Women, Peace and Security - (2019 - 2022) The Norwegian Government's Action Plan - Regjeringen.no
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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
LD
n/B
Contents
sso er
. A nd
Photo: Mar tin B
Women, peace and security in a new plan period 6
Minister of
International Development FOCUS AREAS
Nikolai Astrup
1. Peace and reconciliation processes 12
2. Implementation of peace agreements 20
St ur la s o n / U te n r i 3. Operations and missions 26
g ra f
on
k s de
oto p ar t
v isj
:F eme
o to n te
t
4. Humanitarian efforts 36
F oto
Ph
g g ø,
Minister of Justice, Public
e
Security and Immigration
Photo: Olaf H
Tor Mikkel Wara
5. Sustaining peace 4442
a. Women’s rights and gender equality in countries
Photo:
Torb
jø rn K
jos
vol
affected by armed conflict 48
d/F
or
sv
ar
b. Women, gender and violent extremism 50
et
Phot
o: To
Implementation of the action plan 56
r gei
r Ha
Results framework 64
uga
a rd
, Fo
rs v
a re
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 organ-
isations. 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
W O M E N , PE A CE A ND humanitarian suffering is enormous. Destroyed infrastructure, Women’s ability and possi-
S E C U R I T Y IN A N E W
poor health services and lost education have consequences for bility to participate in peace
and security efforts are linked
millions of people. Climate change and health pandemics are to their life situation and to
P LA N P E R I OD increasing the vulnerability of many societies. This, in turn, can what extent women’s rights
are safeguarded. There is
be detrimental to security. therefore a close connection
between our efforts in the field
Norway’s efforts for women, peace of women, peace and security
and our work on human rights,
Women and men, girls and boys Momentum for women, peace
and security shall contribute to have different roles and positions and security
including efforts to promote
women’s rights and gender
equality.2
achieving our common goal of in the societies they live in. They
can be affected in different ways by
The celebration of the 15th anniver-
sary of Security Council Resolution Support for women human
sustainable peace. a conflict. Norway therefore has a
(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 human rights defenders are
access to the whole population’s
been made, and never before had often at greater risk than their
resources, knowledge and experi-
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 many cases.
is widespread international support
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 women human rights defend-
to ensure that women participate
remains to be done in terms of im- ers was adopted by consensus
on an equal footing with men in
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 ensure that women human
is possible to achieve.
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- Norway, also in the context of
this work.
tween the Colombian Government women, peace and security.
and FARC has shown that women
u g h to
n can influence peace processes and
m Ha
o to / K i
P h o t o:
UN Ph 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 and Security. The Action Plan on Women, Peace and Security defines what their vulnerability increases.
New and innovative inclusion mechanisms were established
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
(see page 16). The Peacebuilding Fund was the first fund make a difference, be more effective and commit to achieving results.
of extremist violence. Human trafficking, es- 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 destitution. In a situation in
New topics emerging
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
extremism. See page 50. This development is reflected in new Security Council resolu- Ph o to
: Jason
M ik lia n , PR priority in Norway’s diplomatic
IO
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- and armed conflicts overlap. The all relevant political plan documents It is one of the main priorities in Nor- The gender perspective
approach that will be taken. The re-
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
shows how the efforts are broken stronger focus on refugees, inter- For example, the fundamental princi- the Security Council and in our efforts
forces across dividing lines in and security. The gen-
order to thereby strengthen down into individual goals, sub- nally displaced persons and human ples of the Women, Peace and Secu- 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,
is positive when this happens. both Norwegian contributions and a greater emphasis on women’s paper Setting the Course for Norwegian structures and systems,
At the same time, however, we sexual and reproductive health and Foreign and Security Policy and in the Transnational challenges such as vi- programmes, reforms
and Norwegian support for global
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’
pertise and capacity. The latter is a conflict-related, sexual violence is a Human Trafficking. The importance of the huge number of refugees have led
that women can have very dif- and boys’ power and
ferent needs and priorities. prerequisite if we are to strengthen priority throughout, and is reflected women’s participation and the inte- 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.
Our endeavours for peace and emphasised in the Strategic Framework countries. Coordination and work to This action plan places
security must reflect the fact Chapter 5, ‘Sustaining peace’, for Norwegian Efforts in Fragile States achieve consistency are no longer just particular emphasis on
The purpose of measuring results
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,
monitor key trends during the plan of peacebuilding are connected. The Sustainable Development Goals and countries that are not in conflict are
men have different political girls’ and boys’ experienc-
sympathies. Women and men period and to enable us to identify Reconstruction and reconciliation Norwegian Development Policy and 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- efforts for women’s rights have a ment Cooperation. The new Norwegian is integrated when it influ-
Certain adjustments have been
nous people, belong to ethnic, central place in this context, and Humanitarian Strategy, which has been Norway already has different national ences our own and our
made to the previous action
religious and sexual minorities partners’ initiatives and
plan: sub-chapter 5a, ‘Women’s rights developed in connection with this policy documents that govern the
and have different functional approaches to capacity,
abilities. and equality in countries affected action plan, integrates the gender 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 al action plan on women’s rights needs, right to participation and therefore emphasise how the Action evaluation during differ-
on women, peace and security
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.
of peace processes. The chapter effort to prevent and combat vio- situation, roles and rights in our work is linked to other ongoing efforts, also
also safeguard their rights,
needs and priorities. that was previously a peacebuild- lent extremism concerns all focus on climate and security. The Long-term 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
C HA PT E R 1.
PEACE AND
Panel on South Sudan
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
el
end
levels in peace and reconciliation efforts, and that everyone who is involved t o: I
lja C. H
Pho
in a peace process knows how to integrate the gender perspective in
their work.
Three former FARC soldiers
celebrate the peace agree-
Ph
o to
: Ra ment in November 2016.
idan
ALSA
Q QA F /
U N Wo m en 2018
The Syrian Women’s Advisory Board,
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.
perspective and women’s rights in a satisfactory way. tation team has chief responsibility sitions in the organisation by
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 management team. There is
ies carried out by the Council on
Peace agreements often lay the political and for appointing a member of the also a strong focus on increas-
Foreign Relations, only two per cent
institutional foundation for a country’s future, team to follow this up systematical- ing the number of women
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 good gender balance must be en-
1990 and 2017 were women.6 In leading mediation teams.
take account of the rights and needs of all citizens. sured in our own facilitation teams.
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
men and women, have a responsibility to strive for Women remain under-represented and unrec- delegations to negotiations. The is on handling and resolving
work of women mediators. In 2017,
holistic, non-discriminatory solutions. ognized for their efforts and successes in peace conflicts regionally, and it is
within the framework of the Nordic fact that few women are included
and political processes at all levels. only in exceptional cases that
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
ulation’s sense of ownership to it.4 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
2% 5% 8%
sentative to a peace process was
process if desirable.
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 signatories tee, however, of a gender-sensitive
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- and the negotiating table. In 2015, the Nordic Network of
heard and to provide input during
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
process contributed to several agreements Conflict-related sexual violence is a widespread problem and it there-
ical priority for Norway. Norway 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
It is therefore particularly important to involve both women and men the exchange of experience. Since
taken seriously and women’s gender perspective and safeguard
We support the Civil Society then the five Nordic countries
rights respected, for example women’s rights and needs could and to approach these issues from a gender perspective.
Support Room (CSSR) in Geneva, 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. peace – locally, nationally and globally. are participating in or have partici-
page 16.) could be due to limited knowledge
pated actively in peace processes.
on the mediation team’s part, This forum has become an impor-
Through UN Women, Norway
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 regional networks of women mediators
an advisory board consisting of 12 (AU) has launched AU FemWise,
cases Norway endeavours to build raise awareness and competence met for the first time in Oslo.
women (Women’s Advisory Board 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
It is difficult to involve sever- Norway contributes.10
ensured that more than 100 rep- 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
outside Syria to come together, edge among those involved and and representatives of civil society The networks agreed to take steps
challenge each other and agree to increasing civil society’s capac- concerning the different issues Ph oto: B r ian C li ff O lg uin
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
peace process has yet to be established. norm violence
work to ensure that men also promote women’s
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 gen-
der 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 nego-
tiating table. As part of the Nordic network of women medi-
ators, 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
C HA PT E R 2.
I M PL EME N TATI O N The boot of a female Afghan soldier.
Norway has helped to increase the
O F PEA CE AG RE E ME NT S
participation of Afghan women in
the military and police forces.
Norway will contribute to women participating in and
influencing the implementation of peace agreements. We
will endeavour to ensure that women’s and men’s rights, P h o t o:
Her man B ask år
needs and priorities are safeguarded in the implementa-
tion of peace agreements.
en øy
P h o t o: B e a t e L a u r i t z ran
vst ad T
F o to :M o na L ø
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.
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hm
uc
f t- B
ra
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i tli
o: Ca
P hot22 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 agree-
ments 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 there-
fore 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-
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 Phot
o : U N Wo m e n A f g h a n i s t a
n
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
been inclusive, we will endeavour that women’s organisations norms and promote gender equality.
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 rep-
and men benefit. that legitimate and representa- resents the FARC party in the
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.)
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es
al v
eS
P h o t o: H i l d26 ACTION PLAN WOMEN, PEACE AND SECURITY 27
A conscript in the Hunter Troop (Jegertroppen),
the Norwegian Armed Forces’ all-female special-
C HA PT E R 3. forces training programme.
OP ERAT IONS AND
M I S S I ON S
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 person-
nel operate, in the selection of participants and when
building competence.
re
t
va
rs
Fo
vo ld,
K jos
Ph oto: To r b j ø r n
A Norwegian UN soldier on
foot patrol in Bamako, Mali, in 2016.
a re t
Major-General Kristin Lund (right),
rs v
Fo
Force Commander of the Ph
ld,
o to
vo
: To
UN Peacekeeping Force in Cyprus rbj
os
ørn
Kj
n K jos
(UNFICYP) in the period 2014-2016. ør vold
bj , F or
or s v a re
t
o :T
ot
Ph28 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-
ing male and female learned through
et
reconciliation measures, reform and development of the security sector, development
s vold, F or s v ar
socialisation and that determine a
of the rule of law and the facilitation of humanitarian efforts and long-term social and person’s position and value in a given
context. This also means the relation-
economic development. ships between women, men, girls and
rn K jo
boys, as well as the relations between
rbjø
women and those between men.
: To
The security policy landscape in Europe has Following Government decisions, Norwegian Notably, gender does not equate to
o to
Ph
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
ed and comprehensive planning and handling of armed conflict.14 in accordance with NATO’s operations
on a par with operations and missions in other and other organisations and coalitions. Norwegian
planning. The Armed Forces’ work on
parts of the world. When operations and missions support aims, among other things, to strengthen One of the main tasks of military forces and the police in an area of
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,
terrorism, either separately or as an integrated part of other opera- cultural and demographic dimensions
operations and missions, where we can make a
in the operational environment that
difference globally. All participation shares a general focus on safe- tional methods. The intensification of transnational threats and the
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.
many extensive activities that governments, the UN and interna- The gender perspective helps to
difficult to understand and deal with situations. and international forces respect the rights of
provide insight into how an armed
The military and the police need to cooperate everyone in the area of operations. Our goal is to tional and national actors, including the military and police, are
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 opera- tion 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
inclusive societies for tactical level. This means that the role girls and boys in areas of operations, activities, The police play a central
en
sustainable develop- and responsibility of the military, as both in the short and long term. It role in society’s overall efforts to
es
dr
ment, providing access one among several actors, are both is important to continue to work on ensure the safety and general welfare
An
us
kh
to justice for all and re-examined and clarified when faced reducing the negative consequences ar of citizens, in particular through
n eM
building effective, ac- o: H
an preventive and law-enforcing activi-
with modern security threats. of operations. Pho
t
countable and inclusive 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 Expertise in this field is emphasised
of the spectrum. At the other end, compliance with international human-
in both basic training and further
they engage in efforts to ensure that itarian law.
education at the Norwegian Police
the use of force is not necessary, by Sexual violence in armed conflicts constitutes serious abuse. It is a
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-
carry out mentoring, and seek to working directly to protect civilians or tically by armed groups, while at other times it is part of the height- tioning vulnerable individuals and
Photo: Torbjørn Kjosvold,
include all parties that contribute to through building the capacity of local ened level of violence.15 In both cases, this kind of violence poses a investigating violent and sexual
major threat and has a destabilising effect both during and after a crimes. The topics ‘domestic violence’
stability, while identifying destabilising police, and thereby helping to ensure
and ‘violence against and sexual
factors. The gender perspective is one that abuse and other criminal offenc- conflict.
abuse of children’ are part of the
of several aspects that must be taken es are prevented, investigated and three-year curriculum for the bach-
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
necesary to be aware of this issue in the period prior to, during and and Preparedness, Crime Prevention
always to create peace and stability, resolving conflicts by building trust,
and Investigations. Units with special-
and a well-functioning society that without using force or threatening after a conflict.
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.You can also read
