I checked into the history of the "secondary Draw" on the CPAW website by looking at past commissioner meeting agendas and minutes. The secondary draw was approved by vote during the January 9-10, 2019 meeting.
After approval, Chapter W-2 Included individual sections for both Leftover & secondary draw provisions (page 59 & 60 of the pdf)(look at the page counter not page numbers)
I was surprised to see that prior to 2019 the leftover provisions in Chapter W-2 included the same statement as the new secondary License provision "Any eligible hunter, ages 12 – 17 shall receive preference for leftover deer and elk licenses."
Link to 2017 big game proclamation:
I do not remember people complaining about the youth hunters getting all the good "leftover" tags back then, even though the provisions stated that they should have, maybe they did and nobody noticed.
I found it interesting in the Basis & Purpose section of the minutes (pdf page count 217) that the secondary draw would provide opportunity and better planning "and gives customers a fair chance at any leftover or returned license." There is no specific mention in the Basis and Purpose of youth hunters at all. But since youth already had priority in the left over draw prior to the implementation of the new secondary draw I guess they didn't need to mention it.