My girl is 2 and she's like that. Need time for her to warm up to unfamiliar people (especially adults). Adults cannot approach her and fuss over her. She will cry. Instead, the adult must ignore her and she will take her time to go over to that person.
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It's usually normal for kids in that age group to react this way when put in unknown or unfamiliar situations. Best way would be to pacific them and make them feel less anxious in such situations by your presence.