Introduction
This case study highlights the process and interventions by Civil Society Organisations (CSOs) to motivate the Government of Pakistan to develop the country's first ever youth policy. The history of the National Youth Policy (NYP) is one of steps forward and backwards. So far, four drafts of the NYP have been prepared: in 1989, 1993, 2002 and 2004. The NYP draft prepared in 1989 wasn't presented to the Cabinet, and was only issued to the press on 21 June 1989. The second draft of the NYP (1993) was prepared by a foreign consultant, but not presented to the Cabinet. The third draft was prepared in 2002, and was successfully presented to the Cabinet for its approval. It was considered by the Cabinet which suggested some changes. The current NYP draft was prepared in December 2004, and has yet to be presented to the Cabinet.

The type and extent of policy change
The key policy change came in 2001 when the government started consulting with civil society on the NYP. Between May 2001 and January 2002, the Ministry of Culture, Sports and Youth Affairs organised consultative provincial and national workshops for the first time. In the light of these consultations, the Pakistani Ministry of Youth Affairs with the active participation of Provincial Youth Departments, CSOs and students were able to prepare a comprehensive NYP (2002). It is through this process that the final 2004 draft has been prepared.

Some thoughts on explanation of policy change
Political context
In Pakistan, young people have, historically, been absent from the policy debate. It was only in the late 1980s that a Youth Affairs Division was set up to look after the needs and problems of the young; resources were allocated for vocational training centres, youth hostels, and sports facilities for the youth. Between 1989 and 1999, however, Pakistan was affected by political instability - none of the appointed governments were able to complete their mandates. This relegated the NYP to a lower priority in the political agenda; and the Youth Affairs Division was reduced to a wing of the Ministry of Minorities, Culture, Sports, Tourism and Youth Affairs. Since President Mr. Pervaiz Musharraf came to power, and during his regime (1999 onwards), the issue of NYP has surged again. By September 2001 the Chief Executive Office directed the Ministry that a 'revised NYP be brought before the Cabinet, immediately'.

International factors
International factors have played different roles. On the one hand they have provided a framework for action (via international agreements) and, on the other hand, they have facilitated the process (via technical assistance and financial support).

Civil Society Organisations' strategies for policy change
CSOs working on youth issues in Pakistan have been continuously engaged in the process of the NYP, first by advocating the need for policy development and later through a consultative status with the government department concerned. Formally, these CSOs started working with the government in April 2003, when the Prime Minister directed CSOs to submit their blue prints for the Youth Force at national, provincial, district and tehsil levels.

Links between the CSOs have created a strong pressure group. Currently, there are two national youth CSO umbrella organisations in Pakistan; the All Pakistan Youth Federation (APYF) and the National Youth Council of Pakistan. It was established as a regular organisation in 1987 with members from the local level. They have organised various events to raise the profile of youth issues. For instance, in 2004, APYF celebrated the International Youth Day (12th August) and invited the Education Minister Ms. Zubaida Jalal as the chief guest to the event.

Media advocacy has also been a powerful tool for CSOs. Exposure in the local media and their links with media actors have helped them to engage with the policy process. This has translated in various media publications and meetings with media actors and development experts.

Lessons
The following are considered as good practice in the process of influencing the Pakistani NYP. Some could be replicated in other countries or contexts:

• For the NYP, the participation of the youth was essential. When policymakers cannot ensure this, CSOs can act as filters and amplifiers of the various issues concerning the youth throughout the country and forward the outcomes of their studies or consultations to the appropriate policy actors.
  
• Research needs to be confronted with policy to prove its worth. Hence researchers need to submit their research findings to policymakers and relevant government agencies.
  
• It is also sometimes important to publish shocking facts about the issue discussed to move policymakers into action (e.g. suicide rates among the youth).
  
• Collaboration with the government is crucial to make effective interventions at the policy level. Organising conferences with the involvement of the government and international agencies is a way of engaging with them.
  
• Establishing networks among the CSOs working for the same cause can create a strong pressure group.
  
• The media must become a strong ally.
  
• The celebration of international events, such as International Youth Day, can offer the opportunity to invite Ministers from relevant government agencies to raise youth issues, such as education, health, poverty, unemployment etc. Other events such as book or report launches can be used as opportunities to directly inform the government by inviting relevant government officials.
  

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