Institutionalizing Youth Participation without Empowerment? Evidence from Albanian Municipalities

By Gentjan HAJDARI, Anjeza XHAFERAJ

Abstract
Youth participation has become an increasingly important component of democratic governance, particularly within frameworks promoting inclusive decision-making and civic engagement. In Albania, the adoption of Law No. 75/2019 “On Youth” established the first comprehensive legal framework aimed at strengthening youth participation through institutional mechanisms such as Local Youth Councils and municipal structures responsible for youth affairs. This article examines the extent to which these reforms have contributed to meaningful youth participation in local decision-making processes. Drawing on a mixed-methods research design, the study combines survey data from 207 young people aged 15–29 with semi-structured interviews conducted with 24 representatives from 22 Albanian municipalities. The analysis is informed by theories of participatory governance and youth empowerment, as well as Arnstein’s Ladder of Citizen Participation and Hart’s Ladder of Youth Participation. The findings indicate that Law No. 75/2019 has contributed significantly to the institutionalization of youth participation across Albanian municipalities through the establishment of formal participatory structures and consultation mechanisms. However, awareness of these opportunities remains uneven, participation levels are relatively modest, and many young people perceive their influence on local policymaking as limited. While municipalities increasingly provide opportunities for consultation and dialogue, participation often remains advisory rather than decisional. Information deficits, limited political efficacy, uneven municipal capacities, and insufficient financial resources continue to constrain meaningful youth engagement. The article argues that the Albanian case illustrates a broader challenge facing transitional democracies: the creation of participatory institutions does not automatically generate empowerment or influence. Although youth participation has become increasingly institutionalized, the transition from formal inclusion to substantive participation remains incomplete. The study contributes to debates on participatory governance, youth empowerment, and democratic inclusion by highlighting the gap between institutional participation and meaningful influence in local governance.
Keywords: youth participation; participatory governance; youth empowerment; local governance; democratic inclusion; Local Youth Councils; Albania; Law No.75/2019