raftree tours and other initiatives (Akinfaderin- and Nkie’s account of digital mapping in Agarau and Fashola). Cameroon provides a healthy corrective to For voice to turn into influence, ques- ‘silver bullet’ zeal, while also offering tioning the nature and quality of evidence of the transformative potential of ‘participation’ or ‘engagement’ is key. One such approaches. contributor (Tang) is concerned with how Social categories and norms frequently this is being assessed and by whom. Partic- stifle young people’s voices or prevent them ipation needs to be conceived of not as an from having influence. In Africa, young end in itself but as a means to further, more people are often expected to offer their concrete ends that constitute sustainable, elders unquestioning respect and defer- progressive changes. Some of the articles ence. Furthermore, ‘youth’ often means cite increased youth access to government ‘male youths’– entrenched gender inequal- structures – such as through youth parlia- ity hinders young female citizens from even ments – as a sign of success (Musi and gaining access, let alone having influence, Ntlama; Traore; Akapire et al.). Getting a in public spaces. Contributors describe foot in the door of a governance space can different approaches to countering nega- undoubtedly be a very significant achieve- tive opinions of youth (Ndebele and ment for young people in some of the Billing; Akapire et al.; Kamara and Swar- contexts we are working in. But do these ray) and to addressing the poor self-esteem advances bring influence, or realise rights? or low expectations of youth in general and Will they reshape governance spaces and girls and young women in particular. government responses to address young Mabala and Orowe tell how negative people’s concerns? For how long will they be stereotypes of Kenyan youth as originators sustained? Ochieng and Anyango’s reflec- of electoral violence were successfully chal- tions on the Jipange Youth Organisation in lenged and overturned. One article Nairobi offer room for optimism, although (Ndebele and Billing) makes the point the future is uncertain now that external that not only young Zimbabwean women support is ending. Other activities, too, seem but also young Zimbabwean men face to have sown long-term transformative barriers to participation because of their seeds. Mvurya Mgala and Shutt critically sex. examine young people’s participation via However, contributions also show that grounded power analysis. Maita age may combine with other characteris- Mwawashe (pers. comm.) describes self- tics typically associated with exclusion, critical exploration of what makes a youth such as disability or gender, to create unex- group accountable and transparent to its pected advantages and interesting hybrids. own members as well as other stakeholders. l Seeing like a young citizen: youth and participatory governance in Africa 31

Rejuvenating spaces for engagement Box 5: Types of governance spaces This takes us to a more focused discussion Closed spaces: many decision-making spaces are of the spaces in which young people’s closed. Elites (be they bureaucrats, experts or elected engagement in governance happens. Vari- representatives) make decisions and provide ous typologies of policy or governance services to ‘the people’, without the need for broader spaces are on offer (e.g. Brock et al., 2001; consultation or involvement. Many civil society Cornwall, 2004; Gaventa, 2006), focusing efforts focus on opening up such spaces through greater public involvement, transparency or on who creates the space and who can enter accountability. and act in it – see Box 5 for one example. Invited spaces: as efforts are made to widen Applying such a typology to young participation, to move from closed spaces to more people’s participation requires attention to ‘open’ ones, new spaces are created which may be what or who gave rise to the space, as referred to as ‘invited’ spaces, i.e. those into which described in Box 5. But we also need to look people (as users, citizens or beneficiaries) are invited at how the status of adults and young citi- to participate by various kinds of authorities (Cornwall, 2002). Invited spaces may be ongoing, or zen actors within it differ, as well as one-off forms of consultation. Increasingly, with the differences in status between young citi- rise of participatory approaches to governance, zens of different ages. Seeing like a young these spaces are seen at every level, from local citizen reveals that there are some gover- government, to national policy and even in global nance and accountability spaces that youth policy forums. tend to be ‘naturally’ shut out of. In others Claimed/created spaces: these are spaces claimed they have little interest in participating. by less powerful actors from power holders. They emerge out of sets of common concerns or Then there are youth spaces, where older identifications and include spaces created by social people are rare visitors, but which lack movements and community associations, as well as ‘teeth’ or influence. The question is: what spaces where people gather to debate, discuss and kind of space is most promising for young resist outside of ‘official’ spaces. people’s participation? (see McGee, forth- Whatever the terminology, what is critical is who coming). Should adult spaces be replicated, creates the space – those who create it are more as with children’s parliaments? Should likely to have power within it to make it serve their parallel spaces be created, as with school interests and to determine the terms of engagement. councils? Or should efforts be focused on Adapted from Gaventa, J. (2006) ‘Finding the spaces modifying existing spaces and state-citizen for change: a power analysis.’ IDS Bulletin 37: 6. interfaces? In many contributions to this issue, new Mali, Traore poses the dilemma of inde- structures or platforms have been estab- pendence versus integration and influence. lished: in Ghana a Young Female On the relative merits of creating parallel Parliament (YFP) (Akapire et al.); in structures or integrating youth into existing Lesotho a Shadow Children’s Parliament ones, the debate clearly rumbles on. (SCP) sitting, in Zimbabwe Youth Village What goes on outside these spaces is Assemblies (Ndebele and Billing), in Mali also important. The existence of legal and a Children’s Parliament (Traore), in policy frameworks for citizen engagement Liberia local Poverty Watch Councils and young people’s rights, for example, are (Miamen and Jaitner). Meanwhile, the useful, but are insufficient on their own, as Kenya initiative described by Ochieng and recognised and illustrated by Traore, Musi Anyango sought to strengthen existing and Ntlama, Akinfaderin-Agarau and government structures for youth. Fashola and Tang. The social, political, If a new youth structure is established, economic, cultural and historical context how is it to be linked effectively to the adult of a given country will also shape the structure? In Ghana, efforts to link the YFP strength of civil society and its relationship to district authorities have failed so far. In with the state. 32 64 Rosemary McGee and Jessica Greenhalf

If context shapes and complicates the ices. The concept and practice of trans- spaces for interaction between states and parency and freedom of information citizens, it complicates further still the present particular issues when viewed interfaces where young citizens can engage through the lens of child-friendliness. As with the state. Even where there is no some contributions here remind us, the history of civil war or youth violence, a safety and protection of young people must prevalent set of assumptions about youth be assessed when establishing and facili- as immature, unproductive and ignorant tating interfaces between children and shapes public decision-making spaces and their elders, and child protection codes constrains youth’s access to them. Where followed. government officials have direct experience We do not attempt an exhaustive explo- of working with young people, this often ration of the complexities and intricacies of seems to alter their views, making them youth-state interfaces here. However, the more open to involving young people in issue does make some contribution to decision-making spaces (Ochieng and exploring which methods of communica- Anyango; Musi and Ntlama; Akin- tion, appraisal, monitoring and research faderin-Agarau and Fashola). This is can be used by and with youth to support important because young people have less their engagement in governance processes. scope for creating or claiming spaces than Similarly, it points to ways of reaching state adults. They generally need to be invited actors disinclined to interact with young into these spaces. people. It also illustrates that self-critical The power difference between citizens attention to process and a sharp analysis of and state actors is recognised in ‘space’ power relations are vital aspects of the ‘citi- typologies (e.g. Box 5 above) and power zenship learning’ that these spaces can analysis frameworks, for example the offer. power cube discussed in Mvurya Mgala and Shutt, which analyses the levels, Learning citizenship young spaces and forms of power and their inter- The construction of citizenship is an relationships.4 But power differences important outcome of most experiences of between young people and adults also need citizen engagement, although it is often not to be considered. Youthfulness – unlike, for the main intended outcome (Gaventa and example, gender – will always shift and Barrett, 2010). Policy and governance evolve, from child to adolescent to young spaces are learning spaces. In them young adult, and this adds yet another dimension people can acquire a set of expectations to the analysis. about their right to participate and their Recent research suggests that to make power to bring about change by doing so. social accountability work better we need They can also acquire the skills and experi- to know more about what goes on at state- ence required to operate effectively in these citizen interfaces and how to foster and spaces, ensuring they are better placed to facilitate constructive interaction, to make participate as adult citizens in the future. social accountability work better (McGee Many of the experiences documented and Gaventa, 2010). The same applies to here are cases of ‘learning by doing’. Groups interactions between young citizens and of young people experiment with ways of state actors – some of them youth them- engaging in and influencing decision selves by local definitions. For instance, making, and more formal or adult-domi- young service users will have perspectives nated organisations support them and and insights on the provision of those serv- learn alongside them. While young people

4 See also Gaventa (2006) and www.powercube.net l Seeing like a young citizen: youth and participatory governance in Africa 33 often need training to engage successfully, who listens’. Listening implies not only they also need to build confidence. Success- hearing but acting on what is heard. Fox’s ful engagement can embolden them to phrase is all the more poignant if we recall engage further, as many of the articles how often efforts to promote young show. Capacity strengthening must be care- people’s participation entirely neglect the fully structured. For example, question of power, including failing to Bani-Afudego et al. refer to household ensure that anyone is listening. The results budgets to explain government budgets. of this neglect are evoked in the scenarios With these inputs, youth are capable of described at the beginning of this article. influencing what are often highly technical All contributors here agree that social processes such as local and national budg- accountability is inherently political eting (Bani-Afudego et al. in Ghana, the because it seeks to redress power imbal- young people from Louga with Fall in ances. Even making services more Senegal, Nomdo and Henry in South accessible and their providers more Africa) and government procurement (the accountable means a re-negotiation of young people from Louga with Fall; power relations, which is a political act. Ochieng and Anyango). However, the political context often poses It is not only young people who need to serious challenges for social accountability acquire new knowledge and skills. Many work. One Kenyan participant in our government officials lack the skills needed writeshop, relating this issue to recent to engage citizens in governance. They also youth participation in electoral violence in need to learn specifically how to engage his country, noted soberly, ‘Some things you young citizens and contribute to construct- just can’t control’. In the politically charged ing their citizenship. While this is not a environments in much of Africa today, specific objective of any of the initiatives youth are continually co-opted by the polit- discussed in this issue, it is documented in ically powerful. It is a constant struggle to some of the contributions (Bani-Afudego prevent governance work from becoming et al.; the young people from Louga with politicised in the party-political sense. Fall). The processes of social activism and There are ripple effects from youth citizen engagement described by our participation in governance and policy contributors seem to suffer from political processes. The changes realised through cycles, and particularly elections. The their engagement might only occur years initiatives written about by Musi and after, in a totally different institutional or Ntlama in Lesotho and by Akinfaderin- geographical setting. But, generally, Agarau and Fashola in Nigeria came changes in power relations come about under great time pressure to secure legal through these kinds of gradual changes in and policy changes before impending elec- people, in their attitudes and behaviours. tions. In other articles too, elections As children and young people are at such a actually serve as obstacles to democracy, if formative stage in their lives, there is rich democracy is understood as democratic potential for their early engagements with practices of citizenship at the local, every- governance processes to shape and ensure day level. This includes actions by young continued participation as committed and people, only some of whom are voters active adult citizens in the future. anyway. Elections in Africa often seem to cause Power – to young people? violence and distract attention from real ‘If voice is about capacity for self-represen- political struggles, yet rarely deepen tation and self-expression’, according to democracy, enhance development or Jonathan Fox (2007), ‘then power is about strengthen citizenship. We hope that this 34 64 Rosemary McGee and Jessica Greenhalf Photo: Holly Ashley Holly Photo:

Cynthia Ochola Anyango and Charlotte Bani-Afudego giving peer review feedback on each other’s articles. To us, this image captures an important element of the writeshop: here, two young women are working together to provide horizontal, non-threatening and respectful feedback on each other’s work.

negative impression might be partly racy and equitable representation: the explained by our interest in contributions poorest are harder to reach and rarely about social accountability initiatives, engaged in initiatives such as these. Social rather than initiatives that introduced accountability initiatives might make infor- young people to electoral politics. The latter mation accessible or routes to service would surely have revealed some more improvement visible. Yet for these to be positive reflections on the learning of transformative, demand – effective responsible political citizenship among demand, not just demand in principle – has youth in Africa. to exist and be exercised. That requires the As already touched on above, particu- time of the time-poor. lar power issues shape young people’s Also, power corrupts. Once elected, ability to participate in society, politics and youth leaders can forget their governance. Some articles (Ndebele and constituency. What checks and balances Billing; Mvurya Mgala and Shutt) can be put in place? How to ensure local describe approaches which help unpack to national representative structures? ‘power’. This analysis helps to re-shape and Some of the contributions grapple directly re-orient initiatives that otherwise may not with these questions, either in their challenge existing power relations. substance (Tang; Traore) or in the partic- Power dynamics operate between ipatory way they have been written (the young citizens as well as between them and young people from Louga with Fall). state actors. Youth groups and movements Other authors recognise a failure fully to are not necessarily egalitarian or demo- address or overcome power issues in the cratic, nor will democratic representation processes they are documenting (Raftree flow of its own accord. Socio-economic and Nkie; Musi and Ntlama; Ndebele differences works against internal democ- and Billing). l Seeing like a young citizen: youth and participatory governance in Africa 35 Photos: Holly Ashley Holly Photos:

Is the author’s voice always louder than the voices of the people s/he is writing about? Are we being representative and inclusive when we document issues affecting youth, whose voices are more often marginalised? The results show how complex these issues are and developed our shared critical thinking.

Reflecting critically on our experience As co-editors, we were struck by the diffi- culty of supporting contributors to reflect critically on the experiences they were writ- ing about. Since PLA gives high priority to critical reflection, we all worked hard on Participants Edwine Ochieng and Jennifer Tang this. The writeshop programme included discussing dissemination routes and audiences. Our key audiences include practitioners working with exercises such as structured reflections on youth, youth groups and communities and duty how we react to criticism and what kind of bearers such as governments and community leaders, as well as donors, international NGOs, researchers feedback, delivered in what way, we find and policy makers. most helpful. It also included one-to-one in-depth peer review of each others’ arti- given the topic of this issue, we did not even cles after several days together. We tried to think about age when matching the peer create ‘safe spaces’ for pairs of participants review pairs. It was impressed upon us working together, matching them carefully after the exercise that this meant some of in terms of their backgrounds, first the younger participants had to provide in- languages, nationalities, thematic focus of depth critique to their elders, violating their contributions and other factors. Some cultural norms. Likewise, we were brought contributors’ final evaluations of the up short by the youngest participant when writeshop highlighted a new appreciation she admitted at the end of the writeshop of critical reflection on practice as the that at one point she would have liked to single most important achievement. voice her views, but had not felt able to do We were also spurred to reflect self-crit- so. The challenge of developing and prac- ically on our own facilitation and practice tising self-critical awareness is clearly at various points. For instance, ironically continuous. 36 64 Rosemary McGee and Jessica Greenhalf

Box 6: Capturing and reflecting the perspectives of young people

Serigne Malick Fall, Senegal First of all, we visited the field to tell the young people about the writing project and to identify with them the exact experience to be reported on. Once this was done, I wrote the abstract that was submitted to the editors through the ‘call for submissions’. When our ‘paper’ was accepted, we went back to see the young people and agreed with them on how the article would be produced. Afterwards, I was able to set out 11 questions which would help the young people to write – this was the plan which was then sent to the editors. We held two writing workshops, one in each community, and filmed them. During these workshops, young people each chose the question that they wanted to respond to; worked individually to reply to their chosen question; worked in small groups, depending on the question; and reproduced, in plenary, their group work. Their writing was then aggregated into two documents by ‘youth champions’ acting on their behalf. Using these two documents as a base, I produced the first draft which was sent to the editors. The first draft was also sent to the young people, and I will gather their reactions soon after the writeshop.

Leila Billing and Talita Ndebele, Zimbabwe Parts of the article draw on the baseline and annual review, both mentioned in the article, which were both participatory processes. Before starting writing, we held a consultation with the youth groups, telling them about the topic of the article and asking what they wanted included. The young people selected some images that they wanted us to use and we made the final selection from their shortlist. We produced a first draft and had it translated into Ndebele.5 We took it to the community youth group and held a focus group discussion about it at which they gave their reactions. Now that we’ve finished an almost-final draft, we’ll have it translated again and take it to them for their sign-off.

Fadekemi Akinfaderin-Agarau and Temitope Fashola, Nigeria The writers of this article are both young people. We base this on the Nigeria national youth policy and the Africa youth charter which states that young people are people between ages 18 and 35. In addition, the Youth Advocacy Group (YAG) members also contributed to the article by reviewing the second draft prior to submission. They also provided feedback based on the comments made by the editors for the third drafts. They suggested all the quotes used in the article.

The other major challenge we faced as whom they were writing (Box 6). Enabling co-editors and contributors was how to participation and co-generation in the adequately and faithfully reflect and repre- production of knowledge and the analysis of sent youth perspectives. Having deliberately experience is time- and resource-intensive, ensured in advance that the writeshop much more so than non-participatory exer- group included some youth, we were cises or papers produced by solitary surprised to find once there that over half academics or practitioners. Yet they are those present were ‘youth’, when defined essential to our claim to represent youth and according to the loose category of under-30 participatory governance initiatives. How years old. But these ‘youthful’ contributors, worthwhile these painstaking efforts have because of their social and organisational been can only be judged later, on the basis of positions, had experiences of seeing and how widely this issue is disseminated, read, engaging like young citizens which were and its contents taken up and used. substantially more positive than those of most young people written about in their Concluding the introduction, opening articles. So the challenge remained. the issue A range of approaches were adopted by Participating in governance and policy contributors to developing and writing their processes is re-shaping the way young articles in order to capture and reflect the people perceive and exercise citizenship in perspectives of the young people about powerful ways. This includes how youth

5 Ndebele is a Nguni language of southern Africa spoken in Zimbabwe. l Seeing like a young citizen: youth and participatory governance in Africa 37 relate to other youth, and to government. perspective on young people in Africa than In the ActionAid Zimbabwe initiative, this pessimistic ‘lost generation’ discourse, youth from different political parties are we are also anxious to avoid editing out recognising common interests (Ndebele unsavoury realities. and Billing). In the Senegal case children The upside, revealed strongly in this are beginning to ‘feel like citizens’ (the collection of articles, is the vibrancy, energy, young people from Louga with Fall). persistence, passion and enthusiasm of Jipange youth in Kenya are increasingly youth. This can drive change in creative viewing government not as an oppressor and unexpected ways. It is particularly but a partner (Ochieng and Anyango). In valuable in governance work, where the Nigeria, youth have made links with their context is often rapidly evolving. Opportu- senators and demanded that they support nities can open up and/or close without the HIV/AIDS anti-stigma bill. Through warning; alert young people can be well- this, they are beginning to recognise their positioned to respond quickly and power as citizens (Akinfaderin-Agarau innovatively. This energy and passion can and Fashola). The way young people relate of course also be used for less constructive to – and are related to – by ‘their’ interna- means. At the time of writing, events in the tional and local NGOs is also changing, as Middle East are leaving no doubt that the young people become participants and gerontocracies and autocracies of the stakeholders in development processes region have for decades – even generations rather than just beneficiaries. – been ignoring and silencing youth at their A sad aspect of the writeshop was to peril.6 7 hear repeatedly from practitioners across A leading text on citizenship aims to Africa how youth (implicitly, male youth) deal with ‘the different mechanics of exclu- are seen as, and see themselves as, a ‘lost sion which consign certain groups within generation’. They appear disaffected and a society to the status of lesser citizens or bored, corruptible and corrupted, often of non-citizens, and on the struggles by drawn unwillingly into the power struggles such groups to redefine, extend and trans- of their elders. While youth are certainly ill- form “given” ideas about rights, duties and served by tokenism, these forms of citizenship’ (Kabeer, 2005). We hope this co-option are infinitely worse. They add issue will fulfil a similar purpose, focusing urgency to efforts across the continent to on young citizens in Africa and their strug- explore and support young people’s politi- gles. We hope also that participatory cal and social agency. Lack of gainful practitioners – both young and old – can employment, particularly in contexts of learn from the experiences shared here, post-conflict economic and social unrest, is and that this helps them in their own seen by many to underpin youth disaffec- efforts to ensure young people’s voices are tion and marginalisation. While we are heard and are influential in governance committed to presenting a different and policy processes across the world.

6 Gerontocracies are governments by old people. 7 An autocracy is government by one person holding all the power. 38 64 Rosemary McGee and Jessica Greenhalf

CONTACT DETAILS Rosemary McGee Participation, Power and Social Change Team Institute of Development Studies Falmer, BN12 9RE UK Email: [email protected] Website: www.ids.ac.uk; http://participationpower.wordpress.com/ about-us/

Jessica Greenhalf Country Director Restless Development Uganda Plot 6 Acacia Road PO Box 1208 Jinja Uganda Email: [email protected] Website: www.restlessdevelopment.org/uganda

NOTES Thanks to John Gaventa, Director of the Citizenship Development Research Centre, IDS, UK from 2000–2010, for allowing us to borrow and adapt the phrase ‘seeing like a young citizen’ from the DRC’s lexicon. We also thank John for his comments on a first draft of this article. During the design, planning and implementation of the PLA writeshop Jessica was a member of Plan UK’s governance team overseeing Plan UK’s DfID-funded youth and governance programme. The programme supported participatory governance initiatives involving youth in 16 countries around the world. Jessica has since moved to Jinja, Uganda to work with Restless Development Uganda, a youth-led development NGO focusing on civic participation, livelihoods, and sexual and reproductive health.

REFERENCES Brock, K., A. Cornwall and J. Gaventa (2001) ‘Power, knowledge and political spaces in the framing of poverty policy.’ IDS Working Paper 143, Brighton: IDS. Centre for the Future State (2010) An upside-down view of governance. Brighton: IDS. Chandhoke, N. (2007) ‘Civil society.’ Development in Practice 17:4/5. Chigunta, F. (2006) ‘The creation of job/work opportunities and income generating activities for youth in post-conflict countries.’ Paper presented at an expert group meeting on youth in Africa: Participation of youth as partners in peace and development in post-conflict countries, 14th–16th November 2006, Windhoek, Namibia. Online: www.un.org/esa/socdev/unyin/documents/namibia_chigunta.pdf Chikwanha, A. and E. Masunungure (2007) ‘Young and old in sub- Saharan Africa: who are the real democrats?’ Afrobarometer Working Paper 87. Online: http://tinyurl.com/afrobarometer87. Full URL: www.afrobarometer.org/index.php?option=com_docman&task= doc_download&gid=167&Itemid=39 l Seeing like a young citizen: youth and participatory governance in Africa 39

Claasen, M. and C. Alpin-Lardiés (2010) Social accountability in Africa: practitioners’ experiences and lessons. Cape Town: IDASA/ANSA Africa. Cornwall, A. (2002) 'Making spaces, changing places: situating participation in development.' IDS Working Paper 170, Brighton: IDS. Cornwall, A. (2004) ‘Introduction: new democratic spaces: the politics and dynamics of institutionalized participation.’ IDS Bulletin 35.2. Brighton: IDS. Curtain, R. (2003) ‘Youth in extreme poverty-dimensions and country responses.’ In: The world youth report 2003: the global situation of young people. Department of Economic and Social Affairs, United Nations. Online: www.un.org/esa/socdev/unyin/wyr DRCCPA (2011) ‘Blurring the boundaries: citizen action across states and societies – a summary of findings from a decade of collaborative research on citizen engagement.’ Development Research Centre on Citizenship, Participation and Accountability, IDS. Online: http://tinyurl.com/DRC-blurring. Full URL: www.drc- citizenship.org/search?utf8=%E2%9C%93&q=blurring+the+bou ndaries&submitquery= Eyben, R. and S. Ladbury (2006) Building effective states: taking a citizen’s perspective. Development Research Centre on Citizenship, Participation and Accountability, IDS. Online: http://tinyurl.com/DRC-building. Full URL: www.drc- citizenship.org/search?researcher_ids=1068434570 Fox, J. (2007) ‘Accountability politics: power and voice in rural Mexico’. Oxford: OUP. Gaventa, J. (2006) ‘Finding the spaces for change’. IDS Bulletin 37:6. Brighton: IDS. Gaventa, J. and R. McGee (2010) ‘Introduction: making change happen – citizen action and national policy reform.’ In: J. Gaventa and R. McGee (Eds) Citizen action and national policy reform: making change happen. London: Zed Books. Gaventa, J. (2010) ‘Seeing like a citizen: re-claiming citizenship in a neoliberal world.’ In: A. Fowler and C. Malunga (Eds) NGO management: the Earthscan companion. Earthscan Reader Series. London: Earthscan. Gaventa, J. and G. Barrett (2010) ‘So what difference does it make? Mapping the outcomes of citizen engagement.’ Working Paper 347. Development Research Centre on Citizenship, Participation and Accountability, IDS. Online: www.ids.ac.uk/files/dmfile/Wp347.pdf Kabeer, N. (2005) Inclusive citizenship: meanings and expressions. London: Zed Books. Malena, C. with R. Forster and J. Singh (2004) ‘Social accountability: an introduction to the concept and emerging practice.’ Social Development Paper 76. Washington, DC: World Bank. McGee, R. (forthcoming) ‘Towards a governance framework for child rights work: six propositions for reflection and discussion.’ Plan/IDS, available from Plan UK. McGee, R. and J. Gaventa (2010) ‘Review of impact and effectiveness of transparency and accountability initiatives: synthesis report.’ Brighton: IDS. Online: www.ids.ac.uk/go/idsperson/rosemary-mcgee McGee, R. with N. Bazaara, J. Gaventa, R. Nierras, M. Raj, J. Rocamora, N. Saule Jr., E. Williams and S. Zermeño (2003) ‘Legal frameworks for citizen participation: synthesis report.’ LogoLink Research Report series. Brighton: IDS. 40 64

McNeil, M. and C. Malena (2010) Demanding good governance: lessons from social accountability initiatives in Africa. Washington DC: World Bank. United Nations (2003) ‘World youth report 2003: the global situation of young people.’ New York: United Nations Department of Economic and Social Affairs. Online: http://tinyurl.com/un-youth- 2003. Full URL: www.un.org/esa/socdev/unyin/documents/covercontentsoverview. pdf World Bank (2007) World development report 2007: development and the next generation. Washington DC: World Bank. 41 PART I From youth voice to youth influence 42 64 43

Digital mapping: a silver bullet for enhancing youth participation in governance? 2

by LINDA RAFTREE and JUDITH NKIE

Introduction for youth to learn, reflect, build confidence In 2008, Plan International began work on and strengthen communication skills. The the Youth Empowerment through Tech- ‘products’ youth make are a starting point nology, Arts and Media (YETAM) for involving the broader community, local Programme in Mozambique, Kenya and councils and divisional authorities in Cameroon with funding from the Finnish dialogue and support for resolving issues Ministry of Foreign Affairs via Plan that youth identify. Piloting new informa- Finland. The authors were involved as the tion and communication technologies overall programme coordinator (Linda) (ICTs) to better understand their potential and the Cameroon coordinator (Judith).1 to engage youth in community develop- YETAM uses a participatory approach, ment and governance work is a creating an environment where youth, cross-cutting theme in the initiative. aged 12–21, can take centre stage in identi- Several ICT tools are used in YETAM, fying resources, raising issues that affect including Flip video cameras, mobile them, suggesting solutions and acting on phones for video and photography, the them. They use new technology, arts and Internet, social media and digital mapping. media as tools to gather information about their key themes. Creating arts and media ICTs for digital mapping in YETAM (videos, paintings, songs, cartoons, photo- This article is a reflection on the usefulness graphs and maps) serves as an opportunity of digital mapping in particular for engag-

1 The authors of the article support the implementation of YETAM at the national and international level. Judith Nkie is the YETAM national programme coordinator in Cameroon. She works with local partners, youth and communities, accompanying and guiding the work in the project’s three council areas. Linda Raftree is the overall programme coordinator for the three-country initiative and serves as Plan’s advisor for ICT4D (information and communications technology for development). She works to support innovations and share good practices around the use of appropriate ICTs in Plan’s programme work. 44 64 Linda Raftree and Judith Nkie Photo: Judith Nkie Judith Photo:

Youth and staff in Bamessing, Cameroon using a Garmin GPS unit to create a digital map of their community.

ing youth in governance work in Despite the enactment and promulga- Cameroon. It is not intended as a detailed tion of a youth development policy and the step-by-step description of the mapping institution of youth municipal councils, methodology or other participatory youth participation in decision-making in processes used in the project.2 3 Rather, it Cameroon is still weak, especially amongst pulls together thoughts on the usefulness the rural population. Most adults do not of digital mapping, initial concerns about appreciate young people’s views. In the the technology, incorporating digital areas where Plan works in Cameroon, mapping into the broader project, digital youth have restricted access to both formal mapping’s influence on local governance – and informal channels for participation. and enabling factors that help make digital Initially, we struggled to engage youth in mapping effective in youth and participa- community development processes tory governance work. because the youth had no interest in the adults’ agendas and meetings, and were not Youth and participation in Cameroon generally asked for views or allowed to Youth make up over 60% of the total popu- voice opinions. lation in Cameroon. Between 2005 and With the YETAM project, we have seen 2007, youth unemployment increased youth’s capacities and confidence grow. from 76% to 82%, with most unemployed They have become more aware of their youth living in rural areas. In July 2004, a rights and how to claim them from duty decentralisation policy gave municipal bearers. They develop a high level of inter- councils the mandate and responsibility for est in using arts, media and new local development and service delivery in technology for local development planning the council areas. Municipal mayors, and to demand and secure their rights however, often do not have enough infor- from the State. Within the framework of mation to make good decisions on resource the project, local governments are consid- allocation and service delivery to ensure ering youth as part of civil society and as balanced and sustainable development. reliable development partners. Youth now

2 For detailed information on the digital mapping process, see Kunbega (2011). 3 For information on the other participatory tools and overall methodology used in the YETAM project, see Raftree (2010). l Digital mapping: a silver bullet for enhancing youth participation in governance? 45 participate in the decision-making process, in online maps in great detail. Most rural budget allocations and development activ- communities in African countries, however, ities and are creating accountability are simple dots on a map in the middle of a mechanisms with their local traditional blank screen, with no information or detail. councils and the municipal councils of Digital maps from rural communities could Ndop, Okola and Pitoa. Community lead- contribute to the growing body of global ers, district and national level authorities geographical information. and Plan are more aware of issues that the Digital mapping can offer youth a tool participating young people are most to collect and process information, and to concerned about. advocate for their concerns with their local governments. It can provide youth with a Why digital mapping? means to: For centuries, maps of Africa have been • research, analyse and own their commu- made by outsiders to stake claims and terri- nity information; tories. As the Internet becomes a primary • map their communities in ways that make source of information, we see a similar digi- the most sense to them; tal scramble for Africa. Corporations • decide what deserves to be mapped and compete to market their products and serv- what doesn’t and what should remain ices to the ‘base of the pyramid.’4 Large unmapped; and technology companies and donors want to • engage communities and authorities in be the ones to stamp their logos on digital discussions around resources and risks. maps, mapping software and mapping plat- Digital maps reach far beyond the forms in Africa, a continent that is still yet community. They help make those who are to be fully mapped digitally. One could argue often excluded visible to the broader world that a community has a right to be included via the growing online population. There is ‘on the map’ and a right to map itself, in the a wealth of information that exists offline same way that youth and communities have – consider all the hand drawn maps that the right to tell their own stories in their own exist in communities worldwide – which voices, rather than having an external, often could be of great interest to the wider foreign or urban outsider, telling a story world if digitally shareable. Digital maps about them and owning the rights to it after- could support work in disaster and risk wards.5 A community has the right to decide reduction, crisis and conflict management what it wants to map. Open digital mapping and help achieve more equitable resource can offer a new kind of voice and ownership allocation and support from governments to traditionally excluded groups. and external agencies. Digitising hand Hand drawn community mapping has drawn community maps could make them a long history in the field of participatory easier to update on a regular basis and development as a way to gather the commu- allow local maps to be joined up online to nity to discuss priorities, enhance create a clearer picture of the world. ownership and plan actions.6 Digital maps Coupling geographical information with can complement hand drawn maps and are data offers a more objective way of look- easily shared at wider levels. Small rural ing at population and resources. Youth and communities in the US and Europe appear communities can use that information to,

4 According to Wikipedia, ‘in economics, the bottom of the pyramid is the largest, but poorest socio-economic group. In global terms, this is the 2.5 billion people who live on less than $2.50 per day. The phrase “bottom of the pyramid” is used in particular by people developing new models of doing business that deliberately target that demographic, often using new technology. This field is also often referred to as the “base of the pyramid” or just the “BoP”.’ 5 Also see Rambaldi et al. (2006). 6 Also see Mascarenhas and Prem Kumar (1991). 46 64 Linda Raftree and Judith Nkie

Above: Ndop after mapping (Source: OpenStreetMap.org). Right: Ndop before mapping (Source: Google Maps).

for example, challenge a politician’s polit- ically motivated intention to build infrastructure in one area versus another.

Proceeding with caution It’s easy, however, to get caught up and excited about innovations, to think that ing for the youth, but without real impact technology is a silver bullet that will magi- in the end? cally resolve things.7 There is a risk that we lose sight of the bigger goals – youth Information engagement and improved governance. So Is this information already accessible we needed to consider a few things before through existing channels? Is availability proceeding. of information the issue or is it something completely different? Will information in Purpose and motivation this format be useful for the youth and Do we have a clear enough purpose for communities? Is it different or better than making a digital map? Will this just be an information they’ve had access to before? interesting exercise for our organisation and for people interested in innovations Mandate and ICT4D? Will the maps end up being Whose mandate it is to collect this kind of something potentially fun, novel and excit- information? Why should communities,

7 For a discussion of some of the questions revolving around participatory digital mapping versus hand drawn mapping, see ‘Is this map better than that map?’ Linda Raftree (2009). l Digital mapping: a silver bullet for enhancing youth participation in governance? 47

NGOs, technology volunteers or specialists Box 1: What is OpenStreetMap? collect it? Are we replacing government OpenStreetMap is a free editable map of the functions? whole world. It is made by people like you. OpenStreetMap allows you to view, edit and use Access geographical data in a collaborative way from Will digital mapping be useful in commu- anywhere on Earth. nities without regular Internet access? How There are no restrictions on who can use the data. Individuals, clubs, societies, charities, will we ensure that the information is acces- academe, government, commercial companies. sible to communities for decision-making? When we say everyone, we mean everyone. There are no restrictions on where you can use Sustainability the data. Privately or publicly. Commercially or Will it be a one-off exercise? Will youth be non-commercially. Paper maps, electronic maps, books, newspapers, TV, gazeteers, search systems, able to build necessary skills to create maps routing, games... or indeed anything you can think and keep them updated? What type of of that will surprise us. support will they need in the long term? Source: www.openstreetmap.org Risks Will there be questions and concerns about Box 2: How does a global positioning system (GPS) work? why the youth are engaging in digital mapping? Will political leaders welcome A GPS unit allows a person to geographically track the youth’s possession of this information their movements. A person carrying a GPS unit and walking the border of a community would be able or could it be threatening to them? Will we to ‘trace’ an outline of the community. The person raise any expectations that cannot be could also trace roads and mark other types of fulfilled later? Who are we excluding from features of the community using the GPS unit. the process? These are called ‘tracks’. This information is used to create a base map including village boundaries, roads and footpaths, rivers and streams etc. Doing our research In addition, ‘waypoints’ are collected, In order to think things through, we read meaning that a person stops at a particular lots of blogs and discussed with other location and presses a button on the GPS unit to groups and individuals to see what they mark the exact location: e.g. a school, mosque, had accomplished.8 We learnt more about hospital, well, or other important feature. All these ‘traces’ and ‘waypoints’ are stored on the GPS in possible tools and methods. We liked the the same way that photos are stored on a digital principles behind Open Street Map (see camera, and then, like one does with the photos Box 1) – free, open source tools and a global on a digital camera, they are downloaded onto a map platform that anyone can contribute computer for further processing. to, that is not ‘owned’ by anyone, which Additional data (e.g. number of boys and girls at a school) can be collected and attached to could give communities power to put their waypoints, and thereby ‘geo-located’. own information out to the world.9

8 We acknowledge Anthony Njoroge, Sammy Musyoki and Salim Mvurya from Plan Kenya; Pedro Miambo from Plan Mozambique; Mikel Maron, Erica Hagen, Jamie Lundine and Primoz Kocovic from Map Kibera and Ground Truth Initiative; youth and community councils from Ndop, Pitoa and Okola; PAVIS (Partner Vision), IRONDEL and STA (Solutions Technologiques Alternatives), our partners in Cameroon; Jeff Warren from Grass Roots Mapping and Leo Burd at MIT’s Department of Play; Erik Hersman, Juliana Rotich and Patrick Meier at Ushahidi; Ken Banks and Laura Hudson Walker at FrontlineSMS and Josh Nesbit at Medic Mobile; and Ernest Kunbega for helping us to think through the idea of mapping. For more information and discussion on digital mapping, see the resources at the end of this article. 9 Open source software (OSS) can be defined as computer software for which the source code is made available under a copyright license (or arrangement such as the public domain) that meets the Open Source Definition. This permits users to use, change and improve the software and to redistribute it in modified or unmodified form. It is very often developed in a public, collaborative manner. OSS are typically free-to-use. Often, open source is an expression where it simply means that a system is available to all who wish to work on it. Source: Wikipedia. 48 64 Linda Raftree and Judith Nkie

Above: Pitoa area and the local chefferies (local chief’s palaces) mapped by youth. Source: OpenStreetMap.org. Below right: Pitoa before mapping. Source: Google Maps. Right: Pitoa after mapping by local youth. Source: OpenStreetMap.org.

After a long thought process about the pros and cons of digital mapping in the context where we are working, we decided to pilot OpenStreetMap to see if it was a useful tool in the broader toolkit of partic- ipatory methodologies with youth.

Incorporating mapping We purchased some GPS (global position- ing system) units and hired Ernest Kunbega, a local expert on geographical information systems (GIS), to do three four-day theory and practice workshops with youth, partners and the communities to produce digital maps for Ndop, Okola and Pitoa in Cameroon. These two themes had emerged strongly During the theory sessions, the groups from youth in the three participating coun- discussed what information would be tries over the past two years during useful for mapping their key concerns: different prioritisation exercises, and were violence and gender-based discrimination. the primary topics the YETAM programme l Digital mapping: a silver bullet for enhancing youth participation in governance? 49 Photo: Judith Nkie Judith Photo:

During training in Okola, Cameroon, youth learn how to use GPS units to trace roads and boundaries and pinpoint structures such as schools and wells to create a community base map with geographical features.

aimed to address. After learning more youth information. Based on the hand about what mapping could do, the youth drawn maps from earlier in the process, the also decided to collect information around youth created a work plan and divided the existing resources so that they could bring work. Each group had a codification sheet the maps to the local service providers, and waypoint form indicating the infor- municipal councils and traditional author- mation they would collect. The data ities and discuss allocation of resources. collection was done by the youth under They created a worksheet outlining all supervision of Plan staff, a consultant and the information they wished to collect, such partner for one week covering all the as primary and secondary schools enrol- communities of the council area. Only 10 ment, number of boys and girls at school, GPS units were available so just 20 youth number of school benches, teachers, per council area were able to collect field student/bench ratio, student/teacher ratio, data. The youth were shared in five groups grades, health facilities, number of doctors of four with two GPS units each. The youth and nurses available, beds, malaria and tracked roads and categorised them, HIV rates, facilities such as pharmacies, collected waypoints of socio-economic number of consultations at health centres infrastructure and built a database using per month and local recreational facilities. the information. An authorisation letter was obtained After all the information was collected, from the divisional officer for youth to the youth worked in small groups with the collect waypoints and tracks. This allowed consultant to download their information the youth to explain to the officer what they onto computers using Garmin Map Source were doing and gave them a letter to show (an application that makes the GPS infor- anyone who mistrusted their motives or mation usable on the computer) and to those who requested a bribe to give the upload it onto the OpenStreetMap website. 50 64 Linda Raftree and Judith Nkie Photo: Judith Nkie Judith Photo:

Okola youth using a codification sheet and waypoint form to record geographical information. Additional data can also be collected and attached to these ‘waypoints’ and thereby ‘geo-located’.

Once the maps were completed and The digital maps produced clearly show the available online with their associated data- social amenities and socio-economic infra- base, the youth of Ndop and Pitoa structure (schools, hospitals, water points, presented them to councillors and local administrative buildings) that are found in leaders, who were amazed at the informa- the respective council areas and communi- tion. Councillors acknowledged a bias – ties. They have generated useful that they have been allocating resources to socio-economic data that the council can more accessible communities and where use in strategic planning. In the course of there are influential leaders. producing the digital maps, youth are As a result of the exchange with deci- exposed to the realities of their council sion makers, youth were invited to the areas and build relationships with local annual budgetary sessions at the develop- council members who have begun to see ment union level, where stakeholders youth as having worthwhile ideas, skills deliberate projects and vote on budgets. and opinions. The councils also invited the youth to join The mayors of municipal councils like discussions on the overall council budget. the idea of making the maps and visualis- Two of the youth community action proj- ing resource allocation. It is their mandate ects were funded, along with a large water to collect data and produce monographic project for which the youth had advocated. studies of their respective council areas, yet in the past they have not done this digitally. Did digital maps influence decisions of They feel the absence of updated informa- community authorities, councils and tion (specifically ‘digital maps’) affects their local government? planning and allocation of resources, l Digital mapping: a silver bullet for enhancing youth participation in governance? 51

The youth collected waypoints which are geographically linked to corresponding data. Here the information shown on the left-hand side is about the government school in Bameli. Source: Open Street Map. resulting in some communities having little ment and youth themselves to analyse or no social amenities whereas others are issues with regards to children’s and overdeveloped. The community council youth’s rights. Youth feel that the digital and local governments are now working maps help to connect the community with closely with the youth during the planning the rest of the world in a modern and ‘civi- process and budgetary sessions to priori- lized’ way. They feel that hand drawn tise children’s and youth’s rights. They now maps are indeed important, but have allocate projects and resources to particu- several limitations – they do not provide lar communities based on the information facts and figures attached to geography – analysed from the digital maps to ensure to ‘place’ – that the youth can use during balance and sustainable development. The the planning process. Information on councils are ready to support the youth hand drawn maps cannot be updated, financially to use their expertise to continue meaning new maps have to be drawn to updating the information on the digital show changes in the community. maps. Community councils and local govern- If digital mapping is to be effective… ments are also using the digital maps to Digital mapping cannot be seen as a stand- share information about their area with alone activity. It sits within a broader other leaders, stakeholders and interna- methodology of youth involvement and tional bodies via the web. The database engagement with community adults and presented on the digital maps by the local leaders. Simply having a map does not youth has facts and figures which are used accomplish anything on its own. To help by the community council, local govern- build support for the map at local and 52 64 Linda Raftree and Judith Nkie

municipal level, there needs to be an ongo- education levels have a harder time ing process of dialogue and relationship mapping. The 10 out-of-school youth who building, and youth need time to build their participated felt their role was limited due own skills in various areas. Youth need to be to their education level (however six of present as representatives and their voices them were motivated to enrol in school heard in all the forums of community coun- again to catch up with their peers). cils and local government for dialogue and to Programme coordinators need to insist pass on their message. Youth also need to be that equipment is shared equally among given the chance to take leadership positions the group, who are mixed in age and or frontline roles in activities which concern gender. Over time, as girls and younger children and youth. youth have become more adept and The results so far achieved can be secure, they have started to demand to use related back to the digital mapping exer- the equipment. Language and literacy can cise. But they also have much to do with also be limiting factors as the software is the solid foundation of relationships that only available in main languages like were built during the first phase of the proj- English, French and Portuguese. In addi- ect and the work with the other tion, mapping requires a certain amount participatory elements of the programme, of conceptual spatial thinking and some including: children, youth and less educated adults • hand drawn mapping; can be left behind in the process. • prioritisation exercises; We also need to ensure that the infor- • youth-led research through community mation collected gets back to those who interviews and participatory video; and provided it, especially the remote commu- • community engagement through nities that have already been left out by the schools and local traditional councils. councils. This means that mechanisms to The youth and community councils share it in easily understandable formats worked side-by-side on the other need to be identified. Sustainability also programme activities, even before the needs to be considered so that maps digital mapping exercise began. Adults remain updated and so that the promises were well aware of why the youth were of the authorities are followed up on and making the maps and supported the they are held accountable for them. youths’ involvement. If Plan continues with mapping, we What’s next? need to consider several aspects. Although We will work to add another mapping half the youth say they feel confident using software to the process so that the infor- digital maps, the other half report having mation gathered can be better visualised only theoretical ideas on digital mapping on the maps that the youth created. We because they have not been exposed to will also work with the youth on using facilities (computers and the Internet) that digital maps to track and report cases of would enable them to use digital maps. violence against children and gender- Having too few computers and GPS units based discrimination – and to use the and irregular and slow Internet connec- maps to advocate for responses to these tions make it difficult for youth to visualise problems. We also plan to work toward the digital maps and extract the necessary overcoming some of the challenges information needed. The youth have said mentioned above to ensure that the maps that they do not have adequate knowledge are continually updated, useful and to keep the information updated on the accessible to the youth and communities maps without outside support. and so that decision makers are held In addition, students with lower accountable for keeping their promises. l Digital mapping: a silver bullet for enhancing youth participation in governance? 53

Once we feel certain that the method- the longer-term engagement of the youth ology is useful, we hope it can be in the process. Follow-up by youth, staff integrated into our working methodology and partners needs to continue to hold with youth and communities across all the governments accountable for the initial areas where we work and into Plan’s actions and decisions they have made. global community development planning The advent of the Internet coupled methodologies. Although the youth in with the ubiquity of mobile phones and school find this technology very exciting other lower-cost technologies has created and innovative, the community compo- the idea in the minds of some that if only nent of the YETAM methodology needs people at the ‘base of the pyramid’ had to be boosted to give more opportunity to access to a technological solution, devel- non-schooling youth to contribute, and opment would magically happen. There is ways of involving remote communities the notion that people just need a mobile need to be found. phone and they will access the market. Youth just need a computer centre and Conclusions they will be able to find jobs. Children just Digital mapping was an exciting element need a laptop and learning will take place. for youth, communities, staff and local As attractive as these ideas are, they are governments. The tool attracted attention generally false. Underneath successful and interest, and served to gather and information and communication technol- provide detailed information on develop- ogy for development initiatives are other, ment indicators in a new format, which deeper core processes such as behaviour brought positive initial results and change, community engagement, skills outcomes. However, the success of digital training and community organising. It is mapping as a tool was closely tied to the easy to get swept away with exciting new other elements in the programme: skill tools and technologies rather than step- building, effective communication, ping back to see what is actually to be community organising, trust-building accomplished and considering all the among youth and decision makers and possible ways of doing it. A multitude of using participatory methods to rank and tools, methodologies and ‘solutions’ can prioritise issues of importance to youth. be used to achieve a goal, but the critical Digital mapping would not have come thing is to find the right combination of far without these other programme tools and solutions for the complex elements. Continued success will rest on contexts in which we work.

CONTACT DETAILS Linda Raftree Social Media and New Technology Advisor Plan West Africa Regional Office (WARO) and Senior Advisor, ICT4D, Plan USA 155 Plan Way Warwick, RI 02886-1099 USA Email: [email protected] Website: www.plan-international.org Skype: lindaraftree Twitter: @meowtree Blog: http://lindaraftree.wordpress.com 54 64 Linda Raftree and Judith Nkie

Judith Nkie YETAM National Coordinator Plan Cameroon Opposite German Embassy, Bastos PO Box 25236 Messa Yaounde Cameroon Fax: +237 22 21 54 57 Tel: +237 22 21 54 58 Email: [email protected] Skype: nkie.judith Website: www.plan-international.org

REFERENCES Kunbega, E. (2011) ‘Digital mapping, information and local development in Cameroon.’ Guest article on Linda Raftree’s ‘Wait… what?’ blog, 6th June 2011. Online: http://tinyurl.com/lindaraftree-060611. Full URL: http://lindaraftree.wordpress.com/2011/06/06/digital-mapping- information-and-local-development-in-cameroon/ Raftree, L. (2010) ‘A catalyst for positive change.’ Article on Linda Raftree’s ‘Wait… what?’ blog, 16th July 2010. Online: http://tinyurl.com/lindaraftree-160710. Full URL: http://lindaraftree.wordpress.com/2010/07/16/a-catalyst-for- positive-change Raftree, L. (2009) ‘Is this map better than that map?’ Article on Linda Raftree’s ‘Wait… what?’ blog, 16th December 2009. Online: http://tinyurl.com/lindaraftree-161209. Full URL: http://lindaraftree.wordpress.com/2009/12/16/is-this-map-better- than-that-map Rambaldi, G., R. Chambers, M.K. McCall and J. Fox (2006) ‘Practical ethics for PGIS practitioners, facilitators, technology intermediaries and researchers.’ In (eds) Corbett, J., G. Rambaldi, P.K. Kyem, D. Weiner, R. Olson, J. Muchemi, M.K McCall, and R. Chambers (2006) Participatory Learning and Action 54 Mapping for Change: practice, technologies and communications. IIED: London and CTA: Wageningen. Online: http://pubs.iied.org/G02957.html Mascarenhas, J. and P.D. Prem Kumar (1991) ‘Participatory mapping and modelling: user's notes.’ RRA Notes 12. Online: http://pubs.iied.org/G01393.html

RELATED ONLINE RESOURCES www.voiceofkibera.org www.ushahidi.com www.openstreetmap.org www.groundtruthinitiative.org www.grassrootsmapping.org http://civic.mit.edu/projects/c4fcm/department-of-play www.crisismappers.net www.frontlinesms.com 55

Kenema youth change lives and perceptions with participatory video in Sierra Leone 3

by SALLIEU KAMARA and ABDUL SWARRAY

Introduction Imagine a group of illiterate youth in the remote town of Boajibu in Kenema, east- ern Sierra Leone, standing on the banks of the Sewa River holding a sophisticated digital video camera, doing a number of shots. In another part of the district, some youth are conducting interviews with Western market women, health workers, local coun- Area Urban cil officials and chiefdom authorities on camera. Later they will all meet to carefully select and edit the footage to produce a video telling their own stories about some of the many problems that make life partic- ularly hard for them. The shaded areas show the districts of the country in which NMJD is working. This article describes how the Network Movement for Justice and Development Background (NMJD) and the Kenema District Youth Despite making up 55% of the country’s Coalition (KYDC) are using participatory almost six million people, the youth of Sierra video (PV) as an advocacy tool and to Leone are the most neglected and socially- engage in dialogue with local government, excluded (Dizo-Conteh, 2009).1 The helping to build the youth's capacity to political cliché that youth are the leaders of engage in governance processes. tomorrow holds little meaning for them.

1 Sierra Leone’s national youth policy describes youth as young people between the ages of 18 and 35 years. 56 64 Sallieu Kamara and Abdul Swarray

Box 1: What is PV? Participatory video is a set of techniques to involve a group or community in shaping and creating their own film. It is a great way of bringing people together to explore issues, voice concerns or simply be creative and tell stories. This process can be empowering, enabling a group or community to act to solve their own problems and also to communicate their needs and ideas… As such, PV can be a highly

Photo: Boajibu PV video screenshot Photo: effective tool to engage and mobilise marginalised people and to help them implement their own forms of sustainable development based on local needs.

Children wait to cross the Sewa river on a dugout Source: Insights into participatory video: a handbook canoe beside the broken ferry in Boajibu. for the field (Lunch and Lunch, 2006).

Several factors have contributed to this: their young colleagues, elders and policy poor budgeting and planning, a weak makers. They want to tell them that if economic base, pervasive poverty, corrup- provided with skills and training they can tion and a lack of good governance. These contribute to the development of their are issues affecting everyone, but youth communities and demonstrate their capa- have been affected disproportionately. bilities and leadership qualities. They want Moreover, youth lack the capacity to society to see them from that perspective. mobilise and organise themselves into strong groups that can hold duty bearers Perceptions of youth in Sierra Leone accountable.2 During the 11-year civil war, the youth were In 2007 in Boajibu and Kenema, the both victims and perpetrators. Some young youth needed this kind of engagement.3 men were conscripted against their will. The ferry that links Boajibu to Gendema Others saw in the war an opportunity to had broken down, with a lot of hardship as register, in the most violent manner, their a result. Children paid two thousand accumulated disillusionment with society. Leones (about US 50 cents) daily to get to Young girls have been equally socially school on dug-out canoes.4 The price of excluded. Many were forcefully food had also risen because farmers could conscripted, sexually abused, or forced into not get to local markets. And in Kenema, prostitution. piles of unattended rubbish were an Sierra Leonean society has come to eyesore and a serious health hazard. The associate youth with violence. And as the Kenema City Council whose responsibility saying goes, give a dog a bad name to kill it. it is to keep the city clean paid little atten- In political terms ‘youth’ is often under- tion to this unsightly situation. stood as young, ‘idle’ men or ‘the lost It is because of problems like this that generation’, referring predominantly to the youth are concerned. Their stories are men who are excluded, unable to provide rarely reported in the mainstream media. for a family and/or perceived as a potential They are desperate to tell their stories to security threat.5

2 For a definition of duty bearers, see the glossary, this issue. 3 Boajibu is the headquarters of Simbaru chiefdom in Kenema district. It was once a thriving diamond mining community, but comprehensively destroyed, looted and abandoned during the war. The youth of Boajibu are members of the Kenema District Youth Coalition. 4 Per capita income in Sierra Leone is less than US $1 a day. 5 Statement made by the Deputy Minister of Education, Science and Technology, Youth and Sports, Dr Algassimu Jah, at the commissioning of the youth centre in Kenema in July 2010. l Kenema youth change lives and perceptions with participatory video in Sierra Leone 57 Photo: Boajibu PV video screenshot Photo:

Video screenshots of youth and community members creating their video storyboard in Boajibu.

Changing these perceptions about Box 2: Who is NMJD? youth and helping them to realise their The Network Movement for Justice and potential is no small challenge. But it is one Development (NMJD) is a national civil society that the youth of Kenema and Boajibu are organisation. It was established in 1988 in now addressing using PV. This is truly Kenema, eastern Sierra Leone. It works towards revolutionary in Sierra Leone in the sense building a just and self-reliant Sierra Leone, that youth – as well as those of the commu- helping to equip the marginalised and exploited with the necessary skills and knowledge to take nities they are filming with – can now control of their own lives. communicate their ideas, concerns and NMJD works in four programming areas: aspirations directly with duty bearers. governance and accountability, peace and security, mining and extractives and youth NMJD and CAFOD UK empowerment. Youth empowerment started in 1999 against the background of youth’s lack of The Network Movement for Justice and access to employment, education, training Development (NMJD)’s PV project was opportunities and a voice in decision-making launched in November 2007. Funded by processes.8 Cafod, the project aimed to enhance the skills of youth in the east and southern NMJD and Insightshare developed a regions of Sierra Leone and to use PV to two-year strategic plan and a proposal. The engage with duty bearers.6 NMJD invited goal was to: the Kenema District Youth Coalition to work • improve the quality of PV and make it a on the project with them. They had been more valid advocacy tool for the commu- working with the coalition on youth empow- nity as a whole; erment for many years, and saw PV as • encourage broad participation, local another opportunity to continue this part- ownership and empowerment; and nership. Together with Cafod UK, NMJD • enhance the effectiveness of communica- contracted Insightshare to work with NMJD tion with the community at every level staff and youth groups on the PV youth from planning to implementation, advo- empowerment project (see Box 2).7 cacy to organisational development.

6 Cafod is the official Catholic aid agency for England and Wales. It works with partners in more than 40 countries across the world to end poverty and injustice. Cafod’s office in Sierra Leone has funded the PV project since 2007. Cafod also appointed its advocacy capacity support officer as the PV focal person. 7 Insightshare is a UK/France-based company that focuses on developing PV methodology. 8 See: www.nmjd.org 58 64 Sallieu Kamara and Abdul Swarray Photo: Insightshare Photo: Photo: Foya PV film screenshot Foya Photo:

Residents in Foya are advocating for the construction of Young participants in Foya Village, Sierra Leone, a new bridge. Community members use a problem tree during a PV training facilitated by Insightshare in to analyse problems caused by the dangerous bridge. November 2007.

Box 3: Kenema District Youth Coalition during the previous stages, as well as their time availability, interest, commitment and The Kenema District Youth Coalition (KDYC) has a membership of 60 groups across the district with a recommendations from the heads of the membership ranging between 20–45 members per groups they were representing. group. Eight are predominantly female groups. The 15 youth participated in the PV Some members of the coalition are ex-combatants training in Kenema in December 2007. that fought with various factions during the war. The initial reaction of youth to PV was awe The executive committee of the coalition comprises 25 members: 10 are females, 15 are males. and disbelief. They had believed that uned- Kenema is the operational headquarters of the ucated people like them could never use a coalition. video camera and produce a film. But all were curious to learn and to be the first to Training of trainers produce their own films. They were trained Insightshare flew to Sierra Leone to meet in community-level facilitation, the use of with NMJD, Cafod, KDYC and other local video equipment and other participatory communities in Kono and Bo districts. At tools. The training was divided into two these meetings they identified youth for the phases of seven days each. Insightshare training of trainers. Selecting participants further trained five youth in basic video for the training of trainers was done in editing for five days. three phases. The first involved identifying At the end of the first training, the organisations and groups to invite to trainees divided into three teams to visit participate. We then distributed question- communities in NMJD’s operational naires to youth who wished to participate districts. The purpose was to assess the in the training. Next we invited everyone level of knowledge, skills and confidence to an orientation meeting organised by that the trainees had acquired in facilitat- NMJD and Insightshare. This was to intro- ing PV, and introduce PV to those duce the purpose of the PV project and to communities. Each team was accompanied allow NMJD trainers and Insightshare to by one of the international trainers Paul get to know those they would be working Higgith (Cafod) and Nick and Chris Lunch with directly in the first phase of the proj- (Insightshare). They coached and ect. mentored the process and helped to edit The number of youth we could train the initial films with the youth groups. The was limited by the available trainers and youths then trained other youth and video equipment. The final selection of 15 community members in Boajibu, Koidu, youth was based on information generated Foya and Kenema in the use of PV. l Kenema youth change lives and perceptions with participatory video in Sierra Leone 59 Photos: Kono PV film screenshots Kono Photos:

Residents of Kono making a PV film about the negative impacts of mining on their community.

Working with the communities Box 4: Participatory video editing It was important to create good relation- ships with local communities first. To Editing PV is an ongoing process. It starts from the moment the first shot is taken. Each filming is ensure this, the groups paid courtesy calls followed by a playback session, in which everyone to the community leaders and explained watches and discusses the footage. The playback the concept of PV and their mission to sessions are also used to review filming plans, them. This helped them to better under- draw lessons and further plan. stand and support the PV project and was In our case, this back and forth continued until everyone was satisfied that the right shots had critical to its success. been taken and the message fully captured. Having On the third day of the training in taken the shots and conducted the interviews, the Boajibu and Kenema, it was the youths’ youth trained in video editing then worked with turn to tell their own stories using the skills NMJD’s information, communication and they had acquired. In Boajibu, the village technology (ICT) officer to do the final editing. This helped to ensure the film was produced within an town crier went around the village inviting appreciable time frame. Where necessary, people to go to the barray in the morning translations and sub-titles were also added. after prayers.9 The youth from the first training facili- They assigned roles and responsibilities tated the process of identifying problems such as who would narrate, who would do facing the community – lack of decent the filming and in what location. The story- school facilities, domestic violence, poor board also served as a checklist when roads, housing and poverty. Using simple groups then went to the field to take shots. ranking and consensus, the community After each filming session, they converged, prioritised its poor road network and hous- mostly in the evening, to watch the footage ing as issues they wanted to make a film and ensure that it represented the general about – and have the relevant authorities consensus (see Box 4). address. Once the problems were prioritised, the Telling their stories youth began working with the community It was now time to tell their stories. The to develop the video storyboard. The Boajibu and Kenema youth wanted some- groups in Koidu, Kenema and Foya one to listen and take action. Their stories followed the same processes. This involved were about desperate situations. So they the full participation of the community. wanted to show the films to the authori-

9 Barrays are places where community meetings and other events are held. They are also used for local court sittings. 60 64 Sallieu Kamara and Abdul Swarray Photo: Insightshare Photo:

Community screening of PV in the paramount chief’s compound in Boajibu, Sierra Leone, in November 2007.

ties concerned. They wanted to show the film about the ferry to the Sierra Leone Roads Authority (SLRA).10 The other, about the rubbish situation, they wanted to show to the mayor of Kenema city and his councillors. But would these authori- ties be persuaded to attend a screening? In Boajibu the youth first met with the

paramount chief to discuss their PV work NMJD Shirley Sia Simbo, Photo: and gained her support and approval.11 Hundreds of residents and chiefs were then Rubbish collection site at Fornikoh in Kenema, Sierra invited to watch the public screening at her Leone, constructed by the Kenema City Council. home. Gaining the chief’s support was In Kenema, the youth first met with the crucial. ‘I believe there are people out there mayor and some councillors to assure them who are willing to help, but they have never of their genuine desire to work with the heard about a place called Boajibu,’ she council in addressing problems such as the said. The chief urged the youth to show the rubbish which affected the city. This initial film to the SLRA in Kenema and the reac- meeting set the tone of subsequent meet- tion of SLRA was immediate. They ings in which other actors in the repaired the ferry and got it working. municipality attended.

10 The Sierra Leone Roads Authority is responsible for the construction, rehabilitation and maintenance of roads and ferries across the country. They can outsource where the technical expertise is not available. 11 Paramount chiefs are traditional rulers that are elected to rule over chiefdoms. They are not elected by universal suffrage, but by Tribal Authorities (TA) who represent tax payers in the chiefdom. To be elected paramount chief, one must belong to a ruling house. Once elected, they rule for life. Chiefdoms are political units in the governance of the State. There are 149 chiefdoms in Sierra Leone. l Kenema youth change lives and perceptions with participatory video in Sierra Leone 61 Photos: Boajibu PV film screenshots Photos:

Participants mapping the locations for filming in A youth videos participants while they create their Boajibu. video storyboard in Boajibu.

The youth screened the film about the These films have helped to improve piles of rubbish to the mayor, councillors relationships and change people’s percep- and other council staff. While the screening tions about youth in a relatively short time. initially generated heated discussions as to Some youths have since been elected to who was to blame, this soon gave way to decision-making positions in local gover- constructive dialogue, in which represen- nance. Nine youth were elected councillors tatives of the Sierra Leone police, in the district and municipal council elec- youth-serving NGOs, Ministry of Youth tions of 2007. Three are heading standing Employment and Sports, Commercial Bike committees. The health and sanitation, Riders Association and a trading associa- youth and sports committees of both tion participated. A series of meetings then Kenema city and Kenema district councils followed, between the council, youth and are now chaired by youth. More commu- other concerned citizens and institutions. nities have also elected youth as section The Kenema youth played an impor- chiefs and village headmen.12 tant part in raising awareness about waste This cannot be attributed exclusively to management and the need for residents to their participation in the PV project but the collaborate with the council in this. The project probably helped make it possible. council has now constructed permanent These communities now have greater trust garbage sites all over the city as a long- and confidence in the youth, who have term measure to keep the city clean at all demonstrated leadership qualities and times. skills and have, in turn, become duty bear- ers for their communities. Impacts The inclusion of youths into decision- Reflections on the process making processes and other aspects of Because of our involvement in decision- governance show that young people are making processes in recent times, youth now not only taken seriously, but can also are experiencing significant development influence decisions on issues that affect in different areas in Kenema district. For them and their communities. some of us that have been elected to the local Councillor Amidu Bah, aged 34, councils, younger youth are today looking Chairman, Education and Sports at us as role models. Committee, Kenema City Council. Councillor Alicious Vibbie, aged 30,

12 Section chiefs and headmen are appointed by paramount chiefs to preside over sections and villages. 62 64 Sallieu Kamara and Abdul Swarray Photo: NMJD Photo:

NMJD animators during PV training at the pastoral centre in Kenema, Sierra Leone, December 2008.

Chairman, Transport and Communication the SLRA in Kenema to watch the films Committee, Kenema City Council. that the youth themselves had produced. This was a key step in engaging with the The relationship between youth and SLRA and advocating for the ferry state functionaries in Sierra Leone is now repairs. gradually changing. The impact of the PV project in Boajibu and Kenema indicates PV is a catalyst for us youth in Kenema that with regular engagement and to draw attention to our unfortunate situ- constructive dialogue, youth and their ations. It is evidential. It helps us to think leaders can form strong partnerships that critically and dialogue creatively. But we are helping to anchor meaningful devel- the female youth are still not using PV opment in their communities. effectively to highlight our peculiarities. Setting up a meeting with members of Victoria Vanday Bernard, aged 25, Vice the political class in Sierra Leone is a diffi- Chairperson, Kenema District Youth cult task. Suspicion always exists between Coalition. civil society organisations and State func- tionaries. The task is still harder when it Youth are now being entrusted with involves youth. But community leaders leadership positions in local councils and were impressed with how the youth of communities. But the focus seems to be Boajibu and Kenema were engaging with more on young boys, leaving out young their communities using PV. They saw girls. The nine youths that were elected to them as an emerging cadre of youth who councils in 2007 are all males. Either the had both earned and deserved their girls lack the confidence to compete with support. This contributed to the willing- their male counterparts, or there are still ness of the chiefs in Boajibu to support cultural barriers that prevent young girls them, which also influenced officials of from holding governance positions. l Kenema youth change lives and perceptions with participatory video in Sierra Leone 63

Further, youth are in a transitional scaling up PV activities by increasing the phase of their lives. This means there number of youth groups involved in PV, should be ongoing PV training to replace as well as the number of activities that those moving out of the project, to ensure these groups undertake and the diversity that the skills and capacity-building needed and relevance of issues they engage in. to continue using PV remain within the Once the use of PV has been strength- youth groups involved. To do this, further ened in the project communities, NMJD funding is needed to support the project. plans to work with other CSOs outside Also, we have found that the most appro- the project area to set up PV groups priate cameras for PV are those that use there. And one way to start the ball tapes. But with the rapid advancement in rolling in this direction will be to hold a technology, these cameras are fast disap- mini film festival for all youth groups pearing from the market and being presently using PV in their work. replaced by those that use memory cards. These are currently too sophisticated for Conclusion the participating communities use. PV allows young people’s voice to be heard. Ways forward Now that we have started realising how NMJD has since facilitated and supported important PV is, we will try to increase our other communities, including youth groups use of it in our activities, particularly in such as the Bike Riders Association and the knowledge-sharing and advocacy. Affected Property Owners Association in Emmanuel Farma, aged 33 years, Kono district.13 14 The Foya Youth Associa- Chairman, Kenema District Youth tion in Bo district has also established local Coalition. PV groups. These groups were trained, supported and PV equipment made avail- PV may be a relatively new tool in able to them by NMJD. To ensure that they development communication in Sierra have access to the equipment, NMJD and Leone, but it has proven to be a powerful the youth have drawn up checklists to one that can compel leaders to listen and ensure the equipment is used for construc- act. Youth are using PV to advocate for tive PV e.g. the purpose of the film, who change. They believe, and rightly so, that will participate in the process, who are the pictures tell very powerful stories, and are target audiences and why and how will it accessible to the literate and illiterate alike. be used. PV is helping to restore their lost voices and NMJD has also trained all its staff in provide them with more confidence so that PV, who work directly with these commu- they can continue to engage in governance nities. With an understanding of PV, they processes in the future. will find it easier to provide supportive PV is not just for youth. It is for every- supervision to the local PV groups. one who has a story to tell. It can be used in Also, although the youth of Sierra research, project planning and implemen- Leone have achieved much in changing tation, monitoring and evaluation. We perceptions and increasing their partici- believe that PV can help to bring about the pation in governance, they still have a change that youth are yearning for. That long way to go. They will need to work someone, somewhere is waiting to listen to together to make their dreams of engag- them – and that with PV, they can start to ing in governance a reality. This involves make their dreams a reality.

13 Commercial bike riders in Kenema; some of them are ex-combatants. The association is a member of the KDYC. 14 Communities affected by Kimberlite diamond mining in Kono district, eastern Sierra Leone. 64 64 Sallieu Kamara and Abdul Swarray

CONTACT DETAILS Sallieu T. Kamara Director, Knowledge Management and Communication (KMC) Network Movement for Justice and Development (NMJD) 29 Main Motor Road, Brookfields PMB 798, Freetown Sierra Leone Tel: +232 76 613324/33 393942 Email: [email protected]; [email protected] Website: www.nmjd.org

Abdul S. Swarray Kenema District Youth Coalition Secretariat Kenema District Youth Centre Reservation Area Kenema Sierra Leone

REFERENCES Dizo-Conteh, U. (2009) ‘The youth in Sierra Leone.’ World Press website, 19th July 2009. Online: www.worldpress.org/Africa/3384.cfm Lunch, N. and C. Lunch (2006) Insights into participatory video: a handbook for the field. Insightshare. Online: http://insightshare.org/resources/pv-handbook

ACKNOWLEDGMENTS The screenshots used in this article were taken from three participatory video films and are courtesy of the Simbaru Youth Coalition in Boajibu, the villagers of Foya, the villagers of Kania Resettlement Site, Kono and NMJD, Cafod and Insightshare. 65

Our time to be heard: youth, poverty forums and participatory video 4

by ANDERSON D. MIAMEN with ANNETTE JAITNER

Poverty and corruption in Liberia Box 1: What are accountability and Since the end of its devastating thirteen- transparency? year civil war in 2003, Liberia has been focused on rebuilding and establishing Accountability refers to individuals and organisations (public, private and civil society) institutions with increased transparency being held responsible for executing their powers and accountability as important targets for properly. Transparency is the characteristic of reform. President Madam Ellen Johnson government, companies, organisations and Sirleaf acted swiftly to support anti-corrup- individuals being open in the clear disclosure of tion legislation, illustrating her strong information, rules, plans, processes and actions. As a principle, public officials, managers, civil determination to fight corruption. The servants, directors and board trustees of public, however, remains skeptical about companies and organisations have a duty to act the commitment of other high level offi- visibly, predictably and understandably to promote cials. participation and accountability.

In this article we highlight how the Source: The anti-corruption plain language guide. Center for Transparency and Accountabil- Transparency International (2009). ity in Liberia (CENTAL), a local non-governmental organisation and Trans- concerns, leading to improvements in the parency International’s national chapter in country’s development and in the daily lives Liberia, is supporting youth to demand of the poor. accountability from government and serv- ice providers in local planning, budgeting When the elephants dance the grass and service delivery. We show how partic- suffers ipatory processes like participatory video Liberia’s Poverty Reduction Strategy (PRS) (PV) and dialogue forums can support Lift Liberia aims to improve the overall youth to build skills required to voice their living standard of the country’s citizens. As concerns and also serve to amplify these part of this strategy, the Liberian govern- 66 64 Anderson D. Miamen with Annette Jaitner

Representatives of the grassroot Employed level (teachers, Unemployed market women, Physically journalists) challenged Youth

Women Poverty Watch monitor Commitments, Councils promises

Poverty & organise Corruption in Liberia Project

TI address iClubs POVERTY address FORUM CENTAL

Challenges

Who Who does participates? follow-up?

Who Figure 1: A mindmap talks? Are of the poverty forum promises real With the support of the Poverty Watch commitments? Councils (PWCs) poverty forums provide a real space for citizen participation in governance. Cartoon: Regina Faul-Doyle. Devised by Annette Jaitner and Anderson Miamen l Our time to be heard: youth, poverty forums and participatory video 67

Citizens Demanding responsiveness, transparency & accountability, access to information

Dialogue Forum = discussion Public officials / duty bearers is a

Present budgets, plans, activities, Better information access to public services alleviating poverty curbing corruption

supports Citizen MDGs participation in planning & decision-making & monitoring Poverty reduction strategy= Lift Liberia County development funds Development/ Participatory poverty alleviation governance 68 64 Anderson D. Miamen with Annette Jaitner

ment allocates at least US$200,000 every year to implement development programmes in each county. County devel- opment funds (CDFs) are used for Photo: CENTAL Photo: activities such as renovating and building schools and hospitals and improving roads. Planning and budgeting is supposed to be done in partnership with civil society. However, some people – including the very poor and youth – remain excluded. Many are highly critical of the PRS, identifying the exclusion of its main targets from its design and implementation as one of the Woman speaking out at a poverty forum in Nimba key reasons for its limited effectiveness. County. Corruption is also cited as one major chal- lenge and is compelling communities to way. Detailed presentations are given by stand up and demand inclusion. the authorities responsible for basic serv- CENTAL’s Poverty and Corruption in ices such as health, water and education. Liberia project (PCL) aims to empower citi- These presentations focus on activities they zens through awareness-raising and the use have carried out and those they plan to of participatory approaches like PV. It seeks implement. There are no predetermined to engage citizens with local government groups or individuals to speak on behalf of and service providers to ensure the needs of citizens. Anyone is allowed to voice their poor citizens are addressed in local planning, ideas and concerns. Once you signal your budgeting and service delivery. The project is intention to speak by raising your hand being delivered through CENTAL’s network before others, you are given the opportu- of local groups called ‘iClubs’ (Integrity nity to voice your concerns. Clubs) which consist mainly of young After a poverty forum, iClubs and community representatives. PWCs verify information provided at the gathering and follow up on the commit- Creating space for dialogue between ments made. For instance, following a citizens and government forum in one community where the Through the PCL, iClub members have construction of a school annex was helped to build Poverty Watch Councils discussed, the PWC and iClub did a site (PWCs). Members are community- visit. They found that the contractors were mandated representatives from various working as indicated at the forum. Had this marginalised social groups, including been otherwise, the PWC would have taken youth, women, the unemployed and the up issue with the contractors. physically challenged. PWCs also include Cross-checking information sometimes teachers and journalists. iClubs and PWCs can be a challenge. For example, in another facilitate poverty forums – regular meet- community a health official was seen trans- ings at which youth and other citizens can porting huge quantities of charcoal in his engage in constructive dialogue with local government assigned vehicle. This is a government to ensure that district devel- gross misuse of a government asset. When opment plans and activities respond to confronted at a poverty forum, the official their needs. argued that the charcoal was meant for his Poverty forums are structured so that own use and not commercial purposes. The all participants can freely express them- issue could not be followed up further as it selves in a responsible and constructive had happened months before the meeting. l Our time to be heard: youth, poverty forums and participatory video 69 Photo: CENTAL Photo: Photo: Neville Meyer, InsightShare Durban InsightShare Neville Meyer, Photo: Community having fun at the PV footage playback in The PV team discusses and decides on the storyboard Gbanchu. for their film.

Despite these challenges, it is clear that citi- produce a film that can then serve as an zens are beginning to demand explanations advocacy tool (see diagram on page 6 for from their leaders, especially where public further detail on the process). interest is concerned. To encourage the participation of every- one in the PV process, an all-community Youth take the lead through meeting involving men, women and youth participatory video was convened. Using participatory tools Gbanchu is one community where citizens like problem trees and participatory rank- are beginning to make demands on govern- ing, community members identified and ment. Gbanchu is a rural community with prioritised the community’s problems. a youthful population located on the Many of the illustrations produced were of outskirts of Gbarnga, the capital city of school-related materials like pens and Bong County. As Gbanchu has no school, pencils, copybooks and chalkboards. It was students have to walk many miles to other clear that the absence of a school was the communities, crossing a highly frequented priority. Having decided to focus on this tar road.1 issue, the community resolved to give the youth a leading role in the PV process. It is very risky for children to cross the coal During discussions, the community in tar while cars and motorcycles are moving Gbanchu agreed to take action to begin to all around. They sometimes get hit in the address the problem of the lack of a school. process. I am convinced about this video Community leaders allocated land and making a difference in our community, in youth manufactured bricks. The commu- terms of getting our leaders to respond to nity filmed this process both as a way of our appeals for a school. collecting evidence and to advocate for Comment from a youth leader. change. Should the school be built, the film will also offer a useful record of the history CENTAL supported youth in Gbanchu of their advocacy campaign. The commu- to use participatory video (PV) to make nity also felt that the film could be used as their voices heard by local officials. PV is an a motivation for others. intensive and iterative process owned by A community screening of the film was the community.2 Knowledge acquired held and local officials were invited. The during training is used instantaneously to county education officer (CEO) of Bong

1 ‘Coal tar’ is a local term for a paved road. 2 See also Kamara and Swarray (this issue). 70 64 Anderson D. Miamen with Annette Jaitner

Figure 2: Participatory video as an iterative process Cartoon: Regina Faul-Doyle. Devised by Annette Jaitner and Anderson Miamen.

1. Community discusses and decides on which issues to focus with their film. The problem tree analyses/explains causes and effects and impacts. Core PV team is assigned.

8. Gbanchu community also plans to use the PV film for future advocacy. In the next cycle, the community can use PV to monitor the commitments made and progress in establishing the school.

7. Screening the PV film to Gbanchu community and county education 6. Editing footage officer (CEO). CEO commits to following feedback from supporting the community in the community – creating building a new school. the final PV film. l Our time to be heard: youth, poverty forums and participatory video 71

2. Core PV team receives training in filmmaking and how to use the video equipment.

3. Core PV team discusses and decides on the film production process, distribution of roles and storyboard.

4. PV film captures footage/raw film material.

5. Playback of footage to the whole community. Participatory editing: everybody has a say in what should be in the final film. Community also decides how to use the PV film. Gbanchu community gave consent to show their film to any interested audiences. 72 64 Anderson D. Miamen with Annette Jaitner

Liberia participatory video photostory. This photostory shows the context of the PV film the youth of Gbanchu community made about access to education in their village. Photos: Gbanchu community l Our time to be heard: youth, poverty forums and participatory video 73 Photos: CENTAL Photos:

The PV team plans the production of their film. The PV team learning how to use the video camera.

County visited Gbanchu for the first time in Poverty forums and PV have not only three years. For most of the community created opportunities for dialogue but also, members, this was their first opportunity to often through this engagement, enabled meet and interact with local officials. This youth and other community members to created a sense of purpose and relevance. build new skills and knowledge. Through For the local officials, it was an opportunity PV youth and their communities have to develop a better understanding of how learnt how to use different participatory development projects were sometimes tools to identify collective problems and being awarded to communities – i.e. often work together to solve these problems. selectively and uninformed. After seeing the Relationships within the community have film and discussing with the community, also been strengthened. As part of the the CEO was so moved that he committed process, and for the first time in several to ensuring the construction of a local years, the entire community assembled to school in Gbanchu. discuss their concerns. Youth in Gbanchu have organised themselves and set up a Achievements and challenges in leadership structure to collaborate with bringing citizens and government elders in advocating for better access to together education and engage in local governance. The most significant achievement recog- While they are separate activities, both nised by communities is that the poverty the poverty forums and participatory video forums and PV processes have enabled projects feed into one another. Poverty youth – a constituency neglected for many forums are ideal venues to screen partici- years – to bring their concerns to the atten- patory videos to a wide audience, as tion of local officials and access information. community representatives, other stake- For example, in one community disabled holders and citizens' groups are present at youth explained at a poverty forum how a the gatherings. In addition, poverty forums number of public buildings were difficult to can be used to highlight issues that access. Local authorities used this informa- communities want to present to policy tion to make buildings more makers, which can then be used in future disability-friendly. In another community, participatory video projects. the poverty forum was used as a space to However, there have also been a share information on services being number of challenges. Firstly, limited provided at a local medical centre. Follow- access to information has presented a ing this, demand for appropriate services significant barrier. Despite the poverty from community members has increased. forums, key pieces of information are often 74 64 Anderson D. Miamen with Annette Jaitner Photo: CENTAL Photo:

Bong County education officer at community PV screening ceremony in Gbanchu, interacting with community members.

withheld from citizens. Local officials Time to learn: lessons from piloting sometimes conceal sensitive information poverty forums and PV because they are afraid of retaliatory CENTAL has learnt a great deal about actions from above or criticism from the what is useful and necessary for youth and public. Lack of self confidence amongst the wider community to amplify their community members often prevents them voices and demand a response from from expressing themselves at poverty government and service providers through forums. Some citizens were apprehensive participatory processes. about being openly critical of individuals • Access to information is extremely essen- in power. Language barriers can also pres- tial. In some of the poverty forums, basic ent challenges. For example, during the PV information on health and education serv- process the fact that CENTAL staff did not ices was made public to citizens for the very understand the local vernacular prolonged first time. This information is allowing the process and highlighted the staff as communities to monitor and track govern- outsiders. ment activities. Therefore, some local The greatest challenge has been, and officials have become more mindful of their remains, following up on the commitments actions. made by local officials. Officials at times • Organisations supporting initiatives like make promises that don’t come to pass or poverty forums and PV projects with take a very long time to be fulfilled. iClubs communities must establish close ties with and PWCs are meant to empower citizens government and service providers. Good so that they feel capable of following up on relations between CENTAL’s local chapter, government commitments. Overall, we the Bong Integrity Club, and local authori- have learnt that participatory processes ties meant officials stayed as late as 8pm in require long-term, continuous and itera- Gbanchu during the PV screening process. tive support to create an environment in At the national level, CENTAL’s relation- which marginalised citizens and youth ship with key officials, such as staff of the build trust and confidence to demand and Ministry of Education, helped to get the claim more space in governance processes. film screened and ensure follow-up action. l Our time to be heard: youth, poverty forums and participatory video 75

... And what comes next?

Good-bye! See you soon! We’re looking forward to our new school!

Commitments made need to be followed up. PV is an excellent way for a community to document commitments and to monitor and evaluate whether the commitments are fulfilled and the quality of the actions Cartoon: taken. With PV, the community Regina Faul- has testimony to remind their Doyle. Devised by Anderson local officials of their Miamen and accountability towards them. Annette Jaitner

• Processes like PV and poverty forums can also be used as a method to monitor the build capacity. PV in particular is an ideal fulfilment – or not – of promises. PV films can tool for making young voices heard. Young be used as powerful evidence triggering people were very welcoming and receptive further dialogue and response to concerns to this new approach. The marginalised raised in poverty forums. Gbanchu community made their difficul- ties known to service providers and Conclusion government instead of expecting others to Local authorities and other public service plead on their behalf. The predominately providers are more likely to feel the need to youthful population of Gbanchu was be transparent and accountable to citizens resilient in their advocacy for a school and when citizens have full knowledge of avail- for inclusion in national decision-making able resources for local development, and processes. have the skills and confidence to make • A monitoring strategy needs to be in place to demands. Citizens also need the opportu- follow up on commitments made by govern- nity to engage and make these demands. ment. This can perhaps happen through Poverty forums and PV have provided continued engagement in poverty forums. PV platforms for youth and other community 76 64 Anderson D. Miamen with Annette Jaitner

members to access information, build community members are able to occupy confidence and participate in decision- and enlarge spaces for citizen participation making. Poverty forums in particular are in decision-making it improves gover- spaces of information exchange and nance and contributes to positive changes constructive dialogue. From our experi- in community development and the liveli- ences it seems that when youth and other hoods of the poor.

CONTACT DETAILS Anderson D. Miamen Center for Transparency and Accountability in Liberia (CENTAL) Program Department, Program Associate, 22nd Street and Tubman Boulevard Sinkor, Monrovia Liberia Email: [email protected] Websites: www.cental.org www.liberiacorrutpionwatch.org

Annette Jaitner Senior Programme Coordinator, Africa and the Middle East Transparency International Secretariat Alt-Moabit 96 10559 Berlin Germany Tel: +49 30 34 38 20 778 Fax: +49 30 34 70 39 12 Email: [email protected] Website: www.transparency.org

ACKNOWLEDGEMENTS This article could not have been written without the contribution of many people. We are glad to acknowledge firstly the contribution of God for granting us the energy and time to embark upon this worthwhile initiative. Heartfelt appreciation to Transparency International and Tides Foundation, sponsors of the Poverty and Corruption in Liberia (PCL) project; Thomas Doe Nah, CENTAL’s Executive Director for allowing us contribute and providing guidance; Zeowheh Saywrayne, Sarnyenneh Dickson and George Ebba in CENTAL’s Programme Department; members of the iClubs, Poverty Watch Councils and communities; Neville Meyer and Jean-Luc Blakey from InsightShare; and Plan UK, IDS and IIED, particularly Jessica Greenhalf, Rosemary McGee and Holly Ashley for their editorial support. Thanks also to our peer review colleagues for their useful suggestions and feedback during the writeshop.

REFERENCES Lunch, N. and C. Lunch (2006) Insights into participatory video: a handbook for the field. Insightshare. Online: http://insightshare.org/resources/pv-handbook Transparency International (2009) The Transparency International anti- corruption plain language guide. Online: www.transparency.org/publications/publications/other/plain_language _guide 77

Youth participation in capturing pastoralist knowledge for policy processes 5

by CHARLES KESA

Introduction I am programme manager of the Pastoral Youth Leadership (PYL) project, supported by Horn Relief . As such I have the overall responsibility of managing and providing technical advice to the PYL team. The proj- Horn Relief Photo: ect is being implemented in Sanaag Region, a territory disputed between Somaliland and Puntland governments.1 This semi-arid area is mainly inhabited by pastoralists. Their livelihoods are on the decline due to pressure on grazing land caused by multiple factors such as Prolonged drought has led to much loss of livestock. prolonged drought and charcoal burning. pastoralists in this region. Through the This article shows how determined camel caravan process, indigenous youth involved in the PYL project, as part pastoralist knowledge was transformed of their learning process, went back to their into policy knowledge that could be taken pastoral roots amid challenges of insecu- up and used by government policy makers rity and a hostile environment. They and development partners such as aid conducted a pastoral community survey agencies and NGOs. through a unique, innovative and partici- patory ‘camel caravan’ process. The The Pastoral Youth Leadership (PYL) project evidence generated through the survey PYL is a non-formal education project brought to the fore the situation of which started in 2002. It targets pastoral

1 Puntland and South Central Somalia are part of the Transitional Federal Government (TFG) in Mogadishu, whereas Somaliland is autonomously governed. 78 64 Charles Kesa

Map of study area, Sanaag Region. Source: (FSAU, 2005a)

youth aged between 15 and 25 years in six • natural resource management, on which villages (Badhan, Lasqoray, Baragaha Qol, pastoralism is dependent; Hingalol, Elbuh and Dhahar) in Sanaag • human health, to address the pastoralists’ Region. These are mainly youth who would poor access to modern health services; otherwise have never had an opportunity • animal husbandry, the core mainstay of to access education and livelihood oppor- pastoralism; and tunities. They include internally displaced • leadership and governance. persons (IDPs) displaced from other The last of these is critical in an envi- regions of Somalia by civil strife and feud- ronment where there are scarce resources ing among families and clans, and also and where a formal central government is pastoralists who have lost livestock and in effect replaced with informal pastoral livelihood opportunities due to successive governance (see Box 1). droughts. They also include pastoralist Through PYL’s experience gained over youth who have moved from purely the years, the youth involved in informal pastoral areas to semi-urban areas in pastoral governance have been at the fore- search of education and training, or alter- front of community-driven initiatives that native livelihood opportunities. Some are address local challenges. These initiatives males who are expected to fend for their include dissemination of health messages, families; some are girls seeking educational improved animal husbandry and safe- opportunities or refuge and safety when guarding the environment. They have also their families had to disperse due to been central in continuous assessment of prolonged drought (this is a common the needs of those communities during coping mechanism in times of drought and times of crisis and providing plausible solu- hunger). Some are orphans and vulnera- tions. In particular, the youth tend to take ble. The project has so far made a leadership roles in community peace- difference in the lives of over 1000 youth building initiatives and are often called (Horn Relief, 2011). upon to facilitate community dialogue, or The project’s curriculum focuses on to mediate between parties in conflict with four thematic areas: each other. l Youth participation in capturing pastoralist knowledge for policy processes 79

Box 1: Pastoral governance survey that provides an opportunity for youth to engage with pastoralists as both The livelihoods of pastoralists depend mainly on livestock and their products. However, today the facilitators and learners. The youth use pastoral way of life is under constant threat research skills learnt under the PYL to thanks to a long history of clan conflict, war, gather information on indigenous knowl- recurring drought and environmental degradation, edge that is important to pastoralists and which exacerbates conflict over pasture and water pastoral livelihoods, and to government, for livestock. The sustained absence of a strong central aid and development actors. Over the years government has affirmed the importance, survival it has been conducted annually in Sanaag and continuity of pastoral governance. This is a Region among pastoralists who are often lightly structured indigenous system of marginalised culturally, socially, economi- decentralised self-governance based on cally and politically, and where access to indigenous Somali cultural governance practices. Its aim is to address issues of internal and cross- basic services, including education, has boundary conflict affecting pastoralists. These been denied. include safeguarding the environment which is key to their survival and that of their livestock, Preparations for the camel caravan ensuring access to meagre resources for their The latest camel caravan was conducted in animals and control over their land. Consensus is often reached through inter- and January 2010 over a period of 10 days. For intra-clan dialogue among clan leaders and the youth who participated, it was an community members, with the ultimate aim of opportunity for them to share information sustaining peace, pursuing reconciliation, resolving and to learn more about the life, challenges conflict and nurturing clan stability among and opportunities faced by pastoralists in pastoralists. their day-to-day lives. Pastoralists are not often willing to share with strangers, nor PYL curriculum materials were devel- are they open to answering questions oped through a highly participatory because similar surveys over many years process involving pastoralists over an eight- have made no significant contribution to year period. The participatory action improving their lives or developing their research approach used by the project areas. The camel caravan process is delib- enables the youth involved to be as appro- erately devised to ensure that close rapport, priate and responsive as possible as they relationships and trust can develop engage local community members and between the youth and pastoralists in their implement development initiatives. The natural environment, as opposed to suspi- learning process emphasises the practical cion which has hindered other studies on over the theoretical and seeks to empower pastoralists. the youth and foster awareness among them and community members. The youth, who are mostly born and raised as pastoralists but now live in semi-urban areas, get an opportunity to go back to their

communities to share information about Horn Relief Photo: what they have learnt, and to gather rele- vant data and information through the camel caravan.

The camel caravan process The camel caravan, funded by UNICEF, is one of the main activities of the PYL proj- ect. It is a unique pastoral community Evening time: PYL youth during the camel caravan. 80 64 Charles Kesa Photo: Horn Relief Photo:

The camel caravan.

The 18 youth who participated in the them in their work, lived with them and ate survey were selected from all the villages what they ate. For 10 days, using camels as where PYL works, based on expressed the main mode of transport, the youth trav- interest. They took part in a one-day brief- elled with the community members, ing by PYL staff and other youth who had walking as part of a caravan every day and participated in previous camel caravans. recording information and using digital The briefing shared with them the aims of cameras where possible. the camel caravan and what was expected The youth were divided into four of them. groups and given a different topic to focus Subsequently, for five days, the youth on each day. Each group was assigned a were trained by PYL project staff, them- pre-determined area which it crisscrossed, selves pastoralists, on data collection, sharing experiences and gathering infor- interview techniques and how to conduct mation and data. The focus on the same focus group discussions (FGDs). Upon topic by four groups working in parallel in completion of the training, under the different areas was intended to allow direct supervision of the training officers, cross-referencing and triangulation to the youth participated in piloting data increase the completeness, validity and collection tools, which were later refined reliability of the findings. The youth as appropriate. They also practised how researchers used conventional data collec- to totally immerse themselves in commu- tion tools such as questionnaires, nities. interview guides and FGDs to gather information, but skilfully distanced them- Immersion in the communities selves from conventional ‘pure’, ‘cold’ With all preparations ready, the youth trav- survey enumeration by totally immersing elled to the pastoral areas. When the youth themselves into the pastoral way of life. encountered the pastoralists they were to For instance, they always started with enumerate they stayed with them, joined greetings and sharing of general informa- l Youth participation in capturing pastoralist knowledge for policy processes 81 Photo: Horn Relief Photo:

Learning from pastoralists during the camel caravan. A young woman interviews a pastoralist and her children.

The four groups working in different areas later The youth travel with the community as part of a cross-reference and triangulate responses to validate caravan, recording information and using digital findings. cameras where possible.

tion based on the Somali saying ‘War war conducted error checks on all the data baa laga ceshaa’ (‘If you get news you collection instruments. They also checked should respond with news’). the instruments for completeness in During this period the youth reached readiness for quantitative and qualitative 634 heads of households through inter- analysis by a consultant who focused on views, household surveys and FGDs. In specific predetermined themes. Further total, 11 FGDs were conducted, with each analysis would be done later as needed. of the four groups carrying out FGDs Indeed, this would unearth interesting related to three thematic areas. The youth themes. 82 64 Charles Kesa

Box 2: Experiences and insights from the human and animal health. Some findings camel caravan were unsurprising, e.g. that there has been a limited or no access to formal education Amal Duale The experience of participating in a camel caravan opportunities for pastoralists over genera- excursion, especially for me as a pastoralist, fills tions. Other findings were unknown, e.g. me with a special feeling. What touched me most use of traditional medicines such as sheep was when I came across a sick and frail-looking fat as treatment for sexually transmitted old woman. From where she stayed and the diseases (see Box 3 for more findings). physical health of the children, it was evident this was a family in dire need of support. What was significant about the survey After an experience like the camel caravan my was that this was the first time this sort of one wish would be for the government and civil information had been systematically gath- society to make a bigger effort in the provision of ered and shared widely with various education for pastoral communities in order to stakeholders for reference when planning improve their livelihoods. Maybe this can be done through providing mobile schools and training of for the future. This sharing was done by the mobile teachers. I would be glad to be one such PYL project, led by myself, through a confer- teacher. ence held in Nairobi, Kenya. Among the participants were regional government Abdulaziz Warsame Mohamoud During the survey I spoke to a teenager… He was actors including the Minister of Education part of a family of eight we were interviewing. He from Puntland, the Honourable Abdi Farah told me that it made things easier using mobile Juxa, the Director General from the same phones especially when one family member ministry and representatives from the became sick or if their livestock suffered. They Ministries of Livestock (MoL) and Environ- would inform relatives so that they could ask for social support or help with getting access to ment Water and Tourism (EWAT). medicine if traditional medicinal methods failed. International NGOs and civil society organ- isations working with pastoralist Reflections on the process communities in Kenya, Ethiopia, Puntland, I realised that this approach of interacting Somaliland also attended, as well as the with pastoralists and the immersion of United Nations Children's Fund (UNICEF). youth in the pastoralists’ natural environ- The two-day conference included ment was a positive way to share presentations, sharing of experiences and knowledge, learn from experiences and discussions. Despite the willingness of gather data. It created rapport, built confi- governments to support the development dence and created an environment of of pastoralists, they have limited resources, openness. The youth who participated including human and financial resources, gained much experience and insight (see and are unable to provide quality and rele- Box 2). The process was very different from vant education and other services to formal surveys carried out by government or consultants, where information is often Box 3: Some key findings from the provided unwillingly, in a climate of suspi- survey cion and sometimes out context. • 79.4% of pastoralists had never received any form of education due to their pastoral way of life. Feeding the camel caravan findings into • 56% indicated that nobody within their family governance and aid circles was literate and only 8.6% of children currently Once analysed, the findings from the camel attended school or had ever attended to school. • 81% of pack camels had been lost due to the caravan brought out many pertinent issues long drought and over 70% of pastoralists owned regarding education, perceptions of chil- no pack camel. dren’s economic activities, livelihoods, • 94.7% of the pastoralists indicated that they pastoral traditional methods of communi- migrated from one area to another as a coping cation, coping mechanisms, medicine and mechanism during times of disaster. l Youth participation in capturing pastoralist knowledge for policy processes 83

Box 4: Conference recommendations comprehensive baseline survey focusing on pastoralists in Puntland, Somaliland and • PYL to approach the Education Sector Committee of the Somali Support Secretariat to South Central Somalia with Horn Relief as constitute a Pastoral Education Taskforce for the lead agency. Eureka! It is foreseen that improved interagency coordination. the survey will use the lessons learnt from • PYL to conduct a comprehensive survey and the camel caravan with the enumerators analysis of the status and needs of pastoralists in immersed among pastoralist communities Somaliland, Puntland and South Central Somalia. The findings of the survey to be shared and serve – as opposed to the conventional way of as reference for governments, stakeholders and data collection. development partners. The themes of the baseline will include • Provision of support by development partners to education, health, animal husbandry, the governments in Puntland, Somaliland and nutrition and livelihoods. UNICEF has also South Central Somalia to develop and implement an education policy framework to guide the committed to providing additional funding education of pastoralist communities. to enable PYL to reach out to more school- • PYL and stakeholders to carry out advocacy age children through mobile schools in campaigns among pastoralist stakeholders on the three nomadic/pastoralist communities use of relevant, flexible, friendly and participatory and five new semi-pastoralist areas. This teaching and learning approaches taking account of the pastoral way of life. should provide more opportunity for pastoralist children to access and partici- pastoral communities. There is a need for pate in formal primary education the support of international development programmes. organisations, which normally have The Ministry of Education and other resources but have limited knowledge stakeholders have also called for the expan- regarding pastoralists. This constrains their sion of the participatory PYL project ability to work closely with pastoralists and activities to other areas outside Sanaag with organisations that have greater under- Region to enable more pastoralist youth to standing of pastoralists’ needs and of the participate in non-formal education and be innovative approaches best suited to active and useful members of the pastoral engaging with them. and emerging sedentary urban society. Based on the policy knowledge arising Horn Relief hopes to be involved in these from the camel caravan, and drawing on efforts. the experiences and lessons shared by different regional actors, recommendations Conclusion for improving the education of pastoralists In Somalia and elsewhere, youth are often in Puntland, Somaliland and South Central subject to negative stereotypes which asso- Somalia were agreed upon (Box 4). ciate them with armed militancy and piracy. The camel caravan presents a very Ways forward and scaling up different, positive, image of youth Dissemination of the camel caravan contributing to improved service delivery process and findings on the pastoralists’ and governance. It has also empowered situation is bearing fruit. Other Horn Relief pastoralist youth by providing them with projects such as Social Safety Nets (SSN) the skills to act as responsible members of and the Somali Emergency Response Proj- their community and help shape the future ect (SERP), following the experience and citizenship of their fellow pastoralists. gathered through the camel caravan, are The evidence collected through the working with PYL youth participants to camel caravan has also highlighted the dire collect data and conduct community status of pastoralists. The indigenous infor- mobilisations. mation and evidence gathered and UNICEF has committed to funding a disseminated in the form of policy-relevant 84 64 Charles Kesa

knowledge will, we hope, continue to serve caravan has enabled them, for now, to as a reference point in designing essential participate in constructing the policy infor- development initiatives for pastoralists, mation on which decisions about service whether led by regional government or provision to their region are based. development partners. While these devel- I would like to end by thanking the PYL opment initiatives for now aim at youth involved in this project. They have improving basic service provision to this shed new light on the situation of pastoral- marginalised population, pastoralists will ists, as well as the urgent need to address one day evolve from being users of services and support development initiatives that to participating in public decision-making. seek to bring about positive change for both The role they have played in the camel pastoralists and pastoralism.

CONTACT DETAILS Charles Kesa Programme Manager, Pastoral Youth Leadership (PYL) Horn Relief Somalia Email: [email protected]

REFERENCES Horn Relief (2011) ‘Pastoral youth leadership (PYL) and pastoral situation survey (PSS) Somaliland, Somalia: proposal extension to UNICEF.' January 2011–September 2011, Horn Relief Nairobi. 85

What business do youth have making HIV and AIDS laws in Nigeria? 6

by FADEKEMI AKINFADERIN-AGARAU and TEMITOPE FASHOLA

l was denied admission after passing all nearly thirty years of military rule has the admission requirements into a Niger- created a culture in which both old and ian university because I tested positive to young believe that they do not have a say HIV. They said I was a threat to other in public policy and laws. students and so my admission was with- Education as a Vaccine (EVA) is a drawn. The only thought I had at that national, non-profit organisation in Nige- point was to commit suicide. ria. It aims to strengthen the capacities of Gloria, aged 24, young person living with children, young people and other stake- HIV/AIDS and a YAG member. holders to facilitate and sustain social change on health and education through direct service delivery and advocacy/policy Introduction influencing. Our advocacy work on sexual In Nigeria youth aged 10–24 account for and reproductive health is coordinated by 60% of new HIV infections (United a group of ten young Nigerians aged 18–24 Nations, 2004). As Gloria’s experience years who attend school or reside in Abuja, highlights, they face significant stigma and Nigeria’s capital. discrimination. HIV prevalence among This article highlights how EVA’s Youth young people age 15–24 is 4.1% which is as Advocacy Group (YAG) managed to partic- high as the national prevalence.1 So it is ipate in and influence the development of essential that any policy on HIV and AIDS Nigeria’s national HIV and AIDS anti- fully recognises and addresses the needs of stigma and discrimination legislation so young people. This requires engaging that it better meets the needs of young young people in the policy-making process people in the country. Using different to hear their views. However in Nigeria, participatory tools and approaches, the

1 2010 Nigerian National Sero-prevalence Sentinel Survey. 86 64 Fadekemi Akinfaderin-Agarau and Temitope Fashola

YAG educated other young people about legal expertise could make a meaningful the impact of HIV and AIDS stigma and contribution. It also demonstrated a lack encouraged them to take action on the of information about the bill amongst draft HIV/AIDS Anti-Discrimination Bill young people. The absence of young people 2009. Key lessons learnt about supporting was clearly reflected by the fact that the young people’s participation in policy- draft bill did not recognise the impact of making processes are also shared. HIV and AIDS stigma and discrimination within the education system. This was Setting the stage despite documented cases of young people With over three million people living with being required to take a mandatory HIV HIV and AIDS, Nigeria has the second test for school admission and being refused largest population of people infected with because of their HIV status. the virus in the world after South Africa. The growth of the epidemic has lead to International youth speak out widespread stigma and discrimination. Initially, EVA’s programmes primarily HIV and AIDS stigma can have devastat- focused on delivering services. However, in ing effects, preventing individuals infected 2008 we were selected as the coordinating from seeking care and increasing vulnera- body in Nigeria for a multi-country project bility to violence amongst both individuals called ‘International youth speak out’ and their caregivers. The fact that Nigeria (IYSO).4 IYSO operates in Ethiopia, Nige- does not have a national law to protect ria and Jamaica and aims to influence those affected by the epidemic therefore international and national policies and places many people at risk. programmes on youth sexual and repro- The 2009 draft HIV/AIDS anti- ductive health and rights. discrimination bill and the 2009 One of the core pillars of the project is Discrimination of Persons Living With youth participation. Recognising this, a HIV/AIDS prohibition bill addressed some Youth Advocacy Group was formed to key aspects of discrimination faced by implement in-country advocacy activities people living with HIV and AIDS.2 The bill and to provide real experiences to feed into was first introduced in 2006. However, due international level advocacy. to a lack of political will the bill didn’t EVA provides daily technical support to proceed beyond the second reading and the YAG. The first set of YAG members had to be reintroduced in 2009.3 The bill’s were selected by EVA staff using an agreed reintroduction was made possible because set of guiding principles (see Box 1). The the newly elected legislators had a better current YAG consists of six girls and four understanding of HIV and AIDS issues boys. Members represent each of the six and demonstrated increased support by geopolitical zones of the country, although establishing a separate committee for HIV all reside in the capital, Abuja. It is also and AIDS in the Nigerian Parliament's representative of the diverse ethnicity in House of Representatives. Nigeria. But while civil society groups were The group has a formal meeting twice a involved in drafting the bill, young people month. Temitope Fashola, EVA’s advocacy were not part of the process. It was gener- and campaigns programme coordinator, ally assumed that only individuals with provides YAG members with technical

2 The bill was introduced by the Federal Ministry of Labour, the National Agency for the Control of AIDS, the Network of People Living with HIV and AIDS and the Civil Society Network on HIV and AIDS in Nigeria. 3 Informal discussion with a representative of the National Network of People Living with HIV and AIDS (pers comms., 16th March 2011). 4 The project is funded by Advocates for Youth, Washington, DC. l What business do youth have making HIV and AIDS laws in Nigeria? 87

Box 1: Guiding principles for selecting tation of sexual and reproductive health YAG members (SRH) policies and programmes for adolescents and young people. • Member must demonstrate their commitment to speak publicly on youth sexual and reproductive • Increase the participation of young people health issues. in the development and implementation of • Membership reflects different ethnic and sexual and reproductive health policies and religious groups from Nigeria’s six geopolitical programmes. zones. • Facilitate the creation and strengthening • At least one member must be a young person living with HIV and AIDS. of dedicated structures to coordinate the • Members must be aged 15–24 years. implementation of adolescent and young • Membership includes young people both in and people’s sexual and reproductive health out of school. policies and programmes at State and local • There is a good gender balance among members. government levels. To achieve these objectives, the YAG use support in terms of planning and imple- communication and advocacy strategies to menting activities at these meetings. But educate their peers, adult gatekeepers and beyond this support, the YAG members are policy makers to take actions to improve treated as staff members. the sexual and reproductive health of Over the past three years, some young people. members of the group have changed. Exist- ing members are responsible for selecting Out of sight, out of mind? new members, based on criteria in Box 1, In October 2009, the draft HIV/AIDS anti- which the group itself has chosen. They discrimination bill had progressed to the advertise new posts and also invite friends second reading stage. A formal public hear- who fit their criteria to apply. The group ing was called and various stakeholders conducts interviews for all applicants and were invited to participate. At this point, jointly decides on new members. no youth group had been invited. The YAG The YAG has three main objectives: happened to receive a formal invitation • Increase national budgetary allocation to directly from the chairperson of the House the Ministries of Health, Education and Committee rather than the committee Youth as well as the National Agency for office which usually issues invitations. This Control of AIDS to support the implemen- was because of our personal relationship

Table 1: Timeline for EVA's YAG advocacy process November December January – March March – October 2009 2009 February 2010 October 2010 2010 2010

Gathering information about HIV Discussion Campus Submitting Follow-up House and AIDS and SRH policies with tours signed (formal and version of legislators organised to petitions to informal) with the bill Reviewing and analysing the House about the screen the House House approved of Representative’s draft bill video video and to Committee Committee collect and legislators Presenting recommendations at the signatures House of Representative's draft bill for a petition public hearing Developing a video based on Gloria's experiences 88 64 Fadekemi Akinfaderin-Agarau and Temitope Fashola Photo: EVA Photo:

Co-author Temitope (far left) with Gloria and other YAG members during the making of their advocacy video ‘My experience’. with the chair, developed over time tion within the workplace and inadequately through consistent lobbying on the issue of addressed stigma in school, where young funding for youth HIV prevention people spend most of their time. The only programmes. reference to young people in the bill was: ‘refusal to admit into school or not allowing Exhibit A: gathering evidence them to continue in an educational insti- In preparation for the meeting the YAG, tution’. We felt that this statement with support from EVA, reviewed the draft represented a narrow view of the issues of bill to determine how the issues of young stigma and discrimination faced by young people were presented and identified gaps. people as learners. The review revealed that the bill focused This gap and key recommendations extensively on HIV stigma and discrimina- were documented in a formal position paper and presented by a YAG represen- Box: 2 Youth-specific recommendations tative at the public hearing (see Box 2). The for the anti-stigma bill YAG was the only youth group present at Compulsory HIV testing the public hearing and was invited to make No educational institutions should require HIV an oral presentation of its position in addi- testing as a prerequisite for school admission and tion to the written paper. graduation.

Disclosure of HIV status Even a pebble can make ripples in an No educational institution should require ocean applicants or current students to disclose their HIV The submission of a position paper alone status whether orally or in writing, as it has no would be inadequate to ensure that the bearing on their academic performance. bill was passed with our recommenda- Differential treatment based on disclosed tions. Realising this, the YAG felt it was HIV status necessary to get support from other young No learner should be treated differently based on people. To make sure that they could their HIV status within all school settings such as constructively participate in the policy classroom, eating or dormitory facilities. process, youth were not only educated l What business do youth have making HIV and AIDS laws in Nigeria? 89 Photo: EVA Photo:

A YAG member with a student union representative elaborates on her perspectives during one of the university campus tours. about the policy but also about how signing a petition calling for the inclusion stigma and discrimination can negatively of the YAG recommendations in the draft affect access to education. The YAG devel- bill. The combination of personal experi- oped a video called ‘My Experience’. The ences shared through the video and film showcased the story of a member of opportunities for open discussions had a their group. The group decided to create great impact on the young people. this video because it brought a human face to the issue rather than just present- The ignorance that exists about stigma is ing statistics. more dangerous than the disease itself and that is why through these signed petitions The whole process of making the video made we hope the Parliament will take an accel- me feel like I was making myself relevant erated action as proposed already by the and at the same time helping young people YAG in the anti-stigma bill. like me and Gloria amplify our voices. Yakubu, aged 24 years, Federal Polythenic Kikelomo, aged 23 years, EVA YAG Nassarawa. member. The YAG did not relent with the Working in partnership with the submission of the petitions. They contin- Student Unions of the target schools, the ued to have formal and informal follow-up YAG organised campus education events.5 meetings with the chairperson and These took place in the three states with members of the House Committee on HIV the highest HIV prevalence rate in Nigeria and AIDS. After a year-long process, the (Federal Capital Territory, Benue and HIV and AIDS anti-discrimination bill was Nassarawa states). These tours featured passed by the House of Representatives in screenings of the video, group discussions October 2010 – with our recommendations on the policy led by a YAG member and included.

5 Campus tours took place at the University of Abuja, Federal Polytechnic Nasarawa and Benue State University. 90 64 Fadekemi Akinfaderin-Agarau and Temitope Fashola Photo: EVA Photo:

A student reacting to the issue during discussions at a campus tour.

Here comes the Red Card… December 2010) and targeted individuals Nigeria operates a bi-camera legislative and groups representing the States and arm of government. For a bill to become constituencies of the members of the law, it must be passed by both the House Senate Committee on Health. of Representatives and the Senate. So Youth were asked exercise their elec- although the bill was passed by the House, toral power by completing a template red it was not yet actually law. Building on their post card with messages and stories about success, the YAG launched the Red Card the effect of HIV stigma and discrimina- campaign to facilitate the passage of the tion. The cards were sent to the Senate, Senate companion bill.6 The campaign ran calling on senators to pass the bill. We for three weeks (8th November to 1st consciously targeted young people above the age of 18 years – and therefore eligible to vote in the upcoming 2011 elections – as a means of getting the attention of their representatives. To popularise the Red Card campaign, young people were encouraged to share the campaign message with their friends verbally and through social media chan- nels. This included changing their Facebook profile picture to the red card and updating their profile status with campaign messages. As a result, young

6 In football, misconduct may result in the player either receiving a caution from the referee (indicated by a yellow card) or being dismissed from the field (indicated by a red card). The YAG Red Card campaign represents a call to end HIV/AIDS stigma and discrimination within schools by enacting the anti-discrimination bill with the inclusion of youth-specific recommendations. l What business do youth have making HIV and AIDS laws in Nigeria? 91 Photo: EVA Photo:

A young woman participating in the discussion during the campus tour at University of Abuja.

people outside our immediate networks Nigeria. Several young people acknowl- were able to contact the YAG to request edged that the process was empowering cards to participate in the campaign. We and the first time they had actually partic- set a target of getting 2,010 post cards to ipated in the law making process. symbolically tell the senators that in the year 2010 they could make a real difference l am so happy with the opportunity the to the lives of young people in relation to Red campaign gave me as an advocate to HIV and AIDS. mobilise my peers and call our policy The YAG members presented the cards makers to action. You can imagine the to the House Committee and its members kind of reaction l got from even youth in on the 1st December 2010, World AIDS some northern states the moment they Day. This focused the attention of the realised that the postcard talked about Senate on the anti-stigma bill and has issues related to HIV. This is important hopefully laid the foundation for the bill’s and people must know the implications. passage in the Senate. Aliyu, aged 21 years, EVA YAG member.

Small numbers can make a big impact Despite its small number of members, the Watch out for the bumps… YAG managed to mobilise over 1,500 These achievements were not without a young people to support the passage of the few challenges. First, the YAG faced diffi- House bill with youth specific recommen- culty in getting the attention of some dations. Following this, a further 2,172 members of the National Assembly.7 young people have given a ‘red card’ to HIV Generally, Nigerian culture does not and AIDS stigma and discrimination in encourage young people to speak out

7 The National Assembly is Nigeria’s bicameral legislature and the highest elective law-making body of the country. It consists of 109 Senate members and 360 House of Representatives members. Source: www.nassnig.org 92 64 Fadekemi Akinfaderin-Agarau and Temitope Fashola Photo: EVA Photo:

YAG members received a formal invitation from the chairperson of the House Committee to attend the public hearing. because they are perceived as immature for carrying out the advocacy work was and lacking the knowledge and expertise limited. As a result, the YAG had to signif- required to make a meaningful contribu- icantly scale-down their youth education tion in governance. and engagement activities. For example, Accessing information on the Senate the campus events were limited to only one bill has also been difficult, particularly as school per state. On the positive side, we Nigeria does not currently have a Freedom were forced to think of other, low cost activ- of Information Act. This is makes planning ities. This led us to use Facebook to our advocacy work difficult. compliment our face-to-face strategies. Since the bill had a national outlook we wanted to ensure national representation What have we learnt? of young people in the process. However, Reflecting on our experiences, there are a this was difficult because all YAG members number of lessons we have gained from are located in Abuja and so we needed to the process. We hope these lessons, bear- partner with other youth groups. Coordi- ing in mind the importance of local nating these groups presented additional context, will help others working with challenges because of the number of part- young people or young people themselves ner groups, geographic spread and who want to influence policies and laws. inconsistency in communication channels. • Educating young people about their For example, some youth groups did not rights and how to exercise these rights is a have regular access to the Internet so we critical part of supporting them to engage had to rely heavily on phone calls which with policy issues. By strengthening their cost a lot more than anticipated. knowledge, awareness-raising activities Finally, the amount of funds available can build confidence among young people l What business do youth have making HIV and AIDS laws in Nigeria? 93 Photo: EVA Photo:

YAG members at the public hearing about the draft HIV/AIDS antidiscrimination bill. and encourage them to take action. than they think to participate in policy • In settings where access to public infor- processes. mation is limited, it is important to build • The benefits of social media, as a compli- relationships with government and policy mentary strategy, in increasing young makers. Through these relationships, people’s awareness of the issues featured campaigners can get information about strongly in the Red Card campaign. Social potential events and activities where media works best for mobilising and advocacy messages can be directed. motivating young people to take action • Combining formal strategies such as when combined with more conventional, public hearings and lobbying meetings face-to-face approaches. with informal strategies like the Red Card campaign can make successfully influenc- Where do we go from here? ing government policy more likely. For a bill to become a law, both arms of the • Getting involved in law or policy-making federal legislators must approve the bill might sound uninteresting to adults, let and harmonise differences. There still alone young people. However, these needs to be additional follow-up on the processes can be fun and engaging if the Senate Committee to urge the passage of right tools and methods (e.g. campus their counterpart bill and to track the tours and videos) are used. Simple ‘take harmonisation process to ensure that the action’ activities such as petitions and youth-specific language is retained in the letter writing are very effective with young final law. At the time of writing, Nigeria is people. As they do not require a lot of time preparing for a general election and the or additional financial commitment, majority of the incumbent legislators are young people realise that it can be easier not standing for re-election. This presents 94 64 Fadekemi Akinfaderin-Agarau and Temitope Fashola

both a challenge and an opportunity. The often faced when living with HIV and YAG is educating young people on devel- AIDS. Drawing on experiences to date, the opment issues and encouraging them to YAG and EVA are in a strong position to select legislative candidates that are push for the Senate companion bill to be committed to addressing HIV and AIDS passed and, eventually, a harmonised issues and so more likely to support the bill. national HIV and AIDS anti-stigma and discrimination bill. So: what business do youth have making laws? Being a YAG member has made me better We acknowledge the fact that our small appreciate the challenges that youth face in group of young people are not legislators my country and my ability to make a and do not have formal legal expertise. As difference. The opportunity to express a matter of fact, the majority of our myself has enhanced my capacity to be members are undergraduates or out-of- responsible not just for myself but for school. But the reality is that advocacy by others. I believe this whole experience will the group has shaped a bill that will – if be instrumental in preparing me for the passed – better protect young people and future. It means a great deal to me. others from the stigma and discrimination Blessing, aged 22 years, EVA YAG member.

CONTACT DETAILS Fadekemi Akinfaderin-Agarau Executive Director Education as a Vaccine No 2 Kutsi close, 4th floor Standard Plaza Beside Redeemers Private School Off Aminu Kano Crescent, Wuse 2 Abuja Nigeria Email: [email protected]

Temitope Fashola Programme Coordinator, Advocacy and Campaigns Education as a Vaccine Email: [email protected]

REFERENCES UNAIDS (2004) Report on the global AIDS epidemic. Joint United Nation Programme on HIV/AIDS. Federal Ministry of Health (2010) Nigerian national sero-prevalence sentinel survey. Federal Ministry of Health Abuja, Nigeria. 95

How far have we come with youth in governance? 7

by JENNIFER TANG

Introduction be useful for ensuring that commitments Children have agency.1 Recognising this, are implemented thoroughly.2 My aim is to those promoting children’s rights advocate develop such a framework. for their participation in the governance of Frameworks for analysing the quality of their communities. How children and children’s participation exist, as do frame- youth are engaged in governance activities works for analysing the quality of takes different forms – with various degrees governance systems. An analytical frame- of success. Programmes and projects that work that addresses the interaction of these promote children’s and youth’s engagement is lacking. How do we assess, in terms of in governance (or CYEG) often come from extent and quality, the way participatory a commitment to enact children’s rights to governance models or experiences involve participate, and the conviction that duty and address the perspectives of children bearers (especially governments) must use and young people? Recognising this gap, I governance structures, systems and am interested in developing a framework processes that best respond to the needs that can be used by children, youth, gover- and challenges of all citizens. An analytical nance officials and facilitators of CYEG framework that draws out the many inte- activities to critically reflect on their work. grated and – in some cases – mutually The framework I present in this article reinforcing factors that promote children’s is in the early stages of its development. I participation and good governance would first give some background to this work

1 ‘Agency’ refers to an individual’s capacity to make his or her own choices and to act independently, according to his or her own will. Agency is set against structural factors such as class, religion and customs, which externally influence an individual’s choices and opportunities (Milligan and Wilson, 2011). 2 The concept of good governance is complex and dynamically debated. I draw on the definitions used by the UNDP and the World Bank with their emphasis on participation, transparency, accountability and process, as summarised in Taylor (2000). 96 64 Jennifer Tang Photos: Child Friendly Cities Initiative Sudan Photos:

Community members using the CFCCI community assessment tool to assess the child-friendliness of their communities.

and how I have approached its develop- ment so far. The writeshop – and the youth and participatory governance practitioners who have contributed to this issue of PLA – offered an opportunity to discuss with them which elements they considered crucial in such a framework. I finish by sharing how I will proceed in completing, piloting and refining the analytical frame- work. I invite those who share my interests itate deeper analysis and implementation and/or have experience in analysing CYEG of the Child Friendly Cities and Communi- to provide feedback on my framework-in- ties initiative (CFCCI). progress. The CFCCI is a voluntary coalition of cities and communities committed to Background implementing policies and services that My interest in analysing children and youth respect the rights of children, and sustain- engagement in governance came from my ing governance structures that uphold work with the Children’s Environments these systems. Aiming to support the trans- Research Group, an academic organisation formation of these commitments into real in the Graduate Center of the City Univer- changes in children’s lives, the Children’s sity of New York. We were invited by the Environments Research Group developed Innocenti Research Center of UNICEF to tools to look critically at these issues. develop a research project that would facil- As a research associate assisting in the l How far have we come with youth in governance? 97 development of these tools I became inter- shape and strengthen institutions so that ested in the area of CYEG. I noticed that they are better able to integrate children as the tools asked governance officials and actors? community-based organisations if children With these challenges in mind, I participated in the development, imple- reviewed literature on children’s participa- mentation and monitoring of policies, tion, drawing heavily on the plans and services for children. But they children-focused work of Hart and Lans- did not examine the quality of their engage- down, Chawla and Driskell’s ecological and ment. Some communities had begun to spatial approaches to participation, United engage children and youth in governance, Nations Development Programme and each employing a different model of United Nations Centre for Human Settle- engagement, adapted to the context and ments (UNCHS) documents on needs of that community. This aroused my responsive, accountable and democratic curiosity as to how far such initiatives local governance, and the participatory enabled children’s rights to participation governance work of Fung and Wright, and while promoting good governance. Gaventa. This helped me begin to identify factors relevant to analysing CYEG. Developing the framework The framework I am developing is In the introduction of PLA’s first special intended to be applied to any activity that issue on children’s participation (PLA Notes engages children and youth in the gover- 25, 1996), editor Vicky Johnson expressed nance of their communities. It is likely to the hope that it would be just the begin- be used by project implementers working ning of a continuing process of sharing and on CYEG programmes. But it may be exchange. Since then, PLA Notes 42 particularly useful if it can be applied (Chawla, 2001) and many other PLA arti- repeatedly over time, to monitor devel- cles have touched upon this subject. In fact, opments over the medium to long term. PLA Notes 42 lays out one of the bases for The format needs to be people-friendly my area of inquiry. It discusses the linkages and child-friendly. It should also be used between the Convention on the Rights of in the context of a participatory approach the Child and the assessment of projects that brings together different types of and programmes that would provide actors (such as children, youth, commu- evidence that children’s participation rights nity members and governance officials) were being upheld.3 As Chawla makes who have different roles and perspectives clear, various scholars have highlighted the to critically reflect upon their activities. difficulty in generating universal criteria It needs to stimulate critical reflection while making room for local indicators. around key parameters by raising a series These change depending on the context of of questions. Participatory reflection and each project or programme under evalua- collective acknowledgement of gaps tion. This requires balanced negotiations. between intention and implementation Chawla advocates that we foster participa- will ideally help to stimulate changes in tion across formal and informal settings existing practice. The framework is not and apply this line of thinking to the issue intended as some kind of ‘gold standard’ of children’s participation in governance. for purportedly objective or independent How can we both build upon experience in assessment of youth and participatory other areas where children’s participation is governance practitioners and their work, more longstanding – and at the same time but as a set of prompts to reflection.

3 The United Nations Convention on the Rights of the Child (UNCRC) is a legally binding international instrument. The CRC recognises the human rights of children, defined as persons up to the age of 18 years. See: www.unicef.org/crc 98 64 Jennifer Tang

Parameters for analysis Figure 1: The ladder of participation What are the fields in which children and young people tend to engage with gover- 8. Child-initiated, shared nance? Key among them are policy decisions with adults formulation, community planning and local and national budgeting, which are 7. Child-initiated Degrees of participation covered in several articles in this issue of and directed PLA. In what kinds of activity do they tend to participate – what are children and 6. Adult-initiated, shared decisions with children youth doing when they engage in gover- nance? The key ones seem to be advocacy activities, appraisal, monitoring and evalu- 5. Consulted and informed ation of policies, plans and budgets as well as programmes and projects. This applies across a wide range of issues and sectors 4. Assigned but informed such as social services, education, environ- mental health, public health, public works, public awareness, juvenile justice, trans- portation, play and recreation. 3. Tokenism

The framework Non-participation Indicators and criteria for assessing chil- dren’s participation in development or 2. Decoration community programmes and common participatory governance indicators seem to fall into three categories or components: • assessing spaces, structures and systems; 1. Manipulation • assessing processes; and • assessing resources and support. I discuss each of these in turn, defining Eight levels of young people’s them and beginning to reflect on them participation in projects (the ladder from a CYEG perspective. metaphor is borrowed from the well- known essay on adult participation by Sherry Arnstein (1969), the categories Assessing spaces, structures and systems are new. The focus here is on the frames or channels by which children become engaged. Of Hart’s ladder of participation showing eight levels of children’s participation – from non-participation to interest are: increasing degrees of participation. • spaces, structures and systems that are Source: Hart (1992). institutionalised and those that are not; • the ‘invited’ spaces and ‘claimed’ spaces First, the level of engagement and the (Gaventa, 2006) and the dynamics that can degree of children’s participation: whether change one into the other; it is consultative, collaborative or child- • how spaces or systems are set-up, managed, child-initiated or child-led. One reshaped or dismantled; existing way of analysing degrees of chil- • how they work with other spaces, struc- dren’s participation is Hart’s ladder above. tures and systems of youth participation; I need to give consideration to whether and and how Hart’s ladder or other existing frame- • other institutions of governance. works could be best adapted to the specific Two elements seem important here. issues of CYEG. l How far have we come with youth in governance? 99

Box 1: Recognition of children’s Box 2: Motivating, educating and participation as a right promoting child and youth participation in governance • Does the CYEG activity explicitly or implicitly draw on child rights principles? • Does the CYEG activity recognise the knowledge, • Does it recognise children’s participation as a skills and tools needed for effective engagement? right? • Do children and youth understand the structures, • Does it recognise children’s participation in systems and processes of governance and how governance as a child’s right? they relate to each other? • Does it recognise children’s right to participation • Do children and youth understand their role as inalienable and indivisible? within the structures, systems and processes of governance? The other important element is the • Are children and youth encouraged to analyse degree of institutionalisation: to what extent and constructively criticise how they are engaged do the organisations or bodies engaged in in aspects of governance? governance activities institutionalise the • Are children and youth engaged in governance activities supported to reach out to other children rights of children to participate? Some rele- and youth? vant factors to consider are: • Is children’s participation recognised as a • Effective? right or is it granted as a perk? • Respectful of local context? • Is it representative or does it involve • Sustainable? direct engagement? • Self-reflective and critical? • Is it ad hoc or integrated? • Participatory within? (i.e. non-discrimi- • Is it short term or sustained? natory, inclusive of marginalised groups, • Is it systematically documented? egalitarian) I aim to develop a set of questions on • Motivating, educating and promoting each. Box 1 gives an example of such a set of child and youth participation and gover- questions relating to ‘the recognition of nance? children’s participation as a right’. If gover- • Ethical? nance activities fail to view and recognise And in addition: children’s participation as a right explicitly, • Do they take place within a child-sensitive their participation is precarious and can be and enabling environment? cut off at any point with no justification • Is it a safe and respectful environment? given. Checking that children’s and youths’ • Is their participation both voluntary and participation is being treated as a right relevant? helps to safeguard it. In Box 2, we see an attempt to apply a child-focused lens to a component Assessing processes featured in analyses of adult citizens’ The second component examines the qual- participation literature and practice (e.g. ity of the process of engagement, by both Gaventa and Barrett, 2010). One hypoth- children and youth and their counterparts esis is that low levels of youth and adult in government. Once the stage is set and civic engagement may be because they the space made or claimed, what happens have not learnt how to engage as citizens there? Is it truly participatory? Does it – or rather, have not had the opportunity promote children’s participation? Does it to practice being an engaged citizen improve the quality of governance or help (Taylor and Percy-Smith, 2008). We need embed the principles of a governance to critically reflect on the value of CYEG. accountable to children? Are the processes: By actively promoting children’s rights to • Responsive? participation, CYEG can be an important • Transparent? way to actively learn how to become more • Accountable? engaged citizens. 100 64 Jennifer Tang Photo: Child Friendly Cities Initiative Sudan. Child Friendly Cities Initiative Sudan. Photo:

The research team in Sudan adapted the CFCCI community assessment tool to facilitate participatory assessment and analysis.

Resources and support for children and In order for CYEG activities to main- youth engagement in governance tain their quality, the spaces, structures, The third component highlights the fact systems and processes must be supported that CYEG requires resources and support within a committed network that recog- in ways that are adapted to the needs of the nises the integral role of CYEG activities. participants in the context in which they work. Just as children need to be trained in Some initial feedback working in governance activities, those Practitioners implementing youth and already engaged in governance need to be participatory governance initiatives are trained on how to work with children. obviously some of the best-placed actors This is a critical factor that is not currently being analysed with the frame- Box 3: Commitment of resources works that we have. These activities cannot • Have sufficient financial resources been take place in isolation. They must be linked committed to CYEG activities, including out-reach, to the community, the work of other profes- training, planning, liaison, data collection, reporting, and evaluation? sionals and the families that support each • Are physical spaces set aside for children and individual child and adult. With this in youth to meet and conduct CYEG related mind, aspects that need consideration activities? include: • Do children feel welcome in their spaces (i.e. are • Staff are trained, committed and sensitive. these accessible, child-friendly, inclusive)? • Is adequate time set aside by all the relevant • There is training and support for chil- actors and adequate priority assigned to CYEG dren. related activities? • There are community, professional and • Have resources been committed over multiple family links. cycles (years) so as to ensure the continuity of • There is a commitment of resources CYEG activities? • Have mechanisms been built in to review the (including financial resources, physical commitment of resources? space, time, and prioritisation of activities). l How far have we come with youth in governance? 101 to give feedback on the beginnings of this Conclusion analytical framework. The PLA writeshop What has been presented is a snapshot of offered the ideal opportunity. Semi-struc- my thinking to date. This is a framework tured individual interviews with several in development, a framework for analysing participants showed that the preliminary children’s participation in governance. It steps I had taken on the basis of my liter- will not be a set of guidelines for gover- ature review resonated with their own nance structures within which children’s experience and challenges from practice. participation can occur. Instead, it is a They also generated additional factors that series of questions for governments, should be taken account of in the frame- communities and children to closely exam- work. Here is a sample of what they said: ine the degree and manners to which their • Is the activity child-friendly (as even structures, systems, spaces and processes sometimes child-initiated activities are promote elements of good governance and not)? Is the activity aligned with interna- children’s rights to participation. tional instruments? Were children and As yet, the framework is in its early youth informed throughout the process? stages – and this article is a call for further (Lipotso Musi, World Vision Lesotho). inputs by experts in the field. By sharing • Consistency: when something is planned, this process and my work so far, I hope to do people respect this planning? Realism: foster discussion around the analysis of are the planned actions achievable? CYEG – and then to revise the framework (Serigne Malick Fall, Senegal). to take account of new ideas and sugges- • Do governance officials see youth as valu- tions. able partners in change? Are both youth as My next steps would be to validate this well as authorities equally and deeply framework by ‘field testing’: with children committed in time, energy and work? How and young people and their partners in does the community at large perceive the governance work, among others. I then activity? (Cynthia Ochola-Anyango, Jipange plan to refine it further and share with Youth Organisation, Nairobi, Kenya). those interested in analysing their own • What are the cultural contexts that both work or others’ on children’s and youth’s support and limit participation? What is engagement in governance. the youth understanding of the governance I welcome your input – including any environment, avenues and frameworks for suggestions you might have about relevant change? (Kenyatta Maita, Plan, Kenya). frameworks regarding children’s participa- I now see that further practitioner tion, democratic governance and inputs and feedback are indispensable for community decision–making – as well as taking the framework forward and I am raising any issues, areas and elements not thinking about how best to continue gath- yet considered in this draft framework. ering them and using them. Please get in touch!

CONTACT DETAILS Jennifer Tang Children’s Environments Research Group Center for Human Environments The Graduate Center City University of New York Email: [email protected] Website: http://web.gc.cuny.edu/che/cerg/ 102 64 Jennifer Tang

REFERENCES Chawla, L. (2001) ‘Evaluating children’s participation: seeking areas of consensus.’ PLA Notes 42 Children’s participation: evaluating effectiveness. IIED: London. Online: http://pubs.iied.org/9113IIED.html Chawla, L. and V. Johnson (2004) ‘Not for children only: lessons learnt from children’s participation.’ Participatory Learning and Action 50 Critical reflections, future directions. IIED: London. Online: http://pubs.iied.org/9440IIED.html Driskell, D. and N. Kudva (2009) ‘Everyday ethics: framing youth participation in organizational practice.’ Les Ateliers de L’Ethique 4:1. Fung, A., and E.O. Wright (2001) ‘Deepening democracy: institutional innovations in empowered participatory governance.’ Politics & Society 29:1. Gaventa, J. (2005). ‘Triumph, deficit or contestation? Deepening the “deepening democracy” debate.’ IDS Working Paper 264. IDS: Brighton. Gaventa, J. (2006) ‘Finding the spaces for change: a power analysis.’ IDS Bulletin 37:6. Gaventa, J. and G. Barrett (2010) ‘So what different does it make? Mapping the outcomes of citizen engagement.’ IDS Working Paper 347. IDS: Brighton. Hart, R. (1992) ‘Children’s participation: from tokenism to citizenship.’ Innocenti Essay 4. UNICEF International Child Development Centre: Italy. Johnson, V. (1996) ‘Starting a dialogue on children’s participation.’ PLA Notes 25. Online: http://pubs.iied.org/6099IIED.html Lansdown, G. (2005) The evolving capacities of the child. UNICEF Innocenti Research Centre: Italy. Lansdown, G. (2009) A framework for measuring the participation of children and adolescents. UNICEF MENA Regional Office. Online: www.childrightsinpractice.org/forum/topics/measuring-child- participation Milligan, A. and E. Watson (2011) ‘Bringing participation back into the heart of IIED.’ In (eds) K. Newman and H. Beardon. PLA 63 How wide are the ripples? From local participation to international organisational learning. IIED: London. Online: http://pubs.iied.org/14606IIED.html Taylor, P. (2000) ‘UNCHS (Habitat) – the global campaign for good urban governance.’ Environment and Urbanization 12:1. IIED: London. Taylor, M. and B. Percy-Smith (2008) ‘Children’s participation: learning from and for community development.’ The International Journal of Children’s Rights 16:3. UN-Habitat (2004) ‘Youth, children and urban governance.’ Policy Dialogue Series 2. Nairobi, Kenya. UN-Habitat (2006) Towards norms of good urban governance. Online: www.unchs.org/campaigns/governance/Principles.asp 103 PART II Rejuvenating spaces for engagement 104 64 105

Lesotho’s shadow children’s parliament: voices that bridged the policy gap 8

by LIPOTSO MUSI and MASEISA NTLAMA

The long walk to parliament This article is about the first-ever African governments, like all governments, shadow children’s parliament (SCP) are the primary duty bearers for the protec- sitting in Lesotho. The day-long event, a tion of the rights of children. This mandate simulation of a real parliament sitting, goes far beyond merely signing interna- happened on 16th June 2010 in the tional and national treaties. Written national parliament buildings in Maseru, commitments need to be translated into Lesotho and included one hundred chil- meaningful and appropriate implementa- dren. The key objective of the SCP was tion that benefits children. But the road to policy-related: for children to call for the implementing such commitments is often speedy enactment of the long-overdue long and cumbersome. Children’s Protection and Welfare Bill by We (the co-authors) work in the child the parliament of Lesotho, asking legisla- protection and advocacy department of tors to listen to their voices and World Vision Lesotho (WVL). We were intentionally plan and budget to address frustrated by the inadequacy of existing problems identified and prioritised by the child-focused legislation and the absence children themselves. of a comprehensive legal framework to protect the rights and respond to the needs Why a shadow children’s parliament? of the children of Lesotho. In 2010, the Working with communities and children Lesotho Children’s Protection and Welfare in particular, WVL has come to appreciate Bill had been in draft form since 2004. the multi-faceted challenges facing chil- WVL felt it was time to move the process dren as individuals and as a collective. In forward and put pressure on the Lesotho close collaboration with the NGO Coalition parliament to enact the bill. But what on the Rights of the Child (NGO-C) we would be the most effective method to decided to engage the national parliament bridge this policy gap? – the legislators – to try to move the bill 106 64 Lipotso Musi and Maseisa Ntlama

forward.1 World Vision and partners delib- parliament sitting was the culmination of erated on the most appropriate approach ongoing participatory processes under- to use and decided on the SCP model. The taken by WVL and a partner with children model seemed well-suited to our objective across the ten districts of the country.4 Here of calling adult parliamentarians to we describe the preparatory process stage account from children’s perspective, as well by stage, leading up to an account of the as giving children an opportunity for their one-day event. voices to be heard directly. A parliamen- tary-style approach would introduce Starting at the top: senators and children and adults to alternative ways of ministers democratically promoting citizens’ voices As the bill had been in draft form since and involving them in action to assess and 2004, we wondered whether the members advocate for change to address pressing of the national parliament fully understood social concerns. the significance of enacting the bill. The While the idea of using the SCP preparatory process therefore began in approach was decided by World Vision and April 2008 and culminated in February its partners, the concept and its roll out was 2009 with a week-long awareness-raising discussed with the children during the and lobbying workshop for senators and district level consultations. Hart’s ladder of members of the national assembly, organ- participation shows eight degrees or ‘rungs’ ised by WVL. It included unpacking the of children’s participation (Hart, 1992). To contents of the proposed legal framework us, the SCP appeared to match the sixth and the impact it would have on the lives of ‘rung’, as an adult-initiated process which the children and youth of Lesotho. We shared decisions with children.2 invited child rights experts, policy analysts This adaptation of the SCP model was a and academics to facilitate some of the first in Lesotho. Supported by World Vision sessions. This process not only helped to Australia under their child advocacy proj- enlighten the legislators – it also helped to ect, the event was timed to coincide with establish a relationship of mutual trust the African Union’s (AU) Day of the between parliament and World Vision African Child.3 The theme for 2010 was Lesotho. The foundation for the SCP sitting ‘planning and budgeting for children – our was being laid, one parliamentarian at a collective responsibility’. The day was a time. high-profile opportunity to highlight why In addition, we conducted one-on-one the Children’s Protection and Welfare Bill consultations with relevant ministers such was urgently needed in Lesotho, and for as the minister of health and social welfare, children to address high-level policy- the minister of gender, youth, sports and makers face-to-face under one roof – the recreation and the prime minister. The roof of the parliament building, no less. purpose of the consultations was to explain the purpose of the SCP sitting, to invite What was the Lesotho shadow ministers to attend it and to seek permis- children’s parliament? sion to use the national parliament The 2010 Lesotho shadow children’s buildings for the event.

1 WVL is a Christian, child-focused and community-based development and humanitarian organisation that has been operating in Lesotho since 1989. WVL focuses on child sponsorship, health, education, advocacy, and child protection/rights and humanitarian relief. 2 For an explanation of Hart’s ladder of participation, see Tang (this issue). 3 The International Day of the African Child is organised by the Organisation of African Unity (now African Union) as an opportunity to reflect on progress towards decent living standards, equality and protection for all African children. It commemorates the 1976 Soweto protests and killings of school children. 4 Lesotho coordinating body for child-focused organisations, the NGO-C was the key partner. l Lesotho’s shadow children’s parliament: voices that bridged the policy gap 107

Working with the children Box 1: District-specific themes for the SCP The next step was to work with district authorities to jointly mobilise children at • Child sexual abuse. • Child neglect and exploitation especially of community and district levels. Rather than orphans and vulnerable children (OVCs). assume we knew the problems facing chil- • Poor quality of education and health services. dren, in each of the ten districts we invited • Welfare of children in detention. 200 children to respond to a survey aimed • Human (child) trafficking. at identifying problems facing them. We asked 100 boys and 100 girls, aged mentary staff were on hand to provide between 10 and 18 – from urban and rural guidance for children on established areas, including children both in and out parliamentary procedures. of school. Interviews and focus group During the SCP sitting every child discussions were also conducted through- would have a role to play (see Box 2). They out May 2010. elected key role players for the SCP session The children voted for the issues which such as the speaker of the house and the they felt were of the most pressing concern prime minister. Others assumed the port- – for example, the lack of access to educa- folios of respective members of parliament tion and the violation of children’s rights. (MPs). Topics with the highest number of votes The children spent the evening became the district-specific themes that discussing and rehearsing their presenta- the elected children would present during tions, getting into character for the big day the SCP event (see Box 1). WVL also facil- ahead. Their presentations to the house itated discussions with the children on the focused on improving access to health, Day of the African Child theme. The chil- education and other kinds of services in dren decided that the overarching theme districts and communities, sexual and for the SCP session should be ‘the voices other forms of abuse against children, of children matter for their protection and teenage pregnancy, the welfare of children welfare’. in detention, the exploitation and neglect The participating children in each of orphans and vulnerable children due to district elected 10 SCP members. Those property grabbing and myriad violations elected – half girls and half boys – needed of children’s rights in general.5 to be willing and able to volunteer and participate, and confident to speak on The SCP in session behalf of others. WVL worked with the On the day, one hundred children – fifty department of health and social welfare to boys and fifty girls – assembled in the obtain written parental/caregiver consent national parliament building in Maseru. for the elected children to attend the SCP Each of the 10 districts in Lesotho was sitting. represented by 10 child parliamentarians, elected by their peers. In the public gallery The day before the big day sat several ‘real’ ministers, the deputy On 15th June 2010 – the eve of the SCP speaker of the house and representatives event – the elected children and their chap- from UNICEF, Global Fund, World erones, World Vision staff and NGO-C Vision, NGO-C and others. Their role was representatives assembled in Maseru, our to listen as the child ministers presented first time all together as a collective. Parlia- their portfolios to the house and then

5 Property grabbing: claims of intestate succession made by members of a deceased person’s extended family. The practice deprives widows and children from owning their family home. It is particularly difficult for orphaned children, as it deprives them of their primary means of survival (K.K. Mwenda, 2005). 108 64 Lipotso Musi and Maseisa Ntlama Photo: WVL Photo:

Children march to the parliament buildings on June 16th for the first-ever shadow children’s parliamentary session.

debated whether to support the motion to introduced the SCP theme for the day. enact the Children’s Protection and Following established parliamentary Welfare Bill. proceedings and processes, the child parlia- Proceedings replicated the workings of mentarians presented a short speech to the the national parliament. Once the sergeant other SCP members of the issues they had at arms had opened the parliamentary chosen to debate. In addition to presenting session and the pastor had given the open- daily real-life challenges faced by children, ing prayer, the speaker of the house every speaker ensured s/he also provided the speaker of the house with a possible Box 2: Children’s roles in the Shadow solution. Children’s Parliament One issue debated was about children • Speaker of the house: to facilitate and guide the in detention. They are frequently sexually discussions of the house while the SCP was in abused, exploited and emotionally trau- session. matised by adult prisoners. As a result, • Clerks to speaker: to document and summarise parliamentary discussions for public records. many child offenders leave detention only • Pastor: conducts prayers at the beginning and to find themselves back in detention within end of the parliamentary session. a short space of time. One SCP member, • Sergeant at arms: announces the start of the the sole representative for this category of session – without which parliamentary sessions children, recommended to the ministers of cannot start. • Prime minister: The leader of the ruling party in health and social welfare that the bill power. should ensure that child offenders be sepa- • Leader of the opposition party, whose role was rated from adult prisoners. to ask questions of clarification on the issues To wind up their session some of the tabled. SCP members presented a ten minutes • Members of the opposition party. • Ministers with different portfolios (ministry of role-play depicting the vulnerability of health and social welfare; ministry of gender, orphaned girl children in the hands of youth, sports and recreation). teachers. The girl is sometimes enticed to • The remaining child parliamentarians took the pay school fees in-kind by an unscrupulous roles of members of parliament (MPs), each teacher, in this case through sex, which representing their individual constituencies. results in unplanned pregnancy and her l Lesotho’s shadow children’s parliament: voices that bridged the policy gap 109 Photo: WVL Photo:

A child parliamentarian addresses the house. subsequent expulsion from school. After submissions, in preparation for its due this, the other child MPs were invited to presentation to the senate and then the respond, ask questions and finally state king. whether the motions proposed should be In late December 2010, the bill was included in the bill. passed by the senate with amendments. Finally, in response to the presenta- One amendment was the promotion of tions, the adult ministers for health and restorative justice in the case of child social welfare assured the child parliamen- offenders, which aims to repair relations tarians that the SCP came at a time when between the child and his/her family and the government of Lesotho had recently the community prior to release from deten- tabled a debate on the bill in the parlia- tion, thus minimising the chance of return ment. The ministry of gender, youth, sports to detention. This inclusion is probably a and recreation echoed this, indicating that response to the SCP’s emphasis on the need the government was working hard towards for special regimes for child offenders. The enacting the bill pending the necessary bill was then presented to the king, for consultations. She assured the SCP that endorsement, after which it would become their submission would provide impetus to law. the process. During the writeshop where this article was written, we learnt that the Children’s What did the SCP achieve? Protection and Welfare Act was passed by Following the SCP event WVL, NGO-C parliament on 22nd March 2011. and others continued to hold formal A national children’s committee (NCC) consultations with the legislative commit- has now been created under WV’s leader- tee and the social cluster of the parliament. ship. This body was a direct result of the This was in an endeavour to influence revi- SCP and was elected by the child parlia- sions to the draft bill in the light of the SCP mentarians on 16th June 2010, directly 110 64 Lipotso Musi and Maseisa Ntlama

Box 3: National children’s committee terms of reference

• Coordinate children-focused initiatives and WVL Photo: feedback from districts to WV Lesotho. • Representation in national/world child participation forums. • Support preparations for the next children’s parliament. • Promote child participation at district levels. • Join and forge new networks. • Raise awareness on child legislation. WVL national director Martin Silutongwe (middle), the WV’s child protection and advocacy officer • Make the SCP an annual event. (extreme left) and the HEA director meet the prime minister (second right) and the minister in the prime minister’s office Dr Phooko to lobby for the shadow after the SCP. Made up of representatives children’s parliament. from all the 10 districts the committee works to terms of reference set by the child ministers and with district child protection parliamentarians (see Box 3). These committees prior to the event. We were include a recommendation to make the also blessed with confident and charismatic SCP an annual event. WVL staff members who negotiated this process with high-ranking government Lessons learnt, critical reflection and officials, including the prime minister of analysis Lesotho. But it took time and perseverance. Given that the bill has now become law, we believe that by working closely with both Strategic collaboration with other senators and members of the national organisations assembly during the process, the SCP has No one organisation can effectively organ- been a contributing factor to the enactment ise an initiative of this magnitude alone. of the bill. Strategic collaboration with other like- While we can argue that ‘success’ was minded organisations is key to achieving realised in that the bill became law, how greater impact. WVL was on good terms much credit was due to the shadow chil- with the collaborating NGOs which made dren’s parliament event or preparatory this aspect of the project relatively easy for process? Face-to-face sessions with rele- us. However, we still need to foster more vant ministers contributed to some degree collaboration with community-based to the passing of the bill. We also recognise organisations that are in more constant the valuable contributions by many other contact with children. The issues presented players, some of whom are government by the children at the SCP – and many officials. However, a number of key lessons others – must continue to be discussed and can be drawn from this SCP experience. addressed at the community level.

Organising an SCP takes time and Replicating the SCP event perseverance Raising awareness and mobilising citizens Building good relationships and advocat- – including children – is pivotal to the call ing for the SCP process with both the for and promotion of good governance. relevant government departments and This includes respecting the rights of citi- strategically positioned individuals is zens to effective service delivery and of crucial. This helped to ensure that they holding government to account for ensur- were receptive to the children’s voices. We ing these rights are upheld, and their rights achieved this through the lobbying sessions to ‘express their views on matters that affect and the one-on-one meetings with relevant them’.6 l Lesotho’s shadow children’s parliament: voices that bridged the policy gap 111 Photo: WVL Photo:

Minister of health and social welfare addressing the SCP on 16th June. To the extreme right is the speaker for the SCP.

We hope to replicate the SCP approach tion and shepherds represent some of the in other World Vision programmes in most vulnerable categories of children in southern Africa. In Lesotho the existence Lesotho. For example, efforts to include of a draft bill was a key underpinning for children in detention proved futile in nine the initiative. Success elsewhere would of the districts. One representative of these depend on a range of contextual factors, was allowed to participate from Maseru including the existence of similar dormant district, but other district authorities legislation or precedents, the willingness of refused to allow others to participate, citing the governments concerned and the security concerns. In future, we need to perceived relevance of the issues at hand. make more deliberate efforts to include these children. Clarity of purpose For us it was clear that we needed to push Post SCP... then what? the enactment of the bill, which gave us With the act now in place, the next steps and the event a clear focus. Clarity was vital will include persuading government to too about the roles to be played by both continue to engage with NGOs and civil children and adults and about which deci- society in the process of amending the bill sion makers to target. These clarities meant (if necessary). World Vision will continue that after the event we are clear too about endeavouring to partner with govern- what to monitor and follow up on. ment and other child-focused organisations to address the simplifica- Better inclusion of vulnerable children tion, dissemination and translation of the It is important to include children from the act into a child-friendly version. There is most vulnerable groups in such initiatives, also a need to provide training and capac- to ensure their voices are not excluded. ity-building to the new national children’s Children with disabilities, those in deten- committee.

6 Article 12 of the Convention on the Rights of the Child (1989). See: www.unicef.org/crc 112 64 Lipotso Musi and Maseisa Ntlama

Conclusion intention was to target parliamentarians. Our experiences highlight some necessary The SCP enabled children – with the building blocks for promoting effective support and guidance of adults – to effec- adult-initiated and child-led advocacy. The tively influence and persuade policy child parliamentarians were given the makers to enact in law a comprehensive, opportunity to voice their concerns at the child-focused national policy. national level with a well consulted and Duty bearers must acknowledge their agreed-upon mandate from their peers. responsibilities and obligations to uphold Their performance demonstrated that the inherent rights of all citizens, including engaging the children previously in children. So we would like to end with a call community dialogue can build the skills to governments – at all levels – to ensure and confidence required to engage with that they provide opportunities for children government and policy makers at all levels. to voice their ‘views in matters that concern Using the SCP approach, our strategic them’.

CONTACT DETAILS Maseisa Ntlama Child Protection Manager World Vision Lesotho Southern Africa Region Private Bag A256 Maseru 100 Lesotho Tel: +266 2831 7740 or 2231 7371 (work) Website: www.wvi.org Email: [email protected] Skype: maseisa.ntlama

Lipotso Musi Regional Advisor on Child Protection and Child Focus World Vision Lesotho Email: [email protected] skype: lipotso_musia1

REFERENCES Hart, R. (1992) ‘Children’s participation: from tokenism to citizenship.’ Innocenti Essay 4. UNICEF International Child Development Centre: Italy. Mwenda, K.K., F.N.M. Mumba and J. Mvula-Mwenda (2005) ‘Property-grabbing under African customary law: repugnant to natural justice, equity, and good conscience, yet a troubling reality.’ George Washington International Law Review, George Washington University. 113

Catch them young: the young female parliament in northern Ghana 9

by EDWARD A.J. AKAPIRE, ALHASSAN MOHAMMED AWAL and RAHINATU FUSEINI

In Ghana women constitute over half of the Box 1: Duty bearers and rights holders population and play a significant role in the A duty bearer is an individual or institution with country’s economy, yet their visibility in key the obligation to respect, protect and fulfil a right. decision-making positions continues to be low. This results in policies and Rights holders are a person or group of people programmes that do not adequately who, by virtue of being born, are entitled to the address the specific needs of women and enjoyment of civil, political, social, economic and cultural rights – not as a favour or act of charity girls. The Universal Declaration of Human but as a right. Rights recognises the right of every person to be involved in the government of his or Sector Action on Awareness Centre her country. Equal access of men and (NORSAAC) has been to create a platform women to decision-making and leadership for young women to meet and debate issues at all levels is a necessary precondition for that concern them. The young female the proper functioning of democracy. parliament (YFP) was established in 2009 ActionAid Ghana (AAG) has long been and regularly brings together young women working with partners, duty bearers and from across the northern region. right holders (see Box 1 for definitions), employing a variety of interventions to Limited political participation of women ensure a fairer representation of women in Ghana is widely seen internationally as a local governance processes. beacon of hope in politically fragile sub- More recently, the organisation has Saharan Africa for its stable politics, good begun to consider how it can support young governance and democratic credentials. women to develop the skills and confidence However the country has no specific legis- needed to engage in public decision- lation taking affirmative action to secure making. One approach adopted by spaces for women’s participation in deci- ActionAid Ghana with its partner Northern sion-making. 114 64 Edward A.J. Akapire, Alhassan Mohammed Awal and Rahinatu Fuseini

Figure 1: Young women in student representative councils in the northern region

25 23 22 20 19 Female Male 15 13 Total 11 10 10 10 9 10 8 7 7 7 5 4 3 3 3 3

0 Numbers of student representatives on SRCs of student representatives Numbers NyankpalaDevelopmentUniversity Campus, Studies, forTamaleEducation,Tamale Tamale CollegeEducation, of EP College Bimbilla of Polytechnic, Tamale TamaleHygieneSchool of TrainingCommunity School, HealthTamale

Source: Administrations of respective schools.

Currently, there are only 19 female limited among young women. The country legislators in Ghana’s parliament, which is has no legislation that deliberately provides made up of 230 parliamentarians (Ofei- space for youth, including young females, Aboagye, 2000). Women constitute 32% to participate in governance at local and of the entire civil service and 24% of those national levels. Even in youth organisations in local government, with most being in the such as student representative councils secretarial and clerical classes. Only 12% of (SRCs) at tertiary institutions (universities, the decision-influencing category – the colleges, polytechnics), young women are administrative class – is female. The Ghana under-represented (see Figure 1). 2000 census report quotes 9543 women, representing 0.2% of women, as being in Making the link between girls’ managerial and administrative positions in education and women’s political Ghana. In the recently dissolved district participation assemblies (DAs) at local government level, During our reflection processes in 2008, elected female assembly members made up AAG and partners realised that young only 10%. Additionally, until January 2010, women were being left out of our work to no woman had ever assumed the position promote the rights of girls and women. of chairperson or general secretary of any While our support to girls’ education political party in Ghana. In the northern focused on girls in ‘basic’ schools (pre- region women are particularly under- schools, primary and middle schools represented, largely due to the region’s covering ages 3 to 14 years), our support to patriarchal cultural systems. The region women in leadership and decision-making had a woeful 38 out of 573 female district focused on adults (mostly above 28 years). assembly members. Young women from 15 years to 27 years in Representation and participation in secondary and tertiary institutions were public decision-making is particularly not targeted. Yet these young women are l Catch them young: the young female parliament in northern Ghana 115 Photo: Alhassan Photo: Mohammed Awal

YFP members on their feet for the closure of the parliamentary session.

an important group to engage in working to provide modelling and motivation to for change. help strengthen the ability of girls to AAG’s work to support women to demand their right to education. Girls’ engage in local and national governance clubs were also formed in schools to processes highlighted inadequate skills and strengthen girls’ skills to work with boys, lack of confidence as key barriers. Other school authorities, community leaders and barriers included cultural conceptions that religious heads in decision-making positioned the man as the household head processes. and therefore the one who makes decisions AAG and partners realised the need to for and on behalf of the whole family. In better link these two bodies of work. We some communities in the northern region, decided to develop a model similar to the for example, women do not sit with men girls’ camps and clubs, which had proved during community meetings. They are useful in promoting girls education at the isolated, always sitting behind the men. basic level. We introduced them at higher Meanwhile, AAG’s work to promote levels, particularly in senior high schools, girls’ education revealed that while more universities, colleges and polytechnics. As a girls than boys were enrolled in basic complement, the young female parliament schools in 2006, only about 14% of girls (YFP) was set up, to help ensure girls were staying in school beyond the basic stayed in school longer and also to provide level (Amu, no date). In promoting girl a platform for empowering more girls to child education, AAG and partners participate in local decision-making. It was adopted strategies like annual girls’ camps hoped that the YFP would provide them 116 64 Edward A.J. Akapire, Alhassan Mohammed Awal and Rahinatu Fuseini

with a platform to develop and practice the Ghana (an AAG partner) were involved.1 2 skills required to challenge and engage The process also included discussions with actively in governance. It would also estab- the district assemblies (DAs) to introduce lish a bridge between our work to promote the model and to facilitate their eventual girls’ education and to increase women’s ownership of it. This was a very important participation in decision-making. Girls requirement as the YFP was being shaped would be supported and encouraged by the to contribute to and influence policies and girls’ camps and clubs. Their training and governance, especially at the local level. It skill development would then be sustained was also important because DAs were through participation in the YFP, which expected to provide financial support to the would support them to overcome current administration of the parliament, finance barriers to young women’s participation in the participation of representatives of governance. schools in their districts and assist in the Being a marginalised group, young execution of special projects adopted. women first required a safe space to The next stage was to discuss the model develop skills, exercise these skills and with the school authorities (senior house build confidence if they were to effectively masters/mistresses), SRCs and student engage in governance, leadership and deci- leadership. The girls and the school author- sion-making. This was to avoid the usually ities accepted the model and agreed to the male dominance when common platforms election of representatives from their are provided. The safe space created should respective schools to the YFP. Since the also bear a resemblance to the political election period in schools had already stage they would, we hoped, go on to elapsed, it was agreed that the first set of engage in at national and local levels. parliamentarians should be chosen from Catching young women and empowering existing female leaders (girls’ prefects at them now would build their confidence senior high schools and women commis- and skills to actively participate in decision- sioners at tertiary institutions). The girls, making. A female-only structure would supervised by the school authorities, also be useful since the young women have selected the first set of female parliamen- common concerns and challenges. There tarians through school-based consultations would be a stronger solidarity among them and elections. The process involved 15 and shared understanding. senior high schools and eight tertiary insti- tutions. Finally, with the selection of the Establishing the YFP first set of female parliamentarians, the The YFP model was first conceived by AAG YFP was inaugurated in 2009. and NORSAAC in July 2008, during our annual participatory review and reflection Structure of the young female process. At a second meeting in August parliament 2008, AAG and NORSAAC further devel- The YFP has 40 members: one represen- oped the model. tative each from 15 high schools in 15 of the At a subsequent meeting in October 20 districts in the northern region, and 2008, other stakeholders such as the three representatives each from seven of National Youth Council (NYC), the the eight tertiary institutions. The eighth, Regional Coordinating Council (RCC), the Tamale Polytechnic, has four representa- National Population Council and Grameen tives because it has the highest female

1 The National Youth Council (NYC) is the state agency responsible for implementing youth policy and programmes. 2 The Regional Coordinating Council (RCC) is the highest political administrative body in the region, responsible for the governance of the region. l Catch them young: the young female parliament in northern Ghana 117

Figure 2: Structure of the YFP

One speaker of parliament

Two deputy speakers of parliament

One administrator and three clerks of parliament

Two-member majority leadership Two-member minority leadership (leader and chief whip) (leader and chief whip)

17 majority floor members of parliament 17 minority floor members of parliament population among all the institutions. the minority presents a candidate for Female students vote their representatives approval. The administrator and three into the parliament with a varying number clerks, who are not members of parlia- of seats per institution/school depending ment, are appointed by the leadership, on the overall number of females in the upon approval by a majority of parliamen- respective institution. Since the aim of the tarians. The minority and majority leaders, YFP is to provide the opportunity for as as well as the chief whips for both sides, many young females as possible to develop are elected by their respective sides. their leadership skills and abilities, each There are no permanent minority and member serves only one term, lasting two majority sides as usually found in political years. legislative/parliamentary systems. These The parliament has a well defined lead- sides are constituted on the basis of ership structure (see Figure 2) with issues/motions tabled for discussions standing orders for members and require- (members are randomly selected through ments for affiliation and membership, as balloting to form both sides). This unique well as an outlined schedule for structure has eliminated tendencies to sittings/proceedings. develop polarised or entrenched The leadership is made up of a speaker, debates/positions and has provided an two deputy speakers, a majority leader and opportunity for deep and rich debate. The chief whip, a minority leader and chief approach was taken after drawing lessons whip, a parliamentary administrator and from adult political parliaments where three clerks of parliament. The speaker is debates are highly polarised based on elected by parliament. The first speaker political inclinations of permanent major- was elected from amongst women ity and minority sides. commissioners of tertiary institutions but subsequent ones must be past female Debating issues through the YFP parliamentarians. For the first deputy The YFP debates topical national issues speaker position, the majority presents a such as local and national government candidate for the approval by the parlia- development projects, interventions, poli- ment, whilst for the second deputy speaker cies and programmes, among others. 118 64 Edward A.J. Akapire, Alhassan Mohammed Awal and Rahinatu Fuseini Photo: Alhassan Photo: Mohammed Awal

A cross section of YFP members engage in a group exercise.

There are also debates on specific issues however conduct their own research on related to women and girls, especially issues. violence, harassment and discrimination, Following these debates, a collective the gender gap in leadership positions in position of the YFP is reached and dissem- the region and institutional/cultural issues inated by the leadership through a relating to the development of young communiqué or brief. It may also be used females. as the basis for advocacy to engage rele- Topics or motions are tabled for debate vant duty bearers with respect to the issue with the clerk of parliament two weeks in question. Figure 3 illustrates the process ahead of sitting. They can be tabled by: of selecting, debating and advocating on • individual parliamentarians; issues. • groups (minority or majority sides); or • institutions (NGOs, CSOs, state institu- Change as a result of the YFP tions, local government, etc.) AAG and NORSAAC organises trainings, This enables the leadership to assess at least once every three months, for the motion for inclusion in the next sitting. parliamentarians based on training needs The leadership, through the clerks of the assessments. These trainings have so far parliament, then conducts research to included: gather information on the respective • leadership and conflict management; topics for parliamentarians to study, to • debating (debating skills and how to enable a well-informed and fruitful debate. present a good debate); and Individual parliamentarians can and do • advocacy and lobbying with duty bearers. l Catch them young: the young female parliament in northern Ghana 119

Figure 3: Process of selecting, debating and carrying issues forward

By groups (majority or By institutions (NGOs, CSOs, By individual FYP members minority side) local government etc.)

Clerk of FYP

Leadership of YFP (speaker, two deputy speakers, majority and minority leaders and their chief whips

Parliament debates selected issues

Collective position reached

Advocacy and lobbying with Sensitisation of communities state institutions (e.g. Advocacy with local and students; advocacy and education, youth, government, NGOs, CSOs lobbying with traditional employment ministries) and religious leaders

These activities are empowering partic- of the low representation of women in DAs ipants to engage effectively in governance and how to bridge the gap. A communiqué and decision-making. Individual members was issued by the young women calling on of the YFP have now developed the government to allocate 50% of the 30% courage and confidence to contest leader- DA seats which are appointed (rather than ship and political positions. For example, elected) to women. This call contributed in last year’s local government elections, to government issuing a circular to DAs to two members of the YFP contested elec- allocate 40% of appointments to women. tions to represent their electoral areas in Linkages have also been established the district assembly. As one contestant in between the YFP, schools and DAs. the West Mamprusi district assembly elec- Schools have agreed to include the selec- tions, Rabiatu reflected: tion of parliamentarians in their student leadership elections, along with represen- ... for me, the parliament has taught me tatives to student representation councils. two big things: that I have the right to The schools, through their representatives, participate in decision-making and that can communicate their particular chal- I can be whatever I want to be in the lenges and situation on issues such as future. Though I was not successful in the quality of education delivery, infrastruc- last year’s elections, I will never give up ture and education financing. These and I’m working hard to come back. concerns can then reach relevant state institutions, such as the Ghana Education Last year, the YFP debated the impact Service. The involvement of the DAs from 120 64 Edward A.J. Akapire, Alhassan Mohammed Awal and Rahinatu Fuseini Photo: Alhassan Photo: Mohammed Awal

YFP members rising for the opening of the parliamentary sitting.

the inception stage of the YFP to its oper- tion of the YFP have been identified. This ational stage, and the gradual includes expanding the representation to establishment of strong linkages between include females from all twenty districts of the activities of the parliament will hope- the northern region to achieve a regional fully make the YFP a sustainable perspective. Another idea is to facilitate intervention. exposure visits for the parliamentarians to witness and learn from proceedings of the Challenges and possible ways forward national parliament and other DA sessions The operation of YFP has not been without and improve their knowledge of processes some challenges. Principal among these is leading to decisions in these institutions. It the slow pace of full ownership of the would also be good to facilitate the estab- system by the RCCs and DAs, with finan- lishment of a library, well furnished with cial constraints being the reason for the relevant literature, books and other facili- slow progress. The high time and resource ties to support the research of female demands of research needed to feed into the parliamentarians and other students, debates is another challenge currently including male students. confronting the parliamentarians. Our reflections also reveal that, if girls In carrying these processes forward, a will eventually be engaging and compet- number of proposals to enrich the opera- ing with boys in common spaces, it is l Catch them young: the young female parliament in northern Ghana 121 important to gradually enable girls to exer- Conclusion cise the skills and confidence they have The YFP is only one approach to built in common spaces with boys. Oppor- increasing female participation in lead- tunities are being explored towards getting ership and governance. Processes DAs to recognise the YFP as a contributor leading to the development and adop- to issues at DA level relating to women and tion of the YFP, by their participatory girls and for DAs to adopt parliamentari- nature, have highlighted learning that ans as ex-officio members of the assemblies. could enrich the current model. Most This would enable them to witness and critical is the point that the YFP, though make contributions during assembly gradually ensuring effective participa- sessions, providing an opportunity for them tion of women and girls, requires the to further boost their confidence, knowl- support of local government, civil soci- edge of proceedings and other dynamics in ety and communities. Local government DAs. needs to work with and finance this Finally, getting all schools and institu- model, civil society needs to empower tions to fully institutionalise the YFP into girls, and communities need to provide their regular student elections and leader- the space for girls to exercise their skills. ship structure and DAs and RCC to own and Only then will young females be fully finance the operation of the YFP would attracted into participatory governance make it a sustainable intervention. and remain there.

CONTACT DETAILS Edward A.J. Akapire Programme Officer ActionAid Ghana Northern Region Development Programme PO Box 1057 Tamale, Northern Region Ghana Email: [email protected]; [email protected] Skype: edward.akapire

Rahinatu Fuseini Programme Officer ActionAid Ghana Email: [email protected]; [email protected] Tel: +233 3720 23940/22740

Alhassan Mohammed Awal Executive Director Northern Sector Action on Awareness Centre PO Box 2425 Tamale, Northern region, Ghana Tel: +233 3720 27029 Email: [email protected] 122 64 Edward A.J. Akapire, Alhassan Mohammed Awal and Rahinatu Fuseini

REFERENCES Ofei-Aboagye, E. (2000) Promoting the participation of women in local governance and development: the case of Ghana. Institute of Local Government Studies, Legon, Ghana. Online: http://tinyurl.com/uneca-pdf. Full URL: www.uneca.org/itca/governance/Documents%5CPromoting%20 participation%20of%20women%20in%20local%20governance .pdf Amu, N.J. (no date) The role of women in Ghana’s economy. Friedrich Ebert Stiftung, Ghana. Online: http://tinyurl.com/amu- pdf. Full URL: http://library.fes.de/pdf- files/bueros/ghana/02990.pdf 123

Young, but capable: youth lead the struggle against violence in Mali 10

by BEDO TRAORE

In Africa, and particularly Mali, children by Plan in partnership with Save the Chil- are exposed to the worst kinds of violence, dren. The project is guided by the in many different forms: physical, recommendations set out by the United emotional and spiritual. This violence takes Nations in its 2001 study on violence place in all kinds of places – within the against children in Africa. The main objec- family, on the streets, at school, in deten- tive is to strengthen the capacity of child tion centres and in work. The causes and youth organisations so that they can behind this violence are varied. They range tackle violence by disseminating informa- from poverty and social inequality to harm- tion, raising awareness, and advocating to ful beliefs and traditions, and the ignorance duty bearers.1 2 The children’s parliament and impunity of the perpetrators. in Mali is a key partner. In schools, violence is sadly often used This article will concentrate on the as an educational ‘tool’ or method. In 2010 work that members of the child parliament Plan Mali partnered with Save the Chil- are doing to advocate to duty bearers for dren to conduct a study on violence against better child protection. It aims to support children in schools. The study found that children and young people to enable them 83.5% of adults and 82.5% of children cited to mobilise and engage with duty bearers corporal punishment as one of the main and government. But has it increased their forms of violence perpetrated in schools protection from violence? (Antonowicz, 2010). As part of the ongoing struggle to end How did the project come about? violence against children, a regional project The first phase of the project (2008–2010) was launched in 2008 across West Africa was implemented in seven countries

1 Children are individuals aged under 18 years and young people from 18 to 25 years. Where there is overlap (ages 15-18) they are still children but known as young people. 2 For a definition of duty bearers, see the glossary, this issue. 124 64 Bedo Traore

Box 1: What is the children’s parliament? authorities to work hand in hand to put a stop to this practice. The children’s parliament is a platform for youth participation and freedom of expression which is open to all Malian children. Its aim is to support As well as the children’s parliament, the authorities in upholding the four main child various youth groups and structures are rights: children’s rights to survival, development, participating in the project. These include protection and participation in decisions that the Association for the Promotion of Youth affect them. Its role is to support the Malian government to implement national policies or and Child Communication (APJEC) and initiatives which promote and uphold children’s school councils.3 rights. It consists of 41 children aged 12 to 17 There are child parliaments in each of years old, with 21 girls and 20 boys. the country’s eight regional capitals. The Plan Mali was instrumental in implementing national children’s parliament consists of the children’s parliament as a way of providing policy support to the government with regards to children from the different regions and the child protection and participation. It has signed an capital Bamako. It is housed at the centre agreement with the ministry for the promotion of women, children and the family to this effect. The Box 2: Project activities and impacts agreement sets out a series of activities which What activities were carried out? promote women’s and children’s rights. It gives • Conferences and debates held in four primary particular emphasis to children’s participation as schools and four community discussion centres in agents of change, which the children’s parliament Bamako. is designed to facilitate. • Awareness-raising and advocacy tour of Koulikoro.4 including Mali. The second phase (2011– • A concert in Bamako with the theme ‘Children 2013), which has just begun, has widened have the right to participate’.5 the project’s reach to include three further • Televised debates in Bamako, shown on national countries. The project provides support to television. • Radio shows produced in eight primary schools children and young people’s organisations in the towns of Kati, Kangaba, Kita and Baroueli. and builds their advocacy capacities. The • Advocacy awareness-raising in all of the eight other stakeholders include teaching profes- regional capitals. sionals, parents, community-based • Radio programmes broadcast on 12 local radio organisations and decision makers at local, stations and the national radio station. national and regional levels. What were the results? Ending violence against children was • Children and young people’s capacities to already an area that the children’s parlia- implement child protection as a dimension of ment in Mali was working on, as explained good governance have been strengthened. here by Boncana, president of the children’s • Violence against children is becoming less taboo: children are now aware of violence as a parliament: phenomenon and starting to break the silence surrounding it. The struggle to end violence against chil- • Duty bearers are now willing to discuss dren is one of the principal concerns of the questions of violence with children. • Corporal punishment in schools (one of the most Mali children’s parliament. We have prevalent forms of violence against children) is created a group especially to address this decreasing. issue. I’d like to invite the people and the

3 Association pour la Promotion des Jeunes et Enfants Communicateurs (APJEC) is an association of former members of the children’s parliament. It promotes the rights of the child, primarily through their newspaper Regards des Enfants (Children’s views). 4 Koulikoro is a city in Mali, about 40 miles from Bamako. Koulikoro is the regional capital of the Koulikoro Region. 5 Organised by Plan and regional rap network United Artists for African Rap (AURA). Young rappers portrayed children living in difficult circumstances in their rap opera Poto Poto. Children and youth also debated issues that affect them. Other events showcased young people’s own initiatives to improve youth participation and informed adults and peers about their rights. l Young, but capable: youth lead the struggle against violence in Mali 125 Photo: Plan Mali Photo:

Participant Balkissa draws a cartoon depicting scenarios of violence against children. of a ‘children’s city’ in Bamako. It is parliament is elected from amongst the equipped and supervised by the ministry candidates based in Bamako, for reasons for the promotion of women, children and of practicality. This is one of the weak- the family. Plan has signed a collaboration nesses of the system because it effectively protocol with this ministry and provides discriminates against children from the support to the national and regional chil- regions. dren’s parliaments on this basis. Each new mandate begins with a child The children’s parliament has a change rights assessment from which the parlia- of office every two years. The last change of mentary members create an action plan. office was in 2010. Every child who pres- They implement, monitor and evaluate ents her/himself as a candidate has to put their action plan with support from the forward a programme of activities to government and partners. The children’s convince their peers of their suitability, parliament organises awareness-raising and and to prove their communication and advocacy sessions with duty bearers at leadership skills. Children attending regional and national levels. This includes school and those out of school can elect discussions with members of the adult members of parliament. Following the last parliament (MPs). These discussions allow elections, 41 members (boys and girls) them to share their concerns with MPs who aged from 12 to 17 years took up positions. then present them in parliamentary The president of the national children’s sessions. 126 64 Bedo Traore Photo: Plan Mali Photo:

During training participant Allassane learns how to use a computer. Box 3: What training was provided? Four training sessions were organised between July What approaches did the children and 2009 and September 2010, with around 20–25 young people use? children and young people taking part in each. The Tackling violence against children is participants chose which sessions they wanted to attend according to their different training needs. complex as the root causes are very deep. • The first training session, on advocacy and Wherever one encounters children, there is violence against children in the school also abuse. Because of this complexity, the environment, took place in July 2009. Participants project focused on building the capacity of discussed the different forms of violence against children and young people and working in a children and were introduced to the UN study on violence against children and its recommendations. collaborative, participatory way. The chil- They also learnt about advocacy and how to dren and young people identified what they campaign. wanted to learn which then formed the basis • Social media and new technology formed the of a series of training workshops (see Box 3). basis of the second training session in July 2010 As a result of the training sessions, chil- which involved a group of 20 children. They learnt about SMS text messages, blogging, the Internet dren and young people have become aware and Skype. This training was intended to support of the phenomenon of violence. Previously, children to develop the skills required to network they might have played dangerous games or with each other at local, national and regional bullied each other, not realising that this levels. constituted abuse. Such behaviour had gone • The third session, also in July 2010, taught children how to draw and use cartoons to raise on for many years. The children have also awareness about the types of violence most learnt new advocacy strategies. Balkhissa, a commonly experienced by children (e.g. bullying, child participant, tells us more: corporal punishment, female genital mutilation/ cutting, child labour and sexual harassment). I am very upset by the fact that young chil- • The final training session, in September 2010, looked at gender-based violence. It raised dren are victims of violence all over the awareness amongst children about the difference world. The only contribution I can make is between sex and gender, as well as examining to raise people’s awareness of this through gender stereotypes, gender-based discrimination, the cartoons we have created during this and how to bring a gender-equality lens to their workshop. I hope that they will give people work. l Young, but capable: youth lead the struggle against violence in Mali 127 Photo: Plan Mali Photo:

Youth Caravan on violence against children.

a wake-up call and they will pass the We arranged for all the people working on message on. this area of child protection to have a copy of the newspaper. Our work bore fruit… and However, this training omitted one today, the perpetrator is in prison. important aspect: training duty bearers. Although it was not part of this project, this Nowadays, more decision makers are could be included in similar projects, such discussing violence with children. This is not as the Learn Without Fear project launched an inconsiderable achievement. Although in 2008.6 Children have encountered a children may not yet receive their desired certain amount of resistance from decision level of protection, they do benefit from this makers which could have perhaps been favourable environment. The relationship avoided if they too had received training. between the children’s parliament and the The results achieved could have been even ministry gives the child parliamentarians a more conclusive and far-reaching. However, way of facilitating contact with the highest this should not detract from what the chil- levels of authority, such as the national dren themselves have so far achieved. assembly. This means that they have been able to make themselves heard and What have the children achieved? contribute to decisions. The silence which has always surrounded Corporal punishment in schools is violence, partly out of fear and partly decreasing. School rules are now made because of harmful beliefs and traditions, is available in schools and everyone is aware now being broken through the young of them. The whip is not used as people’s awareness-raising and advocacy frequently, and teachers say that they efforts. These efforts are directed both at have stopped hitting children. According decision makers and the general population. to a teacher from the Bankoumana Stories denouncing violence have been Primary School, in a village 60km west of published by APJEC in their newspaper. For Bamako: example, when APJEC learnt that a girl had been raped and the rapist was known but Because of the awareness raising done by had not been reported, they immediately children, we understand the consequences of published an article about the case. Diaffra, corporal punishment for children. I used to age 22, explains: do it, but as of today, I’ll never use the whip

6 Learn Without Fear is organised by Plan Mali in partnership with Save the Children, and supported by the ministry for basic education. 128 64 Bedo Traore Photos: Plan Mali Photos:

A group of children learning how to use a computer.

During group work, the child participants use A girl participant is fascinated by what she has learnt participatory tools to record their discussion on through the Internet. gender inequalities.

again. I would describe the whip (fouet in all the classrooms… to say that it’s not good French) in the following way: ‘fou’ (makes to hit the pupils. children mad), ‘e’ for ‘étourdir’ (stuns chil- dren) and ‘t’ for ‘lui traumatise’ (traumatises However, just because pupils at them). Ibrahim’s school were able to educate their teachers on why they should not use Children themselves agree that corporal violence does not mean that this is possible punishment has declined in some schools, in every school. The teachers who are will- as Ibrahim, 13, testifies: ing to discuss the issue with children and young people may change their behaviour, The teachers used to hit us a lot, but now but there are many more reticent teachers they no longer do… because we went round who will never accept it. l Young, but capable: youth lead the struggle against violence in Mali 129 Photo: Plan Mali Photo:

At the end of the computer training course, the children express their enthusiasm for what they have learnt.

What obstacles have been overcome and people continue to struggle to ensure their what lessons can we learn? protection. When we analyse these results, it becomes Another obstacle is the fact the chil- apparent that two main strategies allowed dren’s parliament is under the supervision us to achieve them. The first was to build of the ministry for the promotion of women, the capacity of children and young people children and the family. This is not a bad to campaign for their own protection. The thing in itself. It means that the ministry second was the creation of a network of chil- can provide the necessary framework for dren and young people which gave them the children’s parliament to carry out its more power when facing duty bearers, advocacy work. However, we should not because ‘L’union fait la force’ or ‘there’s lose sight of the fact that in order to effec- strength in numbers’. The project has meant tively participate in decision-making, that children and young people can get to children and young people must have a know each other and share their experi- certain amount of independence vis-à-vis ences of tackling violence. the State and other authorities such as their However, we must recognise that there parents. are still some obstacles to be overcome. This initiative is certainly good, but it Despite the amount of advocacy work could be improved if certain limitations carried out with decision makers, there has were removed. Practically speaking, the been very little progress in terms of better main limitation was the lack of foresight governance. There is still no adequate legal with regards to the need to strengthen the protection for children against, for exam- duty bearers’ capacities at the same time as ple, female genital mutilation (FGM). This the children’s. It is by no means clear that is despite multiple advocacy campaigns by the duty bearers have the necessary knowl- different parties. The prejudices and stereo- edge of child protection, child rights, good types that contribute to this type of violence governance principles or, above all, under- are so well rooted that any steps taken are standing of their roles and responsibilities fragile. As a result, children and young as guarantors of children’s rights. 130 64 Bedo Traore

Next steps respected, due to poverty and illiteracy. If The children and young people have the authorities were able to create a chil- certainly led the struggle against violence dren’s parliament in every commune in the themselves, and have proved their capabil- country, more children could be involved in ity. However, their engagement must be advocacy for good governance, and the analysed. For the next phase of the project, concerns of those most in need could be which has just begun, we need to further analysed and brought to the attention of the develop the two strategies highlighted national assembly via the national children’s above and to complement them with others, parliament. such as informing, training and building the In taking these steps we hope to consol- capacity of the duty bearers as well as the idate and strengthen the results that children and young people. children and young people are achieving A further possible complement would through their advocacy. As explained by be to extend the reach of the children’s Sidy, aged 14: parliament beyond the regional level to the commune level. It is at the commune level …I will never again stand by without inter- that children’s rights tend to be least vening when a child falls victim to violence.

CONTACT DETAILS Bedo Traore Child Participation Officer Plan Mali Bamako Mali Tel: +223 20 23 05 83/20 22 40 40 Email: [email protected]

Translated by: Sophie Bide Assistant Programme Officer Plan UK Finsgate, 5–7 Cranwood Street London EC1V 9LH UK Tel: 0300 7779777 Email: [email protected]

REFERENCES Antonowicz, L. (2010) ‘Too often in silence: A report on school-based violence in West and Central Africa.’ Prepared by Laetitia Antonowicz, Education for Change, based on a desk study by Sarah Castle and Violet Diallo. UNICEF, Plan West Africa, Save the Children Sweden West Africa and ActionAid, 2010. Online: www.unicef.org/wcaro/VAC_Report_Directory.pdf

ACKNOWLEDGEMENTS I would like to sincerely thank all the members of the Malian children’s parliament and the other young people involved in the implementation of this project. They have spared no effort in the production of this article, which I would like to dedicate to them. A special thank you is due to William Michelet, Programme Support Manager at Plan Mali and Maria Sanagre, Child Protection and Participation Advisor, who both helped me in the initial drafting of this article. Finally, a special acknowledgement to the editors and to Sophie Bide who has so ably and willingly translated multiple drafts. 131 PART III Learning citizenship young 132 64 133

As of now, we are stakeholders in local governance 11

by THE YOUNG PEOPLE FROM LOUGA, SENEGAL with SERIGNE MALICK FALL

Introduction have gained mean that we get more We are young people from the Louga approval and more consideration. The region in northern Senegal.1 In 2009, we most important thing is that we, ourselves, benefited from a project which gave us the have been qualitatively transformed by this opportunity to organise ourselves and gain change. the necessary skills to effectively partici- Now that we have earned our place, we pate in local governance. As a result, and intend to continue the fight to sustain and with some effective advocacy work carried strengthen it. We have got the determina- out with duty bearers, we now participate tion and the skills to do this, and, at the in our communities’ annual investment moment, the duty bearers’ attitudes are planning sessions.2 Prior to these meet- favourable. Now all we need to do is main- ings, we carry out a thorough analysis of tain and develop what we have learnt. We our priorities. These are then validated by rely on our partners and duty bearers to our peers, who have designated us as their help us. representatives. This is a real revolution because, before, Who are we? we were not a part of anything. Everything We are 37 young Senegalese citizens (14 was done without us, even when the prob- girls and 23 boys) from the Louga region lems directly concerned us: such as child in northern Senegal which is 70 km from St protection, education, health and sport. Louis, the former capital. We live and study Today, we are successfully integrated in in two rural communities called Niomré a world which, until now, was reserved and Kelle Guèye.3 We represent all the exclusively for adults. The new skills we young people who belong to child-centred

1 See notes at the end of this article. 2 For a definition of duty bearers, see glossary (this issue). 3 A ‘rural community’, in Senegal, is a collection of several villages situated in the same eco-geographic area. 134 64 The young people from Louga, Senegal with Serigne Malick Fall

Box 1: How did we write this article? This article was written in collaboration with 37 young people from the Louga region in Senegal. Their co- author, Serigne Malick Fall, a consultant for Plan Senegal, coordinated a two-year governance project which gave young people the opportunity to actively participate in local governance in their different communities. The article for this special issue of PLA on youth and participatory governance in Africa was produced in several phases. Following a call for papers by IIED, Plan and IDS in late 2009, I (Serigne Malick Fall) visited the field to tell the young people about the writing project and to identify with them the exact experience they wanted to write about. Once this was done, I wrote the abstract that was then submitted to the editors. When the abstracted was accepted, I went back to the young people and agreed with them on how the article would be produced. Following this, I set out eleven questions which would help the young people to write – this was the outline for the article which was then sent to the editors. We held two writing workshops with the young people, one in each community – Kelle Guèye and Niomré – and filmed them. During these workshops, the young people: • each chose the question that they wanted to respond to; • worked individually to reply to their chosen question; • worked in small groups, depending on the question; and • reproduced, in plenary, their group work. Their writing was then aggregated into two documents by ‘youth champions’ acting on their behalf. Using these two documents as a base, I produced the first draft which was sent to the editors. The first draft was also sent to the young people. I also gathered their feedback on the next draft soon after the writeshop. As the adult who accompanied the process, at the end of this article I offer some critical reflections on the changes brought about as well as the sustainability of the project. Planning our priorities during the workshop. Photos: Plan Senegal Photos: Prioritising what we want to write about in our article. l As of now, we are stakeholders in local governance 135 Photos: Plan Senegal Photos:

Our first session of the Plan Senegal school and local governance project that we re-christened Project Liggèèyal Sa Bopp – or, in Wolof, ‘To work for oneself’.

community organisations in 88 villages. The Liggèèyal Sa Bopp project empha- Every community has a federation of child- sised the need ‘to increase the centred community organisations and we participation of young citizens, and their are members of the Niomré and Guèye organisations, in the process of evaluation, federations. planning, implementation and control of Between 2009 and 2010, we benefited resources and services’.6 Without a doubt, from a Plan Senegal school and local gover- this project’s greatest innovation has been nance project, the Governance Programme the creation of school councils, which Partnership Agreement, which we have re- provide a space for training, meeting and christened Liggèèyal Sa Bopp. In Wolof, action. They provide a framework for us to this means ‘To work for oneself’ – because take responsibility and launch independ- of the central position we were given in its ent initiatives to serve our schools. With implementation.4 the school councils, our associative system This project has helped us to participate has been considerably strengthened. Now effectively in the management of our we have a space exclusively reserved for us schools and local governance through our in the school framework – under the gaze participation in community development of the Head of the establishment and the planning. teachers, who, until now, had exclusive control of school management. How are we organised, and why? The school council is lead by an execu- We have formed groups of children/young tive office of six young people (three boys people. We have divided each of our rural and three girls) democratically elected by communities into zones, each with a board the class delegates (of which there are four of children/young people. Our presence on to five per class) in a general assembly. It these structures has allowed us to educate also contains at least three separate our parents on the protection of the rights committees which are responsible for of the child and to participate in making different tasks within the day-to-day policies which concern us.5 running and management of the school,

4 Wolof is one of Senegal’s national languages. 5 The United Nations Convention on the Rights of the Child (UNCRC) is a legally binding international instrument that Senegal ratified in 1998. The CRC recognises the human rights of children, defined as persons up to the age of 18 years. For more information see the glossary (this issue) and: www.unicef.org/crc 6 Objective 3 from the Liggèèyal Sa Bopp project. 136 64 The young people from Louga, Senegal with Serigne Malick Fall Photo: Plan Senegal Photo:

Making an action plan for our school.

such as asset management, health, envi- From marginalisation to participation: ronment, hygiene and sanitation, sports how was change brought about? and culture etc. Previously, although we were organised into School councils have been crucial both child/youth groups, we didn’t know what in strengthening our participation in took place at the Rural Council, or how school management and our involvement things worked there.7 In effect, although our in our local planning development rights had been promoted and protected for committees. They provide a framework for several years, our right to participation was us to be trained in planning, management relegated to the background. For a long and the control of goods and services deliv- time, our parents had limited it to activities ered to schools. Because of these new skills, that didn’t compromise their power: for we now manage all our school assets as well example, helping to vaccinate our little as a part of the financial support granted brothers or registering them for school, to school projects. We also formulate action obtaining birth certificates for them etc. plans to improve our environment and It took the launch of the Liggèèyal Sa learning conditions. Bopp project for us to really benefit from These are welcome and unexpected our right to participate. This change was changes for children/young people, which achieved through a combination of factors: previously we had never dared to hope for, • successfully raising the awareness of our because of adults’ deep-rooted habits that parents and duty bearers; and effectively marginalised young people. • building our capacity as young people in

7 On its administrative map, Senegal is subdivided into 14 regions, 45 departments, 117 arrondissements (administrative divisions), 150 communes (the lowest level of administrative division) and 353 rural communities. l As of now, we are stakeholders in local governance 137 areas such as planning our priorities, managing goods and services, holding meetings and monitoring our action plans.

How did we build our capacity to participate? Plan Senegal Photo: We needed several training sessions to gain confidence and to feel capable of compet- ing with adults in domains that, previously, they occupied exclusively. Modules devel- oped for us by youth champions (teachers and young people who had already received Continuing our discussions outside under a tree. training) focused on the following skills: • planning priorities, translating them into activities and correctly budgeting for them; ensure a productive meeting, after which we • managing and controlling the quality of rigorously follow twelve stages (see Box 2). goods and services; • managing and generating financial How have we ensured that our priorities resources; are included in the community annual • conducting meetings; and investment plan? • producing a newspaper. The children/young people’s action plan is Once we had acquired these skills, we presented at the annual rural community were able to hold our own community investment planning workshop, which is a planning workshops. This work allowed us decision-making space for adults. This to be officially recognised by, and partici- meeting is convened by the President of the pate in, operational planning workshops Rural Council, in the presence of the organised by our respective rural councils. administrative authority, technical partners and NGOs. During this meeting, the chil- How do our planning workshops work? dren’s priorities are integrated with the The first stage of preparation for our plan- adults’, according to their relevance to the ning workshops is always to inform the programme objectives. Acceptance of the President of the Rural Council. Once we children/young people’s priorities is gener- have his approval and commitment to the ally easy, because, in the almost unanimous workshop, we begin our basic activity by opinion of the participants: planning at the ‘zone’ level: each of the four zones discussed above sets out its priorities The children/young people plan for every- and chooses a delegation to represent it at body: women, children and men.8 the community workshop. These delegates are then called to the Rural Council head- quarters for the planning workshop. We What activities have we carried out, and hold the meetings in the Rural Council’s how? discussion chamber, which gives our work The results recorded to date are extremely the official ‘seal of approval’. encouraging. As well as the activities we We begin a meeting by introducing previously carried out (raising environ- ourselves, and then setting out some rules to mental awareness, advocating for birth

8 Quote from the President of the Niomré Rural Council, at the annual investment planning workshop, Louga, August 2009, with the participation of a large delegation of children/young people and in the presence of all the rural council presidents of the department, the Prefect and technical representatives of the Senegalese State. 138 64 The young people from Louga, Senegal with Serigne Malick Fall

Box 2: Planning workshops Stage 1: Every participant tells a story that has affected them. Stage 2: Individually, we try to identify the problems one by one that have emerged from the different stories. Stage 3: Using drawings, we try to identify all the different problems affecting us, whether these are at school or in the community. Stage 4: Consolidation of the problems: • Drawings are put up and commented on. • We group ideas that go together, even if they are depicted slightly differently. • Two volunteers (one girl and one boy) try to classify the pictures. • The problems are named, based on the drawings. • We then choose by consensus the problems which are our priority, using a preference ranking method. To take into account the age of the participants, we often use a role-play activity to establish our priorities. This means that everyone is able to offer their perspectives and preferences without feeling manipulated. Stage 5: In small working groups, we try to present solutions to each problem using pictures. Stage 6: The proposed solutions are rewritten on flipchart paper and stuck on the wall. Stage 7: For every solution found, we set out the activities that would allow us to implement it, including the actors, the timeframe and the budget. Solutions Activities Actors Timeframe Budget

The budget section is only filled in after retrieving information from the relevant actors. Stage 8: We put monitoring mechanisms in place, using the following question: what proves to us that the activity has been carried out? Activity Proof that it has been carried out (indicators)

Stage 9: We collect the budgetary information, which means retrieving information from people about how much each part of the activity will cost. Stage 10: We process the data we have gathered: a small group of four children/young people (two girls and two boys) is in charge of adding the budgetary information to the activity table. Stage 11: We vote on the budget like this: • The solutions are set out on different coloured pieces of paper. • Two volunteers are designated to count the votes. • The solutions are classified according to the number of votes they receive. Stage 12: We put in place a monitoring committee: four children/young people (two girls and two boys) are voted to represent us on the Rural Council. Their role is to: • monitor the implementation of our action plan; • with the Rural Council, verify the execution of the activities including quality control; and • report back on the project to the group. After monitoring the project for three months, the monitoring committee has to answer the following questions: • What worked well? • What did not work well? • What should we improve next time? To do this, they have to fill out the table below: Activities Proof that the activity What worked? What didn’t work? What needs to be has been carried out improved? l As of now, we are stakeholders in local governance 139 Photo: Plan Senegal Photo:

Children in Senegal raising a flag that they helped to restore.

registration, school enrolment etc.), we are protection and realisation of children’s now working in new areas such as: rights. • making inventories of school property; We are now accepted, and even actively • requesting access to information (includ- invited, into decision-making spaces that ing prices) on the supplies and materials were previously exclusively occupied by destined for use in our schools; adults. We are participating in the devel- • ordering, receiving and managing the opment of different sectors of our supply of goods and services necessary in communities, expressing ourselves and our schools; giving our opinions on everything. • budget management for varied and Our participation in activities which complex activities such as school fairs, develop our communities at grassroots sports/cultural competitions, the purchase level makes us feel more responsible, confi- of school supplies; and dent and trusted. The skills we have • implementing community action plans acquired and our achievements have alongside other youth associations in our empowered us and given us confidence. We communities. express ourselves better in public and feel as though we are better trusted in different What impact have the activities had on situations. We now have skills and knowl- children/young people and the edge of subjects where adults often lack community? understanding. Moreover, by organising Due to the increased capacities we have our own planning workshops, we have demonstrated, adults now perceive us acquired life skills which are essential for much more positively. We are considered our society. Presenting our action plans just as capable as them of identifying solu- allows us to communicate with adults and tions to the issues faced in our community, help people of different ages to work well especially issues related to the promotion, together in community decision-making 140 64 The young people from Louga, Senegal with Serigne Malick Fall

Box 3: Learning by doing and the African past in Africa, focus on ‘learning by doing’ child (see Box 3). In L’Enfant Noir, Camara Laye (2000) brings ‘learning by doing’ to life by describing the What about tomorrow (perspectives)? relationship between a son and his blacksmith We know that it’s easier to create change father. Pierre Erny (1990) in L’enfant et son milieu than to sustain it. We could say that the en Afrique Noire, also aims to illustrate how, hardest is yet to come. However, we have throughout his life, the African child learns now learnt the essentials: we know how to alongside his elders whose responsibility is to ‘pass on the heritage of past generations’. Historically, organise ourselves and form networks with the African child developed by following his other children/young people. We have parents and working alongside them. The presence acquired technical skills which, despite our of young people alongside adults was an age, put us at the same level as adults. This invaluable way to learn to face their individual and means that we are now perceived as ‘part- collective social responsibility. These values have faded over time but we hope that they will be ners’ that local authorities can call on to revived by activities like these. ensure that local planning is done accord- ing to our social and economic needs, using spaces, which, before, were exclusively a rights-based approach.9 Better yet, we occupied by adults. We are also well inte- know what we want and how to get it. We grated within the teams which monitor and want to improve the quality of our educa- evaluate these planned activities. This gives tion. We need libraries and leisure facilities us the opportunity to develop good gover- in schools so that we can spend more time nance skills from an early age. there doing extra-curricular activities, In fact, our everyday behaviour has rather than at home where we (especially already changed. As a community repre- girls) are inundated with domestic work. sentative testified: Finally, we want to continue to benefit from projects at our level, so that we can The pupils’ demonstrations (strikes, sit- use our newfound skills and gain further ins, marches) were, until now, bordering skills in our work alongside adults. on vandalism, but since young people have We are going to share and transfer our participated in local governance processes, new skills so that our non-school attending we haven’t seen any damage or destruction peers, or those whose schools were not part of public property on their part. of this project, will also benefit from Liggèèyal Sa Bopp.

What impact has this had on duty bearers? Comment by Serigne Malick Fall, For duty bearers – for local authorities, process facilitator parents, representatives of State services Some fragility is evident in the young and community structures – this experi- people’s writing here. We must remember ence has been an opportunity for them to that as they increase their capacity, they gain more credibility in the eyes of children develop expectations. However, they also and young people. By working with young believe they owe everything to the NGO citizens in decision-making spaces, duty- which helped them to realise their right to bearers want to be seen as more credible participate in local governance. This and transparent in managing community includes, for example, the way Plan’s influ- development activities. Adults are now ence worked in their favour with adults in learning to pass on their knowledge and charge. skills to young people, using educational Nevertheless, in believing this, they are and training methodologies that, as in the underestimating their own assets, and

9 For a definition of a rights-based approach, see glossary (this issue). l As of now, we are stakeholders in local governance 141 forgetting that they did, in fact, believe in not yet realised that they are largely themselves. They are also forgetting that dependent on external funds (which come there have always been adults who are from the community or from NGOs such receptive to their participation, either as Plan). This makes it absolutely vital that because of their ideological convictions or outputs are monitored and supported until because they have first-hand experience of they reach a critical mass which will guar- young people’s maturity and a sense of antee their sustainability. responsibility towards them (in e.g. To do this, young people can rely on cultural, sporting or environmental activ- local duty bearers who are now willing to ities). These ‘youth allies’ constantly capitalise on what the project has already remind others of the wise Wolof adage achieved. Not only do most of the rural which says: ‘Truth is a needle, fallen in the community presidents now have the neces- sand. The young person, just like the adult, sary skills and knowledge, but several other can pick it up’. community groups are appropriating the Moreover, the history of development approaches used by the project in collabo- in our country reminds us constantly that ration with young people. This is the case in training, however well-formulated, will not Saint-Louis, Louga and Thiès in particu- suffice to bring about qualitative changes. lar. The young people at the heart of these The gap between trial and transformation important changes have, in themselves, is often very wide, which is further proof of definitively changed. In changing, they the merit of the young people from Niomré have transformed the context in which and Kelle Guèye. they act and completely transformed the However, the project’s outcomes are way they are perceived by the adults they still fragile, because young people haven’t have collaborated with. In this respect, we yet developed their own income-generat- may be sure that nothing will remain the ing initiatives. This would reinforce their same as before, because children/young autonomy and help them find endogenous people have acquired the means to partic- solutions to their problems. They also have ipate fully in local governance.

CONTACT DETAILS Serigne Malick Fall Researcher and Consultant in Education/Training and Governance Cabinet Solutions Pedagogiques Pour L’Afrique BP 3202, Thies Senegal Email: [email protected] Web: http://serignemalick.unblog.fr

Translated by: Sophie Bide Assistant Programme Officer Plan UK Finsgate, 5–7 Cranwood Street EC1V 9LH 0300 7779777 Email: [email protected] 142 64 The young people from Louga, Senegal with Serigne Malick Fall

REFERENCES Laye, C. (2000) L’Enfant Noir, Poche. Erny, P. (1990) L’Enfant et son milieu en Afrique Noire. Payot.

NOTES This article is the product of a collective effort by: the children/young people from Kelle Guèye: Khady, Abdou, Amy, Amsatou, Fatim, Cheikh Ibra, Ramata, Modou, Alé, Moustapha, Ndické, Modou D, Modou G n°1, Modou G n°2, Modou S, Omar, Serigne Mbacké and Ibrahima; the children/young people from Niomré: Moustapha, Saratou, Bathie, Fabèye, Ndiogou, Anta, Samané, Fatou, Cheikh, Bogou, Arame, Fary, Ndèye Aminata, Abdoul Aziz, Macoumba, Ibrahima, Mame Khary, Mbaye, Moussa and Ibrahima D; Plan Senegal staff: Lamine Ndiaye, Samba Fatim Mbaye, Georges Kamara, Amath Camara and Daouda Diop. We would also like to thank Sophie Bide, our tireless translator.

Serigne Malick Fall is an independent consultant for the School Governance Project at Plan Senegal. For more information, you can also contact:

Plan Senegal Email: [email protected] 143

Seeing from our perspectives: youth budget advocacy in Ghana 12

by CHARLOTTE BANI-AFUDEGO, GEORGE COBBINAH YORKE and ANASTASIE ABLAVI KOUDOH

Introduction these issues when it comes to budget plan- Budgets are extremely important docu- ning and implementation. The neglect of ments. They act as instruments for vulnerable children and youth – street implementing the provisions in the inter- children and youth, orphans, migrant chil- national, regional and national conventions dren and youth, those trafficked and/or leading to achieving the promotion of the sexually abused – in our policy and budg- welfare of children.1 Better outcomes in any eting could become a thing of the past, as sector, for instance in education, health, youth gradually become part of planning water or rural development depend not just and budgeting processes. on allocations but also on actual execution In Ghana, the idea of budgeting at the and proper use of those allocations. The national level was seen as very technical execution and proper use of budgeted and remained in the domain of the econ- funds can be improved through social omists and financial experts. National accountability.2 Citizens, including young budget processes were seen to have little citizens, can involve themselves in partici- to do with youth and children. The patory budgeting, public expenditure National Youth Policy of Ghana (Ministry tracking, monitoring public service deliv- of Youth and Sports, 2010) defines youth ery, lobbying and embarking on advocacy as persons aged between 18 and 35 whilst campaigns. the 1992 Constitution also defines children Poor investments on child welfare, as those below the age of 18. protection and gender equity reflect the Recently, Plan Ghana has sought to low priority many governments attach to enhance youth participation in budget

1 The United Nations Convention on the Rights of the Child (CRC), the Millennium Development Goals (MDGs), the African Charter on the Rights and Welfare of Children and the 1992 Constitution of Ghana are just some documents which have been approved by Government and make provisions regarding children’s welfare. 2 For a definition of social accountability see the glossary, this issue. 144 64 Bani-Afudego, Cobbinah Yorke and Ablavi Koudoh Photo: George Yorke George Photo:

A mindmap presented to writeshop participants by Charlotte Bani-Afudego and George Yorke on youth and budget advocacy issues in Ghana.

preparation and tracking. Being nated the activities of these youth since the concerned about children and young training. Some other Plan staff, including people’s rights, the organisation is Anastasie Koudoh, have also made input. concerned with whether and how rights- In this article we outline first the need fulfilment is budgeted and planned for. In for more youth participation in budgeting. collaboration with the Integrated Social We then go on to describe a participatory Development Centre (ISODEC) it began a youth budgeting training process, and how youth budget advocacy project in January the youth went on to apply what they 2010, as a pilot for replication in other learnt in the training. Finally, we explore West African countries. It has proven a the possible impacts of this process. The fulfilling experience for ISODEC and Plan article offers the opportunity to learn from and the youth involved. the experiences of these youth groups and The project trained young people in their evidence-based budget advocacy, as budget advocacy, giving rise to a group well as explore the best strategies to widen christened the Youth Budget Advocacy the horizon and increase opportunities for Group of Awutu-Senya District (Y-BAGAS). youth engagement with policy makers. It We the authors of this article have been points to the need to monitor consistently closely involved in the training programme the impact of youth participation in budg- and the preceding activities of the youth eting for their communities. It also group. Charlotte Bani-Afudego and two demonstrates that in order to become other trainers from ISODEC trained the active citizens, children and young people youths. Charlotte and George Yorke (from need to learn in ways that promote their Plan Ghana) have monitored and coordi- own sense of empowerment by being l Seeing from our perspectives: youth budget advocacy in Ghana 145

Figure 1: Budget advocacy training process

mentation, mon ple itor : Im raction with m ing 7 Inte ed a ep 6: ring a ia nd St p repa dvo e e : P cac v St p 5 ld visi y a e : Fie t an pl lu St 4 d a a p sh n t e Introd a i St 3: uci r o p ng in n te y g S 2: Intr o o p od f e u u i f t t e S c a t h l io d c t t n o e i

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proactive and initiating their own activi- 12 and 30 were selected. The training was ties – so that the learning process itself hosted in a different district so that activ- becomes a form of active citizenship. ities could be piloted there and replicated by the youth later in their own district. Learning new skills for effective budget Charlotte and ISODEC colleagues devel- advocacy oped a training manual and a toolkit for As a prelude to the start of the project, a budget advocacy training. stakeholders’ meeting was organised in the Awutu-Senya district. This was intended to Training of trainers introduce the local authorities, traditional The week-long ToT workshop was practical heads and community members to the and participatory. Its main aim was to project concept and help the authorities build the youth’s capacity to advocate for understand our objectives and the need to key changes in their communities for involve youth in their budgeting processes. development to be achieved. We first intro- The proposed methodology hinged on duced the participants to the rights-based a training of trainers (ToT) (see Figure 1). approach (RBA) as the basis for budget So we wanted to identify as training advocacy.3 International, regional and participants those with the best starting national legal instruments were explored level knowledge on budgeting. We applied as the justification for budgeting for chil- a selection process based on a question- dren’s rights. We then exposed them to the naire sent to twenty youths. Five young essence of family budgeting and the rele- women and five young men, aged between vance of considering everyone’s needs in

3 For a definition of a rights-based approach, see glossary (this issue). 146 64 Bani-Afudego, Cobbinah Yorke and Ablavi Koudoh

Figure 2: Budget process

Stage 1 Formulation

Stage 4 BUDGET Monitoring & PROCESS/CYCLE Stage 2 Evaluation IN GHANA Legislation

Stage 3 Implementation

the family before making any plans or reflected how children and youth were not budgets. We introduced them to the budget given opportunities in developmental cycle (see Figure 2) and budget documents programmes and activities in their district. at the local and national level and how After the training of trainers, the youth these can be influenced at each stage. participants who exhibited the greatest Participants also learnt some calculations confidence and knowledge replicated their of growth rates and how to make trend skills during the five-day training work- analysis of budget figures. Brainstorming shop with 15 other youths. Youth and group exercises highlighted the impli- participants were fascinated to have the cations of budgets for vulnerable groups opportunity to use the training manual and especially women and children. workshop contents to train other youth After interviewing the local authorities participants. Five out of the ten who in the host districts, the participants felt became trainers admitted that it was the equipped to design questions to ascertain first time they had stood in front of their the needs and problems affecting children, peers to engage them in participatory as well as how much community members learning approach. Ellen A., a 22-year-old participate in planning and budgeting. participant who became a trainer, said: They interviewed children, especially those selling on the streets, as well as adult men When you first informed us that we were and women. Returning from familiarisa- going to train other groups after our train- tion visits, they shared findings which ing, I doubted the possibility of having to l Seeing from our perspectives: youth budget advocacy in Ghana 147

explain issues of budgeting for my peers to gather empirical data to ascertain the understand, but the participatory approach issues affecting children. This enabled helped to realised how I can contribute and them to set a baseline and situational allow others to also contribute to discussions analysis that could be periodically moni- to enhance their understanding. tored in relation to budget allocations and execution. The first of its kind for most of Involving the media the youth, this experience proved very Plan Ghana also invited host district interesting and revealing. Youths from media personnel to the training for a simu- different communities divided themselves lation exercise. The youth groups into council areas of their district, to inter- presented their familiarisation visit find- view children, male and female adults ings and advocacy statements in the form about issues affecting the welfare of chil- of a press statement or press conference. dren, like education, health, water and The invited media actors reacted with the social protection. This enabled them to best strategies for engaging with media make grounded assessments of the and decision makers. The media actors adequacy of specific budget allocations broadcast the youths’ activities and find- and executions relating to these essential ings during a morning radio show which services received several commendations from Having confirmed through the field listeners during a phone-in session. survey the importance of these sectors to children, the youth analysed the respective Putting budget training into action District Assembly budget allocations. We On returning to their own districts, the helped them to organise a validation meet- engagement of the 25 trained young ing at which they shared initial findings of people was at the local level. It was based field survey work with some community on a budget advocacy plan establishing members and the local authorities. objectives and timelines, which they devel- The theme for the 2010 African Union oped at the end of the training workshop. Day of the African Child – ‘budgeting for Their first activity was to embark on children’s rights’ – happened to coincide field trips to various communities to with budget advocacy post-training activi-

News article by Adnan M. Adams in Ghana’s Economy and Times. ‘Budget advocacy group releases report on children’s rights.’ 148 64 Bani-Afudego, Cobbinah Yorke and Ablavi Koudoh Photo: ISODEC/Plan Ghana Photo:

Youth groups conducting research in their communities to ascertain issues that affect the welfare of children. ties. This provided an opportunity to District Assembly budget could address the engage with local host-district decision basic needs of children especially in educa- makers. An advocacy statement was tion, health and water. All these activities presented by the group at a mini-durbar, were interpreted in the local language, which is an official gathering hosted by a thereby reaching more participants. This local chief. This was organised by Plan activity generated a lot of interest and ques- Ghana in a local district and brought tions, and the youth responded with together school children, District Assem- practical examples using preliminary find- bly officials and parents as well as some ings from their field survey. traditional leaders. The youth groups put Some of the youth groups were also on a role-play activity depicting how their invited to participate in a forum of civil l Seeing from our perspectives: youth budget advocacy in Ghana 149 society organisations (CSOs) to make Initially, the participants were not inputs into the 2011 Ghana budget state- comfortable with the participatory ment. They strongly supported the approach. They felt they knew nothing of continuation of the Youth in Agriculture the subject and expected the usual programme, which was approved, teacher-pupil methodology. Their contri- although we have no way of knowing how butions during discussions made them see much this was due to the youths’ advocacy. that they had a lot to offer to the learning The youth have continued to hold process. For instance, participants meetings as necessary and conduct peri- embarked on familiarisation visits during odic monitoring to track changes on the training to some local assemblies government spending and programmes in within the purview of the host district. their communities. Some of them had to They interviewed planning officers and travel long distances to remote communi- budget officers and raised concerns about ties where children lack basic social the medium term development plans and services. But visiting such places helped objectives of the district which inform the them to understand and analyse the budget. The budget officials took account inequitable distribution of scarce of some of the concerns they raised and resources. Philomena H., an 18-year-old invited them to the next meeting about the girl, said: medium term development plan. We were struck by the way participants I am very glad I took part in this survey in the replica training workshops because it helped me to be more conscious responded to their peer trainers, who were about how some children are denied access creative and innovative in their to basic educational facilities, although approaches. Charlotte and colleagues government and local authorities are provided guidelines, monitored the replica mandated to meet these needs. This situa- workshops and made some interventions. tion boosted my morale to advocate more They also met with the youth trainers after for these voiceless children to be heard. each day’s training to evaluate their presentations and methods. In order not to forget the knowledge they The participatory approach adopted acquired, these youth groups voluntarily for the training clearly helped the youth to conduct workshops on budget advocacy for understand the concept more than they other groups. So far, 70 children and youth would have from a less participatory (31 females and 39 males) from central and methodology. It boosted their confidence eastern regions have participated. to share their ideas and contribute to discussions. Reflecting critically and learning from The youth groups undertook continual the experience follow-up with the communities they In terms of the process, we feel that the visited, which helped them to track training was imperative not only for the changes that had occurred since their youth but for the coordinators too, since it initial survey. tested and validated the manual designed Most of the youth have articles and for the process. After the first training we stories which they want to project to policy made a lot of revisions to the manual, in makers to prompt them to act. Providing particular including more exercises to them with better access to avenues like the enhance knowledge and practicality of the media would increase their sense of fulfil- training, since we observed that the partic- ment and encourage them more to take up ipants were well capable of absorbing initiatives. Facilitators have therefore more than we had anticipated. planned with youth groups to visit radio 150 64 Bani-Afudego, Cobbinah Yorke and Ablavi Koudoh

medium term plan and budget. They knew they were not considered important stake- holders when it came to district planning. The knowledge they acquired in this short time was immediately put into action, and the rights-based approach they used in their budget analysis made the local Photo: ISODEC/Plan Ghana Photo: authorities attach greater importance to their findings and recommendations. The participatory learning process used in the training (and later on in the training of trainers) has been very effective in empowering these young people to engage in local budgetary processes. These youth groups now carry out their own initiatives like visiting schools, organising debating competitions and participating in commu- A young girl that the children interviewed, who was nity durbars to use the opportunity to call selling goods during school hours. on local government to address the needs of children and youth in their communi- stations to discuss findings from the budget ties. These youth are now consulted analysis. Some youth groups have been occasionally by the District Assembly on encouraged to write more articles to be issues concerning them. As the programme published in news journals. is extended from this initial district into Critiquing ourselves, we think we left other districts, the prospects for impact are these youth groups to operate independ- increasing. ently a bit too early, without providing These achievements have happened not them with the necessary reinforcement to because adult child rights activists arm them for the task ahead. Providing published journal articles on issues that refresher training would help them stay affect children, but because those who were focused on their objectives, as well as most concerned and affected by the situa- addressing already-noted challenges, such tion provided evidence and demanded that as difficulty in accessing information at their economic, social and cultural rights district level and in generating media inter- be met by duty bearers, and were empow- est in their advocacy work. Also, we still ered by the process of doing so. have a major guiding role to play by moni- At the initial stages of engagement with toring the youths’ activities. We therefore the local assembly during the validation plan to organise another major training on meeting, the district Chief Executive – the budgeting for all beneficiaries of the first political head of the district – did express training, to identify any weaknesses, interest in engaging more with the youth, enhance their knowledge and support their but also offered some resistance. He pointed multiplication of the training activities. out anomalies in data presented, contested In terms of emerging impact, the intro- some advocacy statements in the report, and duction of these youth to budget advocacy asked the youth to contact his unit so that has brought about some remarkable they could update their report with some changes in the youth themselves, their current data. He then tasked all the depart- communities, and to some extent the ment heads in the district to prepare their nation as a whole. Hitherto, the youth were outstanding annual reports and present oblivious of what informed their district’s them to the youth to use in their analysis. l Seeing from our perspectives: youth budget advocacy in Ghana 151 Photo: ISODEC/Plan Ghana Photo:

The trainees surveying other youth and children. For most of the youth, this experience proved very interesting and revealing.

Beyond this, the impact of these activ- Conclusion ities on the districts’ budget allocation Budget advocacy training, exposure and remains to be seen since – as we write – experience has not only built the youth’s the analysis was done six months ago and intellectual capacities but has also the next budget is only due in eighteen increased their confidence level. They now months’ time. Moreover, allocation is not feel part of the development process, the same as actual budget implementa- worthy of being invited to participate in the tion. The onus lies on the ISODEC trainers District Assembly meetings or consulted and Plan Ghana project initiators to keep on issues concerning children and youth in supporting these youth to continue moni- the district. Mohammed A., aged 21 and a toring and analysing their budgets yearly. member of Y-BAGAS, evaluates himself: This will enable them to weigh up the impact of their budget advocacy and to Ever since I was exposed to the concept of learn and overcome challenges in advo- budgeting, I am able to write articles and cating for developmental changes in their contribute to some policy discussions. I am district. proud to call myself a budget expert, 152 64 Bani-Afudego, Cobbinah Yorke and Ablavi Koudoh

because I can without any help analyse my in international debates. Some of the youth district budget and carry out effective groups are now part of some national budget advocacy for children’s issues to be consid- platforms, which may provide these oppor- ered in budgeting. tunities. Youth groups could also lobby on children and youth through the relevant In future, as well as more systematic parliamentary select committees, which are monitoring of budget execution, it will be very influential. This scale-up of youth critical to involve youth in national as well empowerment via budget advocacy would as local budget processes. We have visions of breed a specialist youth budget network, and youth participating during national budget go a long way to increase budget accounta- planning and hearings and even taking part bility to children and youth at all levels.

CONTACT DETAILS George Cobbinah Yorke Advocacy and Governance Advisor Plan Ghana PMB, Osu Main Post Office Accra Ghana Tel: +233 030 2778039/2773370 Email: [email protected] Web: www.plan-international.org

Charlotte Bani-Afudego Programme Officer Gender, Human Rights and Macroeconomics Integrated Social Development Centre (ISODEC) PO Box MP 2989 Mamprobi, Accra Ghana Tel: +233 302 254918/21 Email: [email protected]; [email protected] Website: www.isodec.org.gh

Anastasie Ablavi Koudoh Regional CCCD Programme Specialist Plan West Africa Regional Office 4023 Amitié II BP 21121 Dakar, SENEGAL Tel: +221 33 869 74 30 Fax: +221 33 825 55 00 Email: [email protected] Web: www.plan-international.org

REFERENCES Ministry of Youth and Sports (2010) National youth policy of Ghana: towards an empowered youth, impacting positively on national development. August 2010. Online: www.ghana.gov.gh/documents/nypolicy.pdf 153

Local champions: towards transparent, accountable governance in Embakasi, Kenya 13

by EDWINE OCHIENG and CYNTHIA OCHOLA ANYANGO

Introduction and consequently their fundamental Effective community participation can human freedom. contribute to generating practical ideas and This article is about a counter example. developing these ideas into high quality Embakasi is a district in Kenya with a sustainable action plans. Resisting social population of 619,390 (KNBS, 2009). It injustice is easier when you have strength was one of the districts severely hurt by the in numbers, the right information and post election violence of 2008. Youths were appropriate tools for engagement. involved in crimes such as rape, killings In Kenya, the limited progress in gover- and property destruction in the slum areas. nance and development is related to Embakasi is characterised by low levels of citizen’s minimal participation in shaping political awareness, apathy, high unem- them. Our political arena is not responsive ployment rates, poor sanitation, numerous to the needs of the majority, who include informal settlements and high prevalence the youth, women, children and margin- rates of HIV/ AIDS. The district is home to alised groups, such as persons with many illegal gangs which extort money disabilities and those living with from the transport industry and create HIV/AIDS. Strong civic activism among havoc when confronted by the police. Since them is rare, capacity for engagement is many youths are jobless, they are attracted low and awareness of ongoing governance into these gangs by the prospect of quick agendas is scant. Even given strong public- money. ity about current affairs, they may be In November 2009, a governance unable to participate in governance if deci- programme was introduced by Plan Kenya. sion-making processes are closed to them. This article illustrates how this responded Young citizens particularly, emergent and to the governance and exclusion problems vibrant as they seem, engage little with outlined above. The article is co-authored State organs. This limits their voice, choice by Edwine Ochieng, a government official 154 64 Edwine Ochieng and Cynthia Ochola Anyango

from the district office for gender and social development and Cynthia Ochola, a member of the Embakasi Youth Organisa- tion and secretary of Jipange Youth Organisation.

We will show via the Embakasi experi- Nderitu Peter Photo: ence that young people’s organisations engaging in social accountability around service provision and other governance issues need to collaborate instead of competing.1 The capacity of these organi- sations needs to be promoted and strengthened, via training in leadership, governance and monitoring and evalua- tion. In these ways, coalitions of youth organisations can be enabled to play a role in implementing a coordinated response through a participatory governance process. We each wrote different sections from our distinct viewpoints. We first describe the establishment of the governance Edwine Ochieng facilitating during a governance programme, and go on to discuss in more workshop. detail aspects of the programme related to engagement with government, accounta- enable their informed and constructive bility, networking, social auditing, engagement. My experience as a project transparency and information and and development consultant was useful in communication technologies (ICTs). We guiding them to programme their initia- then reflect on the challenges we have tives in areas of constitution-making and faced, and draw out lessons from our expe- strategic planning. rience. CYNTHIA: During our third training workshop other participants and I decided The governance programme to form a coalition of youth groups to provide a platform for engaging in the Training events governance programme. We came up with EDWINE: Through the district gender and the name Jipange, a Swahili word mean- social development office in Embakasi, ing ‘self-plan’. The Jipange Youth Plan Kenya mobilised a group of 22 (9 Organisation consists of sixteen youth male and 13 female) young citizens drawn groups involved in various projects within from registered youth organisations for the community in areas such as reproduc- training on governance. This was to help tive health, rubbish collection, the youth develop an understanding of how construction, theatre and HIV/AIDs to engage with the local administration. My awareness. Many resources have been allo- role as a government official in the train- cated to institutions and committees at ing was to help them understand the grassroots level and our concern was operations, policies and programmes whether they are used for the intended undertaken by the government, so as to beneficiaries, mainly the vulnerable people

1For a definition of social accountability, see the glossary (this issue). l Local champions: towards transparent, accountable governance in Embakasi, Kenya 155

Box 1: Jipange Youth Organisation and government officials embraced the youth. Among other things, they openly Our vision as a coalition youth group: a well- governed society and an empowered youth provided the information they sought. participating in decision-making processes. When Jipange participants decided to identify policy issues affecting young Our aims: improved development and democratic people in Embakasi, they visited various outcomes, through the active engagement of government offices to request information young citizens in policy, planning, resource mobilisation and programme implementation in on how youth involvement was supported sectors including youth and governance, in programmes and policy areas such as reproductive health and life skills, economic environment, health, unemployment, ICTs empowerment, environmental management and and insecurity. Security issues in Kenya are information and communication technology (ICTs). considered sensitive by the police. However, in his willingness to support the in the community. We identified and efforts by Jipange, the officer commanding started to engage with governance Kayole police division gave out statistics on processes, institutions and structures that the rate of crime in Embakasi. He chal- manage devolved funds in areas such as lenged the youth to be proactive in education, health and the environment. advocating for community policing. Once Plan Kenya had organised the Similar interactions occurred in all capacity building workshop, we young government offices they visited. With this people took the lead. Government officials information they compiled a report called attending the trainings shared with us their the ‘Embakasi youth agenda for gover- concerns and the activities undertaken by nance and development’, and shared it with their various offices. The constituency all who participated in the exercise through development committee quizzed us on how a forum presided over by the district information given to us would help the commissioner. community. We explained to them how we intended to increase accountability and Holding local institutions accountable transparency in grassroots governance and CYNTHIA: Barazas are grassroots policy development processes. meetings held at village levels and organ- The organisation later became a house- ised by chiefs, district officers and the local hold name in the district. The district administration to explain government commissioner, attending a ceremony for programmes and policies to the people. We the youth enterprise development fund, attended several barazas to encourage advised the youth in attendance to ‘emulate young people to take up the opportunities the Jipange Youth Organisation in their offered by government, such as those in consistent approach in demanding trans- Box 2. parency and accountability from grassroots development committees’. Box 2: Key government programmes • Youth enterprise development fund – loans Young citizen engagement with the local advanced to young people to promote their administration income generating activities. EDWINE: I became a key link person • Constituency development fund (CDF) – funds for improving infrastructure at grassroots between the young people and the govern- level. ment officials, making it easier for a • Local authority service delivery action plan collaborative working relationship to (LASDAP) – means by which municipalities can develop between these two key parties. initiate projects at grassroots levels. Initially neither found it easy to relate to • Local authority transfer fund (LATF) – to support street lighting and road repairs. each other. Gradually, this attitude changed 156 64 Edwine Ochieng and Cynthia Ochola Anyango

A public district forum was held in districts in Kenya, to provide a platform for November 2010, attended by all district advocating on policy issues and good departmental heads and civil society governance at regional and national levels. organisations. At the forum, entitled ‘Embakasi youth agenda for governance Youths monitor government performance: and development’ we highlighted key social audits policy issues that we wanted the local EDWINE: A social audit is a way of meas- administration to address, revolving uring, understanding, reporting and around our aims (see Box 1). In attendance ultimately improving an organisation’s was the district commissioner, who social and ethical performance. It helps to commended the youths and promised to narrow gaps between vision and reality, work with his team to take up the concerns efficiency and effectiveness. It is a tech- we raised. Discussion on how to make nique to understand, measure, verify, every duty bearer responsible ensued, and report on and improve the social perform- a consensus emerged that grassroots gover- ance of the organisation (FAO, 2003). nance structures must be made In February 2010, with support from transparent and accountable to the public. Plan Kenya, the Embakasi youth The departmental heads committed to conducted social audits on government- incorporating our concerns into their funded projects at grassroots level. The respective work plans. Months later, the projects audited were those funded by the Ministry of Agriculture invited the chair- CDF and the local authority transfer fund man of Jipange Youth Organisation to (LATF). The aim of this exercise was as represent young people in the district agri- stated in Box 3. cultural stakeholders planning committee, In one school visited, worries were responsible for organising farmer’s field expressed about dubious contractors who days in the district, among other agricul- use political connections to get tenders tural activities. and later fail to fulfil them as specified. We generated a report on the outcome of the Networking: shared learning social audit, observing that projects were CYNTHIA: Jipange members, Plan gover- designed without community involve- nance staff and the district youth officer ment, some were incomplete due to delays visited Plan Kenya governance in government funds, and community programmes in Machakos, Kwale and members needed knowledge on project Tharaka districts. The purpose of these cycles and basic management skills. visits was to share and reflect on achieve- Completed projects were generating bene- ments, experiences and challenges and to borrow from best practices elsewhere. In Box 3: The aims of the social audit other districts, the young people had mini- • Assessing the physical and financial gaps mal ideas on how to engage with the local between needs and resources available for local administration. In Tharaka, for instance, it development. transpired that the local administration • Creating awareness among beneficiaries and had not shared with the youth information providers of local social and productive services. • Increasing efficacy and effectiveness of local on LASDAP and its possible benefit to development programmes. them. From these tours we learnt that there • Scrutiny of various policy decisions, keeping in was value in a collaborative approach when view stakeholder interests and priorities, working with the government and civil particularly of marginalised groups. society. This prompted us to register a • Estimating the opportunity costs to stakeholders when not getting timely access to national youth and governance consortium public services. in June 2010, with membership from seven l Local champions: towards transparent, accountable governance in Embakasi, Kenya 157 fits, such as access to affordable social serv- ices. The report was shared with the district development officer, district commissioner and grassroots develop- ment committees. Photo: Peter Nderitu Peter Photo: E-governance CYNTHIA: Plan Kenya supported our organisation by installing an ICT resource centre. As members we established its purpose as providing the public with access to information, and promoting economic empowerment and e-governance. E-governance refers to the use by government agencies of ICTs that can transform relations with citizens, busi- nesses and other arms of government. These technologies can help improve the delivery of government services to citizens, The Jipange Youth Organisation: a youth-friendly their interactions with business and indus- resource centre. try, their empowerment through access to information and more efficient govern- proposed supporting the construction of ment management. Ultimately they can public accountability boards – notice help reduce corruption and costs and boards used to display information on increase transparency and revenue. By community activities supported by the narrowing the distance between service government for the benefit of the people. providers and clients, our resource centre They are used to enhance transparency and has become central in helping community accountability on resource use. members access government services The district commissioner accepted the online. idea and proposed that they be put in key district offices including his own. Our role Box 4: Government online services was to help coordinate the information • Completing tax returns. posted on the boards and create awareness, • Tracking applications for identity cards and leading to their use to promote trans- passports. parency and accountability. However, it has • E-learning for Kenya certificate of primary not been easy to assess (yet) whether education curriculum. • Government advertised jobs. accessing this information is changing • Applying for devolved funds. service delivery or access to government services. Will transparency lead to accountability in Embakasi? Box 5: Information provided on public CYNTHIA: Many questions have arisen on accountability boards how transparent and accountable grass- • Government departmental service charters. roots governance processes are to the • Devolved funds project details. community. Information on the use of • Government tenders. public funds was never made available to • Reports on use of public funds such as the youth the public before, making it difficult to fund. • Women’s enterprise development fund and know the status of the many government- emergency contacts. initiated programmes. Plan Kenya 158 64 Edwine Ochieng and Cynthia Ochola Anyango Photo: Peter Nderitu Peter Photo:

Public accountability boards: set up in a partnership between Jipange Youth Organisation and Plan Kenya.

Challenges and lessons learnt For Plan this was a development CYNTHIA AND EDWINE: Raising the process in which beneficiaries made their voice and participation of young people in contributions through participation and development and governance processes in needed only transport costs. Out-of-pocket Embakasi has had its challenges. allowances were not refunded. But many Awareness levels on accountability youth felt they should be granted among most community people, including allowances for time spent in the work- other youths, was very low. This meant shops, since many Jipange members were limited understanding and take-up of our jobless and faced other economic chal- initiatives. Government officials themselves lenges. As a result, many deserted and had no idea, for example, about the stopped engaging in our activities. purpose of public accountability boards. The most challenging aspect of this As a group, we lacked adequate support programme was the perception held by a for tracking our impact. There were few government officials and community instances where Plan Kenya was slow in members that our involvement in the gover- responding to our needs, leading to activi- nance programme was motivated by money ties falling behind the scheduled sub-granted to us by Plan Kenya, which was timeframe. For example, the public not the case. This obstructed our efforts to accountability boards, which may have a convince government officials to participate significant impact on local accountability, in certain activities and embrace us as were put in place almost towards the end of young people and provide the support we the project in October 2010, so we didn’t needed. Their failure to do so did not deter have a way to systematically track that us from implementing our activities, and impact over time. working closely with them as partners. l Local champions: towards transparent, accountable governance in Embakasi, Kenya 159 Photo: Peter Nderitu Peter Photo:

Public accountability boards. The Embakasi district service charter outlining the office’s role and core functions as well as its vision, mission and services. 160 64 Edwine Ochieng and Cynthia Ochola Anyango Photo: Peter Nderitu Peter Photo:

A public accountability board displaying information on community activities supported by the government. They are used to enhance transparency and accountability.

Creating a broader collaborative participation in decision-making processes. network among key champions is neces- EDWINE: Building a partnership with sary for governance programmes to young people is not an easy or obvious task. succeed. So too is communities’ involve- Governments and youths rarely find ment in creating organisations which will common working ground and even when shape and effectively implement the gover- they do, there is normally suspicion to be nance agendas. The Jipange governance overcome. The collaborative working rela- initiative succeeded due to the involvement tionship between the Jipange Youth of sixteen individual youth groups that Organisation and me was helped by the were beginning to gain a voice in the fact that when Plan Kenya first introduced community. Through our joint collabora- the programme in Embakasi, they did so tion, we were able to boldly undertake the through my office, which also registered the governance programme and increase our organisation. This was the beginning of an l Local champions: towards transparent, accountable governance in Embakasi, Kenya 161 Photo: Peter Nderitu Peter Photo:

The Jipange Youth Organisation and visitors at the Plan regional youth and governance forum held at the Panafric Hotel. interesting journey. Throughout the needed, bringing key stakeholders on programme I facilitated almost all the board and linking programme monitoring capacity building workshops and forums to eventual policy-influencing. organised by the youth group. In all the activities undertaken by the group, we Conclusion consulted extensively and refined our Perhaps our most important conclusion approaches before implementation with relates to which actors were involved and technical assistance from the Plan Kenya how. We understood from the start that Nairobi Urban Development Programme. governance and development processes The youths proved to be very organised and cannot be delinked from the political dedicated to the governance programme, processes that exist at the grassroots level. which encouraged government officials to Nor can they survive without the good will see them as partners in their daily activi- of both the political players and opinion ties. leaders who hold sway in decision-making. Communication and information shar- Plan Kenya took a risk in giving the youth ing was also key in strengthening the such a lead role, which proved well justi- partnership and enhancing the quality of fied. The partnership between us – Edwine decisions taken to promote governance at and Cynthia – and other Jipange members the grassroots. was crucial. Edwine opened the door to We found that with success, communi- local government and held it open, and ties’ expectations are raised and the Cynthia and her peers came in and made demand for scaling up increases. There- things start happening in a way that is fore, ‘supply’ has to be ready to meet more accountable to youth and other citi- ‘demand’ and an inclusive approach is zens. 162 64 Edwine Ochieng and Cynthia Ochola Anyango

CONTACT DETAILS Edwine Ochieng Gender and Social Development Officer Embakasi District Office Government of Kenya PO Box 20430-00100 Nairobi Kenya Tel: + 254 0720455120 Email: [email protected]

Cynthia Anyango Ochola Secretary Jipange Youth Organisation Embakasi District PO Box 174-0518 Kayole Nairobi County Kenya Tel: +254 0726243700 Email: [email protected]

REFERENCES FAO (2003) A handbook for trainers on participatory local development: The Panchayati Raj model in India. FAO Regional Office for Asia and the Pacific Bangkok, August 2003. RAP publication 2003/07. Online: www.fao.org/docrep/006/ad346e/ad346e00.htm KNBS (2009) Kenya population and housing census. Kenya National Bureau of Statistics. 163 PART IV Power to young people 164 64 165

Silent voices, unrealised rights – championing youth participation in Zimbabwe 14

by TALITA NDEBELE and LEILA BILLING

Our leaders don’t care about us. Our views bilities to young people in their communi- are not considered. We are treated as if we ties; and do not exist. • the lessons learnt from creating new Cynthia (aged 16), Nkayi District, Zimbabwe.1 participatory decision-making platforms for young people in the project area. Promoting youth participation in gover- The article emphasises the importance nance in transitional political contexts has of conducting in-depth power analysis and its own unique challenges. Complex and applying a human rights-based approach shifting power dynamics make it difficult for while implementing a participatory gover- young people to penetrate and influence nance programme involving young people decision-making structures. This article in Zimbabwe. It also stresses the need to describes how one rural-based Zimbabwean conduct robust gender analysis to ensure youth organisation, Bulawayo Integrated both young men and women are supported Youth Survival Programme (BUIYSAP), is to enhance their levels of participation. working with ActionAid International Zimbabwe (AAIZ) to effectively navigate Youth participation and violence in such a context, empowering young rights Zimbabwe holders in the process.2 It describes: Engaging with young people to promote • the participatory methodologies used to their participation in decision-making in build young people’s ability to mobilise and Zimbabwe is problematic. Over the past 30 constructively engage with duty bearers; years, youths have periodically been • how formerly hostile duty bearers were recruited into quasi-military groups or brought on board to fulfil their responsi- ‘youth wings’ of political parties, often to

1 Cynthia’s name has been changed to protect her identity. 2 This initiative targeted young people aged 15–30 years old, in accordance with BUIYSAP’s analysis of those young people most affected by social exclusion and marginalisation in the project area. 166 64 Talita Ndebele and Leila Billing

perpetrate politically motivated acts of much confusion over who has true legiti- violence. During the 1980s, politically affil- macy as a leader and contributes to the iated militarised youth brigades were division of communities, restricting who responsible for large-scale violence that led participates and how. These ‘shadow’ lead- to the deaths of thousands of people in ers have a history of influencing youths to Matabeleland and Midlands Provinces. perpetrate acts of violence, known locally as More recently, in 2008, renewed violence Ukumkhambi ndlela (bringing your oppo- affected most of Zimbabwe’s 57 districts. nents back on track). Memories of youths This violence has had a lasting legacy. The beating and raping in Nkayi are still fresh. public and state actors tend to perceive any As a result of co-option, manipulation form of institution with links to young and exclusion, youths themselves have either people as serving political agendas. This become entirely disillusioned with political makes it difficult for young people to mean- processes or divided along political lines. ingfully participate in governance, This prevents cohesive, non-confrontational democracy and development work, and for youth actions. Intergenerational relation- NGOs to support them to do so. ships are strained and characterised by mutual mistrust. Many youths choose to Young people, know your place! ‘self-exclude’ from local governance, believ- Youths living in the rural areas of Nkayi ing they have no role or power to influence District, Matabeleland Province, where the the process. There is also evidence that learning outlined in this article was gener- young people – especially young women – ated, face substantial barriers to meaningful have internalised their own ‘inferior’ posi- involvement in local decision-making. Tradi- tions within society. They report low levels of tional patriarchal power arrangements confidence in participating in decision- across Nkayi’s 156 villages result in older male making processes, linked to their inability to domination of power structures, resources articulate appropriate ‘governance language’. and most decision-making platforms. Partic- ipatory consultation – including of Methodologies employed marginalised groups such as women, the Since the beginning of 2010, BUIYSAP and disabled and the young – is rarely practised. AAIZ have been implementing a partici- Much of this exclusion of young people is patory project that aims to increase young conscious, reflecting strong adult mistrust of men and women’s capacity to engage in youth capabilities. According to a participa- governance processes and decision-making tory baseline study carried out by BUIYSAP structures in Nkayi District, Zimbabwe. and AAIZ in 2010, 90% of traditional lead- Using a range of participatory methodolo- ers believe that the main barrier to youth gies, and a gender-sensitive approach, the engagement lies in age itself, rather than the project aimed to build young people’s abil- nature of the patriarchal system. ity to mobilise and constructively engage In Zimbabwe’s precarious socio-politi- with duty bearers. cal landscape, it is also difficult to establish Work carried out by BUIYSAP and where true power lies in the community. AAIZ in Nkayi was informed by Action- Nkayi is no exception. It is common for Aid’s human rights-based approach political parties to place ‘shadow’ traditional (ActionAid, 2010). This draws upon influ- leaders in a village to compete with another ential thinker Paulo Freire’s work on raising leader who is perceived to be politically ‘critical consciousness’. This is a process partisan. This politicisation of decision- that helps oppressed groups understand making posts by external actors leads to and respond to their oppression.3 Action-

3 The ideas behind this approach can also be traced back to other sources such as Veneklasen with Miller (2002) and Rowlands (1997). l Silent voices, unrealised rights – championing youth participation in Zimbabwe 167

Box 1: Unpacking power Building ‘power within’ – raising consciousness • ‘Power within’ involves working with poor and excluded rights holders and their communities to The baseline study mentioned above high- make them aware of their rights and to strengthen lighted the ways in which many youths – their ability to undertake collective analysis of the especially young women – internalised and ways in which their rights are being denied. accepted their own subordinate positions. • ‘Power with’ focuses on building solidarity They were unaccustomed to reflecting crit- among rights holders through alliance and platform building, mobilising supporters and ically about their societal positions and the networking. reasons underlying gender inequalities. In • ‘Power to’ aims to enhance the ability of rights order to awaken their minds to existing holders to effectively campaign and advocate for hierarchies and start to foster interest in changes in policies and practices. organising themselves to become agents of Source: ActionAid, 2010 change, young people received leadership training. This initially focused on enhancing Aid’s approach focuses on the three kinds self-understanding and self-worth, before of power described in Box 1. This approach goal setting. During weekly participatory was applied flexibly to respond to the group meetings, a study cycle approach was specific needs of the local context. It was introduced to 492 youths (205 male, 271 sometimes necessary to focus upon more female) by BUIYSAP (see Box 2). Intensive than one step at the same time, or to self-reflection processes prepared youths to purposefully emphasise one stage earlier move on to the next stage, which involved than another. greater constituency building and action.

Box 2: The study cycle approach, used with youths involved in the project Study cycles have been developed by BUIYSAP as a practical way of leading youths through a constant 3 process of learning, reflection and action Information 2 1 4

Issues Analysis Action Plan Implement

Training

5

Reflection

1 Youths meet, identify and prioritise key issues 3 Youths gather more information about the issue affecting them and their community. at the community level through consultations with community stakeholders. They also receive 2 Youths analyse how these issues affect themselves practical, theoretical or conceptual training on and the community; consider their implications; and the issue at hand from BUIYSAP before identify community members with an interest in and developing an action plan. influence over these issues. 4 The action plan is implemented. 5 Reflection on outcomes, analysis of new issues, further planning for implementing follow-up actions. 168 64 Talita Ndebele and Leila Billing

young people was the best method of increasing youth influence in the district. High levels of youth mistrust of local lead- ers meant that a specific space exclusively led by young people was a strong incentive Photo: Leila Billing Photo: for igniting youth interest in the project. Consultation with young people suggested that YVAs would better allow young people to hone their leadership skills in a safe envi- ronment where there was no threat of political co-option and where they could determine their own courses of action. This could act as a springboard for engaging with other governance structures that had previously been off-limits to them. Youths were also excited about joining a platform where the wider social inequali- ties they perceived as common to other governance structures would not be repro- duced. They were the ones who decided After being exposed to study cycle approaches, how the YVA should operate. Each YVA is young people began to see the benefits of youth run by a committee comprising two young participation. men and two young women. All village youths are entitled to be YVA members, Building ‘power with’ – taking collective and youths themselves elect the commit- action tee. Once study cycles had created the condi- BUIYSAP took a pre-emptive approach tions for increased solidarity among youths to counter local opposition to YVAs. Long in Nkayi, 32 villages across the project site before the idea of youth platforms was even were supported to form their own youth suggested to the youths themselves, tradi- village assemblies (YVA). These are plat- tional leaders received training in forms where they could gather, practise community governance from a team their negotiation, dialogue and debating comprising BUIYSAP, local youths and skills, and take collective action to claim powerful authority figures such as the their rights. In YVAs, youths discuss and district administrator. The leaders were agree upon shared visions of good commu- impressed and surprised by the skills their nity governance, and start to develop young constituents displayed and this recommendations that they wish to put to helped to secure their buy-in for the estab- the wider community through inter-village lishment of youth structures in the project debates and public feedback meetings. It is area. The backing of the influential district in YVAs where steps 5 onwards in the study administrator also persuaded many lead- cycle approach take place. This underlines ers who might have been sceptical about how the reflection and consciousness-rais- endorsing a youth platform. ing described above overlapped with and However, there remained isolated cases continuously fed into the ‘building power of traditional leaders (notably those with a with’ project component, forming a contin- history of manipulating youths for violent uous cycle for the youths involved. purposes) opposing youth engagement in Much deliberation took place over activities such as peace-building. Stake- whether the creation of a new space for holder analysis of each project site helped l Silent voices, unrealised rights – championing youth participation in Zimbabwe 169 Photo: Leila Billing Photo:

BUIYSAP and youth members with local traditional leaders after a meeting to discuss school drop-out rates in Nkayi.

to mitigate these barriers. In one case, it • Local councillors were trained in leader- was clear that the village headman had ship skills. This better equipped them to more power than the so-called ‘shadow strengthen their responsiveness and will- leaders’ instigating the conflict, and ingness to engage with their constituents, through engagement with him, BUIYSAP including young people. could continue to work in that area. • School development committees (SDCs) received ongoing mentorship in leadership Strengthening ‘power to’ – ability to and governance. Later on, this made them influence and campaign receptive to including youths as committee The project recognised from its earliest members. inception that processes of empowerment • Village heads who wished to tackle are problematic where the political climate community apathy were supported with is repressive. For this reason, it was essen- community mobilisation. This persuaded tial that duty bearers with the potential to sceptical citizens, including youths, to start derail project objectives were included to engage with existing governance struc- from the outset. This illustrates how the tures. three project components were not always All trainings had action planning as an implemented in a linear fashion. It was integral component, meaning YVAs had sometimes necessary to focus upon clearly defined accountabilities they could strengthening ‘power to’ before building make reference to in future campaigning. ‘power with’. BUIYSAP and youths enrolled For example, four SDCs promised to lobby duty bearer support through the following the district education department for more activities: money to address the issue of school drop- 170 64 Talita Ndebele and Leila Billing

out rates; another school promised to set Interestingly, young men have been less up free evening classes for youths who had successful in this regard. This is partly been forced to drop out before taking their because they are a more mobile group than exams. young women (young men regularly travel to neighbouring countries to seek Study cycle successes economic employment), but also because This methodology has been extremely girls have proven to be better at speaking successful in bringing together young fluent ‘governance language’. This often people from opposite sides of the political means adopting a humble, deferential posi- spectrum and reducing animosities. Youths tion in front of traditional leaders. Local focused upon their similarities rather than leaders complain about the lack of humil- differences, and the importance of peer ity and – in their view – inappropriate dress support in goal attainment. The ‘informa- favoured by young men. Are young males tion-gathering’ part of the study cycle was refusing to ‘play by the rules of the game’ particularly successful in challenging self- in a bid to assert their own power, auton- exclusion. It made young people realise – omy and manhood over older generations? some for the first time – that community If so, this needs to be channelled in a more support and self-initiated action is essential constructive way. The fact that relations in the attainment of personal goals (see step between some older and younger men 3, Box 1). For example, in Magazi and remain resistant to change suggests a more Hompani villages, young people have set up sophisticated analysis is needed as the proj- a literacy group and managed to persuade a ect enters its second year. local teacher to support the group three Meanwhile, young women are manag- times a week on a voluntary basis. ing to bridge the public-private divide by acknowledging that traditional gender Leading the pack? roles and behaviour can sometimes gain In an annual review of this project, them increased influence in a way that conducted in December 2010, young challenges discriminatory patriarchal people credited the study cycle approach structures. However, we must continue to with equipping them with skills for taking monitor whether this behaviour reflects a up leadership positions in the community. continued internalised sense of inferiority Sixteen young women have been successful among young women. Will this compro- in securing posts as committee members mise their ability to hold their leaders to or secretaries on SDCs, village assemblies account and undertake the full spectrum and child protection committees. They are of leadership responsibilities demanded by now actively involved in campaigning for the posts they hold? It may be the case that the rights of rural girls to access education, further support is needed to consolidate and on issues of child abuse. Many were and strengthen young women’s leadership invited to take up these posts by local lead- skills and that gender training is prioritised ers, who have been impressed by their for traditional leaders themselves. performance on YVAs. Although these posts may be seen as falling squarely within No YVA is an island traditional gender roles, this is a step Fears that YVAs would prove to be isolated change with the past. It is hoped that, just structures have been so far unfounded. One as youths have used the skills gained in the year into the project, there is already YVAs to enter other governance spaces, evidence that they are institutionally these young women can effect progressive enmeshed and interlinked with other changes in spaces that had previously been governance structures at the local level, and closed to them. are providing youth with an opportunity to l Silent voices, unrealised rights – championing youth participation in Zimbabwe 171 engage with other community structures. ing team to provide progress updates on For example, some are working closely with issues including teacher absenteeism and local child protection committees to school drop-out rates to parents and rele- address challenges faced by orphans and vant authorities. This youth-initiated other vulnerable children. YVAs are also endeavour shows how youths are already working with local clinics to advocate for taking action with minimal support from youth-friendly services, as well as with the BUIYSAP. This bodes well for the future police in crime reduction and prevention. sustainability of the project. However, there have been isolated cases However, not all community members of young men holding on to the idea that have been willing to engage with young YVAs are ‘youth’ structures and that other people. Some villagers – in particular war community institutions belong to ‘the veterans, a notoriously volatile group – others’ – that is, the adults. This has been have opposed youth involvement and tradi- an unintended consequence of establish- tional leaders have failed to respond to such ing a parallel platform for youth conflicts for fear of a violent outcome. This participation. Some males are injecting highlights the need to provide further undemocratic characteristics into what was support and training to leaders in conflict originally intended to be a democratic, resolution and risk analysis as the project open space by making the YVA unwelcom- progresses. ing to older generations. In hindsight, such attitudes are hardly surprising given the Upcoming challenges historical lack of examples of inclusive The possibility of presidential elections in spaces led by local leaders who welcome Zimbabwe in 2011 means Nkayi District youth input. In many ways, male youths are will see political factions engaging in nega- emulating the masculine leadership quali- tive campaigning in a way that threatens to ties they have been exposed to – namely, fragment YVAs. Voter education and those that exclude, divide and are not conflict prevention with local communities participatory. Such attitudes may take must be prioritised. Traditional leaders will longer to transform, as alternative leader- require more support than ever to imple- ship models emerge, develop and embed ment local solutions to emerging conflict. themselves in Nkayi. Young people will need more in-depth support to deal with the enhanced Duty bearers come on board complexity of manoeuvring their way Early investments in winning over duty through local power struggles during elec- bearers are paying off. According to the tions if they are to avoid co-option and 2010 project review, 80% of the 50 youths make their participation meaningful. sampled say that traditional leaders are inviting young people to community events Conclusion more often than before. They also report Investing time in detailed power analysis that during village meetings, it is common- has enabled successful navigation of a place to ask for the ‘youth perspective’ on precarious political environment. Young agenda items. There is now evidence of Zimbabweans have become assets to their duty bearer willingness to work jointly with community and generators of solutions to youths to improve service delivery. In local problems. Flexible application of the Nkayi, the district administrator, education ‘power within’, ‘power with’ and ‘power to’ officer and representatives from the police approach was necessary to respond and rural district council responded directly to the local context. The different favourably to youth suggestions that they responses to the project by young men jointly form a district education monitor- and young women mean that a deeper 172 64 Talita Ndebele and Leila Billing

gender analysis is essential as we go men must be combated to ensure that forward. Young women must continue to they, and the spaces they have created, gain influence in governance structures, operate in a democratically accountable and self-exclusion among some young way.

CONTACT DETAILS Talita Ndebele Bulawayo Integrated Youth Survival Programme (BUIYSAP) Zimbabwe Email: [email protected]

Leila Billing ActionAid International Zimbabwe Email: [email protected]

REFERENCES ActionAid ( 2010) Action on rights: human rights based approach resource book. ActionAid International. Veneklasen, L. with V. Miller (2002) A new weave of power, people and politics. Oklahoma: World Neighbours. Rowlands, J. (1997) Questioning empowerment: working with women in Honduras. Oxford: Oxfam. 173 PART V Tips for trainers 174 64 175

Exploring expressions and forms of power in youth governance work 15

by SALIM MVURYA MGALA and CATHY SHUTT

Introduction Box 1: Expressions of power1 Youth governance work requires engaging Power over: domination or control e.g. through with power. In most countries young decision-making. people occupy positions in social structures Power within: self-worth, confidence gained maintained by cultural and social norms. through awareness of capabilities or rights, or This means that their participation in through participation. governance processes is subject to Power to: individual ability to take action and participate. constraints. Expressions like ‘they are too Power with: produced through collective action. young to understand’ reflect commonly Can enhance power within. held opinions that affect how adults relate to young people. Such attitudes influence committees (SSCs) in Sierra Leone to young people’s self-confidence and frus- propose practical tips towards this aim. trate their ability to participate in decisions affecting their lives. Both authors have How does power influence our theories been involved in processes that suggest that of change, what we do and what we consciously exploring the nature of power achieve in youth governance work? and how it operates can enable young Cathy’s research illustrated the relevance of people to overcome such barriers to partic- various expressions of power to theories ipation. We reflect on Salim’s experience of change/causal pathways underpinning working with youth councils in Kenya, and the SSC programme.2 The research found Cathy’s research with student steering that SSC membership had enabled young

1 See, among other sources: VeneKlasen, L. and V. Miller (2002), especially p 45. 2 A theory of change defines all building blocks required to bring about a given long- term goal. This set of connected building blocks – interchangeably referred to as outcomes, results, accomplishments, or preconditions – is depicted on a map known as a pathway of change/change framework, which is a graphic representation of the change process. Source: www.theoryofchange.org 176 64 Salim Mvurya Mgala and Cathy Shutt

people to overcome constraints to partici- Box 2: Power and theories of change pation. They had gained confidence and power within • Get participants to explore the starting points found through discovering and assumptions about how change is going to capabilities they never knew they had. happen via youth participation in governance. Members of the student steering commit- What change do they want? How are they tees (SSCs) in Sierra Leone facilitated promoting or achieving that change? What are decisions about how to use small grants that they assuming will happen along the way? power within • Using pictures get participants to explore what led to confidence or . One power means to them. group who had chosen to buy badly needed • Use participants’ examples to illustrate different desks had ‘learnt how to be responsible and expressions and forms of power discussed in this how to make certain decisions’. This inspired article. belief in their right and power to act and • Ask buzz groups to identify how power might a) constrain youth participation and intended influence change in their schools: changes identified earlier and b) block causal pathways. Decision-making in school, I would say • Reflect on opportunities (such as using exercises should not only be left to teachers because or role plays below) to enhance power within, we the pupils, we know what we want and power to and power with to overcome constraints. then we are the ones that go through the sufferings… We are the ones in the class- Cathy argued that in order to leverage rooms. We know what we go through every the personal transformations and potential day so we think we can make better deci- power of these young people, they needed sions concerning our schools. to become more explicitly aware of how power affected their participation. Exer- Most students associated the sense of cises suggested in Box 2 can be adapted to empowerment with responsibility. They encourage practitioners and/or young were keen to use their power for the good of people to think more about how power can the wider school community: both constrain and enhance desired change in planning and evaluation activities. Well I have learnt a lot… most especially decision-making… I have learnt how to be Reflecting on barriers to achieving a good leader and how to choose things that power to influence governance are more beneficial... Like during the time decisions when we had the money. There were so Young people need to become more reflex- many suggestions some were just saying ively aware of how they experience the anything so really it was a big task for us effects of power relations that either to choose what we think will be beneficial prevent or enable them to achieve their to everybody. potential. This is an important part of personal transformation processes that There were opportunities to increase enables the discovery of power within, power with and scale up the impact of such as those experienced by young people these changes to improve the governance in Sierra Leone. For example, many young of schools. In one school, pupils that had people are socialised in ways that act as used the committee to successfully advo- invisible power leading them to think they cate against corporal punishment felt they lack the rights and/or capabilities to partic- had ‘bridged a gap’ between students and ipate in spaces controlled by adults. pupils. They were keen to scale up and Practitioners’ theories of change need to create power with by linking with other include efforts to build power within in schools in Sierra Leone as part of a broader ways that go beyond a technical approach campaign. to capacity building e.g. one that merely l Exploring expressions and forms of power in youth governance work 177

aims to increase knowledge about rights. Box 3: Spaces for participation Developing a sense of confidence and find- power within Closed: Where decisions are made by elite actors ing is important. But in behind closed doors. Salim’s experience it may not be sufficient Invited: Opportunities for involvement and to enable individual power to act. consultation, usually by ‘invitation’ from various Salim works with Kenyan youth groups authorities. wanting to participate in youth councils Created or claimed: Organic spaces which emerge out of sets of common concerns. organised by the government. His experi- ence illustrates how, even when power with has been generated through collective Box 4: Three forms of power action, various operations of power still Visible power: formal decision-making. prevent young people having influence. Hidden power – mobilisation of bias: non Engaging the state in invited spaces organ- decision-making, keeping issues off agendas. Invisible power: social conditioning through e.g. ised and chaired by government actors cultural traditions that shapes the psychological posed challenges for Kenyan youth. and ideological boundaries of what it is possible Government actors set agendas and deter- to think, believe and do. mined the rules of engagement making it difficult for youth to speak. So Salim facil- about (power over, within, to, with).3 itated practical activities to help young Although the power cube is a tool that people reflect further on how power rela- can enable power analysis at multiple tions in the space affected their power levels, Salim was fundamentally concerned within and power to participate. with the local level and enabling youth to think about how different forms of power The power cube operated in different types of spaces for Salim drew on ideas represented in the engagement with government actors. power cube below. It is another way of Explaining different expressions and unpacking power which focuses on its forms of power can be done in very theo- forms – visible, hidden and invisible – retical ways drawing on the concepts above. rather than on the expressions discussed But ironically, efforts that emphasise theo-

LEVELS

FORMS

SPACES

3 Source: Gaventa (2006). 178 64 Salim Mvurya Mgala and Cathy Shutt

retical input can be disempowering and he thought a session on analysing power ineffective. Practical exercises are more would be helpful to build their confidence effective, in which facilitators draw on these to engage. He offered them theoretical theories, such as role play (see Box 5). They inputs on the different forms of power in can enhance youth understanding about the power cube, the power of agency different forms of power that challenge (power over, power with, power within), youth participation, as well as tensions and spaces for citizen participation. related to young people’s engagement. Even though they seemed to under- For example, youth councils in Kwale, stand the concepts theoretically, he noted Kenya were struggling to design strategies that this was not enough to inspire them to to engage local leaders in the management take action. It was not until he did a role of constituency development funds, local play that they began opening up and asso- authority transfer funds and the youth ciating the implications of the different enterprise funds. The youth councils forms of power with their experiences. wanted to access these funds to finance As a result of these practical exercises, their activities. However, the youth leaders young people soon recognised how hidden were hesitant to engage in face-to-face power – government control of agendas – discussions with the leaders for fear of affected their power to get their interests reprisals. This dilemma came at a time discussed and influence decisions. The when Salim was doing action research, and presence of the commissioner, whom they feared might take action against them if Box 5: Facilitators’ guide: enabling they challenged his authority, acted as young people to analyse power in invisible power invited spaces that silenced their voice. Internalised notions that as young people • Identify a topic for discussion beforehand, e.g. child they are not citizens and don’t know what marriage. • Divide participants into several groups. is best for them, inhibited them from • Identify someone to be a government representative expressing their views. or figure of authority such as the district youth officer. • Ask each group to choose an actor they wish to Box 6: Enhancing direct forms of youth- represent e.g. environmentalists, youth club. state engagement using video or drama • Let each group discuss and agree on a position they will defend in a government-led meeting. • Organise a pre-meeting workshop to orient • Get each group to nominate one representative who children and youth on the dialogue process and to will attend the meeting. identify issues affecting them. • Conduct a role play of the meeting in which the • Prepare a script for drama or video to illustrate person nominated to be the authority figure chairs and the issues. Shoot video if this is the chosen moderates the discussion with group representatives medium, ensuring that child protection protocols while others observe and analyse discussions. are strictly adhered to. • Facilitate reflections and discussions that encourage • Organise public meeting with a panel of different young people to think about power dynamics that duty bearers e.g. community elders, district affected their participation and outcomes. Guiding government officers or NGO leaders. questions could include: • Nominate a representative young person to For the group representatives: facilitate the meeting. • With reference to Hart’s ladder of participation • Show the video, drama or picture at the meeting. (shown in Tang, this issue), what level of participation • Facilitate discussions to encourage the audience did you achieve? Why? i.e. members of the community, to verify/discuss • Did you get your desired outcome or did you have to the issues affecting them. cede arguments? Why? • Youths and children interact with the panel to • Did women and girls speak up as much as men? clarify issues and request specific actions from duty Why? bearers e.g. children ask specific representatives For the government representative: what their office or departments’ roles should be • Did you let young people speak? Why? in tackling issues and whether and how they will • Did you listen to them? Why? take action. l Exploring expressions and forms of power in youth governance work 179

Box 7: Reflections on symbolic power Photo: Ali Yusuf Ali Yusuf Mwatsahu Photo:

An intergenerational dialogue session between children, youth and community and the district commissioner on issues of birth registration. One more experience that we can draw from the photo and during the session (which Salim attended) is the ‘symbolic power’ that comes with official uniforms and protocol. In Kenya the district commissioners are powerful. They control the police and other security officers in the districts. They also chair all meetings to discuss development. During the dialogue session illustrated in the photo above, the children, youth and the community were not comfortable asking questions. On reflection, Salim thought the symbolic power of having uniforms and body guards inhibited fruitful dialogue even though the district commissioner was the one who encouraged the community to feel free to ask any questions or make any comments.

Salim’s other experiences relate to the But in Salim’s experience in Kwale, direct facilitation of intergenerational dialogue forms of engagement through public between children, youth, community elders, dialogues on community- or local-level non-state actors and government represen- issues, grounded with real-life evidence, tatives in more neutral, claimed spaces such have prompted action for social change (see as public meetings following steps described example in Box 8). These kinds of dialogues in Box 6. Plan Kenya is scaling up these have had a positive impact in terms of influ- forms of engagement in their areas of oper- encing decisions. Children and youth have ations to profile the voices of young people. overcome power that frustrated them in Enabling young people to prepare invited government spaces and enhanced before meetings in non-intimidating spaces of their own proved powerful. They Box 8: Well-prepared public dialogue + evidence = change prepared videos, dramas or pictures that explored local issues such as child In one school that was notorious for child marriage. They then took their concerns pregnancies, children prepared and showed a video depicting the various child rights violations into government meetings – arguably more in communities and schools. A debate ensued, in intimidating spaces. which it became clear that eight of the school girls The videos, drama or pictures enhanced were pregnant. The dialogue prompted immediate young people’s sense of power within as they action from the district education officer and the had a more convincing means to commu- district commissioner. They initiated investigations leading to prosecutions and the reprimanding and nicate their experiences and concerns. This transfer of teachers suspected of involvement. They led to more ‘power to’ as they demanded also created a local task force to conduct government action in meetings. sensitisation on child rights and protection and Such approaches can produce tensions. guide those needing to report abuses. 180 64 Salim Mvurya Mgala and Cathy Shutt

their power to engage the government on reflection sessions to identify what makes a issues that concerned them. youth group accountable and transparent, and then use these criteria as the basis for Encouraging young leaders to reflect on (self)-monitoring the group and its activities. their own power and accountability This has been piloted by Plan Kenya’s gover- So far so good with expressions and forms nance programme elsewhere in Kenya. of power. Beyond that, an issue arising in both our work is accountability of youth Integrating power analysis in design and child ‘representatives’ to their organi- and evaluation of governance theories sations and members. In Sierra Leone and of change Kenya we encountered youth ‘representa- Theories of change underpinning youth tives’ selected by teachers and government governance work often assume causal youth officers. This tended to make young pathways that look something like this. By people more accountable to more power- discovering power within youth will be ful adults than the youth they were meant able to find power with and power to and to represent and made it difficult for them act to influence governance decisions. But to challenge their ‘patrons’. a number of operations of power mean Even when young people are elected by these changes may not follow a smooth their peers, they do not always use demo- path. Practitioners must seek ways to iden- cratic mechanisms and processes to prioritise tify operations of power that prevent youth and promote the interests of those they claim participation influencing governance to represent. Feedback mechanisms to youth processes. Facilitating activities to help members can be weak. Role play be might be young people become aware of barriers to adapted as a means to encourage youth their participation and devise tactics to representatives to reflect on their own power address them is an important part of the and accountability to their members. empowerment process. It has the potential Another way might be to hold participatory to lead to greater social change.

CONTACT DETAILS Salim Mvurya Mgala Programme Unit Manager Plan Kenya Kwale Programme Unit PO Box 293 Kwale Town Kenya Tel: +254 0202 335 651 / +254 721 565 927 Email: [email protected]; [email protected] Cathy Shutt Independent freelance consultant Email: [email protected]

REFERENCES Gaventa, J. (2006) ‘Finding spaces for change: a power analysis.’ IDS Bulletin 37:6 pp. 23–33. VeneKlasen, L. and V. Miller (2002) A new weave of power, people and politics. Oklahoma: World Neighbours. 181

Youth as drivers of accountability: conducting a youth social audit 16

by KENYATTA MAITA MWAWASHE

The demand for social accountability in the management of public resources has been gaining ground in Kenya over the last seven years. While the country’s revenues have been on an upward trend during this period, budget accountability has been a major issue of concern. About KSh 170.2 Lilian Indombera Photo: million of the constituency development funds (CDF) was reported missing in 23 constituencies in the 2006/2007 financial year and KSh 500 million in 2008/2009, according to a report by the Kenya Taxpay- A youth social audit team inside a classroom in one ers Association (NTA, 2009). Pressure of the primary schools in Kwale County, Kenya. The team interviewed members of the project from citizens has therefore increased for implementation committee during a social audit government to account for the use of public session. finances in public service delivery. Since 2009, Plan International’s gover- accountability. Social audits assess systems nance programme has been organising and processes of government institutions youth forums and workshops in Kenya for in public finance management at commu- government fund managers to share infor- nity level. This note shares our experience mation on the public funds destined for with other practitioners. community projects and services. Youth in Kwale, Kilifi and Nairobi counties have Social audit process been using social audits, which have been As carried out by the youth in Kwale, developed as both a participatory tool and Nairobi and Kilifi, the participatory social a participatory process to enhance social audit process started by making informa- 182 64 Kenyatta Maita Mwawashe

tion accessible to the public on government Box 1: Social audit process at a glance: resources allocated to community public tips for practitioners projects and basic services. Perceived gaps, • Organise communities into civic constituencies. violations of public trust and inconsisten- • Generate and share information on public funds cies in the information shared often raised and projects among existing organisations, to questions and doubts about the integrity of trigger public demand for action. the service delivery process. This was the • Facilitate the setting up of inclusive civic action group (social audit team). justification for users and citizens to • Strengthen the team’s capacity for multi-level conduct a social audit. engagement. The youth then mobilised their peers • Support team to generate appropriate both informally through peer interactions customised action research tools e.g. scorecards. and formally through registered youth • Let the team develop their own terms of reference and indicators for project assessment. organisations. Plan works with the district • Coordinate logistics for social audit team to visit youth councils in Kwale and Kilifi, and project sites for assessment. Jipange Youth Organisation in Nairobi • Support joint team reflections at project sites. (with a membership of 32 legally-regis- • Coordinate feedback sessions between social tered youth groups). These provided the audit team and project committees or public fund managers. enabling platform for effective peer-to-peer • Where answers do not satisfy expectations of youth organising. social audit team, let them share information with The youth then met to form social audit state accountability watchdogs for further teams that were gender balanced and investigations and action. incorporated other marginalised social • Facilitate the adoption of a social contract or citizen service improvement charter between the groups. Terms of reference (TOR) for the team and the project/fund managers if the team social audit were then drawn up, based on agrees that issues identified can be corrected at shared questions and concerns that could that level. not be clarified without verification of how • Coordinate the process of negotiating for public projects or services were delivered. change, follow-up and reviewing commitments made. Social audit teams then brainstormed on the appropriate methodology to use for the The team took to the field cameras, audit. They developed a scorecard capturing questionnaires, notebooks, pens, marker their individual and collective criteria for pens and flipcharts for capturing data. At scoring according to their satisfaction levels the project sites, the social audit teams (highly satisfied, satisfied, fairly satisfied, not were received by the project implementa- satisfied or disappointed). They also devel- tion committee. The leader of the audit oped rules for engaging with the duty team shared the objectives of the visit. The bearers at the selected project sites. youths generally identified themselves as Fund managers were then asked to students intending to learn more about the provide project financial documents and project rather than introducing themselves bills of quantities for the social audit team as social auditors. They did so because on to verify. Fund managers included govern- a first encounter, ‘social audit’ is often ment officers or public servants, mandated assumed to be an attempt to politicise citi- to manage government finances at the local zens against public servants or leaders. As level for community development projects. the social audit process progresses, these A date for a site visit was agreed with them, misapprehensions are corrected and community beneficiaries and the relevant support from government actors is often project committee.1 forthcoming. Had the youth called them-

1 Project committees are bodies that oversee a project’s implementation on behalf of the community. A committee generally consists of representatives of various interest groups at local level (e.g. village elders, women’s leaders, youth leaders, religious leaders). l Youth as drivers of accountability: conducting a youth social audit 183

Figure 1: A simple project social audit tool Project type/name Social audit team satisfaction rating Highly Satisfied Fairly unsatisfied/ Not satisfied/ satisfied unsure disappointed Amount allocated Community participation in the project cycle Management of project resources Relevance of the project to pressing community needs Cost effectiveness and efficiency of resource use Project’s impact/potential impact on poverty alleviation Quality of workmanship Number of beneficiaries Integrity and competency of the project management team Project inputs procurement process Promotion of accountability and transparency in project Project outcomes/outputs

Box 2: Citizen-state relationship framework for social accountability

Social accountability Public policy process makers

Voice Quality & accountable service delivery

Citizens Service providers

People’s power exercised via social audit

The figure above shows how public accountability relies on strategic civic engagement, where ordinary citizens and/or their organisations participate directly or indirectly in demanding for quality service delivery. Social audits lead to greater social accountability and can either be initiated and supported by the state, citizens or both, but very often it is demand-driven and operates from the bottom up. 184 64 Kenyatta Maita Mwawashe

Box 3: Questions most frequently asked by social auditors in interviews and focus groups • How was the project conceived? • Was the community involved? • Does the community like the project?

• Who benefited from the project? Lilian Indombera Photo: • Did the project give employment to the local community? • Does the project provide a proper service to the target population? • Did the project change the lives of the beneficiaries? A youth social audit team on the right giving • Did the community get value for the money feedback to a school teacher, parent representatives spent in the project? and school improvement project committee • Did the project have any side effects? (e.g. a chairperson at Vanga Primary School, Kwale County, school feeding programme may increase Kenya. dependency syndrome). • Is there evidence of long-term project impacts? social contract, in the form of an action For instance, poverty reduction or improved plan, was drawn up detailing how the serv- standards of living. ice or facility would be improved, and the • Are there mechanisms for the project to be sustained by the community? process of negotiating for change and action ensued. selves social auditors from the start they One example is a classroom construc- would have risked being denied access tion project at Moyeni secondary school immediately. in Kwale County. The work done was in One team used focus group discussions contravention of the specifications. Even (FGDs) to engage the project committee. though a certificate of completion had They used a series of carefully thought-out, been issued, the audit found cracks in the non-emotive questions while the others floor and poorly-fitted windows and engaged with the community project doors. The exercise generated an action beneficiaries in another focus group. plan which required the contractor to The team members then undertook repeat the entire exercise, and this was project verification to determine the qual- done. ity of workmanship in terms of whether it was implemented to required standards or Lessons learnt specifications. Some members of the team Social audits can: also visited the public fund manager’s • help increase public access to informa- offices to conduct key informant inter- tion on key governance topics (e.g. various views with them, so as to capture types and use of decentralised funds, rele- additional information for triangulation vant legislation); and validation of facts. • enhance citizens’ knowledge about policy The social audit teams gathered, processes, public accountability and trans- reflected on and debated the key observa- formative leadership, thus enhancing the tions, messages and issues arising from the engagement between citizens and the process. They prepared a report on the state; good practices they had observed and the • help trigger public action towards secur- aspects that needed more clarifications ing citizen rights and responsibilities by and improvements. A feedback meeting participating in decentralised civic was held between the stakeholders and the processes; beneficiary communities and youth. A • catalyse the emergence of strong l Youth as drivers of accountability: conducting a youth social audit 185 community watchdog groups able to effec- to the potential of social audit processes tively participate in projects’ prioritisation as platforms for equalising power rela- and monitoring the use of public funds tions. under the stewardship of local leaders; • A social audit is neither an event nor an • improve citizens’ inputs on key public end in itself, but a process that is perfected finance management issues, especially through continuous reflection and learn- prioritising and implementing pro-poor ing over time. For it to contribute to community projects, with equity and catalysing desired changes it must be targeting implications; and applied with due transparency and in • strengthen implementation and conjunction with other social accountabil- accountability mechanisms of audited ity mechanisms by other actors, such as and non-audited projects at community anti-corruption initiatives and human level. rights campaigns. By way of critical reflection, however: • It is vital to understand the local context, Conclusion including factors that unite or trigger The Kwale, Kilfi and Nairobi youth have community divisions, particularly in frag- been using social audits to sharpen the ile societies. This helps in managing management of public resources. Social emotions and tensions that can arise audits can be flexible and inclusive both in between communities and service terms of the approach and application. It providers during the sharing of social audit is consensus-driven and can integrate the findings. voices of diverse interest groups in public • The tool is as good as the process applied finance planning and management deci- and the attitudes and credibility of the sions, through both vertical and horizontal individuals involved. Mutual trust, confi- consultative processes. It also limits dence and buy-in among citizens and unequal power relationships that often government are essential if it is to function lead to various forms of citizen exclusion in as a public service quality improvement formal government-driven accountability tool and a means for people to assert processes. Through continuous self and collective power and influence over serv- group reflections, it allows young people ice delivery practices. To overcome to appreciate the power of masses in apprehension and suspicion, the young claiming public space, which is necessary social auditors in Kwale obtained letters of for influencing shared public agendas introduction to junior officers written by while at the same time internalising a their superiors, with instructions to coop- culture of probity. The youth get progres- erate as partners rather than engage as sively socialised to the virtues of integrity adversaries. and accountable citizenship as they grow • While social audit processes foster youth up. participation, there are intra-youth power By mentoring youth to be drivers of relations related to team members’ social change, social audits prepare them contrasting ages, education levels and to question and influence dominant value family socioeconomic circumstances. systems: within themselves, their commu- These can breed exclusion and affect the nities and government. They also help to quality of participation at the same time. institutionalise the same practices of Young women and people with disabili- accountability in the organisations they ties, particularly, may not have equitable serve. This culture of accountability under and dignified space to assert their posi- construction could provide the structural tions, within the team or to the service foundations of anti-corruption in Kenya’s providers. Such dynamics can run counter public and private life. 186 64 Kenyatta Maita Mwawashe

CONTACT DETAILS Kenyatta Maita Mwawashe 137F Croyden Lane Syracuse 13224 - 2137 New York USA Tel: +1 530 304 8530 Email: [email protected]

REFERENCES NTA (2009) Baseline scoping study: citizen perceptions of public accountability and potential for public action. National Taxpayers Association of Kenya. Online: http://tinyurl.com/nta-report-2009. Full URL: www.nta.or.ke/nta-reports/special-reports/231-baseline- scoping-study-citizen-perceptions-of-public-accountability-and- potential-for-public-action 187

The community scorecard process: methodology, use, successes, challenges and opportunities 17

by JEPHTER MWANZA and NINA GHAMBI

Introduction This article covers the use and basic func- tions of the community scorecard process. It draws on lessons from the community- based monitoring project implemented by CAVWOC Photo: Plan Malawi, ActionAid and the Council for Non Governmental Organisations of Malawi (CONGOMA). It covers the methodological approach, steps and deci- sion-making levels at which it is used. It also examines the successes and challenges – and how innovation has been used to surmount them. A cross section of participants in the scorecard process in Chikhwawa district. What are community scorecards? The community scorecard process is a ety organisation (CSO) that is independ- social accountability mechanism.1 It is ent of government in order to provide used to exact social accountability from independent and objective judgement on duty bearers vis-à-vis the state of services the performance of facilities. It is only the in various sectors. The process has several institutionalisation stages that are led by steps aimed at giving feedback to service service providers in collaboration with providers based on experiences of service service users. The CSO intermediary users which later feed into re-planning takes a monitoring role in conjunction processes. All steps are led by a civil soci- with stakeholders, depending on the level

1 For a definition of social accountability, see the glossary (this issue). 188 64 Jephter Mwanza and Nina Ghambi

Table 1: Stage What does it consist of? Outputs

Preparatory groundwork. Acquiring major national and international service Service standards standards and understanding socio-political contexts on and benchmarks. the ground e.g. teacher to pupil ratios, maximum number of people who can use a water borehole, nurse to patient ratios etc.

Developing input tracking Listing key inputs of the service or project, and the Input tracking matrix. standards for assessors to adhere to e.g. the national matrix. pupil to teacher ratio. In the social audit, this will be compared to the reality on the ground (e.g. actual number of pupils being taught by each teacher).

Developing a facility Discussing which factors affect delivery of services at a Community- performance scorecard facility. Consolidating scores from various focus group generated facility (facilities may include e.g. discussions (FGDs) into one community score. For performance schools, rural health centres, example, service users may score health workers on scorecard. water points/boreholes etc.) their adherence to working hours on a score of 1–5. The greater the score, the better. A score of 1 would mean no adherence to daily opening and closing hours. Concrete reasons backing the score are also provided.

Developing a service Self-evaluation by service providers on how they think Service provider provider self-evaluation they deliver on services. For example, workers at a scorecard. scorecard. health centre may also score themselves on their performance in ‘adhering to working hours’ giving reasons to back the score they have chosen.

Interface meeting between Plenary to present community and service provider Joint action plan. service providers and scorecards and agree ways forward. service users.

Follow-up and Interfaces at district and national levels to present Plan of action institutionalisation results and advocate for changes. The plan of action is influences change the means through which institutionalisation of the in service process takes place. It is led by either the government provision. workers or community members depending on the nature of activity in the agreed plan.

at which implementation is taking place. Budget tracking is not viable if national and Table 1 (above) summarises the steps. local governments lack openness and fail to The scorecard process, as used in provide timely information on budget allo- Malawi, is an alternative tool to budget cations. The alternative is to look at the final tracking methodologies such as public service provided at the point of access – expenditure tracking studies (PETS).2 3 hence the scorecard approach.

2 Budget tracking usually refers to monitoring expenditure. It can be looked at vertically (i.e. how does money flow through a system from national to district to local level?) or horizontally (how are disbursements made at one point in the system, are they regular and spent as planned?). The focus is on whether the money is spent as detailed in the plan. Budget tracking can also link to an evaluation of the impact of a particular budget. Source: www.right-to-education.org/node/20 3 Public expenditure tracking studies (PETS) can help to identify and address weaknesses in budget execution. They can also indicate where a current policy is not effective, and feed into discussions of how to improve value for money. Source: www.opml.co.uk/issues/budget-execution. l The community scorecard process: methodology, use, successes, challenges and opportunities 189

Table 2: A sample scorecard from Takhiwa No Indicator Scores Comments

1 Fairness in beneficiary selection 3 Not all needy people are selected due to limited number of coupons.

2 Timeliness in beneficiary 5 In good time before the rains (September). selection

3 Transparency in selection of 5 Selection is done by the people themselves at a public beneficiaries meeting called by the village headman together with the extension workers.

4 Access to inputs 3 Fertiliser and seeds come once and in very low quantities. We queue for the whole day and sometimes spend 2 days in the queue. All the people queue in one line regardless of sex, age, strength, physical abilities/disabilities, health etc.

5 Conduct of managing officials 2 They are corrupt – they need extra Mk 200–500. They open very late. They accept fake coupons and prioritise business people. They are stubborn as well.

6 Security of extension workers 3 Others are beaten by those who have not received coupons.

7 Fairness in coupon distribution 5 All registered beneficiaries receive coupons.

8 Follow-up by extension workers 4 He tries hard but his area of responsibility is too large. He has no transport so he must travel long distances on foot.

The action plans developed at a facil- Rural communities also have little or ity or point-of-service are used as a no access to radio, television and other springboard for action to improve services. means of communication to link up with Some issues can be resolved via local authorities. In Malawi, this has been actions manageable at community level further compounded by the failure by such as providing clean toilets at a health government to hold local elections to elect centre. Other issues require the attention councillors, who are the link between local of local governments or changes in policy communities and planners. Their absence and therefore engagement with national deprives communities from a key means stakeholders. of providing constant feedback to plan- ners. Relevance to rural communities The community scorecard process Rural communities are the least consulted seems appropriate to these circumstances, when major resource allocation decisions since it empowers service users and service are taken, including on the national providers to start discussing issues affect- budget. District development plans ing the services delivery, working from the (DDPs) have a life span of several years. bottom to the top through sectoral struc- Yet factors that affect rural livelihoods tures to effect change. seem to change every year. Over time, plans become less relevant and less Methods, approaches and innovations aligned with the changing needs and aspi- The community scorecard process collects rations of people. disaggregated data from men, women, 190 64 Jephter Mwanza and Nina Ghambi Photo: CAVWOC Photo:

Women and girls at an interface meeting in Chikhwawa district.

boys, girls, disadvantaged groups, service the popular appeal of scorecards, espe- providers and any other groups according cially in areas with low literacy levels. The to the need and function of the services. PETS methodology requires specialised Involving multiple social groups helps to training, thereby reducing critical input triangulate information so that data qual- from service users with limited education. ity is enhanced. This information is Moreover, ‘following the money’ is not collected essentially through focus group as useful as looking at what the money has discussions. Other methods such as rank- actually delivered. This is where the ing or pair comparisons are used within assessment of services at the point of the FGDs. access is arguably a more powerful The major innovation in Malawi has approach. It involves both the supply and been the use of radio programmes and demand sides in analysing and challeng- DVDs to document issues that arise from ing each other on critical issues affecting the scorecard process and to disseminate services. It also analyses the social inter- actions agreed at interface meetings. This actions and physical factors that render helps to document, enhance and share the service available or unavailable to findings and results, as well as increase the users. Picture symbols are used to facili- flow of information from service users to tate recognition by illiterate people, planners. symbolising their emotions and feelings about the service. Reflections and lessons learnt Community scorecards provide an excel- Successes and key outcomes lent alternative to budget tracking The major success of this initiative is the methodologies. For example, PETS lack district administrators’ acceptance that the l The community scorecard process: methodology, use, successes, challenges and opportunities 191 Photo: CAVWOC Photo:

A scene at an interface meeting in Chikhwawa.

process is a useful tool in planning. They salaries delivery systems and their effects recognise that it provides evidence on how on rural teaching services. services are delivered as well as giving a • Improved access of youths under the age chance for planners and service providers of 17 to farm inputs under the farm input to improve the relevance of life-changing subsidy programme (FISP). Youth experi- interventions in rural communities. enced problems registering and accessing More specific successes are: inputs due to the requirement of voter • Stopping child labour practices rampant cards as identification. in some schools. These were raised in chil- • Improved access to FISP inputs at dren’s focus groups and raised at the markets where community-based monitor- plenary feedback. Local decisions at inter- ing activities took place. At these markets, face meetings abolished such practices and congestion and scrambling for inputs has committed specific actors to monitoring decreased, mainly due to increased collab- the abolition. oration between chiefs and their subjects – • A combination of scorecard reports and especially in organising procedures for a participatory expenditure tracking study access and beneficiary identification. (PETS) looking at salary administration in • Following the creation of market point primary schools. These have helped vigilant committees, there has been a provide evidence and contributed to the decrease in the use of fake coupons to eventual change in payment of salaries to access inputs. Also, no incidents of illicit teachers. The scorecards project is the only sales were reported in mobilised areas. platform that produced a report from a • Daily newspapers and key radio stations systematic study on inefficiencies associ- have increased their reporting on issues ated with the existence of two teachers’ raised by the project. 192 64 Jephter Mwanza and Nina Ghambi Photo: CAVWOC Photo:

Women fill in their scorecards during an assessment of education services.

• Information provided by the scorecard mainstream governance structures. To process has also been used to allocate get around this, we have been working health and educational resources, mainly with local leaders and members of parlia- in the allocation of staff in Mulanje and ment as representatives of rural Karonga Districts. In fact, Mulanje communities. They form part of the deployed medical assistants to all health district executive committee, a body facilities following project advocacy activ- created to make decisions while council- ities. lors are not yet elected. All of the above were implemented Other key limitations are: during the follow-up and institutionali- • Uptake of action plans at both local and sation stage of the scorecard process. district levels is slow. Actors at both levels They are a testimony to the relevance of expect the project to provide additional the community scorecard process to funding to prop up the implementation development and planning in Malawi. of action plans. • Initial assessments are met with resist- Limitations of the process ance and scepticism by district The major limitation has been not a flaw administrators. They often see the tool as of the methodology or process. There is a confrontational rather than an opportu- lack of formal and legitimised linkages nity to get direct and constructive between rural communities and the feedback from service users. district assemblies due to the current lack • The assessments raise high expectations of local councillors. This has greatly which are sometimes difficult to manage reduced the scope for systematic institu- by both CSOs facilitating the process and tionalisation and follow-up in the district assemblies. l The community scorecard process: methodology, use, successes, challenges and opportunities 193 Photo: CSCD Photo: Photo: Plan Malawi Photo:

Men discuss their appreciation of education sevices A facilitator leads a women’s focus group discussion in Kasungu. to assess agriculture services in Chikhwawa.

• The process relies heavily on the media and action points to planners and policy for advocacy and follow-up on issues. makers. Radio and films can reach the eyes and ears of key stakeholders involved in Points for future improvement service provision. This is the only practi- In future, all community scorecard assess- cal way of reaching more people, since ments will be systematically backed up by interface meetings only accommodate audiovisual resources, either radio limited numbers. programmes (live or recorded) or DVDs. These will capture key feedback across Conclusions genders, ages and classes. Live radio While the community scorecard process is broadcasts of interface meetings at not a solution to all problems in rural community level will also be trialled in development, it does offer access to a 2011. Planners and policy makers respond wealth of community knowledge and well to media which include the voices of information important in service plan- service users. It reduces resistance and ning. The process allows different social enhances action. groups to be aware of each others’ prob- Involving the media at all levels of the lems regarding access and enjoyment of assessments is also key – and ensuring that government services. Both the outputs and the media convey the process and its the process itself are ideal for evidence- outputs accurately and constructively. based advocacy. Since the process starts at the local level, The process fosters unity and collective using the media only at district and action within communities for engaging national levels is insufficient and inaccu- with service providers. One of its more rate. Media involvement is coordinated by unusual features, in terms of other the NGO that facilitates the scorecard community development approaches and process. However, the media have freedom also in terms of other contemporary social to write about whatever they feel is news- accountability approaches, is that it also worthy. If the NGO facilitating the fosters collective action between commu- scorecard process identifies big gaps in the nities and service providers. What needs media’s reporting of activities, they provide to be done to improve services? Who media outlets with supplementary docu- needs to take on which roles to do this? It mentaries to ensure better media coverage. is at these interfaces that accountable rela- Likewise, it is important to use several tionships need to be constructed, approaches to disseminate key messages institutionalised and sustained. 194 64 Jephter Mwanza and Nina Ghambi

CONTACT DETAILS Jephter Mwanza Project Manager Community Based Monitoring Project Plan Malawi PO Box 2053 Lilongwe Malawi Email: [email protected]

Nina Singini Ghambi CPME Manager Plan Malawi Email: [email protected]

REFERENCES Addai, E. with E. Kpenu and M. Dery (2004) ‘The community scorecard approach for performance assessment.’ Wateraid Ghana and ProNet North, November 2004, Ghana. Online: http://tinyurl.com/wa-scorecards. Full URL: www.wateraid.org/documents/plugin_documents/communityscore carding.pdf Singh, J. and P. Shah (no date) ‘Community scorecard process: a short note on the general methodology for implementation.’ Social Development Department, World Bank. Online: http://tinyurl.com/wb-scorecards. Full URL: http://siteresources.worldbank.org/INTPCENG/1143333- 1116505690049/20509286/comscorecardsnote.pdf 195

Government budget monitoring: as easy as child’s play 18

by CHRISTINA NOMDO and ALEXANDER HENRY

This ‘tips for trainers’ is slightly different to able to share and learn knowledge and the usual training tips published in PLA. skills relating to governance. Here, we provide some insights and share Twenty-five children aged 12 to 18 years experiences with other practitioners who from four local and national organisations may want to build children’s capacity to were selected for training as peer facilita- engage in governance. We explain the tors. These peer facilitators implemented different approaches we used to develop activities with their own constituency children’s skills as peer facilitators; support groups, reaching a total of approximately them to understand and share information 100 children. about governance; and build their confi- The training included the following dence to do advocacy. We conclude with tips topics and sub-topics: for adult facilitators and child advocates, • Linking budgets and rights: under- and a discussion of some of the critical chal- standing rights, progressive realisation of lenges faced in this type of work. rights, household budgets, how govern- ment works; Children participating in governance • Budget analysis as a monitoring tool: project the integrated development plan, organi- From 2004 to 2006, the Children’s Budget sational budgets, basic budget analysis Unit (CBU) of Idasa implemented a capac- tools, and personal experiences of rights ity-building initiative with children in and empowerment; South Africa to support them to engage in • Developing a strategic budget advocacy government budget monitoring and advo- campaign: advocacy concepts and strate- cacy. The project used learning through gies, engaging in the budget presentation games to make difficult governance issues process in parliament, preparing responses accessible to children. It showed that chil- to the budget, planning an advocacy dren, including those with disabilities, are campaign. 196 64 Christina Nomdo and Alexander Henry Photo: Shaamela Cassiem Photo:

Children depict the changes they would like to see in their communities.

Building young people’s peer facilitation of camaraderie in some cases translated skills into meaningful friendships. This ease of engagement amongst the We may move differently but inside we are children and with the adult facilitators all the same. meant that the children felt comfortable to Alex, 7 March 2011. raise their views and opinions at any stage. For example, the children were key contrib- The impact of integrating children with utors to the development of the materials, disabilities and those without as equal including the testing process. Games were peers in a group of facilitators made an devised cooperatively and then tested by immediate and indelible impression on peer facilitators with their constituency everyone. Children with disabilities were groups. An example of a unique contribu- challenged to believe in their abilities to tion by the children to the activities was the make equally valuable input to that of their use of an orange (having ten segments) to peers. Children without disabilities were explain percentages. This activity created a given the opportunity to engage on a very bridge to understanding budget percent- personal level with children with disabili- age share calculations. The adult ties – learning firsthand about the facilitators were very open to the input and prejudices they face from society. The level suggestions from the children. l Government budget monitoring: as easy as child’s play 197

We learnt that adult facilitators work- standing of a concept, the adult facilitators ing with children need to critically built on this knowledge by changing the interrogate their notions of power over context. After children understood house- children. It is the children – rather than the hold budgets, opportunities were provided adults – who should set the learning for them to visit community projects to outcomes, pace, and level of engagement.1 interview staff to understand the budgets The more adults let go of their notions of of their organisations. By using this step- superiority, the more children will actively by-step approach, understanding engage in and guide the initiative. In this government budgets was a natural progres- project, adult facilitators, for example, sion. trained the peer facilitators but then merely For some children with disabilities, acted as a reference point during the train- even the concept of money was unfamil- ings led by the youth facilitators – iar. Children with disabilities, many of demonstrating confidence in the children’s whom are ‘shut-ins’ at home, are seldom abilities. allowed to manage their own money or even understand the role of money in soci- Using games to support learning about ety. We created a simple game, making governance purchases with pretend money at a ‘shop’. This was an empowering experience for For a person with cerebral palsy to the children. Even if they were not able to mentally challenge themselves with diffi- go on to understand government budgets, cult abstract concepts and control their their worldview had already altered signif- body at the same time, this is an out-of- icantly. body experience that can be compared with It was also a significant shift for chil- developing the ability to walk – a moment dren to learn through an outcomes-based, of triumph! experiential manner. Instead of the dry Alex, 7 March 2011. and boring learning methods employed in most schools, children were acquiring Understanding how government works knowledge and skills through play. is potentially a very complicated topic to Through the project, children took part in discuss with children. It was imperative treasure hunts to learn about budget that the adult facilitators used innovative, books, did puzzles to understand their child-friendly and novel ways to commu- constitutional rights, and played the game nicate this to children. The content Jeopardy to learn about human rights included socio-economic rights, the instruments. Experiential learning tools government budget process, gender and included using a cake to demonstrate the child rights budgeting, as well as advocacy levels of government. Instead of talking techniques. These concepts were shared in about stereotypes as ‘labels’, adult facilita- three one-week workshops.2 tors assigned labels to individuals who had The guiding principle during the work- to guess from the way people interacted shops was to build on what children with them who they were and what power already knew. For example, when adult they had in society. Through these simple facilitators wanted children to understand experiences and games children under- government budgets they started by stood power dynamics in society, which is reflecting on pocket money or household useful for advocacy. Box 1 shows an exam- budgets. Once there was a basic under- ple of an activity.

1 For a discussion on notions of power, see also Shutt and Mvurya (this issue). 2 See the peer facilitators’ training manual Children participating in governance: budget monitoring from a rights-based framework produced by Idasa. 198 64 Christina Nomdo and Alexander Henry

Box 1: Levels and functions of government Purpose: To facilitate an activity on levels and functions of government that caters to varying learning styles Activity plan: 1. Divide participants into competency groups. 2. Provide each group with picture puzzles that depict the functions of each level of government (e.g. parks as a local government function or schools as a provincial government function). The puzzles are cut according to the level of competency within the group, i.e. a greater number of smaller pieces for

a more competent group. The backing board of each Shaamela Cassiem Photo: of the puzzles should be a different colour so as to distinguish easily the different levels of government. 3. The groups then do the puzzles. 4. The words for the different functions are written on the back of the puzzles. The words for each function are in the various languages used by the participants. This will contribute to their increased governance vocabulary. 5. Reflection: what was new information? Check that the concept of different levels of government is Children piecing together their puzzle on different understood. Clarify unique government functions of government at local, provincial and competencies for each level of government. national levels.

Source: Nomdo and Cassiem (2007).

Enhancing knowledge and confidence tary processes. The South African govern- for advocacy ment makes a special effort to include marginalised groups. For example, organ- I just made a call (for invitations to the isations focusing on children with budget speech) and we were connected. disabilities receive invitations to the budget Alex, 7 March 2011. speech. Two children with disabilities were given the opportunity to attend the budget Most children in the project were already speech and also the subsequent public involved in advocacy and were selected question and answer session. The children from organisations that had an advocacy took the opportunity to lobby for accessi- mandate. This project merely enhanced ble transport and employment knowledge and skills relating to policy and opportunities for youth with disabilities. budget advocacy. However, the manual They also asked about the implementation produced also includes sessions on under- plan for fee-free schools which was standing who has power in society and how discussed in the project workshops. These to influence people. These more basic issues were televised and broadcast nation- concepts, as well as building the self confi- ally. dence of children to articulate their Other children watched the budget opinions, would need to be discussed if speech on television – this was no longer working with a group of children new to considered long, dreary and of no impor- advocacy. tance. Using their new understanding of After the training process, children took inflation, the children eagerly listened to opportunities to use their new knowledge whether their predictions for increases in and skills. The children with disabilities social grants, for example, the child support ironically had easier access to parliamen- grant would be accurate. A group of chil- l Government budget monitoring: as easy as child’s play 199 Photo: Shaamela Cassiem Photo:

Children involved in a budget analysis exercise.

dren volunteered to read the budget books be approachable rather than forcing an to find out what changes were anticipated adult culture (e.g. dancing was frequently that might affect children. The children enjoyed by all). then compiled a budget brief which was • Allow children to shape the path of the released on the Internet the same night project rather than entering an engage- that the budget speech was made. Public ment with preconceived ideas of learning benefit organisations applauded this outcomes and/or sticking rigidly to project achievement. plans. A group of children, including two chil- • Use games and experiential learning to dren with disabilities, participated in an communicate complex concepts. exposure visit supported by Idasa to a chil- • Build knowledge and skills in budget dren’s budget project run by Cedeca advocacy from what is already understood (Centro de Defesa da Criança e do Adoles- by and familiar to children, e.g. starting cente do Ceará – Ceará Children’s and with a spending plan for a child’s allowance. Youth Defence Centre), in Fortaleza, Brazil. • Provide a space for children with disabil- This broadened their horizons even further, ities to engage as equals which may mean with the children exchanging experiences having an open discussion at the outset despite language differences. about prejudices. Child advocates should: Recommendations to adult facilitators • Reach out to children from marginalised and child advocates working on budget groups such as children with disabilities in advocacy order to learn about realities different from Adult facilitators should: their own. • Be aware of the power dynamics between • Treat children who are different, such as themselves and child advocates, and try to children with disabilities, with respect. 200 64 Christina Nomdo and Alexander Henry

• Build partnerships with adults that are fore, there was a steep learning curve that based on mutual respect in order to achieve was mitigated to some extent by having a shared goals. child leader within the Disabled Children’s • Believe in their ability and capacity to Action Group who acted as a key resource understand and influence governance to the adult facilitators. The impact of the systems and the people working in them. project on individual children was also inequitable. Especially in relation to chil- Critical challenges dren with disabilities, some children were The critical challenges in the project not able to be independent advocates on related to non-attainment of the ultimate governance issues due to their limited project goal, working with children with experience of the world, resulting from disabilities, inequitable impact on individ- being ‘shut-ins’ as well as their poorer ual children and child protection issues. socio-economic background. The goal of the project was to facilitate Child protection issues are always children’s participation in governance in a paramount when conducting work with structured manner that would result in groups of children away from home where systems change. Unfortunately, the project they are not under the supervision of their was prematurely terminated due to changes caregivers. The project included many within Idasa and only the KwaZulu-Natal adults who acted as caretakers of the chil- participants were able to implement their dren, but still the children were exposed advocacy strategy in a structured manner. to violations of their rights. For example, at However, the system did not really shift one hotel the children were accused of permanently within this province or at the stealing a phone and the accusing adults national level to accommodate children’s were quite intimidating towards the chil- participation in governance. dren and adults caretakers in the project. This was the first time that the Idasa It remains challenging to balance chil- facilitators worked on governance issues dren’s protection and participation rights with children having disabilities. There- in practice.

CONTACT DETAILS Christina Nomdo Executive Director RAPCAN South Africa Tel: +27 21 712 2330 Fax: +27 21 7122365 Email: [email protected] Website: www.rapcan.org.za

Alexander Henry Disabled Children’s Action Group South Africa Email: [email protected]

REFERENCES Nomdo, C. and S. Cassiem (2007) Children participating in governance: budget monitoring from a rights-based framework. Idasa: South Africa.

ACKNOWLEDGEMENT The authors would like to thank Shaamela Cassiem, co-facilitator of the project described here. She also took the beautiful photographs included in the article. 201

Drawing up a participatory youth situation analysis in Kenya 19

by EDWINAH OROWE and RICHARD MABALA

Introduction key stakeholders and the young people TAMASHA (Taasisi ya Maendeleo Shirik- themselves, facilitated by TAMASHA, to ishi Arusha, the Institute of Participatory discuss this issue and come up with Development Arusha) is a youth participa- recommendations on what should be tory centre which was founded in 2007. Its done. However, the TAMASHA facilitator primary objective is to promote the partic- suggested that a different approach should ipation of young people in society and be taken as only a small minority of young enable them to realise their rights and their people were violent, and many young rightful place in their communities in order people were peace makers. The workshop to promote their own development and participants were asked to first give exam- that of their communities. TAMASHA is in ples of the positive roles played by young the process of registration in Kenya – it also people during the violence. This was an has a team of trained facilitators from important methodological strategy for Kenya, and the aim of TAMASHA is to be breaking down negative stereotypes of truly pan-African. young people on the part of the adults and strengthening the self belief of the young Why a national youth situation people, many of whom had been in the analysis? forefront of peace-making efforts. The 2007 general election in Kenya and As a result of this preliminary meeting, the violence that followed is a classic TAMASHA, working with the ministry of example of how young people have been youth and sports and UNICEF, took caught up in destructive behaviour. In the advantage of the negative attention to aftermath, the government of Kenya was young people to develop a highly partici- desperate to know why ‘young people were patory rights-based youth situation involved in violence’. The ministry of youth analysis. This enabled young people to and sports called a preliminary meeting of break out of the negative and superficial 202 64 Edwinah Orowe and Richard Mabala

stereotypes imposed on them, and present Box 1: Participants’ views the situation in which they found them- Asked about their views on education, the group selves in a holistic way, explaining why aged 20–24 emphasised the need for skills- some of them had turned to violence. This based education: in itself was a major achievement. In addi- We dream of a community whose education tion, the recommendations arising out of imparts practical skills that will make us the situation analysis were to be taken up competitive in the job market and prepare us adequately to meet the various challenges of and implemented by the ministry of youth life. and other stakeholders at local, provincial Wherever you go, you are told ten years’ and national level. experience. OK, so they should open an ‘experience school’ where young people can Process attend before getting a job! Eight young facilitators (two for each of The group aged 10–14 expressed dissatisfaction four age groups, see below) were chosen with aspects of school life. Common among the from each province on the basis of their boys were complaints about what they saw as active involvement in youth affairs. The teachers’ preferential treatment of girls. One facilitators were trained by TAMASHA such comment was: I was late to school with a girl. I was told to do facilitators in participatory research punishment while the girl was told to go to class methodology, including a mixture of appre- and teacher told me the girls are being given a ciative inquiry and participatory rural lot of work at home. appraisal (PRA). They then agreed on the main issues to be researched and the tools On law enforcement agencies’ attitudes towards young people, younger respondents talked about which would be used for each issue. the police harassing them, whereas older youths With support from provincial youth (aged 25–29) associated law enforcement with officers, young facilitators working in pairs systemic issues like corruption or the collusion of identified and researched youth groups in law enforcement agencies in drug trafficking: their localities, using the tools developed Most officers in charge of different departments and ministries are there courtesy of the ruling at the workshop. This enabled them to party and the politicians they support. They do document the varying youth issues from not consider merit… the different parts of the province and also Police are reluctant to deal with drug to identify strong participants for provin- abusers, because they take bribes. cial workshops that would work together to produce a provincial situation analysis. depth. The research methodology They also collected existing materials from included: the groups. In selecting participants for • Appreciative inquiry: dreams for them- the provincial workshops, emphasis was selves, their communities and Kenya as a placed on inclusion. Thus participants whole, encouraging them to tell their were balanced according to gender, in four stories. Overall the emphasis was placed different age groups (ages 10–14, 15–19, on the positive aspects of young people 20–24 and 25-plus). and the final exercise was what they The purpose of the provincial work- needed to do to achieve their dreams. shops was to use the events, plus materials • PRA: mapping of their communities and collated and issues collected from differ- provinces, ranking of issues and creating ent parts of the province beforehand, to diagrams of social services and other forms conduct an in-depth analysis of the situa- of support to young people. tion of young people in general, and • Diagrammatic causality analysis: why specific groups of young people in partic- is the situation as it is? ular. The research tools were used to • Art: drama, pictures, poetry, rap and identify, probe and analyse in greater song. l Drawing up a participatory youth situation analysis in Kenya 203

Figure 1: A diagram made of 16 diamonds showing elements that young people need to achieve their dreams. A creative way of prioritising what they consider important and why. 1 KEY 1. Unity (respect for cosmopolitan nature, e.g. intertribal cohesion) 2 2. Sound leadership and 3 good governance 3. Equal distribution of resources 4. Positive attitudes 5. Moral support 4 5 6 6. Role models 7. Self-awareness 8. Youth career development 9. Advanced industrialisation 10. Resources 7 8 9 10 11. High-tech security 12. Networking and collaboration 13. Enabling environment 14. Blessings 15. Spiritual guidance 11 12 13 16. Being focused 14 15 16

As a result of the above process and At the national workshop, each age methodology, the situation analysis was group developed its national report before successfully carried out and written up in TAMASHA prepared the final report, each province. At the end, participants which was published by the ministry of prioritised key issues to be taken forward youth and sports. The findings and recom- to the national workshop from their mendations were very wide ranging, but provinces. above all showed a concern for equity of Each province elected delegates to opportunity (geographically, educationally attend the national workshop. Again the etc.). The report recommendations were delegations emphasised gender balance, as follows: equal representation of age groups, and • Youth were very dissatisfied with the included one person from recognised education system and wanted much vulnerable groups in each age group. greater attention paid to youth livelihoods. 204 64 Edwinah Orowe and Richard Mabala Photo: TAMASHA Photo:

Some traditional cultures place huge barriers that prevent girls from accessing education.

Both issues leave them frustrated and Comments on the process and angry and susceptible to joining gangs as methodology their only outlet. The choice of young activists/peer educa- • They criticised the country for lack of tors as researchers was a successful strategy leadership saying that tribalism and as they already knew their communities corruption had contributed to the violence. and the issues facing them. They also knew They revealed that politicians had bribed how to identify and reach the more them to take part in the violence. Giving marginalised groups of young people. It specific examples, they noted that in Kenya was easier for young people to talk to their ‘if you want to get attention you destroy peers than to adult, external researchers, property’, a lesson they learnt from their even using PRA methodologies. elders. However, when working with national • They were very critical of the negative partners, care should be taken to ensure attitudes of law enforcement agencies that those who are chosen to do the towards them, saying that they were research are those who are recognised as treated like refugees in their own country. activists by their fellow youth, and are not • They noted the widespread prevalence of the preferences of the ministry or national gender-based violence, which is fuelled by organisation. Those who had no experi- the impunity of the perpetrators. This was ence in youth work had great difficulty in especially true during the election violence. coping with the research. Some were • Overall, there was a sense of hopelessness rejected by their peers. Others did not have in many young people which they believed a grasp of the issues which would enable could easily be turned around once their them to probe them in depth and revealed issues were prioritised and they were able their ignorance on other issues. This was to participate fully in their own develop- mostly experienced in urban settings, ment. where young activists refused to be part of l Drawing up a participatory youth situation analysis in Kenya 205

Figure 2: A creative diagram of services and other forms of support to young people

Rehabil- itation Youth fund, constituency centre development fund (CDF), local authority transfer fund (LATF) Industries Security

Youth resource centres

Reproductive NGOs health issues

Skills-based education

Religion

YOUTH 206 64 Edwinah Orowe and Richard Mabala

the process because they felt ignored and their feedback in different ways, through betrayed by the ministry. song, drama, dance and poetry. The The youth-to-youth nature of the diagrams of services did not provoke so participatory research, facilitated by young much discussion, but the ranking and people from the local areas, worked very prioritisation exercises were very power- well. They were already familiar with their ful. Once again, the age disaggregation areas and accepted by their fellow youth, worked well because the priorities of the who were therefore more open. The tools different age groups were significantly designed did not differ very much from different. those prepared by adults, as they were the The emphasis on encouraging the product of training by TAMASHA facili- participants to look at causal links tators. However, the nature of questions between different issues enabled them to explored with the tools was significantly look for the connections between issues sharpened by the inputs from those who and the roots causes for each. were experienced in working in their communities. Conclusion Where it was followed, the insistence The situation analysis was launched on different age groups, gender balance nationally, and several commitments were and the inclusion of representatives from made to young people on the strength of it. vulnerable groups worked very well. Even In terms of government actions taken as a on specific issues such as education, the result, it is hard to distinguish actions that views of the younger youth were signifi- resulted from the situation analysis from cantly different from those of the older what would have happened anyway as a youth. Young people with disabilities were result of the government’s fear of youth able to input into the process, as well as after the 2007 electoral violence. For adolescent mothers, sex workers and instance, a national youth council was set orphans. Without disaggregation these up, but this may have happened without views would never have been heard. the situation analysis. The emphasis on the positive was also One related outcome is that UNICEF very effective. Young people were already and the ministry of youth established a tired of being stigmatised as ‘violent’ and programme for promoting the talents and being blamed for many of the problems in strengths of youth through their engage- Kenya. The emphasis on their dreams and ment with key figures in society, such as aspirations and how to achieve them was renowned artists. On another level, the very well received and led to passionate young participants in the situation analysis discussions. At the end of the dream exer- formed their own groups to try to follow up cise at the national workshop, it was on the promises made, and demanded that concluded: the ministry agreed parameters for future engagement, to ensure they did not become Although there are many constraints, they puppets in ministry-led processes. should focus on the positives that will Within this context, the participatory enable them to fulfil their dreams instead tools worked well to bring out the diversity of concentrating on the negatives. Young of situations and viewpoints faced by young people have a lot of potential to fulfil all people in Kenya, which could then be these dreams. included in the report. There were no complaints about the use of these tools The variety of tools (including artistic from either government recipients of the methods) inspired a lot of creativity, with report or the youth participants, and we the young people adopting and presenting witnessed very active engagement through- l Drawing up a participatory youth situation analysis in Kenya 207

Box 2: Tips to help facilitators manage tive nature of young people also enabled adults in a participatory process with them to present that side and show how youth much can be achieved if young people are Some issues for facilitators to raise and discuss not manipulated or silenced. with adults: However, the quality of participation • Learn to ‘hand over the stick’, just as PRA and the quality of the final report were researchers need to – appreciate the creativity compromised by the superficial and/or and new thinking of young people. negative understanding of participation by • Practise ‘enlarging your ears’ and ‘reducing your mouth’. some ministry officials and other adults. • See the engagement as a process in which they This meant that they did not follow the too have a stake, not a one-off event; and allow it guidelines agreed upon, especially in the to be grounded in the realities of the young selection of facilitators and participants, people as the young people perceive them. nor did they allow participants the freedom • Be ready to accommodate change – young people will not always think as they are expected to express themselves on any issue. to think. Independent researchers may not face • Believe in children and young people’s these problems to such an extent, as they capacities. The Convention on the Rights of the are more in control of their own research – Child mentions children participating ‘according to though they may have to revisit their own their evolving capacities’; adolescence is a stage of rapid evolution so should be a stage of rapidly commitment to participation and ‘handing increasing participation. over the stick’. However, when working • Take a leap of faith. The results will be so within institutional contexts where adults positive that you will want to continue. hold sway, much more work needs to be done with adults about the meaning and out. The national youth situation analysis practice of participation. This includes was successful and presented a strong and addressing the stereotypes and prejudices holistic document to the ministry of youth of adults about youth (see Box 2). The and sports, which did not stop at simplistic process also has to be tightly overseen by solutions, but rather looked at the underly- people who are fully involved in and ing and basic causes for the position of committed to participatory principles and young people. The emphasis on the posi- the full participation of young people.

CONTACT DETAILS Richard Mabala Executive Director TAMASHA PO Box 14055 Arusha Tanzania Tel: +255 719 751928 Email: [email protected] Website: http://tamashavijana.com

Edwinah Orowe TAMASHA PO Box 104643-00101 Nairobi Kenya Tel: +254 722 602898 Email [email protected] 208 64 209 IN TOUCH 210 64 211

Young citizens: youth and participatory governance in Africa Related resources

Resources from Restless Development makers to effectively Restless Development is a youth-led engage young people development agency with 25 years in development experience in placing young people at processes. The guide the forefront of change and includes a range of development. Led by and with young good practice case people, Restless Development’s studies and innovative peer-to-peer approach information on how focuses on the areas of youth sexual and to support young reproductive health and rights, youth people’s participation livelihoods and employment and youth in development policy and programming, civic participation. Restless including highlighting useful tools and Development’s cost-effective approach approaches. has been cited as a model of best n Download online: practice by UNAIDS, the World Bank, www.restlessdevelopment.org/file/youth- DfID and others. Worldwide, Restless participation-in-development-pdf Development currently employs over 250 staff and professionally trains 1,000 Advocacy for action young volunteers who in turn directly toolkit reach over 500,000 of their peers every A youth advocacy year. toolkit which aims to equip young people Youth participation in development: a with the knowledge guide for development agencies and and skills required to policy makers become powerful A guide to support donors and policy advocates, with a 212 64

focus on youth sexual and reproductive Resources from Save the Children’s health and rights. Child Rights Governance Initiative n Download online: www.restlessdevelopment.org/file/final- This global initiative was set up to toolkit-pdf support the delivery of the Save the Children strategy in the area of child Good practice rights governance. The following are key guide on youth CRG documents and are available to participation in download online. HIV and AIDS awareness-raising Thematic planning A good practice guidance: guide on youth-led programming in child HIV rights governance programming. l Child Rights This guide is the Governance Global outcome of a Initiative, Save the project supported by Restless Children Development Zambia to highlight relevant This guide outlines civil society initiatives in the education the key areas of intervention as well as sector in Zambia. The guide is based on multiple examples of specific activities the Southern African Development that are essential to achieving the Community’s HIV framework. realisation of all rights recognised by the n Download online: Convention on the Rights of the Child. www.restlessdevelopment.org/news/2011/ n Download online: 09/05/good-practice-manual http://resourcecentre.savethechildren.se/node/ 3301 Restless Development It’s all about newsletter children: seven A quarterly good examples newsletter and ten steps to keeping readers meaningful up-to-date with children’s Restless participation in Development’s reporting to the work. Committee on the n Sign up online: Rights of the Child www.restlessdevelopment.org l Child Rights Governance Global More materials can be found here: Initiative, Save the Children, 2011 www.restlessdevelopment.org/resources This publication provides examples of For more information contact: good practices, different experiences and Restless Development, 7 Tufton Street, impacts of child-led and child-informed London, SW1P 3QB, UK. Tel: +44 20 7976 CRC reporting. The seven case studies 8070; Fax: +44 20 7233 0008; Email: here cover countries with very different [email protected]; Website: historical and socio economic conditions www.restlessdevelopment.org where Save the Children either has You can also follow Restless Development on supported networks and child rights Facebook and Twitter. coalitions in their reporting processes, or In Touch l Related resources 213 directly helped children share their Universal periodic review toolkit: a guide thoughts, experiences and concerns. It for country programmes contains ten steps to meaningful This toolkit shows how Save the Children children’s participation in reporting to the and other children’s rights organisations Committee on the Rights of the Child. in a few steps can influence government n Download online: policy and practice, and move children http://resourcecentre.savethechildren.se/node/ further up the political agenda. 3961 n Download online: http://resourcecentre.savethechildren.se/node/ Child rights 3777 governance – making children’s rights Budget for children children’s realities analysis – a beginners A brochure that guide presents the key This toolkit provides features of the Child steps for analysing Rights Governance state budget Global Initiative allocations to (CRGI), the latest of the six global understand initiatives included in the Save the governments’ Children Strategy 2010-2015, aimed at commitments to child rights. building societies that fulfill the rights for n Download online: all children. It introduces SC’s child rights http://resourcecentre.savethechildren.se/node/ governance work and briefly explains 3134 what it is and why it is so important for For more information contact: Child Rights the sustainable improvement of the Governance Global Initiative, Save the structures and systems that Children, Rosenørns Allé 12, 1634 institutionalise children’s rights. Copenhagen V, Denmark. Tel: +45 35 36 55 n Download online: 55; Email: [email protected]; Website: http://resourcecentre.savethechildren.se/node/ www.savethechildren.net 3336 Children as citizens: participating in social Child rights dialogue governance: making a reality of children’s South African Child rights Gauge 2010/2011 This report tries to l Editors: Lucy answer what kind of Jamieson, Rachel impacts work on child Bray, André Viviers, rights governance Shirley Pendlebury, have by presenting Lori Lake and case studies that show how work on CRG Charmaine Smith, can hold governments to account, Children’s Institute, influence budgets, empower children and University of Cape Town. strengthen civil society and national legal Through the notion of children as systems. citizens, this new issue of the South n Download online: African Child Gauge argues that http://resourcecentre.savethechildren.se/node/ children’s participation in social dialogue 3334 has a crucial role to play in building a 214 64

democratic society. Nine essays set out that work directly or indirectly on children’s participation rights and explore children’s issues, ministry officials who the benefits of children’s participation in a work with or for children, and range of settings, from one-to-one professionals from UN agencies, consultations with service providers to development organisations and NGOs engagement in school governance, policy involved in child rights, child development and the news media. participation and governance. The South African Child Gauge is an n For more information or to request a PDF annual publication of the Children’s of the report contact: Plan UK, Finsgate, Institute, University of Cape Town. It aims 5–7 Cranwood Street, London, EC1V 9LH, to monitor South Africa’s progress in UK. Tel: 0300 777 9777 / +44 (0)20 7608 realising children’s rights. Key features 1311; Email: caitlin.porter@plan- include a series of essays to inform national international.org; Website: www.plan-uk.org dialogue on a particular area which impacts on South Africa’s children; a Phila impilo! Live life! summary of new legislative developments Ways to healing, affecting children’s rights; and quantitative children as partners in data which track socio-economic statistics health: stakeholders on children in the country. strategy and policy n Download online or order hard copies: workshop report of www.ci.org.za. For more information email: the round-table 2 [email protected] discussion, May 2009. l Thea de Wet, Jill Children’s voices: Kruger and Vanessa Black, Young learning from the child Insights for Planning, 2009 parliament experience Children’s voices have been largely absent in West Africa from global discussions on how to treat l Laetitia and care for children with serious Antonowicz, Plan infections such as HIV, AIDS and WARO, 2011 tuberculosis (TB). But children are With 40% of the resourceful agents in their own spheres of population of West life when consulted. The Phila Impilo Africa under 15 years old, children project of Young Insights for Planning constitute a group that decision-makers (YIP) facilitates ways of thinking about cannot afford to ignore. Research shows and planning medical and nursing care that the participation of children in local for children in terms of children’s own and national decision-making spaces has perspectives. The purpose is to enable many benefits. This report focuses on a children, especially those with chronic specific participation structure: national illness such as HIV, AIDS and TB to child parliaments. It explores the extent become partners in their own healthcare, to which child parliaments in West Africa rather than mere recipients of treatment. offer a meaningful mechanism for This report collates and documents children to participate in democratic recommendations and insights arising spaces and influence decision-making. from discussions regarding strategies for Based on a regional study commissioned treatment and care as well as policy and by Plan West Africa Regional Office, the planning for services for children. The report draws lessons from Liberia, Mali Phila Impilo resources have served as a and Senegal. The report is aimed at catalyst to awaken an appreciation government decision-makers, ministries amongst health professionals of the In Touch l Related resources 215 peculiar vulnerability and specific needs For more information on UNESCO’s of children, moving beyond survival International Growing Up In Cities Project, towards the more holistic care of the please contact: Nadia Auriat, UNESCO-MOST children admitted to South African Programme, 1 rue Miollis, 75732 Paris CEDEX hospitals. 15, France. Email: [email protected] n Download online: www.act.org.uk/news.asp?section=94&ite Creating space for mid=76 child participation in For more information contact: Jill Kruger, local governance in Young Insights for Planning (YIP), PO Box Tanzania 701369, Overport 4067, South Africa. Fax: l Meda Counzens and +27 86 693 4892; Email: [email protected]. Koshuma Mtengeti, Save the Children and Babiza’s story Children’s Councils l Siphelele Ndlovu. Facilitating child UNESCO-MOST's participation is a national and ‘By children for international obligation for Tanzania. children’ series. Research worldwide indicates the UNESCO and benefits of involving children and young HIVAN, 2004 people in decisions affecting them, and Babiza’s story gave there is increasing recognition that one young boy a chance to express his children can participate successfully in feelings and thoughts about his experiences decision-making not only in their in the face of HIV and AIDS. It has been immediate environments such as their widely used in research, intervention and families and schools, but also in their training for best practice in child communities at local and national levels. participation. Babiza’s story is the first in a This paper focuses on the model of series which enables children to share their community participation developed by stories of courage, creativity and resilience Save the Children. The research targeted with other children. It is inspired by the both children and adults with a view to Convention on the Rights of the Child, obtaining insights in how best children which states that children have the right to can contribute to local governance. freedom of expression and a voice in n Download online: matters that affect them. This series springs http://tinyurl.com/repoa-children- from the Growing Up In Cities (GUIC) governance. Full URL: project of UNESCO-MOST, which involves www.repoa.or.tz/index.php/publications/cre young people around the world in ating_space_for_child_participation_in_loca evaluating and improving the places where l_governance_in_tanzania/ they live. For this book, GUIC teamed up For more information contact: Research on with HIVAN (the Centre for HIV and Poverty Alleviation (REPOA), PO Box 33223, AIDS Networking at the University of Dar es Salaam, Tanzania. Email: KwaZulu-Natal). Babiza willingly shared [email protected]; Website: his story of courage and hope with Jill www.repoa.or.tz Kruger, Deputy Director of Social and Behavioural Sciences at HIVAN, who is also African Youth Report 2011 the South African Director of GUIC. l ARDYIS, 2011 n Download online: The enormous benefits young people can http://unesdoc.unesco.org/images/0014/00 contribute are realised when investment 1410/141089mo.pdf is made in young people’s education, 216 64

employment, designed to provide a brief overview of the healthcare, key issues and a summary of some of the empowerment and best literature available. This report seeks to effective civil identify the key governance issues in participation. Several relation to youth, and to examine how these initiatives on youth may be shifting. It concludes by identifying education and a few emerging good practices in relation to employment have been youth and governance programming. The undertaken in Africa, but these need to be central challenge highlighted in the deepened in order to exploit the full literature on youth and governance – that potential of young people in contributing youth participation in governance should be to poverty reduction and sustainable enhanced at all levels – has been a development. prominent theme in donor literature since This report seeks to promote new and at least 2005. In the last few years, there has deeper knowledge of the potential of been a shift towards a growing emphasis on African young people and the broad how this change can be made actionable. conditions that have an influence on this The report highlights nine key issues. Some potential. It acknowledges the have been prominent for several years (e.g. predicament of African young people participation and empowerment, today, noting that they share visions and information and communication aspirations that are seemingly beyond technologies (ICTs), unemployment, conflict their reach, yet are essential elements of and violence), while others have come to today’s societies and the future which prominence more recently (e.g. climate awaits coming generations. change, urbanisation). The key issues Agriculture Rural Development and relating to these nine areas are summarised Youth in the Information Society here and explored in greater depth. (ARDYIS) aims to raise youth awareness n Download online: and capacity on agricultural and rural www.gsdrc.org/docs/open/HD760.pdf development issues in African, Caribbean For more information contact: Oliver Walton, and Pacific countries through information GDSRC. Email: [email protected] and communication technologies (ICTs). nDownload online: http://tinyurl.com/ardyis- Responding to the youthreport. Full URL: perspectives of urban http://ardyis.cta.int/en/resources/publications youth /item/104-african-youth-report-2011 lSheridan Bartlett. For more information contact: Ken Lohento, Briefing paper based on ICT4D Programme Coordinator, The Technical editorial in: Youth and the Centre for Agricultural and Rural Cooperation city: Environment and (CTA), Agro Business Park 2, 6700 AJ Urbanization Volume 22: Wageningen, The Netherlands. Tel: +31 317 2, Sage Publications and IIED, 2010 467100; Fax: +31 317 460067. Email: ardyis- Youth make up around one-quarter of the [email protected]; Website: http://ardyis.cta.int world’s population. But the challenges they face are given relatively little Helpdesk research report: youth and attention. They are often portrayed as the governance problem – the unemployed, disaffected, l Oliver Walton, Governance and Social irresponsible generation, a ‘ticking time Development Resource Centre bomb’ likely to explode, spreading GSDRC helpdesk reports are based on two violence and chaos. Or they can be seen as days of desk-based research. They are victims – of HIV, violence and sexual In Touch l Related resources / General resources 217 abuse, of discrimination, unemployment Development Studies Centre and the and exploitation. They can also be viewed Tanzania Natural Resource Forum have as a repository of knowledge, energy and been undertaking a project with their vision, which must be tapped to solve the partners with the specific goal of world’s problems. More effort is needed to generating more informed and equitable go beyond these stereotypes, to listen to discussion and debate on pastoralism. and support the efforts of young people to Using local government reform find opportunities, develop livelihoods, processes, the Strengthening Voices shape the settlements in which they live, project works at the community, local and engage as citizens with adults and government and national levels – with local governments. addressing the lack of knowledge and n Download E&U 22:2 online: power imbalances within all three. http://eau.sagepub.com/content/22/2/307 The central pillar of the project is a Download briefing paper online: training course on the economic and http://pubs.iied.org/10594IIED.html ecological processes at the heart of For more information contact: The Editors, pastoral systems – clarifying the rationale Environment and Urbanization series, that underpins livelihood strategies. International Institute for Environment and National politicians, local district officials Development (IIED), 80-86 Gray’s Inn Road, and community participants have all London, WC1X 8NH, UK. Tel: +44 20 3463 benefited from the training. 7399; Fax: +44 20 3514 9055; Email: At the end of its first three-year phase [email protected]; Website: good progress has been made in www.environmentandurbanization.org designing and implementing tools and approaches that promote citizen access to GENERAL decision-making. With their new evidence, training and advocacy skills, Strengthening voices: people are now better able to inform how pastoralist policy of the economic and environmental communities and local benefits of dryland livelihood systems. government are shaping This booklet and accompanying DVD strategies for adaptive explain the background to the project, its environmental achievements, and how it plans to build management and on its successes to roll out the project to poverty reduction in other districts in Tanzania, and elsewhere Tanzania’s drylands in East Africa. l Helen de Jode and Ced Hesse, IIED, n Booklet available to download from: June 2011 http://pubs.iied.org/G03105.html Pastoralism provides over 90% of the To request a copy of the booklet and video meat and milk products consumed contact Tanzania National Resources Forum: nationally in Tanzania. The pastoralist www.tnrf.org production system successfully exploits and adapts to the disequilibrium in the Virtuous circles: dryland ecosystems, but pastoralist voices values, systems are frequently excluded from the and sustainability decision-making and management of l Andy Jones, dryland resources. The marginalisation of Michel Pimbert and pastoralists is resulting in falling Janice Jiggins, production levels. IIED, IUCN, November 2011, Reclaiming Since 2007, IIED, the Kimmage Diversity and Citizenship Series 218 64

Our current way of providing food and This is a follow up to Believing other basic needs involves industrialised Cassandra, published in 2010, by the systems that are linear, centralised and same author. Again written in an globalised. In the linear approach, it is informal and accessible style, The assumed that at one end of a system there sustainability transformation shows how is an unlimited supply of energy and raw sustainability should be enjoyable as well materials (which there isn’t), while at the as challenging. other the environment has an infinite At the heart of the book is the theory capacity to absorb pollution and waste of ‘sustainable development’, condensed (which it hasn’t). The inevitable result is into a simple-to-learn formula called the resource shortages on the one hand and ‘ISIS Method’. ISIS stands for indicators, solid waste, climate change, biodiversity systems, innovation and strategy – a loss and air pollution problems on the sequence for sustainability planning and other. learning. What if our production systems The opening chapters provide mimicked cycles in the natural world? By background information about the adopting a circular metabolism, external structure of the current global systems inputs, such as pollution and waste (as that need changing, and about the scale well as risk, dependency and costs) would of the problems endemic in these be minimised. Natural systems are based systems. The book will appeal to on cycles, for example water, nitrogen and development professionals interested in carbon. In addition, there is very little learning about the tools and methods, as waste in natural systems. The ‘waste’ from well as students and general readers one species is food for another, or is looking for information and inspiration to converted into a useful form by natural enable them to become agents of change. processes and cycles. n Available from Earthscan, Taylor & Francis This book shows how these principles Group Ltd, 2 Park Square, Milton Park, can be used to create systems and Abingdon, Oxford, OX14 4RN, UK. Tel: +44 settlements that provide food, energy and 20 7017 6000; Fax: +44 20 7017 6699; water without consuming large quantities Email: [email protected]; Website: of fossil fuels and other finite resources. www.earthscan.co.uk In the process, greenhouse gas emissions and environmental pollution are Deconstructing minimised whilst human well-being, food development and livelihood security, and democratic discourse: buzzwords control are enhanced. and fuzzwords n Download online: l Edited by Andrea http://pubs.iied.org/G03177.html Cornwall and Deborah Eade. Practical Action The sustainability in association with transformation: how to Oxfam GB, 2010 accelerate positive change in challenging ‘All things are subject to interpretation, times whichever interpretation prevails at a given l Alan AtKisson, time is a function of power and not of truth’. Earthscan, 2011 (first Friedrich Nietzche published in hardback as The ISIS Agreement This compelling collection seeks to by Earthscan in 2009) unravel the language of the development In Touch l General resources 219 world through the buzzwords which the process it lost its ideological meaning, sustain its myths and its underlying serving the neo-liberal agenda. The book power structures. Contributors analyse shows that language does matter – it the meaning behind terms such as shapes our perceived reality. The word ‘poverty reduction’, ‘capacity building’, ‘development’ itself justifies our ‘partnership’, ‘gender’, ‘empowerment’ and intervention into people’s lives, raising ‘participation’, providing historical and issues of ethics and power. As Samuel political context and background. Words states: ‘we need to become equal like ‘poverty’ are loaded with emotional participants in social communication, and moral subjectivity – used and abused rather than playing the role of highly paid for political or commercial ends, giving experts travelling around with our ready- them power and exclusivity. They become made toolkits and frameworks for buzzwords, capturing the zeitgeist or prescribing the best communication speaking to political agendas. They cloud medicine’. meaning and become overused n Available from: Practical Action ‘fuzzwords’, open to manipulation, Publishing, Schumacher Centre for misinterpretation and ambiguity. Leal Technology and Development, Bourton on analyses ‘participation’, which appeared in Dunsmore, Rugby, Warwickshire, CV23 development discourse at the same time 9QZ, UK. Website: as structural adjustment programmes. In www.practicalactionpublishing.org 220

Events and training

Training from MOSIAC learnt in the workshop. Where appropriate, links will be made to existing Stakeholder participation workshop in community groups and their issues. planning, needs assessment and monitoring Evening meetings and on-going team- and evaluation building exercises will be part of this l 6th–11th February 2012, Tepoztlan, process. All participants should have a Mexico basic knowledge of English and Spanish This year’s stakeholder participation and be able to express themselves in both workshop will be held in collaboration languages. with Sarar Transformacion. The Registration fees: UN, international workshop is based on a hands-on institutions and governments: approach to participatory development US$1700.International NGOs, that can be applied in the South, in both academics, private sector: US$1380. urban and rural community settings. Local NGOs and private sector, full time Participants will be introduced to the students from the North: US$1100. Full concepts and tools behind participatory time students from the South: development. Practice assignments in the US$795.00. community will enable participants to n For more information contact: Françoise master and improve the tools and Coupal, Mosaic.net International, 705 approaches to participation. Roosevelt Avenue, Ottawa, K2A 2A8, The community practice assignments Canada. Email: wkshop05@mosaic-net- will be in one of five different intl.ca. Full details are also available online: communities in and around Tepoztlan, www.mosaic-net-intl.ca Mexico. Teams of participants will carry out a simulated participatory development exercise, using the tools In Touch l Events and training 221

Training at the Institute of Public Health, doctoral students, TropEd students, University of Heidelberg, Germany junior and senior researchers and consultants actively engaged in research Participatory learning and action: tools for activities. The course is held in English. community development Fluency in English (reading, speaking l 16th–20th July 2012 and writing) is a prerequisite. This course will provide participants with Registration fee: €750. The fee covers the opportunity to develop skills in coursework, printed materials, coffee participatory learning and action breaks and a pass for the Heidelberg methods and to understand and apply the public transportation system, but it does theoretical foundations of PLA to not include accommodation, insurance or primary healthcare. Topics include: other personal living costs during the stay. • Critical theory Registration deadline: 18th June 2012. • Action-oriented primary healthcare nFor more information and to register approaches contact: Nandita Rothermund, Short Courses • PLA methods (e.g. ranking, community in International Health, Institute of Public mapping, time lines, Venn diagrams, Health, University of Heidelberg, Im visioning and role plays) Neuenheimer Feld 324, D-69120 Heidelberg, • Cultural, gender and human rights Germany. Tel: + 49 62 21 56 46 48; Fax: + 49 aspects 62 21 56 49 18; Email: [email protected] • Conceptual management approaches heidelberg.de; Website: www.klinikum.uni- The course is aimed at graduate heidelberg.de/Participatory- students at an advanced master level, Learning.8028.0.html 222

E-participation

Africa Technology and Transparency AidInfo Initiative www.aidinfo.org www.africatti.org AidInfo works to accelerate poverty The Africa Technology and Transparency reduction by making aid more Initiative (ATTI) is a joint initiative of transparent. AidInfo believes that aid will Omidyar Network and Hivos. It seeks to work better – and that poverty reduction support organisations in Africa that use will come about more quickly – when technology and media platforms to information about aid can be accessed empower citizens in their countries to quickly, easily and cheaply. Better aid will hold their leaders accountable by result from better information. AidInfo providing access to credible public strives to enable governments, civil information, influence and stewardship of society and citizens greater and easier resources. The fund supports projects access to information on aid so that aid that use technology as an essential money can be tracked, adequate project component for providing people with feedback given and that government and access to credible information about donors can be held to account. government actions and influence in Africa. ATTI aims to invest in the AidData technology platforms that track www.aiddata.org government activities and money flows, AidData is an initiative that aims to provide citizens with the opportunity to increase the impact of development engage on specific issues, and establish assistance by making aid information the public checks and balances that can more transparent and accessible to a wide help people hold government leaders range of stakeholders. It also aims to more accountable. improve the quality of research on aid allocation and aid effectiveness. AidData In Touch l e-participation 223 provides a searchable database of nearly The Communication Initiative one million past and present aid activities Network: Children, Equity and around the world, aid information Development management services and tools, data www.comminit.com/children visualisation technologies, and research The CI’s new children, equity and designed to increase understanding of development website is a collaboration development finance. Currently, the with the United Nations Children’s Fund. AidData team is working with a wide Here, you can find information about range of development organisations. children’s equity issues in the context of AidData also provides services for communication and media development development organisations that require action. custom solutions for managing or analysing aid information. Daraja www.daraja.org The Children’s Institute In rural Tanzania, local government has a www.ci.org.za responsibility to listen to communities The Children’s Institute is a leader in and deliver public services that meet child policy research and advocacy in local needs. Daraja is a new organisation South Africa. Its activities focus on four that aims to make positive changes to life areas that are critical to children’s well- in rural Tanzania by bringing people and being: child rights, child poverty, child government closer together. The name health services and care in the context of reflects Daraja’s approach – Daraja HIV/AIDS. The Children’s Institute comes from the Swahili word for bridge. provides evidence to assist policy makers The website includes a regular blog and and practitioners to create policies, information about Daraja’s research. programmes and institutions that support the best interests of children in Development Focus South Africa. Publications can be www.developmentfocus.org.uk downloaded or free hard copies can be Development Focus is an organisation led ordered from: [email protected]. by Dr Robert Nurick and Dr Vicky Johnson working on international issues Child rights in practice: social of social justice, public participation, and networking site children and young people’s rights. www.childrightsinpractice.org Publications on children and young A social media site for child rights people’s rights can be downloaded here: practitioners. The website brings together www.developmentfocus.org.uk/Development groups for people interested in similar _Focus/Rights.html issues, places to share resources and a • Rights through evaluation way to meet other practitioners. • Gaining respect: children in conflict with This site is for professionals, students, the law youth, child rights advocates and those • Mainstreaming children’s rights: a interested in child rights issues around trainer’s guide the globe. • ‘Reflections from the ground.’ In: Members can add videos, pictures and Children, politics and communication. events or start and join groups based on • ‘Rights through evaluation and interest areas. Members can join in or understanding children’s realities.’ In: A start new discussions under the forum tab handbook of children and young people’s or post items for general viewing by all participation. members in the news section. • Stepping forward: children and young 224 64

people’s participation in the development http://tinyurl.com/frontline-blog process. Full URL: http://radio.frontlinesms.com/2011/04/pamoj Frontline SMS: a afm-strengthening-social-networks-in-kibera resource for youth and participation Plan UK www.frontlinesms.com Plan UK’s school linking project has used FrontlineSMS is open source software FrontlineSMS to help to connect school that can be used to empower large groups children in the UK, China, Kenya, of people, by harnessing the power and Malawi, Senegal and Sierra Leone. Read reach of mobile phones. At its core, more: FrontlineSMS software turns a laptop http://tinyurl.com/frontline-plan computer and a mobile phone or modem Full URL: into a mass messaging platform. It works www.frontlinesms.com/2011/03/07/global- without the Internet, is easy to learning-at-the-speed-of-a-text-message implement, simple to operate, and best of all, the software is free. Users only pay the Plan International standard text messaging charges through Plan International has used their regular mobile provider. FrontlineSMS to help lower barriers for Using available technology – cheap children to be able to report incidences of laptops and basic mobile phones – abuse and violence in Benin. Read more FrontlineSMS helps grassroots in this case study: community organisations to overcome www.frontlinesms.com/wp- communication barriers. In this short content/uploads/2010/11/FrontlineSMSPlan1. video, Ken Banks, FrontlineSMS pdf Founder, explains the ethos behind the software, with examples of how it is used There is great potential for by human rights organisations: FrontlineSMS to help engage young www.youtube.com/watch?v=5yfPmfnXUew people in policy, the media and wider civil FrontlineSMS has been downloaded society. Upon download many people and over 16,000 times and is being used in organisations stated their planned use of over 70 countries. It can be used to the software as relating to youth and amplify otherwise unheard voices in governance issues. Here are some quotes governance processes, as shown by the from those seeking to use FrontlineSMS many election processes which have been in this way: monitored using FrontlineSMS as a tool. FrontlineSMS is used to support many We are looking to implement FrontlineSMS other projects relevant for youth for [our work]… seeking to redefine the role participation – these are some examples. and to enhance the visibility of young people in governance and public processes. Pamoja FM A community radio station in Kibera, [Our planned use of FrontlineSMS is to] which helps local people – young and old communicate with youth leaders, child – to share their views on many locally rights activists and community volunteers. relevant issues, including politics and governance in Kenya. Learn more: n For more information contact: Laura Video: Walker Hudson, Director of Operations, www.youtube.com/watch?v=1nL6qNy0ylw FrontlineSMS. Post on FrontlineSMS radio’s blog: Email: [email protected] In Touch l e-participation 225

Open Government Partnership forefront of change and development. Led www.opengovpartnership.org by and with young people, Restless The Open Government Partnership is a Development’s innovative peer-to-peer global effort to make governments better: approach focuses on the areas of youth more transparent, effective and sexual and reproductive health and rights, accountable – by working with youth livelihoods and employment and institutions that empower citizens and youth civic participation. Online are responsive to their aspirations. The resources include training manuals, Open Government Partnership is a new toolkits and issues of their quarterly multilateral initiative that aims to secure newsletter. concrete commitments from governments to promote transparency, Technology for Transparency Network empower citizens, fight corruption, and http://transparency.globalvoicesonline.org harness new technologies to strengthen The Technology for Transparency governance. In the spirit of multi- Network is a research and mapping stakeholder collaboration, OGP is project that aims to improve overseen by a steering committee of understanding of the current state of governments and civil society online technology projects that increase organisations. transparency and accountability in Central and Eastern Europe, East Asia, Publish What You Pay Latin America, the Middle East and www.publishwhatyoupay.org North Africa, sub-Saharan Africa, Publish What You Pay (PWYP) is a global Southeast Asia, South Asia and the network of civil society organisations that former Soviet Union. are united in their call for oil, gas and There is growing enthusiasm about mining revenues to form the basis for the use of social media as a powerful tool development and improve the lives of in promoting transparency and fighting ordinary citizens in resource-rich against corruption. But how does the use countries. PWYP undertakes public of technology to promote transparency campaigns and policy advocacy to achieve differ across regions, cultures and types disclosure of information about extractive of governance? What skills and expertise industry revenues and contracts. The are missing from the current technology global network has over 600 member for transparency projects? What types of organisations across the world. PWYP relationships have they formed with members include human rights, media, government and civil society development, environmental and faith- organisations to increase their impact? based organisations. In more than 30 This project aims to document in-depth countries, network members have joined technology for transparency projects to forces by creating civil society coalitions gain a better understanding of their for collective action. The priorities of current impact, obstacles and future these coalitions reflect the unique potential. national context and the nature of the extractives sector in the country. Twaweza www.twaweza.org Restless Development Twaweza means ‘we can make it happen’ in www.restlessdevelopment.org/resources Swahili. It is a ten year citizen-centered Restless Development is a youth-led initiative, focusing on large-scale change in development agency with 25 years East Africa. Twaweza believes that lasting experience in placing young people at the change requires bottom-up action and 226 64

seeks to foster conditions and expand numerous countries around the world. opportunities through which millions of The website includes publications which people can get information and make focus on the latest critical thinking on change happen in their own communities socio-economic and human rights issues directly and by holding government to affecting the most vulnerable children and account. Their website includes news and families. It also has research guides and updates on e.g. budget transparency in tools and media materials. East Africa and service delivery data, as well as policy briefings and reports. Also Ushahidi includes information on partners and www.ushahidi.com projects that work with many youth Ushahidi is a crowdsourcing citizen partners e.g. Tamasha, a youth focused reporting tool first used in Kenya to map organisation in Tanzania and ShujazzFM, post-election violence. Ushahidi is a an interactive multimedia project in Kenyan company dedicated to Kenya. democratising information and increasing transparency using flexible and robust Ureport open source technology. http://ureport.ug Learn more about Ushahidi’s latest Ureport is a free SMS-based system that projects, including Ushahidi Liberia which allows young Ugandans to speak out on provides free customised mapping what’s happening in communities across technology and ongoing technical support the country, and work together with to humanitarian and development actors other community leaders for positive tracking conflict, peace building and the change. Ureport is supported by 2011 electoral process in Liberia. Ushahidi UNICEF and Brac, among others. Liberia aims to connect people across civil Ureport is made up of: society, government and the media using a • Weekly SMS messages and polls to and common platform for information sharing. from a growing community of Ureporters War Child International • Regular radio programmes that www.warchild.org broadcast stories gathered by Ureport War Child International is a family of • Newspaper articles that publish stories independent humanitarian organisations, from the Ureport community. working across the world to help children The mission of Ureport is to inspire affected by war. War Child International action within communities and from currently consists of three implementing leaders and to share information that offices in Holland, North America and the Ureport gathers through different UK. These offices operate as equal mediums (radio, TV, community partners, share the same aims and goals dialogue, websites and youth events). and work together in the field, but are totally autonomous, with independent UNICEF Innocenti Research Centre trustees and financial coordination. War www.unicef-irc.org Child International implements projects The United Nation’s Children’s Fund in Afghanistan, Burundi, Chechnya, (UNICEF) Innocenti Research Centre Colombia, DR Congo, Ethiopia, Iraq, has produced studies that explore Israel, Kosovo, Lebanon, Liberia, Sierra neglected areas of child rights and well- Leone, Sri Lanka, Sudan, Uganda, West being, informing policy and practice in Bank and Gaza. 227 RCPLA NETWORK

In this section, we update readers on Asia Region: Tom Thomas, Director, activities of the Resource Centres for Institute for Participatory Practices Participatory Learning and Action (Praxis), S-75 South Extension, Part II, Network (RCPLA) Network New Delhi, India 110 049. (www.rcpla.org) and its members. RCPLA Tel/Fax: +91 11 5164 2348 to 51 is a diverse, international network of Email: [email protected] national-level organisations, which brings Website: www.praxisindia.org together development practitioners from Jayatissa Samaranayake, Institute for around the globe. It was formally Participatory Interaction in Development established in 1997 to promote the use of (IPID), 591 Havelock Road, Colombo 06, participatory approaches to development. Sri Lanka. Tel: +94 1 555521 The network is dedicated to capturing Tel/Fax: +94 1 587361 and disseminating development Email: [email protected] perspectives from the South. For more information please contact the RCPLA West Africa Region: Awa Faly Ba Mbow, Network Steering Group: IED-Afrique, BP 5579 Dakar Fann, Senegal. Tel: +221 33 867 10 58 RCPLA Coordination and North Africa Fax: +221 33 867 10 59 & Middle East Region: Passinte Isaak, Email: [email protected] Center for Development Services (CDS), Website: www.iedafrique.org 4 Ahmed Pasha Street, 10th Floor, Garden City, Cairo, Egypt. European Region: Jane Stevens, Tel: +20 2 795 7558 Participation, Power and Social Change, Fax: +20 2 794 7278 Institute of Development Studies (IDS), Email: [email protected] University of Sussex, Brighton BN1 9RE, Website: www.cds-mena.org UK. 228 64

Tel: + 44 1273 678690 Fax: + 44 1273 21202 Email: [email protected] Website: www.ids.ac.uk/ids/particip

Participatory Learning and Action Editorial Team, International Institute for Environment and Development (IIED), 80-86 Gray’s Inn Road, London WC1X 8NH, UK. Tel: +44 20 3463 7399 Fax: +44 20 3514 9055 Email: [email protected] Website: www.planotes.org

East Africa Region: Eliud Wakwabubi, Participatory Methodologies Forum of Kenya (PAMFORK), Jabavu Road, PCEA Jitegemea Flats, Flat No. D3, PO Box 2645, KNH Post Office, Nairobi, Kenya. Tel/Fax: +254 2 716609 Email: [email protected] In Touch l RCPLA Network 229

News from the Asia Region: update from Delhi on 12th–13th July 2012 with other Praxis members of SEW, development Praxis – Institute for Participatory functionaries and the media. The Practices – works to promote participatory consultation also laid the foundation for a practices in all spheres of human way forward to ensure equity aspects are development. It carries out research and kept in consideration in any further consultancies and engages in several self- infrastructure projects planned or funded initiatives to further the use of executed by the government of India. participatory approaches. Praxis is n For further details, visit: committed to mainstreaming the voices of http://socialequitywatch.org/ the poor and marginalised. It is based in New Delhi, with branches in Chennai, Other on-going work in the region Patna, Hyderabad and London. Praxis is currently engaged with several research initiatives in various sectors. They TheWorkshop2011 are in the process of developing a Praxis successfully hosted its annual monitoring framework for anti-trafficking international commune on participatory responses in India. They are also working development from 12th–21st September on studies and campaign work on urban 2011, in Siloam, in the north-eastern poverty focusing on powers vested with Indian state of Meghalaya. This was the urban local bodies towards planning and landmark 15th year of TheWorkshop. implementation of pro-poor urban reform, Seventy-one participants from eleven as well as several other short-term needs countries spent ten days learning new assessments and project evaluations. skills and sharing their knowledge in The Praxis Patna team has been participatory development. Four modules included as one of the 16 sectoral were on offer: participatory methods and committees (on Rural Development and approaches, community-led local level Panchayati Raj Institutions) working on planning, community-led monitoring and preparing an approach paper as part of the evaluation and public accountability. formulation of the Bihar government’s TheWorkshop2012 is scheduled to be held ‘Growth With Justice’ goal under the 12th in late September 2012. five-year plan. n Details will soon be available on: The Praxis team in Chennai recently www.theworkshop.in organised an immersion for non-resident For videos of the recent workshop see: Indian children focused on the right to www.youtube.com/watch?v=l4l3lppysqs education, food security and child labour at To watch other films made by Praxis, see: Pooncholai, a home run by Malarchi Trust www.youtube.com/user/PraxisIndia in the Tirunelveli district of Tamil Nadu. n For more information about Praxis and its Social Equity Watch work, visit: www.praxisindia.org As mentioned in previous issues of PLA, Praxis, as the secretariat of Social Equity News from IIED Watch (SEW), has been mapping exclusion based on religion, ethnicity and caste in the Participatory knowledge: how does this feed government’s provision of village-level into development research? Special event to infrastructure in five states across India as launch PLA 63 part of the National Infrastructure Equity As mentioned in the editorial, IIED hosted Audit (NIEA) exercise. a launch of Participatory Learning and The learning from the NIEA study was Action 63: How wide are the ripples? From shared through a consultation held in New local participation to international 230 64

organisational learning. This was co- The session after the tea break saw organised by the Organisational Learning IIED and OLN working in separate Network (OLN), an informal forum of groups, which provided an opportunity to learning and development practitioners explore the institutional support needed to from the voluntary sector, of which several enable critical reflection of how and in of the PLA 63 authors are members. which ways information and knowledge The event was facilitated by Hannah interrelate with power and development. Beardon, one of the PLA 63 guest-editors. As reiterated during the meeting, PLA The other guest-editor, Kate Newman, had 63 was not the end product of the ripples recently given birth to a baby girl, her third process, but rather the beginning of a new child. Many congratulations to Kate and one, as well as a continuation of what had her family! already been achieved. PLA 63 is not a Participants included members of the blueprint, but rather a guide to help other OLN and IIED staff. The event was people and organisations continue their opened by Camilla Toulmin, Director of discussions. IIED. Hannah gave a brief overview of the We look forward to sharing more ripples research process, highlighting the reflections from readers on the issues four overarching themes which were raised in PLA 63. Please send us your identified for this special issue. See the feedback! overview article for PLA 63: http://pubs.iied.org/G03167.html Our new offices After brief introductions, participants IIED has settled well into the new offices were invited to discuss some of the issues in Gray’s Inn Road. We have held several in smaller groups and share experiences. meetings and events and we are adjusting Questions considered included: what to a more open-plan style of working and information do you draw on when you are new technologies. 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PAYMENT INFORMATION n I would like a free subscription n I enclose an international money order or US$ cheque drawn on a US bank account to the value of: US$______n I enclose a UK cheque to the value of: Cheques should be made payable to IIED n Please debit my credit card to the value of: n VISA n Mastercard Credit Card Number: Expiry Date: Holder’s Name: Signature: Card Address (if different from above): n Please send my organisation an invoice Please indicate what type of organisation you work for: Please indicate what your area of work/interests are: Guidelines for contributors Abstracts For a full set of guidelines, visit our website www.planotes.org Please include a brief abstract with your article A free guide to writing for the PLA series is also available (circa. 150-200 words). online here: http://pubs.iied.org/G03143.html References Types of material accepted If references are mentioned, please include details. • Articles: max. 2500 words plus illustrations – see below for Participatory Learning and Action is intended to guidelines. be informal, rather than academic, so references • Feedback: letters to the editor, or longer pieces (max. 1500 should be kept to a minimum. words) which respond in more detail to articles. • Tips for trainers: training exercises, tips on running Photographs and drawings workshops, reflections on behaviour and attitudes in Please ensure that photos/drawings are scanned at training, etc., max. 1000 words. a high enough resolution for print (300 dpi) and • In Touch: short pieces on forthcoming workshops and include a short caption and credit(s). events, publications, and online resources. We welcome accounts of recent experiences in the field Submitting your contribution (or in workshops) and current thinking around Contributions can be sent to: The Editors, participation, and particularly encourage contributions Participatory Learning and Action, IIED, from practitioners in the South. Articles should be co- 80-86 Gray’s Inn Road, London WC1X 8NH, UK. authored by all those engaged in the research, project, or Fax: +44 20 7388 2826; programme. Email: [email protected] In an era in which participatory approaches have often Website: www.planotes.org been viewed as a panacea to development problems or Resource Centres for Participatory Learning and where acquiring funds for projects has depended on the use Action (RCPLA) Network of such methodologies, it is vital to pay attention to the Since June 2002, the IIED Resource Centre for quality of the methods and process of participation. Whilst Participatory Learning and Action has been we will continue to publish experiences of innovation in the housed by the Institute of Development Studies, field, we would like to emphasise the need to analyse the UK. Practical information and support on limitations as well as the successes of participation. participation in development is also available from Participatory Learning and Action is still a series whose the various members of the RCPLA Network. focus is methodological, but it is important to give more This initiative is a global network of importance to issues of power in the process and to the organisations, committed to information sharing impact of participation, asking ourselves who sets the and networking on participatory approaches. agenda for participatory practice. It is only with critical More information, including regular updates analysis that we can further develop our thinking around on RCPLA activities, can be found in the In Touch participatory learning and action. section of Participatory Learning and Action, or by We particularly favour articles which contain one or visiting www.rcpla.org, or contacting the network more of the following elements: coordinator: Ali Mokhtar, CDS, Near East • an innovative angle to the concepts of participatory Foundation, 4 Ahmed Pasha Street, 10th Floor, approaches or their application; Garden City, Cairo, Egypt. • critical reflections on the lessons learnt from the author’s Tel: +20 2 795 7558; Fax: +2 2 794 7278; experiences; Email: [email protected] • an attempt to develop new methods, or innovative adaptations of existing ones; Participation at IDS • consideration of the processes involved in participatory Participatory approaches and methodologies are approaches; also a focus for the Participation, Power and Social • an assessment of the impacts of a participatory process; Change Team at the Institute of Development • potentials and limitations of scaling up and institutionalising Studies, University of Sussex, UK. This group of participatory approaches; and, researchers and practitioners is involved in sharing • potentials and limitations of participatory policy-making knowledge, in strengthening capacity to support processes. quality participatory approaches, and in deepening understanding of participatory methods, Language and style principles, and ethics. For further information Please try to keep contributions clear and accessible. please contact: Jane Stevens, IDS, University of Sentences should be short and simple. Avoid jargon, Sussex, Brighton BN1 9RE, UK. theoretical terminology, and overly academic language. Tel: +44 1273 678690; Fax: +44 1273 621202 Explain any specialist terms that you do use and spell out Email: [email protected] acronyms in full. Website: www.ids.ac.uk participatory learning and action 64 All over the world citizens are starting to demand accountability from those in power. We are seeing exciting experiments in participatory governance. But are they working for young people? What spaces are most promising for the participation of children and young people in governance? Across Africa youth (particularly boys and young men) are seen as a frustrated and excluded ‘lost generation’ who are marginalised from decision-making processes. Contributors to this special issue demonstrate how this is changing. Young people in Africa are challenging the norms and structures that exclude them, engaging with the state and demanding accountability. This special issue describes how young people are exercising their right to participate and developing the knowledge, skills and confidence to affect to change. It explores some of the methods of communication, appraisal, monitoring and research which are involving these young people in decision-making spaces. It asks how can we re-shape how young people perceive and exercise citizenship? How can we redefine and deepen the interfaces between young citizens and the state? This special issue demonstrates the persistence, passion and enthusiasm that youth bring to governance processes – and how they are driving change in creative and unexpected ways. It highlights how young Africans are doing this: addressing the documentation gap that surrounds youth and governance in Africa and enabling other participatory practitioners – young and old – to learn from their experiences. Participatory Learning and Action is the world’s leading informal journal on participatory approaches and methods. It draws on the expertise of guest editors to provide up-to-the minute accounts of participatory approaches in specific fields. Since 1987, PLA has provided a forum for participatory practitioners – community workers, activists and researchers – to share experiences, conceptual reflections and methodological innovations with others, providing a genuine ‘voice from the field’. A vital resource for those working to enhance the participation of ordinary people in local, regional, national and international decision-making, in both South and North.

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The International Institute for Environment and Development is a global leader in sustainable development. As an independent international research organisation, we are specialists in linking local to global. In Africa, Asia, the Caribbean, Central and South America, the Middle East and the Pacific, we work with some of the world’s most vulnerable people to ensure 80-86 Gray’s Inn Road they have a say in the policy arenas that most London WC1X 8NH, UK closely affect them – from village councils to Tel: +44 (0)20 3463 7399 international conventions. Through close Email: [email protected] collaboration with partners at the grassroots, Website: www.planotes.org we make our research and advocacy relevant to IIED website: www.iied.org their needs and alive to their realities.