Action Plan on Women, Peace and Security

WOMEN, PEACE AND SECURITY 1

The Norwegian Government’s Action Plan

Women, Peace and Security (2019 - 2022)

Norwegian Ministries Minister of Children and Equality

Linda Hofstad Helleland

e d

n Contents

o Women, peace and security in a new plan period 6

t o

Minister of International Development FOCUS AREAS Nikolai Astrup 1. Peace and reconciliation processes 12

2. Implementation of peace agreements 20

turlason/U n 3. Operations and missions 26 f S ten o

gra riks j

o d s e i ot par

: F tem v to en o

o tet t h o

F 4. Humanitarian efforts 36

g g

e Minister of Justice, Public

a Security and Immigration

: Tor Mikkel Wara

o t

o 5. Sustaining peace 4442

h P a. Women’s rights and gender equality in countries Photo : Torb jørn Kjo affected by armed conflict 48 svo ld/ Fo rs b. Women, gender and violent extremism 50 P va h re o t t o

T o

r g e Implementation of the action plan 56 i r

a u g a Results framework 64 a r d , F o r s v a r e t

Minister of Defence Frank Bakke-Jensen Minister of Foreign Affairs Ine Eriksen Søreide 4 ACTION PLAN WOMEN, PEACE AND SECURITY 5

Preface

This is Norway’s fourth Action Plan on Women, Peace and Security. In this new plan, we focus, among other things, on women’s participation and rights both in initial, informal peace talks and in formal peace negotiations. Norway will have a more systematic focus on women, peace and security in our efforts to support the implementation of peace agreements, strengthen the gender perspective in international operations and missions, and increase our efforts for women and girls in our humanitarian work.

The people targeted by such measures must Norway’s efforts for women’s participation in Norway’s candidacy for the UN Security Council for the period 2021–2022 also have influence. Men and women, boys and and influence on peace and security work began was launched as early as 2007. Norway wishes to contribute to targeted girls who are victims of sexual and gender-based before the UN Security Council adopted Resolu- and systematic follow-up of the commitment to women, peace and security violence must be safeguarded. Children who are tion 1325 in 2000. We have learnt from experience across the full breadth of the Security Council’s work. We emphasise that born as a result of such abuse must be followed that we must recruit from the whole population, women must be active participants in all peace and security efforts and that up. We must emphasise preventing and dealing both women and men, if we are to achieve the it is in both men’s and women’s interests that peace and security work is with conflict-related sexual violence in all our best results. Our insight and capacity increase inclusive. peace and security endeavours. when we involve more people and consult more widely. The gender perspective is also about men’s experiences, needs and gender A long-term, broad focus on women’s rights is roles, and about the fact that, in the same way as women, men will prof- crucial if it is to be possible for women to play a There is a long-standing tradition of endeavouring it when the conditions for peace improve. It must always be a leadership part in conflict prevention and conflict resolution. to promote women’s rights in Norway’s foreign responsibility to ensure that peace and security endeavours benefit both Breadth and a long-term perspective are there- and domestic policy, and this remains a priority. In women and men, and girls and boys. fore emphasised in the plan. Women’s different the context of Norway’s efforts to promote peace roles when encountering violent extremism, and and security, this means that women’s rights, The efforts for women, peace and security are not a gesture to women. They the importance of the gender perspective in rela- needs and priorities must be taken seriously. This are about effectively preventing and resolving conflicts and building peace in tion to this issue are also emphasised. is necessary if the analyses are to be accurate, the a sustainable manner. Norway remains a consistent, long-term partner for a mandates appropriate and the measures taken common, peaceful and secure future. Coordination is decisive. Norway will therefore relevant and sufficient. promote cooperation on women, peace and security at country level and in multilateral organisations. The new plan also increases the focus on measuring results. 6 ACTION PLAN WOMEN, PEACE AND SECURITY 7

We have seen changes in the global conflict situation in recent

years. We are now facing several complex, intense and pro- Women human rights longed conflicts and crises. Many civilians are affected. The defenders

WOMEN, PEACE AND humanitarian suffering is enormous. Destroyed infrastructure, Women’s ability and possi- poor health services and lost education have consequences for bility to participate in peace and security efforts are linked SECURITY IN A NEW millions of people. Climate change and health pandemics are to their life situation and to increasing the vulnerability of many societies. This, in turn, can what extent women’s rights PLAN PERIOD are safeguarded. There is be detrimental to security. therefore a close connection between our efforts in the field of women, peace and security Norway’s efforts for women, peace and our work on human rights, Women and men, girls and boys Momentum for women, peace including efforts to promote and security shall contribute to have different roles and positions and security women’s rights and gender 2 in the societies they live in. They equality. achieving our common goal of The celebration of the 15th anniver- can be affected in different ways by sary of Security Council Resolution Support for women human a conflict. Norway therefore has a sustainable peace. (SCR) 1325 in 2015 set two records rights defenders is important if clear focus on both women’s and we are to build a solid defence in the Security Council. Never men’s security and rights. Having for women’s rights. Women before had so many statements access to the whole population’s human rights defenders are been made, and never before had resources, knowledge and experi- often at greater risk than their so many supported a resolution as male colleagues because they ence is decisive if we are to succeed when SCR 2242 was adopted. There break with traditional norms in in building peaceful societies where is widespread international support many cases. everyone is respected and included. for the Women, Peace and Security 1 Norway makes active endeavours A Norwegian-led resolution on Agenda. Despite the fact that a lot to ensure that women participate women human rights defend- remains to be done in terms of im- on an equal footing with men in ers was adopted by consensus plementing commitments, we note at the UN General Assembly processes that concern their lives that there is optimism about what it in December 2013. Helping to and affect their future. The Action is possible to achieve. ensure that women human Plan on Women, Peace and Security rights defenders are protected

sets out important guidelines for is an important objective for The Peace Agreement of 2016 be- this work. Norway, also in the context of tween the Colombian Government women, peace and security. and FARC has shown that women

n ughto can influence peace processes and im Ha oto/K UN Ph Photo: that it is possible to achieve a peace greement containing strong pro- On 2 December 1952, the first meeting of the Security Council was held in the UN Headquarters Building in New York. The Security Council Chamber was a gift from Norway to the UN. 1. Important normative references include the Security Council’s resolutions on women, peace and security, UNSCR 2250 on youth, peace and security, the fundamental principle of the sustainable development goals (SDG) that no one shall be left behind, SDG 5 on women’s rights and SDG 16 on peaceful and inclusive societies. 2. See white paper no 10 on human rights (2014-2015) and the Action Plan on Women’s Rights and Gender Equality in Foreign Policy and Development Cooperation (2016-2020). 8 ACTION PLAN WOMEN, PEACE AND SECURITY 9

Women, gender and violent extrem- visions safeguarding both women’s and men’s rights, needs New Norwegian action plan – focus areas and goals Women on the run ism and priorities. Many Norwegian policy areas are relevant to the Agenda for Women, Peace When people flee their homes, Many violent extremist groups have made their vulnerability increases. New and innovative inclusion mechanisms were established and Security. The Action Plan on Women, Peace and Security defines what attacks on women’s rights and security part Norway will emphasise in particular. It focuses on areas where we can Individuals are torn from their of their strategy. Sexual violence is one form in connection with the Geneva-based peace talks on Syria local communities. Social make a difference, be more effective and commit to achieving results. of extremist violence. Human trafficking, es- (see page 16). The Peacebuilding Fund was the first fund structures disappear. Law and pecially of girls and women, remains a critical of its kind to succeed in ensuring that, in line with the UN’s order disintegrates when des- part of the funding flows of some extremist objectives, more than 15 per cent of allocated funds went peration prevails. Both women groups. to women’s rights and gender equality (36 per cent in 2017). The first four chapters of the plan cover four focus areas: and men are more at risk than before: They lose their pos- Civil society organisations that had long agitated for more Despite gross violations of women’s rights 1. Peace and reconciliation processes sessions and their roots, their committed by extremists, they also recruit financial support for their efforts were among the recipients. opportunities for an education women. Women are extremist ideologues The UN Secretary-General’s Gender Parity Strategy of 20173 2. Implementation of peace agreements and an income are taken from who recruit both men and women, and they gave added momentum to women’s participation in and influ- them, and they are subjected put pressure on their families and acquaint- ence over all levels of the organisation, including peace and 3. Operations and missions to abuse and human traffick- ances to take part in extremist violence. security work. State-supported networks of women media- ing. Women play supporting roles in extremist 4. Humanitarian efforts. tors are emerging in more and more regions. These networks groups and also commit violent acts them- Girls and women are particu- selves. work strategically to promote women’s participation in peace larly at risk. Sexual violence and reconciliation efforts at all levels. New initiatives are also is a large and multi-faceted At the same time, however, women are influ- being taken to increase the number of women in internation- problem. Child marriages and ential peace activists who build resistance to al operations. forced marriages are on the violent extremism and run effective de-rad- increase as a result of fear and icalisation, reintegration and reconciliation New topics emerging destitution. In a situation in programmes. which there is an acute need Since the previous Norwegian action plan on women, peace for sexual and reproductive Violent extremists make strategic use of and security was finalised four years ago, there has been a health services, they are often traditional and modern ideas about society greater focus on preventing and combating violent extremism in limited supply. and community. Men’s and women’s roles in the security policy context. Security-related aspects of cli- are consciously exploited. The rise of violent We therefore endeavour to extremism has led to more focus on the mate change are more to the fore. The number of refugees and ensure that women and men roles of men and women, and interest in internally displaced persons has substantially increased. are heard and have their both women’s and men’s situation, experi- needs met when they have ences and insights has increased. The new humanitarian and security policy challenges require a had to flee their homes. This response from us. That response must have a clear gender per- is a key part of our humani- Norway gives high priority to these perspec- tarian efforts and our work on spective and it must involve women. tives and to cooperation with civil society in international migration issues. its work on preventing and combating violent Women’s rights are given Ph oto: extremism. See page 50. This development is reflected in new Security Council resolu- Jason M priority in Norway’s diplomatic iklian, PRIO tions, for example SCR 2242 and SCR 2419, which link the ef- work in this field, for example forts to combat violent extremism to commitments in the field A girl waits with the belongings of her displaced family. in the recent UN negotiations of women, peace and security, and SCR 2331 and SCR 2388, She and her family are about to cross the flooded on the Global Platform for Ref- River Kosi in South Nepal. ugees and the Global Platform which place human trafficking on the Security Council’s agenda. for Migration.

3. UN Secretary General’s Gender Parity Strategy 10 ACTION PLAN WOMEN, PEACE AND SECURITY 11

Women act both together The text of the plan explains the rity perspective will be applied in The plan in a broader context Women, peace and security have high Integration of the and individually objectives and rationale for our national contingency plans. There is priority in our cooperation with the gender perspective efforts in these four areas, and the also a stronger focus on how crime Norway endeavours to ensure that UN, NATO and regional organisations. Since women are often mar- The gender perspective approach that will be taken. The re- and armed conflicts overlap. The all relevant political plan documents It is one of the main priorities in Nor- ginalised, women’s groups humanitarian efforts will have a integrate women, peace and security. way’s campaign for membership of must be an integral part have had good reason to join sults framework (See pages 64-71) of our work on peace stronger focus on refugees, inter- For example, the fundamental princi- the Security Council and in our efforts forces across dividing lines in shows how the efforts are broken and security. The gen- ples of the Women, Peace and Secu- order to thereby strengthen down into individual goals, sub- nally displaced persons and human in relation to the Security Council and der perspective is about women’s voice and position. It goals and indicators. They include trafficking, abuse of boys and men, rity Agenda are reflected in the white in the Peacebuilding Commission. how societal institutions, Setting the Course for Norwegian is positive when this happens. both Norwegian contributions and a greater emphasis on women’s paper structures and systems, At the same time, however, we Foreign Security Policy programmes, reforms and Norwegian support for global sexual and reproductive health and and and in the Transnational challenges such as vi- must take diversity seriously in rights. Preventing and combating Government’s Plan of Action against olent extremism, climate change and and measures affect our work and take into account processes, as well as our own ex- women’s and men’s, girls’ conflict-related, sexual violence is a Human Trafficking.The importance of the huge number of refugees have led that women can have very dif- pertise and capacity. The latter is a and boys’ power and women’s participation and the inte- ferent needs and priorities. prerequisite if we are to strengthen priority throughout, and is reflected to changes in national action plans for resource situation, and Norway’s contribution over time. in all focus areas. gration of the gender perspective is women, peace and security in many their needs and priorities. Strategic Framework Our endeavours for peace and emphasised in the countries. Coordination and work to This action plan places security must reflect the fact particular emphasis on The purpose of measuring results Chapter 5, ‘Sustaining peace’, for Norwegian Efforts in Fragile States achieve consistency are no longer just that women are not a homoge- shows how the different phases and Regions, and in the white papers about efforts abroad. More and more how armed conflicts af- neous group. Both women and is to improve goal attainment, to fect women’s and men’s, of peacebuilding are connected. The Sustainable Development Goals and countries that are not in conflict are men have different political monitor key trends during the plan girls’ and boys’ experienc- Norwegian Development Policy and sympathies. Women and men period and to enable us to identify Reconstruction and reconciliation now including national measures in es and needs. are both urban and rural, needs and areas for improvement. often turn into conflict prevention Opportunities for All: Human Rights in their action plans for women, peace - educated and illiterate. Just and conflict resolution. The broad Norway’s Foreign Policy and Develop and security. The gender perspective like men, women are indige- Certain adjustments have been efforts for women’s rights have a ment Cooperation. The new Norwegian is integrated when it influ- nous people, belong to ethnic, ences our own and our made to the previous action central place in this context, and Humanitarian Strategy, which has been Norway already has different national religious and sexual minorities partners’ initiatives and sub-chapter 5a, ‘Women’s rights developed in connection with this policy documents that govern the and have different functional plan: approaches to capacity, action plan, integrates the gender abilities. and equality in countries affected domestic aspects of our efforts. We analyses, goal hierar- As regards peace and reconcilia- by armed conflict’, shows how we perspective into the humanitarian want to avoid duplication of efforts chies, risk management, We must pay particular at- tion, we will place more emphasis will monitor follow-up of the nation- response and emphasises women’s and contribute to coordination. We budget, monitoring and tention to women who face evaluation during differ- on women, peace and security al action plan on women’s rights needs, right to participation and therefore emphasise how the Action discrimination on several and equality in these countries. The influence. We also focus on women’s Plan on Women, Peace and Security ent phases of conflict and grounds, so that our efforts in the initial, non-public phases peace efforts. effort to prevent and combat vio- situation, roles and rights in our work is linked to other ongoing efforts, also also safeguard their rights, of peace processes. The chapter on climate and security. The Long-term needs and priorities. that was previously a peacebuild- lent extremism concerns all focus in the domestic policy context. We ing chapter, will now be about areas relating to women, peace and Plan for the Armed Forces (2017–2020) do this, for instance, by highlighting support for the implementation security, as highlighted in sub-chap- integrates women, peace and security three examples in text boxes describ- of peace agreements. Operations ter 5b, ‘Women, gender and violent in both security policy and capacity ing how we deal with women asylum and missions now also include extremism’. building. The white paper Norway seekers, how we approach radicali- national operations and missions, and a Changing World (which will be sation in Norway and how we work which means, among other things, presented in 2019) also integrates to combat violence against women in that the women, peace and secu- women, peace and security. our own country.

12 ACTION PLAN WOMEN, PEACE AND SECURITY 13

CHAPTER 1.

Panel on South Sudan PEACE AND during the Oslo Forum. RECONCILIATION PROCESSES

Idun Tvedt, Norwegian Norway is working to ensure that peace and reconciliation processes are Special Envoy to the Philippines. inclusive and that peace agreements safeguard women’s and men’s rights, needs and priorities. We strive to ensure that more women participate at all l de en C. H Ilja levels in peace and reconciliation efforts, and that everyone who is involved to: Pho in a peace process knows how to integrate the gender perspective in their work.

Three former FARC soldiers celebrate the peace agree- Ph ot o: R ment in November 2016. aida n AL SAQQ The Syrian Women’s Advisory Board, AF / UN W omen 2018 pictured with Staffan de Mistura, UN Special Envoy for Syria.

Photo: Hilde Salvesen 14 ACTION PLAN WOMEN, PEACE AND SECURITY 15

In many cases, women are still left on the sidelines when peace agreements Women’s participation balance in our own teams is impor- Women mediators – still tant in itself, but it is also important some way to go are negotiated. There are few women facilitators and peace mediators, and Norway has long focused on wom- as motivation for others to do the few women at the negotiating table. Civil society has little access and influ- en’s participation and influence at same. The UN Secretary-General has all levels of peace and reconciliation made it a goal that women ence, and there are still very few peace agreements that integrate the gender The head of the Norwegian facili- shall fill half of all leading po- efforts. tation team has chief responsibility sitions in the organisation by perspective and women’s rights in a satisfactory way. for ensuring that women, peace 2028. In 2018, gender balance One of these levels is the facilitator/ was achieved for the first time and security is an integral part of mediator level. According to stud- in the Secretary-General’s the team’s work, and is responsible ies carried out by the Council on management team. There is for appointing a member of the Peace agreements often lay the political and Foreign Relations, only two per cent also a strong focus on increas- team to follow this up systematical- ing the number of women institutional foundation for a country’s future, of facilitators/peace mediators in stability and development. It is crucial, therefore, ly in the team’s day-to-day work. A peace mediators. Neverthe- all major peace processes between less, there are still few women that peace agreements are not discriminatory, but 6 good gender balance must be en- 1990 and 2017 were women. In leading mediation teams. sured in our own facilitation teams. take account of the rights and needs of all citizens. recent years, Norway has therefore Women’s participation is key in this connection, but placed strong emphasis on its work This is not unique to the UN. everyone who is involved in a peace process, both WOMEN´S REPRESENTATION with the Norwegian and Nordic net- The parties appoint their own More than before, the focus is on handling and resolving men and women, have a responsibility to strive for Women remain under-represented and unrec- work of women mediators. In 2017, delegations to negotiations. The conflicts regionally, and it is holistic, non-discriminatory solutions. ognized for their efforts and successes in peace fact that few women are included within the framework of the Nordic only in exceptional cases that and political processes at all levels. network, Norway took the initiative in part reflects women’s under-rep- the African Union (AU), OSCE Inclusive processes can strengthen the credibility to cooperate with other regional resentation in the prevailing power and other mediation bodies and legitimacy of an agreement, as well as the pop- WOMEN´S REPRESENTATION IN women mediator networks. (See structures, both in government appoint women to lead peace 4 ulation’s sense of ownership to it. Such processes MAJOR PEACE PROCESSES page 17.) and among armed groups. Norway processes. often lead to more complex agreements because between 1990 and 2017 therefore focuses on raising the more people are involved, but the probability of the parties’ awareness of the impor- The Ministry of Foreign Affairs in- agreement being implemented is also higher.5 For tance of having a certain gender cludes both women and men in its that reason, inclusive processes are often about balance in their delegations. Nor- delegations to peace negotiations. taking steps to ensure that peace agreements are way also focuses on supporting Our first female special repre- actually implemented and that the peace lasts. the women who participate in the sentative to a peace process was process if desirable. 2% 5% 8% appointed in 2014. In 2018, we had Norway is involved in a number of peace initiatives women special representatives in in different parts of the world, not just formal peace Women’s presence is no guaran- Mediators Witnesses & Negotiators both peace processes where Nor- processes as in Colombia and the Philippines, but tee, however, of a gender-sensitive signatories way is a formal facilitator: Colombia also in dialogue initiatives with one or more parties peace agreement. Norway there- and the Philippines. The proportion to a conflict, where the goal is to bring the parties * www.unwomen.org/en/digital-library/multimedia/2018/10/infographic- fore works with both the men and womens-meaningful-participation-builds-peace of women in Norwegian facilitation to the negotiating table. the women in the delegations in teams has varied from 46 to 65 per order to ensure a good result. cent in recent years.7 The gender

4. T. Paffenholz, N. Ross, S. Dixon, A.-L. Schluchter og J. True: Making Women Count - Not Just Counting Women: Assessing Women’s Inclusion and Influence on 6. https://www.cfr.org/interactive/womens-participation-in-peace-processes Peace Negotiations. 7. It must be pointed out, however, that the numbers are small, and that there are large variations from year to year. 5. Jana Krause, Werner Krause, Piia Bränfors. Women’s Participation in Peace Negotiations and the Durability of Peace. University of Amsterdam

16 ACTION PLAN WOMEN, PEACE AND SECURITY 17

Women’s influence Norway takes steps to enable civil society and local women will spective in their agreements. This advice is not always followed, howev- Network of women on the Syria talks different women’s groups and often lag behind if and when a er. What we can do is to increase our capacity to promote the gender mediators t civil society organisations to be formal process starts. perspective in negotiations and to build bridges between civil society Participation by women and rep- In 2015, the Nordic Network of heard and to provide input during and the negotiating table. resentatives of civil society in the Women Mediators was launched peace process for Syria is a polit- the negotiations. The Colombia Gender-sensitive peace in Oslo. It took its inspiration Conflict-related sexual violence is a widespread problem and it there- ical priority for Norway. Norway process contributed to several agreements from a South African initiative supports the UN Special Envoy innovative mechanisms that were fore has a central place in peace and reconciliation processes. Such that brought together women and his initiative to make the polit- intended to ensure that women’s The fact that few peace agree- violence affects women, men and children, but girls and women are with mediation experience from ical process more inclusive. experiences and needs were ments sufficiently integrate a disproportionately affected and in a different way than boys and men. Southern Africa for courses and the exchange of experience. Since taken seriously and women’s gender perspective and safeguard It is therefore particularly important to involve both women and men We support the Civil Society then the five Nordic countries women’s rights and needs could and to approach these issues from a gender perspective. Support Room (CSSR) in Geneva, rights respected, for example have developed their own nation-

where NOREF (the Norwegian a sub-commission on gender be due to a number of different al networks and drawn up goals Centre for Conflict Resolution)9 issues.8 We have also seen inno- factors. It could be because the Norwegian support for civil society efforts for peace and reconciliation for the Nordic umbrella network. contributes administrative and vations in connection with the parties or the peace mediators is not limited to countries where Norway has a formal role in peace The Norwegian network has more technical support for holding con- Geneva-based Syria talks. (See do not regard this as important. It processes. Women’s organisations do an important job for lasting than 50 members, most of whom sultations with civil society. are participating in or have partici- page 16.) could be due to limited knowledge peace – locally, nationally and globally. pated actively in peace processes. on the mediation team’s part, Through UN Women, Norway This forum has become an impor- contributes funding for the work It is an important goal for Norway varying and unsystematic use tant arena for sharing experience of building a consolidated and to strengthen the link between of relevant expertise, or inade- and network building. strong Syrian women’s movement. peace and reconciliation initiatives quate consultation of civil society. UN Women also contributes to at the grassroots level and formal Norway therefore offers expert In parallel, new regional networks women’s representation through In March 2018, representatives of all are emerging. The African Union peace processes, and in many assistance and endeavours to an advisory board consisting of 12 regional networks of women mediators (AU) has launched AU FemWise, raise awareness and competence met for the first time in Oslo. women (Women’s Advisory Board cases Norway endeavours to build Italy has started the Mediterrane- - WAB), who advise the UN Special bridges between these levels. among the negotiating parties and an Network and the UK has taken Envoy for Syria. mediators. One example of the the initiative for a Commonwealth The room for manoeuvre is dif- latter is the annual UN High-Level network. Both CSSR and WAB are inno- ferent in dialogue initiatives and Seminar on Gender and Inclusive vative mechanisms in the UN Within the framework of the informal preliminary negotiations. Mediation Processes to which context. Norwegian funds have Nordic network, Norway therefore Norway contributes.10 ensured that more than 100 rep- It is difficult to involve sever- invited representatives of all the resentatives of Syrian civil society, al actors in processes that the established networks of women including several dozen women, parties themselves have not yet In formal peace processes in mediators to an initial meeting. The have been able to contribute to formally committed to. However, a which Norway plays a role, we meeting, which was held in Oslo the UN-led political process. This facilitator can contribute to raising urge the parties to listen to the in March 2018, demonstrated the support has helped more than benefits of getting together. awareness and boosting knowl- experiences and input of women 50 women’s organisations in and and representatives of civil society outside Syria to come together, edge among those involved and The networks agreed to take steps uin challenge each other and agree to increasing civil society’s capac- concerning the different issues Photo: Brian Clifff Olg towards establishing a global alli- on a common message. ity. If the ground is not prepared discussed during the negotiations, ance of regional networks that will already in the preliminary stages, and to integrate a gender per- promote women’s participation in peace and reconciliation processes at all levels, and to work to ensure 8. Dag Nylander and Hilde Salvesen. Women and the gender approach in the Colombia peace process. NOREF report. October 2017. that peace agreements safeguard 9. Together with Swisspeace. 10. The seminars are organised in cooperation between the UN Department of Political Affairs (DPA), the Peace Research Institute Oslo (PRIO), and the Finnish women’s rights. organisation Crisis Management Initiative (CMI). 18 ACTION PLAN WOMEN, PEACE AND SECURITY 19

Norway’s goals are as follows: THE BUILDING BLOCKS Create a space for women to enter, remain and contribute effectively We will work systematically to ensure that peace and reconciliation processes in peace processes requires an enabling environment. This includes: facilitate participation by women in all phases, and that both women’s and men’s rights, needs and priorities are respected.

We will contribute to more women taking part in We will support civil society initiatives for peace peace negotiations and peace processes. We will and reconciliation and facilitate participation by contribute to increasing the number of women fa- women’s organisations in conflict prevention and Equality before Inclusivity as a Security & cilitators and peace mediators internationally, and conflict resolution processes, also where a formal the law social & cultural protection from norm violence work to ensure that men also promote women’s peace process has yet to be established. participation and influence. We will endeavour to ensure that the gender per- We will urge the parties to include women in their spective is included in peace agreements and peace delegations. processes. We will strategically promote the gender perspective and consideration for women’s We will endeavour to prepare the ground for an rights with the goal of ensuring that more facilita- inclusive process by raising the parties’ awareness tors/peace mediators – both women and men – at an early stage, also in informal processes where actively support women’s rights and integrate the Social services Presence & support the parties have not yet come to the negotiating gender perspective in their work. (e.g childcare) for women´s table. movement We will raise the issue of conflict-related sexual We will contribute to enabling local women’s or- violence, work to ensure that survivors’ rights are ganisations and activists to present their priorities, safeguarded and ensure that perpetrators are among other things by supporting civil society held criminally liable and that transitional justice11 through technical assistance and by building is put in place. bridges between civil society and the formal negotiating table. As part of the Nordic network of women mediators, Norway will be a driving force for close Access to Financial Logistic support cooperation with the other regional networks of knowledge support (e.g visas, women mediators in order to achieve these goals. & training transportation)

* www.unwomen.org/en/digital-library/multimedia/2018/10/infographic-womens-meaningful-participation-builds-peace

11. The concept of ‘transitional justice’ refers to processes and initiatives that are intended to ensure that those responsible for abuses are held liable for them during the transitional pha1se between armed conflict and peace, or between dictatorship and democracy. Such processes are important in order to establish trust in and the legitimacy of a new regime – in the eyes of the population and of the international community. The final goal will be to establish a basis for reconciliation and prevent recurrences. White paper 13 (2008–2009) Climate, conflict and capital – Norwegian development policy adapting to change. 20 ACTION PLAN WOMEN, PEACE AND SECURITY 21

CHAPTER 2.

IMPLEMENTATION The boot of a female Afghan soldier. Norway has helped to increase the participation of Afghan women in OF PEACE AGREEMENTS the military and police forces.

Norway will contribute to women participating in and influencing the implementation of peace agreements. We

P will endeavour to ensure that women’s and men’s rights, hoto: Herman Baskår needs and priorities are safeguarded in the implementation of peace agreements.

y itzen nø Photo: Beate Laur Tra stad a Løv Foto :Mon Beate Lauritzen is an instructor on the Norway often works closely with civil Mid-Level Management Course organised society organisations. Sanam Anderlini by the UN as part of the Training for South Sudanese women have built a is Founder and Executive Director of the Peace programme, which Norway sup- powerful coalition. They have provided International Civil Society Network (ICAN) ports. input to the peace negotiations and and head of the Women’s Alliance for are now preparing for the Security Leadership (WASL). implementation phase.

n a m ch u B t- af Kr n itli Ca to: Pho 22 ACTION PLAN WOMEN, PEACE AND SECURITY 23

The implementation phase of a peace agreement is a critical part of the peace and rec- The obligations of the State

onciliation process, which involves putting what has been negotiated into practice. The UN Security Council Resolution 1325 obliges UN member implementation of a peace process does not just mean the end of an armed conflict, it states to work to ensure women’s participation and rights in connection with the implementation of peace agree- is also an opportunity to initiate structural changes and develop institutions based on ments. This is not only a matter of implementing special rule of law principles, respect for democracy and human rights. It will not succeed if half provisions concerning women’s rights, it is also a matter of ensuring that the interpretation of other provisions safe- the population is excluded from the process and their rights and needs are not safe- guards both women and men. guarded. We have indications that the provisions of peace agreements that safeguard women’s rights are not implemented Inclusive implementation Rights and needs to the same extent as other parts.13 This means that good agreements do not function as intended. The interpreta- Targeted efforts are being made to ensure that In many cases, insecurity and violence, including tion of other provisions in a peace agreement must also be women are represented in and have influence gender-based violence, continue after a formal monitored, so that the agreement attends to the needs of on negotiations. Some peace processes have peace agreement has been signed. The level of vi- the whole society. The implementation phase must therefore be followed up as systematically and with as much succeeded in including civil society and various olence sometimes even increases. The implemen- determination as the negotiation phase. women’s groups in such a way that women’s rights tation phase should therefore focus on protection have been taken into account in the peace agree- and due process for both women and men. ment. The agreement between the Colombian Violence and abductions targeting women human authorities and FARC is one example of this. rights advocates undermine their possibility of Resource distribution and reintegration setting the agenda in their countries. It is neces- P n Working from a gender perspective also entails looking For an agreement to create change, however, it sary, therefore, to have a particular focus on their hoto nista : UN Women Afgha more closely at how resources are prioritised. In post-con- has to be implemented. Women are often mar- needs and to support their efforts. flict situations. Job creation is often prioritised as a stabilis- ginalised in the bodies tasked with monitoring ing measure, but women are often overlooked. The focus the peace agreement, in legislative bodies whose Women’s participation in decision-making pro- Norway does not work alone. Our contribution tends to be on economic opportunities for men. job is to turn the peace agreement into practical cesses and reintegration programmes that are primarily consists of resources and policies on politics, and in the budget discussions that make gender sensitive are decisive if women who have the partner countries’ terms and based on their When the peace agreement between FARC and the Colom- bian authorities was signed, many former FARC soldiers practical follow-up possible. been members of rebel groups are to have the needs. We often work through civil society or- gave birth to children. This gave rise to extensive socioeco- same opportunities as men in a corresponding ganisations, other states and multilateral organ- nomic needs, particularly among single mothers. Coalitions of women that have grown stronger situation.12 isations, including the UN Secretariat, UN Wom- during the negotiating phase often split up once a en, the UN’s funds and programmes, and various Stabilisation and reintegration programmes must be peace agreement has been signed. This is nat- Awareness-raising work relating to women’s and regional organisations. Many of them have a gender sensitive, support women’s access to the labour ural given that they represent different interest men’s gender roles is important. Both women and key role in implementation at country level. It market and provide opportunities to break gender stereo- types. groups, but such splits can undermine women’s men who have belonged to rebel groups return to is therefore important to cooperate with these voices and influence. Support for women’s or- their local communities, and power structures are organisations if we are to change conditions on Economic opportunities for women can also help to fulfil ganisations should therefore continue after the renegotiated to some extent. the ground for both women and men. other rights, for example women’s political rights and right negotiations have ended. Work with coalitions and to participate. networks should be prioritised when needed.

12. Wenche Iren Hauge (2016). Gender Dimensions of Disarmaement, Demobilization and Reintegration (DRR). PRIO Paper, Oslo 13. See, for example, data collected by the Peace Accords Matrix Barometer Initiative in Colombia ved Kroc Institute for International Peace Studies, University of Notre Dame, and Rebecca Gindele et al. Implementing the Final Colombian Peace Agreement, 2016–2018. Are gender stipulations and women’s inclusion lagging behind? PRIO GPS Policy Brief 1. PRIO: Oslo, 2018. 24 ACTION PLAN WOMEN, PEACE AND SECURITY 25

SIGNED PEACE AGREEMENTS

Norway’s goals are as follows: ONLY 3 OUT OF 11 peace agreements signed in 2017 contained Where Norway is involved in the implementation of peace agreements, we will endeav- gender-sensitive provisions our to facilitate women’s participation and to safeguard both women’s and men’s rights, needs and priorities. Norway will endeavour to ensure that multilateral organisations’ * www.unwomen.org/en/digital-library/multimedia/2018/10/infographic-womens-meaning- efforts in support of the implementation of peace agreements involve women and inte- ful-participation-builds-peace grate the gender perspective.

Where peace negotiations have the local and national level. Elec- We will continue to prioritise We will endeavour to ensure that been inclusive and the agree- toral and constitutional commis- preventing and combating sexual adapted measures are put in place dur- ment has safeguarded wom- sions are particularly important, violence. ing the reintegration phase for women en’s rights, we will continue to but women also need to have a who have previously been members of support civil society and to work place in the mechanisms estab- We will endeavour to maintain rebel movements. with the parties in order to con- lished to monitor follow-up and the gender perspective in all tribute to implementation of the implementation of the peace Norwegian efforts to promote agreement. agreement. security sector reform and tran- We will support awareness-raising sitional justice in post-conflict measures that combat gender stereo- Where the negotiations have not We will endeavour to ensure countries. types, challenge discriminatory gender norms and promote gender equality. been inclusive, we will endeavour that women’s organisations to ensure an inclusive imple- are strengthened, that they are We will endeavour to ensure mentation phase. Where peace formally affiliated to the bodies that the gender perspective is agreements do not safeguard that are tasked with implement- included in the reconstruction women’s rights, we will endeav- ing the peace agreement, and of post-conflict countries. Being our to make the most of the that they are in a position to able to provide for themselves opportunities that arise when contribute. and their family and having Victoria Sandino was a repre- the peace agreements are im- access to education and health sentative of FARC in the peace plemented, so that both women We will endeavour to ensure services, freedom from violence negotiations, and now represents the FARC party in the and men benefit. that legitimate and representa- and being able to pursue their tive security structures are put Colombian Senate. Luz Mendez case in the legal system are fun- is a member of the Advisory We will endeavour to ensure in place that meet the security damental preconditions if both Council of the Global Fund for that women participate in key needs of both women and men. women and men are to make a Women, Guatemala. decision-making processes in new life for themselves in peace- post-conflict situations, at both time. (See also page 48.)

n e es alv e S Photo: Hild 26 ACTION PLAN WOMEN, PEACE AND SECURITY 27

A conscript in the Hunter Troop (Jegertroppen), the Norwegian Armed Forces’ all-female special- CHAPTER 3. forces training programme.

OPERATIONS AND MISSIONS

In all operations and missions, a goal is to ensure the security and safety of the whole population: women, men, girls and boys. A gender perspective will be applied as regards how the organisation and personnel operate, in the selection of participants and when building competence.

t re va rs , Fo vold Kjos Photo: Torbjørn

A Norwegian UN soldier on foot patrol in Bamako, Mali, in 2016.

e r a v s r Major-General Kristin Lund (right), o F , ld Ph Force Commander of the o o v to s : To jo rbj UN Peacekeeping Force in Cyprus K ør n n K r jos jø vol (UNFICYP) in the period 2014-2016. b d, Fo or rsva T ret o: ot Ph 28 ACTION PLAN WOMEN, PEACE AND SECURITY 29

The gender perspective in the Peace operations have developed from military monitoring operations to become Armed Forces

increasingly complex operations with significant peacebuilding elements. These opera- NATO defines gender as follows: ‘the

tions contribute to security, while at the same time supporting political processes and social attributes associated with be-

r ing male and female learned through

a v

reconciliation measures, reform and development of the security sector, development s

r socialisation and that determine a

, person’s position and value in a given

d of the rule of law and the facilitation of humanitarian efforts and long-term social and l

s context. This also means the relation-

o j

K economic development. ships between women, men, girls and n r

ø j boys, as well as the relations between b r o T women and those between men. : o t The security policy landscape in Europe has Following Government decisions, Norwegian o Notably, gender does not equate to h P shown that geopolitics involving the use of military military forces, police advisers and other advisers Colleagues deployed to the Multidi- an exclusive focus on women.’ force between states has again become relevant. from the judicial sector participate in operations mensional Integrated Stabilization Mission (MINUSMA) in Mali. Armed conflicts, natural disasters The situation is such that Norway, to a greater outside Norway. Participation in international and other humanitarian crises affect extent than for many years, may be challenged on missions and operations in order to contribute women, men, girls and boys in differ- its own territory. We are also being challenged in to international stability and security is an estab- A comprehensive approach to human security in operations ent ways. When planning operations, new ways, for example in the digital world. Op- lished part of Norway’s security policy. Norwe- the Armed Forces therefore system- erations and missions in Norway, or in Norway’s gian participation takes place within a number of In relation to the concept of security, this action plan places particu- atically include the gender perspec- vicinity, are therefore relevant to this action plan, organisational frameworks, such as the UN, NATO lar emphasis on human security. This contributes to more integrat- tive as a factor. It is included in plans 14 in accordance with NATO’s operations on a par with operations and missions in other and other organisations and coalitions. Norwegian ed and comprehensive planning and handling of armed conflict. planning. The Armed Forces’ work on One of the main tasks of military forces and the police in an area of parts of the world. When operations and missions support aims, among other things, to strengthen the gender perspective is part of the are mentioned, this refers to operations and mis- the UN’s and NATO’s capacity to plan and carry operations is to protect the civilian population. In modern conflicts, effort to understand and deal with sions by the Armed Forces and the police both in out operations, including taking measures aimed the civilian population is often very badly affected, compared with sociocultural conditions in the area and outside Norway. When measuring results, we at including the gender perspective and at ensur- uniformed personnel. Civilians are often targets in modern con- of operations. In operations, gender nonetheless put most emphasis on international ing increased participation by women. flicts. Sexual and gender-based violence is used as a tactic of war or is included together with other social, cultural and demographic dimensions operations and missions, where we can make a terrorism, either separately or as an integrated part of other opera- in the operational environment that tional methods. The intensification of transnational threats and the difference globally. All participation shares a general focus on safe- can influence how we act. guarding the security and safety of the civilian complexity of today’s conflicts requires a better overall understand- Developments in recent years have shown how population in the area of operations. Moreover, ing of the threat situation. A consistent and thorough under- crime and armed conflict overlap. This makes Norwegian forces and police advisers are expect- standing of the operational environ- crises and conflicts more unpredictable. It is more ed to contribute to ensuring that local authorities Security Council resolutions on women, peace and security cover ment and its demography is crucial. The gender perspective helps to difficult to understand and deal with situations. and international forces respect the rights of many extensive activities that governments, the UN and interna- provide insight into how an armed tional and national actors, including the military and police, are The military and the police need to cooperate everyone in the area of operations. Our goal is to conflict affects women and men, closely in order to find expedient ways of dealing influence our alliance partners and the organisa- responsible for following up. It is therefore necessary to clarify the girls and boys in different ways. The with situations. tions in which Norway participates to include the division of roles and responsibility between those who, together, gender perspective is used to achieve gender perspective in a way that is in compliance are working towards the common goal of peace and security. results and attain goals. with human rights and other international norms and rules.

14. See, among others, Houge, Anette Bringedal & Inger Skjelsbæk (2018). Securitising Sexual Violence: Transitions from War to Peace, and Chapter 1 in Kate Fitz-Gibbon, Sandra Walklate, J McCulloch & JaneMaree Maher (eds.). Intimate Partner Violence, Risk and Security. Securing Women’s Lives in a Global World. Rout- ledge. 30 ACTION PLAN WOMEN, PEACE AND SECURITY 31

On duty as police adviser for the Police Support Unit of the Liberian National Police.

Sustainable Devel- The Armed Forces have a special The Armed Forces try to develop their The role of the police opment Goal 16 role as an actor that creates securi- competence in how controlled power ty and endeavours to take a holistic can be used to create security in rela- The police are responsible for Sustainable Develop- maintaining public order and safety, approach to human security in operation to different forms of vulnerability ment Goal 16 is about enforcing the law and preventing, promoting peaceful and tions at the strategic, operational and that can arise among women, men, detecting and investigating criminal tactical level. This means that the role girls and boys in areas of operations, inclusive societies for n activities, The police play a central e s e sustainable develop- r role in society’s overall efforts to and responsibility of the military, as both in the short and long term. It d n A s ment, providing access one among several actors, are both is important to continue to work on u ensure the safety and general welfare kh ar to justice for all and M of citizens, in particular through re-examined and clarified when faced reducing the negative consequences ne an building effective, ac- H preventive and law-enforcing activi- to: with modern security threats. of operations. ho countable and inclusive P ties. Carrying out tasks relating to the institutions at all levels. Action Plan on Women, Peace and Our military forces are trained to Women, peace and security must be Security is therefore a key concern carry out a broad spectrum of tasks. seen in connection with protecting for the police. The use of military force is at one end civilians, civil-military cooperation and Conflict-related sexual violence of the spectrum. At the other end, compliance with international human- Expertise in this field is emphasised in both basic training and further they engage in efforts to ensure that itarian law. education at the Norwegian Police Sexual violence in armed conflicts constitutes serious abuse. It is a the use of force is not necessary, by University College, for example in engaging in close cooperation with The police are a core component in violation of humanitarian law and a major and persistent security the form of training in questioning

civilian actors and authorities. They security sector reform, whether by challenge. Sexual violence is sometimes used strategically and tac- children and adolescents, ques-

P tically by armed groups, while at other times it is part of the height- tioning vulnerable individuals and h carry out mentoring, and seek to working directly to protect civilians or o

t 15 o ened level of violence. In both cases, this kind of violence poses a investigating violent and sexual : T include all parties that contribute to through building the capacity of local o crimes. The topics ‘domestic violence’ r b stability, while identifying destabilising police, and thereby helping to ensure major threat and has a destabilising effect both during and after a j ø

r and ‘violence against and sexual n K factors. The gender perspective is one that abuse and other criminal offenc- conflict. j abuse of children’ are part of the o s v of several aspects that must be taken es are prevented, investigated and o three-year curriculum for the bach-

l d

, into consideration. prosecuted. Research has shown that this kind of violence does not necessarily elor’s programme in several of the decrease after a conflict has ended. It is therefore necessary that five main areas: Police and Society, The goal of military operations is The police have a particular focus on preventive measures are based on a long-term perspective.16 It is Methodology, Public Order Policing and Preparedness, Crime Prevention always to create peace and stability, resolving conflicts by building trust, necesary to be aware of this issue in the period prior to, during and and Investigations. Units with special- after a conflict. and a well-functioning society that without using force or threatening ist responsibility, national assistance is capable of looking after its own to use force. The human-rights per- schemes and local specialists in this security and of restoring vital societal spective is an integral part of this For the Norwegian police service, preventing and dealing with sexu- field help to ensure that the neces- functions. approach. al violence is an integral part of the national approach. These issues sary expertise is in place. are part of police training, and Norwegian police officers encounter and deal with them on a daily basis. Our police advisers therefore The expertise of the Norwegian Local woman in Senou, police force in this field is in demand bring important knowledge and expertise with them when they near Bamako in Mali. internationally – for instance in go on international missions. The topic has a central place in the connection with participation in UN training of police advisers and military personnel before they are peacekeeping missions. deployed abroad.

15. Inger Skjelsbæk (2018). Perpetrators of Sexual Violence in Armed Conflict. I Timothy Williams & Susanne Buckley-Zistel (red.). Perpetrators and Perpetration of Mass Violence: Action, Motivations and Dynamics. Routledge. 16. Inger Skjelsbæk (2012). Responsibility to protect or prevent? Victims and perpetrators of sexual violence crimes in armed conflicts. In Global Responsibility to Protect, 4 (2), 154-171. 32 ACTION PLAN WOMEN, PEACE AND SECURITY 33

Circle of Leadership Sexual exploitation and abuse have ownership and take a systematic approach. The head of Norwegian women leading the way

the unit is responsible for following up the action plan. Norway is concerned about the increasing number of In autumn 2017, like many other member states Norway provided the services of Major-Gen- that contribute police and troops to UN operations, cases of sexual exploitation and abuse (SEA) commit- eral Kristin Lund as Force Commander for The introduction of universal conscription in Norway from 1 Norway signed a voluntary compact that, among ted by personnel in UN and other peacekeeping oper- the UN peacekeeping operation in Cyprus January 2015 has resulted in a higher proportion of women other things, commits serving personnel to comply ations against the local population in the host country. (UNFICYP) during 2014-2016. She thereby be- with UN standards against sexual exploitation and among conscripts than before. In 2017, the percentage was came the first female UN Force Commander. Such abuse increases the burden on individuals and abuse. The compact binds countries to assist the around 25 per cent. In the long term, the Armed Forces wish Among other things, she took the initiative local communities that are already at risk and affected. UN in investigating abuse committed by a country’s to utilise universal conscription to recruit more women to for a women’s network of actors from both It damages trust in the operation and in deployed per- own citizens while in the UN’s service. As of 4 Sep- different categories of jobs, units and specialised roles. sides of the conflict. tember 2018, 98 countries had signed the compact. sonnel, undermines the legitimacy of the operations

and is an obstacle to achieving the operational goals. Since autumn 2017, she has been the UN Almost half of Norwegian police personnel are women. The At the same time, heads of state/government from Professionalising those involved in operations and Secretary-General’s highest representative countries that contribute police and troops, includ- proportion of women students admitted to the Norwegian – Head of Mission – in the United Nations holding them accountable is a precondition for stop- ing Prime Minister Erna Solberg, joined a Circle of Police University College in 2018 was 46 per cent. At the Truce Supervision Organization (UNTSO) in ping such abuse. Leadership under the auspices of the UN Secre- beginning of 2018, 32 per cent of leaders in the Norwegian the Middle East. tary-General, whereby they distanced themselves police service were women. et ar from all forms of sexual exploitation and abuse v Capacity building s r o F committed by UN personnel. As of 14 September , d Determined efforts are being made to increase the propor- l o 2018, 67 present and former heads of state/gov- v Capacity building is about how an organisation devel- s

o tion of women leaders in the police service, for example by j ernment had joined the Circle of Leadership. K

ops its ability to carry out its mission, among other n

implementing the General Plan for Gender Balance in Leading ø

j b

things through competence development and recruit- r

Positions 2017-2022. T

: o

ing the right personnel. t

h P

Coordinated operational efforts against P Women are therefore well represented in the Norwegian po- h

conflict-related sexual violence t Women military and police personnel can be important o

lice, and the recruitment of women to the profession is high. A

n in terms of operationalising the gender perspective in n s K This also makes it possible to have a high proportion of wom- o In 2017, the Norwegian Defence University College r i p s i operations and missions. In some contexts, it may be t r i

n K

began work on a handbook for use by the UN. The en in our contributions to international missions. Job security K :

v o easier for women personnel to establish contact with ile t intention is to ensure that military forces in UN op- kv o in Norway and good arrangements for leaves of absence al h and gain access to local milieus dominated by women. P erations are capable of preventing and responding make it possible for both women and men to take part. to conflict-related sexual violence. This leads to broader perspectives and a broader un-

derstanding of the situation. Having a high percentage In 2016–2017, around 35 per cent of police personnel and 10 In 2018, the Ministry of Defence, the Ministry of of women in operations and missions can thus help Police Superintendent Ann-Kristin Kvilekval Foreign Affairs and the Ministry of Justice and Pub- per cent of military personnel Norway deployed internation- has led the police unit in UNFICYP since to increase trust and goal attainment. Nor should the lic Security worked jointly to expand the handbook ally were women. autumn 2017. to also include the police and civilian personnel. effect that meeting Norwegian women in uniform has The handbook will be launched by the UN and will on local women police officers or military personnel be Norwegian women who attain leading positions in the police Assistant Chief of Police Ingrid Dagestad apply in all UN member states. underestimated. and Armed Forces can also be nominated for leading po- has had several leading positions in the UN sitions in international operations, including UN and NATO and international missions, most recently as The Norwegian Defence University College is also Deputy Commissioner in UNMIL until 2016. This does not mean that the women in the organisa- operations. The recruitment of women and women leaders supporting NATO’s efforts to combat conflict-relat- As an instructor, she continues to make an tion are responsible for implementing the action plan ed sexual violence by developing a handbook for is therefore important both in our national efforts and if active contribution to promoting new wom- NATO. or for systematically integrating the gender perspective Norway is to contribute to improving the gender balance at en leaders in the UN. in the organisation’s activities. The organisation must all levels of international operations. 34 ACTION PLAN WOMEN, PEACE AND SECURITY 35

Examples and experience Violence against women and domestic violence in Norway Norwegian police personnel and Norwegian Spe- cial Operations Forces have provided training for In overviews and indexes that measure security, violence Afghan women police since 2007. against women is one of the main challenges in the Norwe- Norway’s goals are as follows: gian context. It is a serious problem in society and a violation The Armed Forces have also established a sepa- of fundamental human rights. rate Women’s Hunter Troop among Norwegian conscripts. The intention is to develop new expertise The Government’s efforts target all forms of domestic vio- Norway is working to integrate women and men’s security, rights and among women soldiers, so that they can take part lence, including forced marriages, female genital mutilation, needs in all areas of operations and missions that Norway is part of. in special operations both in Norway and abroad. abuse of children, and violence and abuse between intimate partners. These issues are highlighted in several inter-min- The Nordic Centre for Gender in Operations, which isterial action plans. The measures in these plans include Norway is part of, is NATO’s centre of excellence prevention, protection, help and treatment services, prose- for implementation of the gender perspective in cution and activities aimed at strengthening cooperation and The gender perspective is to be included in the Norway wants more women in conflict areas to be operations. It holds courses for around 230 mili- coordination. planning, implementation and evaluation of oper- able to participate in security efforts, conflict man- tary personnel every year. In addition, as of 2018, ations and missions in which Norway takes part. agement and peace processes. This also includes 16,000 persons have completed the e-learning The police play a key role in preventing and combating vio- ensuring that these women’s security is sufficient- course developed by the centre. lence and abuse. Efforts in this field have intensified greatly in recent years, and the police have been given a number Norwegian participants in exercises, training, op- ly assured. Satisfactory driving skills, language skills and of new means of safeguarding and protecting those at erations and missions are to have competence in weapons training are the required qualifications for risk. Non-molestation orders and bans on contact, mobile the gender perspective. We also work to recruit women to leading posi- serving as a police adviser in UN peace operations. personal safety alarms, electronic monitoring of offenders, tions nationally and internationally, and to get For many countries, these requirements still con- as well as blocked addresses are some of the measures that Norway will contribute to international compe- more women to join military units with an opera- stitute a barrier to women participating in interna- can be taken. tence and capacity building. tional capability, as well as deploying units. tional operations. A good example of the effect of capacity building in this area is driving instruction In addition, the Government has intensified follow-up of provided in Malawi in 2014, where around 60 wom- people at risk. Information has improved and individuals Through international cooperation, Norway will The Armed Forces and the police will continue to en took part. A year later almost 50 women from are followed up more closely. The establishment of Project help to ensure that NATO’s and the UN’s policy have zero tolerance for sexual harassment, mal- Malawi were deployed in international operations. November at Stovner Police Station in Oslo, where several and operational guidelines relating to women, treatment and abuse in operations and missions services were established under the same roof, is one exam- peace and security are implemented. in accordance with national and international Since 2010, Norway has contributed to the UN mis- ple of this. Other examples include the establishment of 12 guidelines and national laws. sion in Haiti by providing a special police team with victim care centres and the online portal dinutvei.no. Here, expertise in sexual and gender-based violence. The the focus is on the victims. We emphasise work on conflict-related sexual Norwegian-initiated team has broken new ground violence in operations. This entails a cross-sector Norway will continue to actively support measures and its contribution has been widely praised. The A separate research programme has been established on approach that includes the full range of meas- that strengthen compliance with the UN’s zero experience from Haiti has been very important to domestic violence, with allocated funding of NOK 50 million ures – from preventive measures and combating tolerance policy for sexual exploitation and abuse. the development of specialised police teams as a over a period of five years (2014–2019). The programme is violence as it takes place to criminal prosecution method in UN-led operations. This has been re- intended to contribute to increasing our understanding of and reconstruction of society. flected in new requests from the UN for assistance what domestic violence is. Knowledge about the extent, from the Norwegian police service. causes, nature and consequences of such violence is decisive if the support services are to be of good quality. NORCAP/NORDEM contributes expertise in gender and women’s participation in operations and mis- In its further work, the Government will fulfil its obligations sions. They provide strategic and technical assis- under, and comply with the requirements of, the Council of tance in order to ensure an equally comprehensive Europe’s Convention on Preventing and Combating Violence effort on behalf of girls and women as for boys and against Women and Domestic Violence (the Istanbul Conven- men. tion), effective in Norway from 1 November 2017. 36 ACTION PLAN WOMEN, PEACE AND SECURITY 37

CHAPTER 4.

HUMANITARIAN EFFORTS

Norway will strengthen its efforts for compliance with international law in connection with humanitarian crises and for protection in humanitarian responses. The gender perspective will be an integral part of all our efforts, from preparatory analyses to planning, implementation and reporting. It must be possible for those affected by crises to hold humanitarian organisations accountable and influence the planning and implementation of international humanitarian efforts. We will endeavour to ensure that women participate and are heard on a par with men. We will give priority to work on women’s rights. Our efforts shall prevent and combat sexual and gender-based violence.

Photo: SARC | Nadim Sherum

Children on the way to school in Aleppo, Syria, 2017. 38 ACTION PLAN WOMEN, PEACE AND SECURITY 39

Grand Bargain and New Armed conflicts hit civilians hard. Many are forced to flee with- We will not achieve the goals for gender perspective is important Vulnerable groups Way of Working if we are to ensure that women’s in their own countries or across national borders. Violations a good and effective humanitarian effort if the gender per- and girls’ rights and participa- Different groups of people are Norway has endorsed the affected in different ways during hu- of humanitarian law and human rights lead to great human spective is not integrated in a tion are given priority, and that Grand Bargain declaration, our efforts also safeguard vul- manitarian crises. Our humanitarian which is about increasing the suffering and critical humanitarian needs, especially where way that ensures that women’s, efforts aim to safeguard those who nerable boys and men. Women’s effectiveness of humanitarian conflicts are prolonged, as in Syria and South Sudan. men’s, boys’ and girls’ different are most at risk and marginalised, efforts, innovation and better needs are met. Women must participation is an important i.e. those who are often designated coordination with long-term be involved on a par with men. resource in all parts of the hu- as vulnerable groups. The applies development. This means flex- Young women must also be manitarian effort. in particular to children, the elderly ible and predictable funding, Sexual and gender-based violence tion. Women of reproductive age and those who are discriminated heard and taken seriously in the better coordination, stronger is a persistent problem that de- are vulnerable when health servic- against on various grounds, including humanitarian response. The organisations have done partnerships with local and na- es and infrastructure are weakened religious and sexual minorities and grades individuals and societies. a lot of good work to integrate tional actors, inclusion of those people with disabilities. Many parties in armed conflicts or collapse during humanitarian affected by crises, increased Norway’s humanitarian the gender perspective, in both crises. Deaths in connection with use of cash and digital tools commit sexual violence, often as a efforts guidelines and their practical Vulnerable groups must also be pregnancy and childbirth substan- in humanitarian efforts, and weapon of war. Girls and women work. We will cooperate with our included when planning humanitarian tially increase.18 harmonised reporting re- are most often the victims, but sex- Norway’s new humanitarian partners to further strengthen efforts so that the efforts meet their

quirements. These guidelines ual violence against boys and men strategy will form the basis for implementation of the perspec- needs. and objectives also affect the Women’s groups and local civil soci- is a bigger problem than previously our efforts. The work will be car- tive. The use of digital tools efforts for women, peace and thought.17 Boys and men can have ety organisations are often present, security. ried out in accordance with this will rationalise and simplify the even if large actors are not. They different challenges and needs than action plan on women, peace administration of grants. know what the challenges are and Better coordination between girls and women in the same situa- and security and with the action can help to find solutions that will humanitarian efforts and long- tion. Sexual and gender-based vio- plan on women’s rights and Norway is endeavouring to work locally. Through its partners, term development is also an lence often leads to stigmatisation gender equality. ensure that the whole humani- important part of the ongoing Norway will help to ensure that and exclusion, undermines stability tarian system works as well for reform process in the UN, and breaks down social structures. local actors that are capable of which Norway supports. The girls and women as for boys and complying with the humanitarian It is an explicit requirement that Children who are conceived as the men. We work normatively, polit- New Way of Working initia- organisations that receive fund- result of rape during an armed con- principles are able to act and have t tive is one concrete example. e

ically and diplomatically in rela- r

ing from the Ministry of Foreign a freedom of action to participate in v It brings together different flict are particularly vulnerable. This s tion to the humanitarian sector. r

Affairs’ humanitarian budget F UN agencies, national and also applies to children of those the humanitarian response, and to , We support organisations that n e local actors and the develop- must integrate the gender s ensure that also women’s organi- d who are seen as belonging to ‘the have a good and clear gender n ment banks. The intention is perspective in their work. This u sations are among those who are m enemy’. A perspective in their work, and l e to strengthen coordination is also the position we take in s heard and involved. This is about is : S at country level in order to organisations that have a specif- o agreements with humanitarian ot dealing with a crisis in a sustainable Ph prevent humanitarian crises, The number of child marriages and ic mandate to promote women’s way, building resistance, preventing organisations and donor groups reduce future needs and seek forced marriages often increases rights and gender equality. in the UN and the Red Cross/ more sustainable solutions. during humanitarian crises. Women conflict and facilitating peacemak- Red Crescent movement, as well and children who have fled their ing. Through our cooperation with as in governing bodies of UN An Afghan girl begging on the homes are at particular risk of hu- our partners, we contribute entities. The integration of the streets of Kabul. man trafficking and sexual exploita- to increasing competence and

17. See, inter alia, All Survivors Project 18. Gudrun Østby, Henrik Urdal, Andreas Forø Tollefsen, Andreas Kotsadam, Ragnhild Belbo and Christin Ormhaug (2018). Organized Violence and Institutional Child Delivery: Micro-level evidence from sub-Saharan Africa 1989–2014. Demography 55 (4): 1295–1316. Gudrun Østby, Henrik Urdal, Andreas Forø Tollefsen, Andreas Kotsad- am, Ragnhild Belbo and Christin Marsh Ormhaug (2018) How Does Organized Violence Affect the Chances of Giving Birth at a Health Facility?, Conflict Trends, 8. Oslo: PRIO. 40 ACTION PLAN WOMEN, PEACE AND SECURITY 41

The gender perspective in the asylum chain

In connection with the new Immigration Act of 200719 capacity in operational efforts. Norway is one of emphasis was placed on the need for a special gender the biggest donors to the Gender Standby Capacity perspective in assessments under refugee law. The Project (Gen Cap), a standby task force tasked with Ministry of Justice and Public Security has prepared guidelines for gender-related issues in asylum cases.20 supporting the integration of the gender perspec- The guidelines address factors in both the refugee tive in operational humanitarian efforts. A Yazidi woman with children assessment and the processing of asylum applications visits the temple in Lalesh. where gender-related issues can have a bearing. Norway also supports the system of Regional Gen- der Violence Advisors (REGA). REGA consists of ex- In the asylum process, a gender-sensitive approach perts who work from UNFPA’s regional offices and must be taken at all stages of the case processing. Asylum seekers must be informed that gender-related are attached to the individual humanitarian country arguments can form the basis for a right to protection teams with a view to intensifying the work of pre- in Norway. The asylum interview must be conducted in venting and combating sexual and gender-based such a way that the applicant feels that it is safe to pro- violence. vide information. Women, for example, should be asked whether they want the interviewer and/or interpreter to We emphasise women, peace and security in be a woman. Other special needs should also be met as far as practically possible. concrete thematic initiatives, such as health and education during crises, and in the work on mine The gender perspective is taken into account in the clearance and arms control. Women’s knowledge reception process. Among other things, the Norwegian and abilities must be used in humanitarian efforts Directorate of Immigration (UDI) has developed several on a par with men’s. Women must have equal specific tools for identifying asylum seekers with special opportunities, including to engage in income-gen- needs at an early stage of the process. For example, the UDI has issued a circular containing guidelines for erating work, for example in connection with mine identifying people staying in reception centres who may clearing. be victims of human trafficking, domestic violence (including forced marriage and female genital mutilation) or child marriage.

In recent years, the UDI has organised several training programmes on domestic violence for staff at reception centres. A system of compulsory dialogue groups has been introduced. The aim is to contribute to reducing violence at and outside reception centres, and to promote awareness-raising work on violence.

s n P ke ho ir to /K : d To n rb lla jø je r B n d ar K åv 19. Proposition No 75 to the Odelsting (2006–2007). jo H s : v to 20. G-08/2012. o ho ld P 42 ACTION PLAN WOMEN, PEACE AND SECURITY 43

Youth, peace and security

Norway’s goals are as follows: In 2015, the Security Council adopted Security Council Res- olution 2250, which, among things, underlines the need to look more closely at how conflict and crises affect youth. It Women and men, girls and boys who are affected by crises must have more influence is clearly stated that youth must participate in peace and Norway will give high priority to psychosocial security efforts. and be included as participants rather than as recipients of humanitarian aid. support for survivors. Children who are con- The gender perspective must be an integral part of the whole humanitarian effort. ceived as the result of rape during an armed There are clear links between the Agenda for Youth, Peace and Security and the Agenda for Women, Peace and Se- Women’s rights and participation must be given particular emphasis. conflict are particularly vulnerable. We will curity. Several fundamental premises for the two are the contribute to combating stigmatisation and also same, for example that inclusive peace and reconciliation help boys and men who are victims of sexual processes are crucial to achieving sustainable peace. Humanitarian organisations must also take into Norway will intensify its efforts against sexual and violence. Awareness raising efforts targeting consideration that girls and women, boys and gender-based violence by increasing its support for warring parties, the police and local leaders, Norway has a broad focus on education and health that men may have different needs. We will therefore relevant measures and by taking new initiatives. trauma treatment and follow-up of survivors helps to further young people’s rights and improve their opportunity to exert influence, also in the peace and secu- emphasise practical follow-up of the organisations We will be a driving force for a stronger interna- are examples of measures that we may sup- rity context. of which Norway is a member or that receive Nor- tional effort, and will support prevention meas- port. wegian funding. We do this, among other things, ures and measures that follow up survivors. We Norway supports the UN’s study on youth, peace and by requesting, as far as possible, gender-disaggre- will work in a comprehensive way and use the full Norway will support measures that ensure security, which highlights participation by youth and the gated data in reporting, and by raising the gender range of political instruments at our disposal. that girls’ and women’s sexual and reproduc- importance of listening to their experiences and perspec- perspective at annual meetings. In that connec- tive health and rights are safeguarded during tives. This applies in particular to the work on preventing violent extremism. tion, it must be assessed whether and, if relevant, conflicts and humanitarian crises. Norway will Norway has ratified the Lanzarote Convention on how commitments relating to women, peace and emphasise cooperation with UNFPA and other the Protection of Children (girls and boys) against We support the YouthCan network, and champion the security are followed up. organisations with a humanitarian mandate voices and influence of youth through the UN group of Sexual Exploitation and Sexual Abuse, and will that provide such services during conflicts and friends of the prevention of violent extremism that Jordan work to ensure that other countries also ratify the Norway will continue to support measures that humanitarian crises. and Norway took the initiative for. convention. A report from the Lanzarote Commit- help to strengthen the gender perspective in hu- tee shows that children affected by the refugee Many young women work for peace within the framework manitarian work. We will contribute to increasing Norway will endeavour to ensure that the crisis are at particular risk of becoming victims of of youth, peace and security. Many young men have be- competence and capacity in this area. We will gender perspective is included in processes sexual violence. come advocates of women’s participation in this context. work politically and diplomatically to ensure that relating to humanitarian disarmament and arms For Norway, it is important to draw attention to young

the UN and other key actors prioritise the efforts control. We will help to ensure that the states people’s capacity and competence in conflict prevention, We will focus in particular on the vulnerability that for women’s rights and participation, and take a parties to the Arms Trade Treaty implement the peace and reconciliation and peacebuilding, and to shed arises when people become refugees, and we will gender-sensitive approach in their humanitarian provision on gender-based violence globally. light on the vulnerability of youth in exposed situations, prioritise efforts to protect against human traffick- war and conflict. efforts. Norway will continue its work to ensure that the ing, child and forced marriage, and exploitation in gender perspective is integrated in the work on prostitution. Norway will endeavour to ensure that young women’s voic- clearing mines and other explosives. es are heard on a par with young men’s, and to ensure that young women are involved in peace and security

44 ACTION PLAN WOMEN, PEACE AND SECURITY 45 Illustration made for Norway’s Action Plan for Women’s Rights and Gender Equality in Foreign and Development Policy 2016-2020: Freedom, empowerment and opportunities. CHAPTER 5.

SUSTAINING PEACE

Preventing conflicts, building and sustaining peace

An increased focus on conflict prevention and gender equality is in line with Norway’s policy. Norway supports women’s participation and integration of the gender perspective in conflict prevention and the work for sustainable peace. The four focus areas in this action plan form the framework for this work, together with the Action Plan for Women’s Rights and Gender Equality in Foreign and Develop- ment Policy (2016–2020) – Freedom, Power and Opportunities. 46 ACTION PLAN WOMEN, PEACE AND SECURITY 47

Because it is both right The year 2015 was a memorable year. The world agreed on the and smart Sustainable Development Goals, which are based on the recog- Many studies have shown that nition that all countries have challenges and that every country women’s security is linked to states’ security (see also page has responsibility for the welfare, freedom and security of its 55). There is a clear connec- inhabitants. Peace and security, rights and development are tion between a lack of gender equality and the risk of conflict. interlinked, and we must work in a more holistic way.

Women’s organisations, es- 21 pecially from countries in the The UN carried out three reviews of its peace and security efforts, which Global South, have fought for all concluded that more had to be done to prevent conflict and to resolve recognition of this connection. conflicts by political means, and that peace and reconciliation processes The Norwegian-supported must be more inclusive. The main content of the Women, Peace and Se- Global Index for Women, Peace curity Agenda was thereby placed at the core of the UN’s work on peace and Security (see page 48) and security. demonstrates how women’s participation, access to justice and security are connected. A year later, the UN General Assembly and the Security Council adopted identical resolutions on ‘sustaining peace’, which followed up key rec- In the conflict prevention ommendations from these studies.22 More clearly than before, the UN’s context, it is often pointed member states acknowledged that conflicts are often rekindled and that out that development and conflict resolution is very often followed by new unrest that requires rights are linked to peace. We therefore have to work across active conflict prevention and a consistent, coordinated effort. We have sectors and structures. These to look at the causes of conflict, and at how we can work on fundamental connections are not the same structures and factors that lead to greater dissatisfaction and unrest. The everywhere and under all humanitarian summit meeting in the same year emphasised the connec- conditions, however. Injustice tion between humanitarian efforts and long-term development, and the does not necessarily lead to importance of working in a more inclusive way and through local part- conflict. Gender equality does not always lead to peace. ners.

The Women, Peace and Secu- When the new UN Secretary-General was appointed, he made the pre- rity Agenda is about opera- vention agenda a main issue and highlighted gender equality as a priority. tional effectiveness and about Norway supports the UN Secretary-General’s reform agenda. achieving lasting peace. But it is also about safeguarding people’s rights and dignity in Over the full range of the UN’s work, we see a greater focus on conflict a very vulnerable situation, prevention and on the underlying causes of conflict. In relation to the irrespective of whether or not Women, Peace and Security Agenda, this means work on the agenda it has an effect on national security. involves more and more issues.

21. High-Level Independent Panel on Peace Operations (HIPPO). The Challenge of Sustaining Peace, The Report on the Review of the UN Peacebuilding Architecture and Photo: UN Women Afghanistan A Global Study on UNSCR 1325: Preventing Conflict and Transforming Justice Securing the Peace. 22. See also the World Bank’s report Pathways for Peace: Inclusive Approaches to Preventing Violent Conflict. 48 ACTION PLAN WOMEN, PEACE AND SECURITY 49

Global Index for Women, 5a. Responsible businesses and women Peace and Security in vulnerable areas Women’s rights and gender equality in economic rights and equality within the family are The Global Index for Women, Peace also sources of conflict. The gender perspective is strongly emphasised in Nor- and Security (2017) was developed countries affected by armed conflict way’s work for responsible business. A company can by the Georgetown Institute for Norway therefore has a long tradition of working integrate the gender perspective by thinking about how Women, Peace and Security and actual or potentially unfortunate effects of its activities for women’s rights and gender equality as part of PRIO’s Centre for Gender, Peace and affect women especially or affect them in a different way Security with Norwegian support. The Norwegian Action Plan for Women’s Rights and Gen- its foreign policy and development policy, because than men. It also means adjusting actions the companies It is the first index where data on we know this works and because it is necessary. take to identify, prevent, reduce and deal with such con- women’s participation and access to der Equality describes how we organise our broad, long- sequences, to ensure that their efforts are effective and justice are seen in conjunction with term work to strengthen women’s rights, thereby ensuring Norway’s efforts in support of women’s rights expedient. security statistics. and gender equality in its foreign policy and that women can contribute to building resistance, prevent- It is particularly important that business and industry give development policy focus on five areas: The index provides an overall picture ing conflict and sustaining peace. consideration to women’s human rights in conflict and of what opportunities and limitations post-conflict areas. women encounter in various con- • Girls’ right to education texts. It thereby gives an indication of what is required if women are to Among other things, the global study on the implementation of • Women’s political rights and participation MeToo – putting our house in order be able to participate in peace and Security Council Resolution 1325 documented that the proportion of security processes and to influence women that have access to farmland is significantly lower in coun- • Women’s economic rights and participation The MeToo campaign showed that sexual harassment, ex- them, and of how we can better ploitation and abuse are widespread, and unfortunately tries affected by conflict than in other countries. Without access to target our efforts for women, peace • A life free from violence and harmful customs also in the aid sector and in other international missions and security. resources such as property, credit, livestock, seafood and agricultural and operations. produce, women have less influence on peacebuilding.23 We know • Sexual and reproductive health and rights Women’s rights and security often that girls’ education forms the basis for political and economic par- Norway’s Ministers of Foreign Affairs and of International come under pressure when unrest ticipation, and that violence against women can have a destructive Development therefore sent a letter to all recipients of increases in an area. The level of vio- effect on women’s participation in and influence on key processes. The Action Plan on Women, Peace and Securi- Norwegian aid and assistance, stating that organisations lence often increases already before are expected to have ethical guidelines and good systems ty and the Action Plan for Women’s Rights and an armed conflict breaks out. Wom- for preventing, reporting and dealing with such matters, Gender Equality govern how peacebuilding efforts en’s mobility is restricted, as a result The global gender equality situation is showing progress in terms of so that a safe working environment is ensured. of concern or fear, or of conservative women’s situation in many countries – through increased participa- are implemented in countries in conflict and in ideological thinking. tion in employment and in politics, and through laws that improve post-conflict situations.24 It was also pointed out that the issue of sexual harass- women’s position in the family and raise the problem of violence ment, exploitation and abuse would be given higher po- When we encounter extremism, against girls. Participation by women is recognised as valuable both We are therefore strengthening our monitoring of litical priority and that it would be raised at meetings with we often see the same thing: that our partners. The organisations are also held accountable in itself and as a driving force for economic growth and stability. how our embassies and sections in the ministry restrictions on women’s rights are an for preventing sexual exploitation and abuse by aid work- that work in countries in conflict and post-conflict early sign of radicalisation. Moni- ers of people in crises. situations are following up the Action Plan for toring the status of women’s rights At the same time, however, girls and women are persistently and Women’s Rights and Gender Equality. We will also can therefore help us to identify systematically oppressed in several countries and regions. Various Since then, the Minister of Foreign Affairs has reminded vulnerable situations. If we are able continue to measure how large a proportion of the Foreign Service as a whole about the ministry’s guide- groups of countries are making active endeavours in global arenas to to respond to this information, this Norwegian assistance to countries in conflict and lines and expectations of employees at home and abroad, undermine standards for women’s rights. Women’s sexual and repro- could help us to prevent conflict. post-conflict situations is marked with a gender both local employees and Norwegians working at Foreign ductive rights are under particular pressure, but equal Service missions abroad. The Foreign Service has intro- equality marker. duced a mandatory e-learning program in this context.

23. Preventing conflict, Transforming Justice, Securing the Peace – A Global study on the implementation of the United Nations Security Council Resolution 1325.2015, p. 81. 24. We use the definitions of the Uppsala Dataset for Conflicts and its sample of countries in conflict and post-conflict situations. We limit ourselves to the countries in which Norway is an active aid donor. 50 ACTION PLAN WOMEN, PEACE AND SECURITY 51

Pho to: Edu ard o Mu no z / R e u te r s / N T B s Security Council Resolu- c Violent extremism and cultural a n tion 2242 p rights 5b. ix Through Security Council Res- Women, gender and violent extremism Norway supports prizewinning film-mak- olution 2242, the fight against er and human rights activist Deeyah violent extremism was for the Khan. Through Fuuse Films, she turns first time linked to the Women, the spotlight on both human and political Peace and Security Agenda. Preventing and combating violent extremism is an important aspects of violent extremism. Through the digital magazine Sister-hood, she Among other things, the reso- part of the efforts for sustainable peace. Norway therefore has established a platform for women of lution addresses the connec- supports women’s participation and integration of the gender Muslim origin. Deeyah Khan is UNESCO’s tion between transnational goodwill ambassador for artistic freedom organised crime and human perspective in that connection, as an integral part of the four and creativity. trafficking, sexual violence focus areas in the action plan, and as measures in their own and terrorism. The resolution Women’s cultural rights are being violated describes how such factors right. The return of foreign fighters and their family members, ei- in many countries, especially in connec- can prolong and aggravate ther to their home country or to a third country, represents tion with conflict and post-conflict situ- conflicts and intensify their a potential security threat. Both men and women are be- ations. Both women’s access to culture long-term effect on the civilian and their possibility of participating in cul- coming radicalised and, while men are in the majority, more population. Terrorist groups such as Isil and al-Qaida are a global threat. They exploit ture themselves are restricted. In a report women are also joining terrorist groups. This makes it even local conflicts and vulnerable states’ inability to exercise control. Targeted from 2017, the UN Special Rapporteur for more necessary to handle this issue in a gender-sensitive The work on preventing and stabilisation efforts that also help to address the underlying causes of the Cultural Rights focuses in particular on combating violent extremism is manner. Questions relating to foreign fighters who are preg- how fundamentalism and violent extrem- growth of violent extremism are therefore important. Women have impor- therefore linked to all the focus nant or have become mothers are particularly challenging ism impact on women’s cultural rights.25 tant roles to play in this context. areas in the Action Plan on for how we should respond. Women, Peace and Security: The Security Council emphasises that

peace and reconciliation pro- In some cases, women’s key role in the family and community has been women’s rights, including their cultural Many violent extremist groups restrict, twist or exploit men’s cesses, the implementation of exploited in a way that threatens their safety and challenges their loyalty rights, are essential in the fight against peace agreements, operations and women’s gender roles strategically and succeed in mo- fundamentalism and violent extremism. to the family. It is important that women’s security is taken seriously when and missions, and humanitari- bilising both men and women to their cause. Their ability to Women’s cultural rights are part of the preventive measures are being developed, that families and local commu- an efforts. reach people with their propaganda and communicate with defence of equality and universal values. nities are involved in a way that bolsters the community rather than nur- their supporters has become more important for Isil after turing suspicion, and so that it is possible for women to seek help without their loss of territory in Syria and Iraq. placing their children or spouse under suspicion.

Counter-narratives cannot be our sole strategy in our fight Undermining women’s rights is a common goal among most extremists – against their propaganda. We must succeed in communi- including far-right extremists. Women are affected often and at an early cating the values we want to protect and help to build safe stage by violent extremists’ ideology and warring activities. Restrictions local communities that safeguard the interests of the whole e are imposed on women’s rights and freedom of action. At the same time, s u population. Gender equality and non-discrimination are u F : women are sometimes subjected to systematic abuse, often in the form to both ends and means in this connection. ho of sexual violence. That is why it is important to have a particular focus on P women’s rights as they are affected by violent extremism. Deeyah Khan

25. A/72/155. 52 ACTION PLAN WOMEN, PEACE AND SECURITY 53

Isil and men’s and women’s gender Norway’s efforts Women’s Alliance for roles Security Leadership The prevention of violent extremism and efforts for women, Norway regularly contributes to putting the role of both women Isil uses gender roles strategically. They use peace and security have much in common. Since 2015, the and young people on the agenda. Norway is also ambassador to WASL currently has around 90 member different rhetoric when addressing differ- Norwegian Government has played a leading role in interna- the UN Women’s flagship for women, peace and security, which organisations from more than 30 coun- ent groups. In their communication with tries, mainly in Africa, the Middle East, tional work on preventing violent extremism, with particular includes the prevention of violent extremism. women in the West, they emphasise the Asia and South Eastern Europe. Among agency role and how women contribute to focus on the gender perspective and women’s role. Several of other things, its members are engaged Jihad by joining them. They paint a picture our most important preventive measures are women, peace Norway’s endeavours to prevent and combat violent extremism in the de-radicalisation of Isil prisoners of a woman who, despite the limits set by and security partnerships. must include women, also young women. Our work must inte- in Lebanon, they help women who have the caliphate, has agency and influences grate the gender perspective and take both men’s and women’s sewn bomb belts in Pakistan to find a history. In their communication with other In 2015, Norway organised a high-level conference in Oslo on different gender roles and particular challenges seriously. We new living, they mobilise radicalised youth groups, a more traditional picture of wom- in Iraq behind community values root- combating violent extremism and radicalisation, as well as a therefore support targeted measures in this area. en’s role is depicted. The different kinds of ed in Islam, and they help women who rhetoric are sometimes in direct opposition separate conference for youth (Youth Against Violent Extrem- have been affiliated to or been abducted to each other. 26 ism). In that connection, Norway took the initiative for a global We will also monitor the proportion of Norway’s contributions by Boko Haram, and the women’s local alliance of women’s organisations in order to bring together to combating violent extremism that is marked with a gender communities in Nigeria, so that these Similarly, Isil differentiates its message actors that work to prevent and combat violent extremism. equality marker, which indicates that women’s rights are either women and their children can be reinte- when communicating with different groups International Civil Society Action Network (ICAN) led this the principal objective or a significant objective of the pro- grated and the women can participate in of men. They often play on traditional reconciliation initiatives. work, and Women’s Alliance for Security Leadership (WASL) gramme. perceptions of the male role, where men have power over both women and prop- was launched in the same year, with Norway’s prime minister WASL runs extensive local programmes, erty. At the same time, however, the social participating. The Action Plan for Women, Peace and Security also has links to while at the same time managing to model that is presented also has modern the Government’s Action Plan against Radicalisation and Violent communicate their experience and get traits: equality across ethnic background, Norway also established a youth network, YouthCAN, which Extremism. To prevent violent extremism it is necessary that their message across in international language and culture. The Islamic identity is includes many women. domestic political measures in countries that are not in conflict forums, for example though websites and emphasised above other identities, mak- print publications. The platform ‘Global areas are coordinated with organisations and actors working in ing other differences less important, and Solutions Exchange’, which was launched uniting women and men. For some people, In both 2016 and 2018, the UNDP and Norway organised such areas. by Norway’s prime minister together with it may be particularly attractive that the high-level conferences in Oslo on the prevention of violent UN Women’s leader and WASL in 2016, is extremists give young men considerable extremism, which highlighted women’s participation. ICAN and Abir Hajibrahim, Fatima Al-Bahadly, an important arena for dialogue between authority. WASL also made significant contributions. Syria, WASL Irak, WASL national authorities, multilateral organisations and civil society on the prevention It is clear from Isil and other violent ex- of violent extremism. Norway is endeavouring to integrate the gender perspective tremists’ propaganda that Isil has a gender perspective and takes an active approach more effectively in a concerted global effort to prevent violent to gender roles. We need to do the same. extremism. The UN is important in this context. Norway supports the Secretary-General’s Action Plan on Violent Extrem- We have to understand what drives women ism and is working to achieve a greater consensus at the UN. and men into radicalisation and why most people nonetheless choose peaceful meth- At the UN, Norway and Jordan have established a Group of ods when faced with the same challenges. We therefore support Norwegian and inter- Friends for the prevention of violent extremism, where the Hamsatu Allamin, national research that looks more closely gender perspective and concerted efforts have a key place. Nigeria, WASL at these aspects. Visaka Dharmadasa, 26. Mah-Rukh Ali. ISIS and propaganda: How ISIS exploits women. University of Oxford 2015. E.M. Saltman & M. Smith (2015): Till Martyrdom Do Us Part. Gender and the Sri Lanka, WASL ISIS Phenomenon. Institute for Strategic Dialogue. Ester E.J. Strømmen (2017): Jihadi Brides or Female Foreign Fighters? Women in Da’esh – from Recruitment to Sentencing. GPS Policy Brief, 1. Oslo: PRIO. 54 ACTION PLAN WOMEN, PEACE AND SECURITY 55

National Action Plan against Radical- isation and Violent Extremism

The Government’s Action Plan against Women, peace and security in research Radicalisation and Violent Extremism in Norway, which was launched in July 2014, is based on the Council of Europe’s Action Plan against Violent Extremism and Radi- calisation (2015–2017). The national action Statistics-based research has increased sub- plan is dynamic, i.e. it will be possible to stantially within the research field of women, adjust existing measures and to develop peace and security in recent years. Norway is new measures in step with developments contributing to this development.27 Several in the field and changes in the threat situation. Several ministries and directorates of the conclusions of the global study on the are responsible for the action plan. The implementation of SCR 1325 are based on Ministry of Justice and Public Security is the such research.28

coordinating ministry. ia ed r M Men’s and women’s different roles are the Difffe sæter, Lunde Lille Reports show that more men than women point of departure, and the fact that unequal Photo: Julie n. se become radicalised or become extremists. lve Sa access to resources and power is a fundamental ilde Originally, the action plan did not con- o: H 29 hot distribution issue in all societies. This means tain gender-specific measures because it P Three prominent Norwegian researchers and par- was assumed that the plan’s policies and that men and women are affected in different ticipants in the public debate in the field of women, measures covered women and men equally ways by crises and war. Women and men are peace and security: Torunn Tryggestad, Helga Hernes, well. We have had to reassess the need for 27. For example Women, Peace and Security Index and Sexual Violence in Armed Conflict Data (SVAC), affected by violence in different ways, for example and Inger Skjelsbæk. All three are members of the see Ragnhild Nordås et al. Four Things Everyone should know about Wartime Sexual Violence. 2017. 30 differentiation, however, as a result of new 28. The research must be underpinned by systematic statistical studies in combination with sexual violence, and they often participate in PRIO Centre on Gender, Peace and Security. knowledge. This is because women and qualitative studies. See the discussions in Sara Davies and Jacqui True (eds.). Oxford University different ways in committing acts of violence.31 men have different motivations for joining Press Handbook on Women, Peace and Security (WPS). Oxford: Oxford University Press (December 2018) og i Dan Reiter. The positivist study of gender and international relations. extremist groups and play different roles in Journal of Conflict Resolution. 59, 2015. 29. No country has complete gender equality, regardless of which measure we apply. One of the most important findings is that there The studies show that, in order to create a peace extremist groups, circles and organisations. See, for example, Women, Peace and Security Index 2017. Work is now being done to develop meas- 30. For an overview, see for example Ragnhild Nordås et al. Four Things Everyone should know appears to be a strong link between a lack of that benefits the whole population, peace pro- about Wartime Sexual Violence. Monkey Cage, 9. juni 2014, AND Dara Kay Cohen: Rape During 32 ures that take account of these differences. Civil War. Ithaca: Cornell University Press, 2016. gender equality and the risk of armed conflict. cesses must be based on an approach that takes 31. Elin Bjarnegård et al. Gender, peace and armed conflict iSIPRI Yearbook 2015: Armaments, Disarmament and International Security. Stockholm: SIPRI, 2015. This could be because gender inequality affects account of both men’s and women’s security and The Penal Code does not just prohibit 32. First studied by Mary Caprioli in Gendered conflict. Journal of Peace Research, 37, 2000. the possibility of recruiting soldiers and tolerance access to power and resources.35 All the methods armed participation in a terrorist organ- This article tests several key arguments in feminist research. The study has been followed by several scholarly articles, for example Erik Melander. Gender equality and intrastate armed of violence in a society.33 that are used must therefore be based on this isation. It also prohibits participating in, conflict. International Studies Quarterly, 49, 2005, and Susanne Schaftenaar. How (wo)men rebel. recruiting members into or providing Exploring the effect of gender equality on nonviolent and armed conflict onset. Journal of Peace perspective particularly in the case of peacekeep- Research, 54(6), 2017. This PRIO-owned journal has played an important role in publishing financial or other material support for a research of this kind in recent years. There are also a smaller, but growing, number of ing operations. 33. For an overview, see Erika Forsberg og Louise Olsson. Gender inequality and internal conflict terrorist organisation. Women and men in Oxford Research Encyclopedias of Politics. Oxford: Oxford University Press, 2016. studies that document women’s participation and who return from Syria or other conflict 34. See, for example, Jana Krause et al. Women’s Participation in Peace Negotiations and the capacity as key actors for sustainable peace.34 It is argued that peacekeeping efforts must be Durability of Peace. International Interactions (2018), and Teodora-Ismene Gizelis. zones and who have had been affiliated to Gender empowerment and United Nations peacebuilding. Journal of Peace Research, 46, 2009, based on thorough analyses of gender equality Isil or other terrorist organisations will thus and A country of their own: Women and peacebuilding. Conflict Management and Peace Science, 28, 2011, on women’s role in peacebuilding. development in the country in question if they are be subject to criminal prosecution for such 35. See the overview of different arguments in Joshi Madhav and Peter Wallensteen (eds.). 36 acts in Norway. Moreover, women and men Understanding Quality Peace. Milton Park and New York: Routledge, 2018. to succeed. 36. See, for example, Elin Bjarnegard and Erik Melander. What does a feminist foreign policy have to do will be entitled to the same rehabilitation with men? LSE blog post, 8. juni 2017, and Karim, Sabrina og Kyle Beardsley. Equal Opportunity measures while serving their sentences Peacekeeping: Women, Peace, and Security in Post-Conflict States. Oxford: Oxford University Press, 2017. and afterwards. 56 ACTION PLAN WOMEN, PEACE AND SECURITY 57

Experience transfer must be strengthened. The Action Plan for 2015–2018 will be reviewed after the end of the plan period. This may entail some adjustments being made to the practical approach to implementation of the Action Plan 2019–2022.

Dedicated funding is provided at the same time as The indicators are quantitative and only capture IMPLEMENTATION endeavours are made to integrate women, peace parts of the efforts made within the framework and security in all our efforts and via several of the action plan. The report is therefore supple- OF THE ACTION PLAN budget lines. mented by selected thematic topics each year, for example descriptions of work methods, partners The practice of priority countries will be contin- and arenas, efforts in priority countries or results ued. The guidelines for the Foreign Service’s work for each focus area. It is a precondition for implementation will be updated in order to strengthen the broad effort over time. The report should include an appendix listing rel- of the action plan that efforts for women, evant research and publications that Norway has No single body, section or embassy is expected to contributed to. Any evaluations of Norway’s work peace and security are spelled out and are be able to deliver on all parts of the action plan. on women, peace and security will also be includ- It is through joint efforts that we will achieve our ed in the report. an integral part of planning and reporting. ambitions and fulfil our commitments as they are The work must be knowledge-based. described here. The report is shared with civil society within the framework of the Cooperation Committee and

Partnerships and inclusive consultation Planning and reporting published on the government website regjeringen. no. The report is written in English in order to en- forums underpin the efforts. As in the preceding plan period, an internal annual sure that English-speaking colleagues and interna- plan will be prepared for all the ministries in- tional partners have easy access to its contents. volved, including key sections and delegations,37 in order to ensure the progress and implementation The results and implementation of the Action Plan of the Action Plan on Women, Peace and Security. for 2019–2022 will be reviewed in 2021, so that lessons and experience from the current period The responsible ministries report annually on can be included in the next plan. their implementation of the action plan based on the results framework (See pages 64-71). The report should include the indicator matrix and an overview setting out the results. The baseline data and target figures will be stipulated by the end of 2019 based on the figures for 2018.

37. The sections in the Ministry of Foreign affairs that cover security policy, peace and reconciliation, humanitarian affairs, human rights and cooperation with multilateral organisations, as well as Norway’s delegations to multilateral organisations, should be involved. The priority countries are not included since there are separate plans for them. 58 ACTION PLAN WOMEN, PEACE AND SECURITY 59

Support for research

work done by others and endeavour to ensure At the same time, the plan is to continue the This action plan is based on research on women, to plans and initiatives. Such dialogue also ensures a concerted effort both at country level and in Norad-administered allocation of around NOK 25 peace and security and key UN reports, including that we are accountable and it challenges us to international organisations. We will contribute to million per year for civil society efforts for wom- the global study on SCR 1325 from 2015 and the deliver more and better. experience transfer, complementarity and a syn- en’s participation and rights in the peace and UN Secretary-General’s annual reports on wom- ergy perspective. reconciliation context. This allocation is available en, peace and security.38 Recommendations from The bi-annual meetings between Norwegian civil to non-Norwegian organisations. Norwegian studies and reports that more specifically address society and all the ministries that are responsible Funding organisations are encouraged to integrate work Norway’s work in this field are also reflected as far for implementing the action plan will be continued on women, peace and security in broader agree- as possible.39 within the framework of the Cooperation Commit- Women, peace and security must be an integral ments they enter into with Norad or the Ministry tee. Direct contact is made when necessary, also part of all work on peace and security. This means of Foreign Affairs. Norway’s work on women, peace and security during periods between formal meetings. that our efforts are funded via several budget must be knowledge-based. We therefore sup- lines and as part of larger initiatives. In order to strengthen follow-up at country level, port research that addresses the full breadth of Cooperation with regional actors we plan to earmark NOK 50 million of what is the agenda. Our dialogue and cooperation with The annual report on implementation of the Ac- referred to as ‘the women’s allocation’ for ‘wom- research institutes in Norway and abroad will We cooperate with the UN and various regional tion Plan on Women, Peace and Security for 2017 en, peace and security’ every year during the continue. actors. NATO, the OSSE, the Council of Europe showed that targeted measures aimed at women plan period (2019–2022). The money will be spent and the African Union are important partners in in countries in conflict and post-conflict situations on targeted measures aimed at women, peace Through the Research Council of Norway’s NOR- relation to women, peace and security, but other are increasing, while the use of gender equality and security. Embassies in priority countries for GLOBAL-2 research programme, research on organisations also play an increasingly important markers for wide-ranging assistance efforts in women, peace and security will be given priority, matters relating to women, peace and security role in this field, and Norway should cooperate conflict and post-conflict countries and humani- although money can also be allocated to efforts in can receive long-term funding. Existing framework with these organisations as well. tarian measures is decreasing. other countries where Norway has a special peace agreements can be used for more short-term and security engagement. contract research. We note that increasing endeavours are being To ensure that women, peace and security is given made to resolve conflicts regionally. Norway will priority within the broad spectrum of Norway’s ef- Norway will help to enable women’s organisations Cooperation and regular dialogue with civil therefore be a clear advocate for women, peace forts for peace and security, we monitor the pro- that are active in conflict areas to contribute to society and security at both the regional and global level. portion of assistance and humanitarian support the peace and reconciliation process and to hu- for countries in conflict and post-conflict situa- manitarian efforts, among other things by sup- The Norwegian authorities cooperate with both Coordination and cooperation with like- tions that is marked with a gender equality marker porting the UN’s Women Peace and Humanitarian Norwegian civil society organisations and interna- minded countries as a principal objective and significant objective. Fund. tional and local organisations, by providing finan-

cial support and through political-professional There is widespread support for the Women, The proportion of funds for peace and reconcil- dialogue. Peace and Security Agenda. Many countries ac- iation, for security sector reform and for global

tively support the agenda and are making impor- security and disarmament that is marked with a Inclusive processes and dialogue with different ac- tant efforts. gender equality marker will also be monitored. tors are important in relation to developing good policies and goal attainment. We need different Norway will actively contribute to cooperation and experiences and perspectives and will make use of coordination efforts. We will support the good the available expertise and ensure ownership 39. E.g. K.M. Kjellstad. Training for Peace – i hvilken grad bidrar forskning til bedre trening? NUPI 2011; B. Lauritzen. FN Sikkerhetsråds resolusjon 1325, er visjonen en realitet? Universitetet i Bergen 2015; J.C. Møller. Norwegian Police as Capacity Builders in Haiti. Experiences from a Specialized Police Team in the United Nations, Hedmark University College 2016; Swedish Institute for Public Administration: Evaluation of Norway’s support for advocacy in the development policy arena (sub-chapter on women, peace and security), 38. See page 20 for key references. It is also worth mentioning the Geneva Institute’s research and report from 2016 by T. Paffenholz, N. Ross, S. Dixon, A.-L. Norad-report 2016/5; A. Stand, A. Suhrke, T. Wimpelmann, S. Hamidi: A Question of Implementation. Strategies for supporting the Women, Peace and Security Agenda in Afghanistan. Schluchter and J. True. Making Women Count - Not Just Counting Women: Assessing Women’s Inclusion and Influence on Peace Negotiations. Norad-report 2017/1; L. Kvarving’s ongoing doctoral work on Norway and NATO’s implementation of women, peace and security commitments, and Inger Skjelsbæk & Torunn L. Tryggestad (2018). Donor States Delivering on WPS: The Case of Norway, Chapter 40 i The Oxford Handbook of Women, Peace, and Security. Oxford University Press. 60 ACTION PLAN WOMEN, PEACE AND SECURITY 61

Priority countries

The Action Plan for 2015-2018 introduced priority 1) Countries where Norway has a special role in cooperation with a key regional organisation, particularly in the priority countries, will be given countries for women, peace and security. Five and therefore a special responsibility and oppor- and where there has been significant cooperation greater freedom of action and more opportunities countries were chosen, and a sixth was added tunity to contribute, such as Colombia and the on women, peace and security over time. Our co- to make a difference. in 2016. The embassies in the priority countries Philippines, where Norway is a formal facilitator of operation with the AU’s Special Representative for have received special follow-up from Norad and peace processes. Together with the other troika Women, Peace and Security is particularly worth Our efforts for women, peace and security will the Ministry of Foreign Affairs, and four of the six countries, the UK and the US, Norway has had a mentioning, as well as our work with the Regional nonetheless primarily be an integral part of our embassies have adopted work plans for wom- long-term engagement with South Sudan, where Networks of Women Mediators. broad work on peace and security. This should en, peace and security during the plan period. support for women’s participation in the peace be reflected in our work and spending at country All six set concrete goals for their efforts. The process and in political life has a central place. In The annual meetings at political level with the em- level. ambassadors to the priority countries have met Afghanistan, Norway has had a deep and broad bassies’ leadership will continue, as will the annual

the responsible state secretary at the Ministry of engagement in the peace and reconciliation gatherings for responsible advisers at the embas- Guidelines for the Foreign Service’s work Foreign Affairs every autumn and held strategic process as well as in the security context. Norway sies and/or country teams. talks about the challenges, and opportunities chairs the Donor Group for Palestine (AHLC). Nor- The fact that we undertake to work in a particu- to promote women, peace and security in their way became engaged in the peace process in My- As in the preceding period, embassies in and larly targeted, strategic and long-term manner in different countries, and discussed potential roles anmar at an early stage and it was among the first country teams for priority countries will be closely selected countries does not mean that we fail to for Norway. Representatives of the embassies countries to enter into closer cooperation with the followed up by Norad and the Ministry of Foreign actively address this issue elsewhere. Norway will in priority countries have met for two to three authorities after the country became more open Affairs. The Global Index for Women, Peace and look for possibilities and opportunities to promote days every year to develop their competence and to the rest of the world. Security is used in country analyses. women’s participation and rights in all work on engage in experience transfer from one country’s peace and security. situation to another. 2) Countries where we see a potential for new The embassies in or country teams for the priority learning and new types of cooperation, such as countries are to prepare a work plan for women, By making expert resources at the ministry and The review carried out with embassies and Nigeria, where work on women, peace and secu- peace and security, and can receive help from Norad available, we will actively support work in country desks in connection with the action plan rity converges with the work on preventing and Norad and the ministry. Once the Action Plan for vulnerable countries where there is conflict and indicates that defining priority countries has con- combating violent extremism, and Syria, where 2015-2018 has been reviewed, the format and where Norway contributes substantial resources tributed to greater attention being devoted to the Norway has contributed to innovative inclusion structure of these work plans will be reassessed to the focus areas set out in this plan. This applies, field and to more strategic, consistent and coher- mechanisms in the peace talks in Geneva and has and adjusted in relation to experience gained. among other things, to efforts to prevent and ent follow-up. plans to follow this up. Our focus on Mali gives us combat sexual violence. an opportunity to see the work on women, peace As before, the priority countries for women, peace The system of selected priority countries will and security in conjunction with Norway’s devel- and security will be prioritised in the Norad-ad- Guidelines for the Foreign Service’s work on wom- therefore be continued. Since it is desirable to opment work in areas characterised by several ministered allocation for civil society’s work on en, peace and security were prepared in connec- follow up the work at country level over time, we types of vulnerability. women’s participation and rights in the context of tion with the Action Plan for 2015–2018. The aim will continue to prioritise the six countries that peace and reconciliation. of the guidelines is to ensure that the whole of were chosen in the preceding phase: Afghanistan, 3) Norway’s delegation to the African Union the Foreign Service is able to deliver, and that the Colombia, Myanmar, Nigeria, Palestine and South (AU) is included in the same follow-up system as In the new plan period, NOK 50 million will be policy guidelines are followed up in all countries in Sudan. The Philippines, Mali and Syria will come in the priority countries in relation to women, peace made available per year (see above) for targeted conflict and post-conflict situations where Norway addition. The countries that have been chosen fall and security. The goal is to ensure that strategic measures addressing women, peace and security is engaged, so that our foreign service person- into one of two categories: efforts are made for women, peace and security at country level. The goal is that the embassies, nel are able to make a difference even when the 62 ACTION PLAN WOMEN, PEACE AND SECURITY 63

women, peace and security agenda is just one of for women, peace and security (2015–2018) have several areas for which they are responsible. consulted their partners on particular focus areas and on what possibilities Norway has to make a The guidelines for the Foreign Service’s work on difference. women, peace and security will be updated by the end of 2019 to ensure that they reflect the Action The direction of the plan has been discussed Plan for 2019–2022. with like-minded countries. The plan has been discussed at meetings with representatives of the An inclusive process and broad ownership UN and other multilateral organisations.

The preparation of the Action Plan for 2019–2022 Our goal is that the plan will be owned by the has been based on dialogue with key partners whole Norwegian system: foreign service missions and internal consultation processes, as well as the and delegations, relevant ministries, directorates, annual reporting on the implementation of the academia and civil society. Our hope is that this Action Plan for 2015–2018. plan will give direction to and basic guidance for our efforts, with the result that all Norway’s peace The plan has been drawn up in a collaboration and security work will involve women and safe- between all the ministries that are responsible for guard both women’s and men’s rights, needs and its implementation: the Ministry of Foreign Affairs, priorities. the Ministry of Defence, the Ministry of Justice and Public Security and the Ministry of Children and Equality. Norad has contributed input to the text and analyses, and other directorates have also been included to a greater extent than before. This shows that the foreign and domestic policy aspects of our efforts are more closely linked than previously.

Both the Norwegian Police University College and the Norwegian Defence University College have made substantial contributions, and other research institutes, especially PRIO, have provided input and contributed to finalising the plan.

Four meetings have been held with civil society, which has also contributed written input to the process. Our embassies in the priority countries 64 ACTION PLAN WOMEN, PEACE AND SECURITY 65

Impact Level

Women’s participation in peace and security work has A qualitative evaluation that assesses whether, increased, and women’s and men’s rights, needs and or how, Norway has succeeded in contributing in Results framework priorities are strengthened in areas affected by armed selected areas. It includes recommendations for conflict. improved efforts. The evaluation questions are de- for the Action Plan on Women, Peace and Security fined at an early stage, with thematic delimitations.

Outcome Level

The Security Council’s resolutions on women, peace and security constitute a Results Indicators

strong normative framework. Norway’s efforts for women, peace and security Outcome 1.1 shall contribute to achieving our common goal of sustainable peace. Peace and reconciliation processes facilitate participa- 1.1.a) Percentage of women in UN mediation teams, tion by women in all phases. at different levels. 1.1.b) Percentage of women in the parties’ delegations to formal peace negotiations where Norway We will endeavour to ensure that women’s partic- The collection of information about results for has a formal role. ipation and influence are strengthened in Norwe- the indicators set out below will be supplemented 1.1.c) Percentage of formal peace and reconcil- gian contributions to peace and security, and that by an evaluation during implementation of the iation processes in which Norway has a formal role, where inclusion mechanisms or a formalised our efforts safeguard women’s and men’s rights, action plan. The plan is that the evaluation will dialogue with women in civil society /civil society needs and priorities. At the same time, we will have a clearer qualitative focus, particularly on organisations have been established. endeavour to ensure that the international effort changes that are difficult to capture using quanti- under the auspices of the UN and regional organi- tative indicators. Learning will be a key goal for the Outcome 1.2 sations is correspondingly strengthened. evaluation. Peace and reconciliation processes facilitate respect for 1.2. Percentage of peace agreements, in processes both women’s and men’s rights, needs and priorities. where Norway has a formal role, that ensure both Theory of Change: 1) If steps are taken to fa- women’s and men’s i) political rights, ii) econom- cilitate implementation of the commitments to ic rights, iii) protection against sexual and gen- women, peace and security, if women participate der-based violence, and iv) where mechanisms for in and have influence on peace and reconciliation transitional justice are established that include the processes, the implementation of peace agree- gender perspective. ments, missions and operations, and humani- Output 1.1.1 tarian efforts, and if women’s and men’s rights are safeguarded, needs met and priorities taken Norway helps to ensure that parties to negotiations and 1.1.1 a) Percentage of women who participate in seriously in these efforts, then 2) this will lead to mediators include women. . Norwegian peace and reconciliation teams. more peaceful societies because 3) both wom- 1.1.1 b) Percentage of peace processes in which en and men play decisive roles in the peace and Norway has a formal role where Norway makes security context, and inclusive societies are more active endeavours to ensure women’s participation in negotiation and mediation delegations. sustainable. 1.1.1 c) Percentage of peace and reconciliation processes in which Norway is involved in an early phase, where Norway makes active efforts in relation to the parties to prepare the ground for women’s participation. 66 ACTION PLAN WOMEN, PEACE AND SECURITY 67

Results Indicators Results Indicators

Output 1.2.1 Output 2.1.1

Norway helps to ensure that parties to negotiations 1. 2. 1 a) Percentage of peace and reconciliation Norway contributes to ensuring that the authorities, 2.1.1 a) Percentage of implementation processes and mediators have sufficient capacity to integrate the processes in which Norway has a formal role that the UN and regional actors have sufficient capacity to in which Norway is involved where Norway assists gender perspective. address both women’s and men’s i) political rights, include women in the implementation of peace agree- a) the authorities, b) the UN and c) any regional ii) economic rights, iii) protection against sexual ments. actors i) politically and diplomatically, ii) financially and gender-based violence, and iv) due process. and iii) technically, in order to ensure that women 1.1.1 d) / 1.2.1 b) Percentage of Norwegian peace participate in the implementation of the peace and reconciliation funding marked ‘women’s rights agreement. and gender equality’ as i) a principal objective and ii) a significant objective. Output 2.2.1

Output 1.1.2 Norway contributes to ensuring that the authorities, 2.1.1 a) Percentage of implementation processes the UN and regional actors have sufficient capacity to in which Norway is involved where Norway assists Norway helps to ensure that women’s organisations 1.1.2 a) Percentage of peace and reconciliation integrate the gender perspective in the implementation a) the authorities, b) the UN and c) any regional have the capacity and opportunity to participate in processes in which Norway has a formal role where of peace agreements. actors i) politically and diplomatically, ii) financially peace and reconciliation processes. Norway supports participation by women’s organi- and iii) technically, in order to ensure that the gen- sations i) politically and diplomatically, ii) financially, der perspective is included in the implementation and iii) by providing technical assistance. of the peace agreement. 1.1.2 b) Percentage of dialogue initiatives in an early phase where Norway has identified women’s Output 2.1.1 /2.2.1 organisations or groups that can play a role in a resultant process. Norway helps to ensure that women’s organisations 2.1.1 b)/2.2.1.b) Percentage of implementation pro- have the capacity to stand up for women’s rights, needs cesses in which Norway is involved where Norway Output 1.2.2 and priorities in connection with the implementation of supports participation by and contributions from peace agreements. civil society in the implementation process by Norway helps to ensure that women’s organisations 1.2.2 Percentage of peace and reconciliation pro- providing i) political and diplomatic assistance, ii) have the capacity to stand up for women’s rights, needs cesses in which Norway has a formal role where inancial assistance, and iii) technical assistance. and priorities in peace and reconciliation processes. Norwegian-supported women’s organisations stand up for women’s rights, needs and priorities. Outcome 3.1

Outcome 2.1 International operations and missions facilitate 3.1 a) Percentage of women in UN operations and participation by women. missions. Women’s participation is facilitated in the implementa- 2.1 Percentage of implementation processes in tion of peace agreements. which Norway is involved that include women in 3.1 b) Number of Norwegian women in leading po- key implementation mechanisms. sitions in international operations and missions.

Outcome 2.2 Outcome 3.2

When implementing peace agreements, steps are taken 2.2 a) Percentage of implementation processes International operations and missions facilitate the 3.2 Percentage of UN operations that have a to safeguard both women’s and men’s rights. in which Norway is involved where clauses in the safeguarding of both women’s and men’s rights, needs ‘gender adviser’ as part of the leadership of the peace agreement that specifically address women’s and priorities. operation. rights are followed up with the same frequency as other clauses. 2.2. b) Percentage of implementation processes in which Norway is involved where women’s rights, needs and priorities are followed up in the implementation of the peace agreement’s (general) clauses. 68 ACTION PLAN WOMEN, PEACE AND SECURITY 69

Results Indicators Results Indicators

Output 3.1.1 Output 4.1.1

Norway helps to ensure that international operations 3.1.1 a) Percentage of women in Norwegian contri- Norway helps to ensure that Norwegian-supported 4.1.1 Percentage of organisations that receive and missions include women butions to international missions and operations. humanitarian organisations involve women. Norwegian humanitarian support that report that women who need humanitarian aid are involved in 3.1.1 b) Percentage of operations in which Norwe- their humanitarian work. gian armed forces are involved and where capacity-building of women in the security sector is Output 4.2.1 included. Norway helps to ensure that Norwegian-supported 4.2.1 a) Percentage of organisations that receive 3.1.1 c) Number of missions (and assignments) humanitarian organisations integrate the gender Norwegian humanitarian support that report that where the Norwegian police contribute to capac- perspective in their humanitarian work. the gender perspective is integrated in their hu- ity-building in order to enable women from other manitarian work. countries to serve in international operations and missions. 4.2.1 b) Percentage of organisations that receive Norwegian humanitarian support that report gen- Output 3.2.1 der-disaggregated data in their reporting.

Norway helps to ensure that international operations 3.2.1 a) Number and nationality of persons who 4.2.1 c) Percentage of Norwegian humanitarian and missions have sufficient capacity to integrate the have received training in the gender perspective assistance to countries affected by war and conflict gender perspective. at the Nordic Centre for Gender in Military Opera- that is spent on measures marked ‘women’s rights tions. and gender equality’ as i) a principal objective and ii) a significant objective. 3.2.1 b) Percentage of assistance for security sector reform marked ‘women’s rights and gender equal- 4.2.1 d) Percentage of Norwegian humanitarian ity’ as i) a principal objective and ii) a significant assistance to countries affected by war an conflict objective. that is spent on measures marked with a marker for efforts i) against sexual and gender-based Outcome 4.1 violence and ii) for sexual and reproductive health and rights. Humanitarian efforts facilitate women’s involvement. 4.1 Percentage of humanitarian efforts under UN auspices that systematically involve women who are affected by the crisis in their work.

Outcome 4.2

Humanitarian efforts facilitate the safeguarding of both 4.2 Percentage of humanitarian efforts under UN women’s and men’s rights, needs and priorities. auspices that have formal competence in the gender perspective in the form of an adviser or unit with special responsibility for follow-up. 70 ACTION PLAN WOMEN, PEACE AND SECURITY 71

Norway’s work in relation to Norwegian institutions Prevent conflicts, build and secure peace

Operative goal 1 The five focus areas in the Action Plan for Women’s Percentage of countries in conflict and post-con- Rights and Gender Equality are followed up in countries flict situations where our embassies and sections A better gender balance in Norwegian institutions’ 1) Percentage of women in the Norwegian police at in conflict and post-conflict situations. report on support for girls’ education. peace and security work. all levels (maintain the gender balance). 2) Percentage of i) female military personnel in Percentage of countries in conflict and post-con- the Armed Forces, including among ii) officers iii) flict situations where our embassies and sections specialists, and iv) conscripts. report on support for efforts promoting women’s political rights and participation. Operative goal 2 Percentage of countries in conflict and post-con- Increased competence/capacity in relation to women, 3) Percentage of members of Norwegian media- flict situations where our embassies and sections peace and security among Norwegian personnel in- tion teams who have been given training or have report on support for women’s economic partici- volved in peace and security work. further developed their competence in relation to pation. women, peace and security during the year. 4) Number of persons in the Armed Forces who Percentage of countries in conflict and post-conflict have specific tasks relating to gender in their job situations where our embassies and sections re- descriptions, broken down by i) strategic level, ii) port on support for initiatives to combat i) violence, operational level, and iii) tactical level. including sexual violence against women, men and 5) Percentage of Norwegians deployed on interna- children, and ii) practices that are harmful to girls tional operations and missions who have partici- and women. pated in courses/training on i) women, peace and security and ii) preventing and handling sexual Percentage of countries in conflict and post-con- violence. flict situations where our embassies and sections report on support for initiatives promoting wom- Operative goal 3 en’s and girls’ sexual and reproductive health and rights. Plans and procedures are geared to integrating women, 6) Percentage of peace and reconciliation pro- peace and security in peace and security efforts. cesses in which Norway has a formal role where The action plans for women’s rights and gender equal- Percentage of Norwegian bilateral assistance women, peace and security is an integral part of ity and on women, peace and security are followed up to countries affected by war and conflict that is the facilitation team’s work. using development assistance funds. marked ‘women's rights and gender equality’ as i) 7) Percentage of dialogue initiatives in an early a principal objective and ii) a significant objective. phase in which Norway is involved where women, peace and security is an integral part of the Norwe- Norsk innsats for våpenkontroll og forebygging og bek- Prosentandel av norsk bistand til global sikker- gian team’s work. jempelse av voldelig ekstremisme inkluderer kvinner og het og nedrustning som er merket «kvinners 8) Percentage of facilitation teams that have ap- integrerer et kjønnsperspektiv. rettigheter og likestilling» som i) hovedmål og ii) pointed a person with particular responsibility for delmål. following up women, peace and security. 9) i) Number of cases where Norwegian personnel Prosentandel land der tiltakene Norge støtter for deployed abroad are reported to the police or forebygging og bekjempelse av voldelig ekstrem- charged with committing non-consensual sexual isme i) fremmer kvinners deltakelse og ii) integrerer acts, exploitation or abuse, and ii) the percentage kjønnsperspektivet. of such cases followed up by Norwegian authorities. 72 ACTION PLAN

Front cover photos:

Professor Pauline Riak, Juba University, member of the High Level Revitalization Forum (HLRF) and researcher representative in the Reconstituted Joint Monitoring and Evaluation Commission (RJMEC), pictured with Signe Gilen, Minister Counsellor at the Norwegian Embassy in Juba. Photo: EVE Organization.

The FAST group (Fly Away Security Team) on foot patrol in a village near Bamako airport, Mali. Photo: Torbjørn Kjosvold, the Norwegian Armed Forces.

Elisabeth Slåttum, at the time Norwegian Special Envoy to the Philippines, at the end of a round of negotiations. Photo: Norwegian Embassy in Manila.

Police Chief Superintendent Yngve Isaksen Wiik with a mother and her baby daughter, named Happy, who he delivered during a night shift in the Protection of Civilians site PoC3 in Juba. Yngve had previously worked as an ambulance driver, and therefore knew what to do when Happy’s mother went into labour. Sadly, we do not know what happened to the girl during the fighting in Juba in July 2016. It was not possible to find the family again after conditions in the camp were normalised. Photo: Terje Løland.

Published by:Norwegian Ministries

Additional copies may be ordered from: Norwegian Government Security and Service Organisation www.publikasjoner.dep.no Telephone: + 47 22 24 00 00 Publications are also available on: www.government.no Publication number: E-981 E Print: Norwegian Government Security and Service Organisasation 01/2019 – Impression 800