Thematic priorities

1 Peace processes and implementation of peace agreements

Peace and reconciliation processes

Peace agreements can provide the political and institutional foundation for a country’s reconstruction, stability and development. It is therefore crucial that peace agreements are inclusive and take account of the rights and needs of all citizens. This can strengthen the credibility and legitimacy of an agreement and give the population a stronger sense of ownership. Women’s participation and direct influence are of key importance in this connection, but everyone who is involved in a peace process should work towards integrated, non-discriminatory solutions.

Norway is involved in a number of peace initiatives in different parts of the world, from exploratory talks with the goal of to bringing the parties to the negotiating table to formal peace processes and agreements that can reduce or halt fighting and conflict. Norway will continue to work systematically to increase the direct participation of women in peace negotiations, as mediators, facilitators and negotiators. Norway will lead the way by ensuring a good gender balance in its own delegations to peace negotiations and to international meetings where peace and security efforts are discussed.

Ensuring a sound gender balance in our own teams is important in itself, but also important when Norway is advising other parties and as a way of encouraging others to do the same. Where Norway is involved, we will encourage parties to include women in their delegations in a meaningful way, and to involve a broader section of the population than just the parties to a conflict in peace negotiations. Norway has a vital role to play in ensuring that facilitator teams, embassies, partners and international organisations have the necessary capacity and knowledge to promote inclusive processes tailored to the specific context.

The parties appoint their own delegations to negotiations. The small number of women included is partly a reflection of the fact that women are often underrepresented in prevailing power structures, both in the political system and in armed groups. During crises and intensive negotiations, it is also easy to lose sight of the importance of inclusive approach as part of the political agenda. In specific processes, Norway will focus on raising the parties’ awareness of the importance of a reasonable gender balance in their delegations, and support the women taking part in the processes if this is wanted and needed.

Norway will identify women who could be suitable participants and contributors at the early, exploratory stages of peace processes, and will actively support relevant bodies and organisations that can promote inclusion and women’s perspectives. Norway will do this both directly and through partners such as NGOs and international organisations involved in awareness raising and capacity building. Secrecy and closed-door negotiations can be important means of achieving progress in peace processes, but may at the same time they may make an inclusive approach more difficult. During sensitive phases, it can be difficult to include more actors in the process. Norway has to accept the framework the parties decide on for a process, but should also seek opportunities to promote inclusion and active participation.

A facilitator can play a part in raising awareness and enhancing knowledge about the value of an inclusive approach among those involved in a process, and at the same time boost the capacity of civil society. Unless the ground is prepared in the preliminary phases, civil society and local women may be excluded when a formal process is started. This is particularly true of civil society organisations that represent marginalised women’s groups or people who do not fit norms for gender and sexuality. In many societies, women play a considerable role in conflict prevention and conflict resolution at local level. It is an important goal for Norway to strengthen the link between peace and reconciliation initiatives at the grassroots level and formal peace processes, and in many cases Norway endeavours to build bridges between these levels. Where relevant, Norway will seek to ensure that women’s experience at local level is included in peace processes at national level.

In formal peace processes in which Norway plays a role, we encourage the parties to listen to civil society organisations that promote a range of women’s perspectives, experiences and input concerning the different issues discussed during the negotiations, and to integrate a gender perspective into the text of the agreement. Norway can also build up its own capacity and that of its partners to promote the gender perspective in negotiations and to build bridges between civil society and the negotiating table. We can also share our expertise in this field with the parties, and where appropriate, assist in the establishment of mechanisms to ensure that women and women’s organisations have access to the parties and to the negotiating table. Such mechanisms can improve contact between civil society and formal processes, but they cannot be equated to full participation.

Norway considers it important for a gender perspective to be incorporated into peace agreements and peace processes, and will take a strategic approach to promoting gender issues in negotiations. There are few peace agreements that adequately integrate a gender perspective and safeguard the rights and needs of different groups of women properly. This may be due to various factors. The parties or the peace mediators may see these matters as less important than other issues on the agenda. The mediation team and the parties may have only limited knowledge of the issues, or relevant expertise may be used to a variable extent and unsystematically, or civil society may not be adequately consulted. Norway therefore offers expert assistance and seeks to raise awareness and build expertise in negotiating parties and mediators. One example of the latter approach is the annual UN High-Level Seminar on Gender and Inclusive Mediation Processes, to which Norway contributes-

Conflict-related sexual violence is a widespread problem and it therefore has a central place in peace and reconciliation processes. It is important to ensure that the scale of the problem is investigated and analysed, and to urge the parties to conflicts to refrain from using this method of warfare. People who have been affected by conflict-related sexual violence must if they so wish be involved in a meaningful way. Men who have been affected by conflict-related sexual violence are often overlooked as a group. It is necessary to approach these issues from a gender perspective, and to recognise that gender may interact with other aspects of people’s identity.

In recent years, Norway has been involved in further developing the Norwegian and Nordic networks of women mediators.8 In 2017, within the framework of the Nordic network, Norway took the initiative for cooperation with other regional women mediator networks. Norway will continue the Nordic cooperation and support women from relevant regional networks, promote relevant Norwegian and international candidates to roles in peace negotiations – as participants, facilitators and experts – and demonstrate the value of networks of women mediators.

Implementation of peace agreements

The implementationphaseof a peace agreement is a critical part of the peace and reconciliation process, which involves putting what has been negotiated into practice. This phase signals the end of an armed conflict, and also provides opportunities to initiate structural changes and develop institutions based on the principles of the rule of law and respect for democracy and human rights. Research shows that the implementation of a peace agreement may influence the level of gender equality in the future and thus how rights and needs are safeguarded in both the short and the long term. Progress will not be achieved if half the population is excluded and their rights, needs and expertise are not safeguarded.

Women are often marginalised in the bodies tasked with monitoring a peace agreement, in legislative bodies whose job is to turn a peace agreement into practical politics, and in the budget discussions that make follow-up possible. Coalitions of women that have grown stronger during the negotiating phase are often split up once a peace agreement has been signed. This is natural if that they represent different interest groups, but can undermine women’s voices and influence. Support for women’s organisations and for action to promote inclusion should therefore continue after the end of negotiations. Work with coalitions and networks should be given priority when needed.

In many cases, insecurity and violence, including gender-based violence, persist after a formal peace agreement has been signed. Sometimes the level of violence increases, particularly violence against women.9 The role played by women and their active participation are directly linked to a higher risk of being subjected to violence. Higher risk and a lack of protection can undermine women’s opportunities to contribute to lasting peace.10 There should therefore be a on prevention, protection and the rule of law during the implementation phase. Norwegian police advisers can play an important role in this context, for example through capacity building, monitoring and advisory services for local and international actors in the police and justice sector.

When women human rights defenders are targeted using violence and detention, their ability to make a difference to their societies is undermined. This is a growing problem. It is therefore important to be particularly aware of their needs and support their activities. Women’s participation in decision-making processes and in gender-sensitive reintegration programmes is crucial in ensuring that women who have been members of rebel groups have the same opportunities as men in similar situations. Awareness-raising work relating to gender roles is important. People who have belonged to rebel groups and return to their local communities may find that power structures are to some extent renegotiated. Norway can provide various forms of support and competence building in such situations.

Norway is not working on its own. Our aim is primarily to provide assistance in the form of resources and policy input on partner countries’ own terms and in accordance with their needs. Norway often works through civil society organisations, other states and multilateral organisations, including the UN Secretariat, UN funds and programmes, and various regional organisations. Many of them have a key role in implementation at country level.

In cases where peace negotiations have been inclusive and have resulted in an agreement that provides substantial safeguards for women’s rights, Norway will continue to support civil society and cooperate with the parties in order to contribute to implementation of the agreement. In cases where the negotiations were not inclusive, we will endeavour to ensure an inclusive implementation phase. Norway will seek to ensure that women participate in key decision-making processes in post-conflict situations, at both local and national level. Electoral and constitutional commissions are particularly important, but women also need to have a place in the mechanisms established to monitor follow-up and implementation of a peace agreement. There should also be a good framework for legitimate and representative security structures that meet the security needs of women and girls.

2 Security policy and operations

The gender perspective and women’s participation in the security sector

Armed conflicts, natural disasters and humanitarian crises affect different segments of the population in different ways. All military and police operations and missions aim to build peace and security for everyone. Adopting a gender perspective in this work, at both national and international level, can be an important instrument for achieving this.

A gender perspective must be a key element of all work within the Norwegian defence and justice sectors towards implementation of the women, peace and security agenda. This approach involves analysing whether a conflict or crisis affects different segments of the population in different ways and whether our actions have different consequences for different groups in an operating area, regardless of where a crisis or war takes place. Other socio-cultural factors in addition to gender may affect the opportunities available to people, and whether they can enjoy peace and security. These include ethnicity, religion or belief, disabilities, sexual orientation, sexual identity and age. The gender perspective adopted by the Armed Forces and the police must therefore take into account how multiple identities intersect.

These requirements have implications for planning and implementing operations and missions, for education and training, for procuring equipment, and for managing personnel and expertise, both nationally and internationally. It is particularly important to ensure that Norwegian personnel receive proper training and adequate knowledge about women, peace and security and the gender perspective.11 Establishing and developing a network of gender advisers in the Armed Forces will be instrumental in ensuring a high level of expertise and effective integration of a gender perspective in the defence sector.

Adopting a gender perspective contributes to compliance with obligations under international law, including those relating to human rights and international humanitarian law. Modern conflicts often have severe consequences for the civilian population, and civilians frequently become targets. Whenever Norway participates in operations and missions, there is therefore a focus on safeguarding the security and safety of the civilian population in the area of operations. The Armed Forces have a special role to play in creating security, and are required to pursue an integrated approach to human security in operations at all levels. The police and other civilian organisations involved in emergency preparedness play a similar role in civilian contexts. In international operations, Norwegian personnel are expected to play a part in ensuring that local authorities and international forces respect everyone’s rights in the area of operations.

In addition to safeguarding people’s rights, a gender perspective improves situational awareness and can be an important tool for achieving the objectives of a mission.12 During operations and missions, it is vital to gather as much information as possible on the operating environment. This includes using gender analysis to identify factors that apply to the entire population, including women and girls. This is one way of improving both the quality and the effectiveness of contributions to peace and security made by the Armed Forces and the police.

Another important tool for implementing the women, peace and security agenda is increasing participation by women in security policy decisions, both military and civilian. This can encourage the integration of a gender perspective, and improve the extent to which women’s and girls’ security needs are met. Greater participation by women is also a goal in itself. For example, it is often easier for women to establish contact with and gain access to local settings that are dominated by women and thus help to develop broader situational awareness. Norway has achieved positive results by posting women police officers and personnel from the prison and probation services to make it easier to establish and maintain contact with local women and women’s organisations.

Conflict-related sexual violence

Sexual and gender-based violence may take many different forms, including conflict-related sexual violence and sexual exploitation, abuse and harassment (SEAH), which can undermine the prospects of sustainable peace and security. When such violence is perpetrated by the authorities, it constitutes a violation of fundamental human rights. Conflict-related sexual violence is also a violation of international humanitarian law, and may, depending on the circumstances, constitute a war crime or a crime against humanity. In certain situations, conflict-related sexual violence may also be a constituent element of genocide. The parties to an armed conflict must comply with their obligations by refraining from and protecting people against this type of abuse, and perpetrators must be held accountable.

Conflict-related sexual violence is acknowledged to be one of the most serious threats to international peace and security. It has longbeenrecognised as a tactic of war used by both state and non-state actors to achieve strategic, military and organisational goals.13 Who commits sexual violence, when, why and how, varies from one context to another, and it is important for thedefence and justicesector to have a thorough understanding of the interplay between these elements. In order to identify, prevent and respond to conflict-related sexual violence, it is essential that this issue is an integral part of planning and operations, both nationally and internationally. Capacity building in the Armed Forces, the police and the justice system is therefore crucial for preventing and responding to such cases.

Sexual violence is largely perpetrated against women and girls, and people who do not fit social norms for gender and sexuality. Women and girls with disabilities or with other intersecting identities may be particularly vulnerable. Men and boys are also subjected to sexual violence to a greater extent than has previously been recognised. Applying a gender perspective that takes into account a range of social identities is therefore important in identifying, preventing and responding to conflict-related sexual violence.

Sexual exploitation, abuse and harassment perpetrated by personnel involved in operations is also a persistent and serious problem. Such abuse increases the burden on individuals and local communities that are already affected by conflict. In addition, it damages trust in all operations and the personnel involved in them. It is essential to professionalise military and civilian actors and hold them accountable in order to stop such abuse. The Armed Forces and the police must therefore have good systems in place for preventing, reporting and responding to sexual exploitation, abuse and harassment perpetrated by Norwegian personnel, and must always take action when they are informed of such cases.

The Norwegian police play a part in ensuring that parties are held accountable for crimes involving conflict-related sexual violence, both nationally and internationally. The National Criminal Investigation Service is the body in Norway responsible for investigating war crimes, genocide and crimes against humanity committed abroad by people who are in Norway. The Norwegian police also contribute to the investigation of war crimes internationally, for example by seconding personnel to the International Criminal Court (ICC) in The Hague.

The scale of conflict-related sexual violence and sexual exploitation, abuse and harassment in operations is influenced by the level of sexual and gender-based violence and systematic gender inequalities before and after a conflict. This will also continue to be relevant in the Norwegian context as long as a substantial level of violence and abuse persists in the Norwegian population. Preventing and combating domestic violence and serious sexual crimes is therefore a high priority. Sexual harassment within military and civilian organisations is one example of the forms sexual violence may take during peacetime. Public trust in the Armed Forces and the police may be influenced by the ability of these institutions to prevent and respond to peacetime cases of sexual harassment and abuse. Sexual harassment in the security sector must therefore be prevented and considered in conjunction with work on and the goals of the women, peace and security agenda.

Radicalisation, violent extremism and terrorism

Violent extremism and terrorism are persistent threats, both to people in Norway and internationally, and the Norwegian Government is giving high priority to efforts to prevent and combatradicalisation, violent extremism and terrorism. This is a long-term process, and includes both national and international cooperation and knowledge exchange as key elements of the work.

The threat picture is continually changing, and must be closely monitored. The changes are exemplified by the way the internet and social media can now function as arenas for radicalisation. Furthermore, international factors and conflicts outside Norway may have implications for the domestic threat situation. The risk of growing polarisation between groups in society is another trend that is relevant to work in this field.

Some preventive work targets larger groups. However, when targeting individuals it is necessary to tailor the approach to the specific person. This makes it necessary to recognise that there are various different drivers of radicalisation, and a number of routes to an extremist mentality. Some types of action are for example suitable when working with young people, whereas others are more relevant to adults. We also know that different factors may be involved when women and men are radicalised or take part in extremist groups.15 A gender perspective must therefore be applied and assessed when preventive work is being carried out. It is important to develop the knowledge base, both on how extremism arises and on the types of action that may be effective in preventing and counteracting radicalisation and extremism. The Norwegian Government has appointed a commission on extremism to consider these issues in more depth.

In November 2022, the Government presented a revised national counterterrorism strategy.16 This provides the basis for a coherent approach across all relevant sectors to prevent radicalisation and terrorism. The strategy describes level of ambition and the thrust of counterterrorism work for the years ahead, with a broad cross-sectoral approach and public and private sector involvement. Its focus areas are regulatory development, technology development, threat communication, knowledge and expertise, and cooperation. The overall goal is to prevent, protect against, avert and respond to terrorism through a coherent and coordinated approach.

Efforts to counter radicalisation and violent extremism are broad based and target all forms of extremism. Norway’s first action plan against radicalisation and violent extremism in was published 2014. It has since been updated several times, and was most recently revised in 2020. The revised plan contains 30 measures grouped under five priority areas. There is a particular focus on early preventive efforts through channels such as child day care, schools, the police and the health services, involving building knowledge and expertise among front-line practitioners. Nine ministries and many directorates are involved in work against radicalisation and violent extremism in Norway, and the Ministry of Justice and Public Security is responsible for coordination.

At international level, Norway focuses on cross-cutting issues in counterterrorism and on efforts to prevent violent extremism. A gender perspective and promotion of the women, peace and security agenda are key elements of this work. Norway takes the role of women both as perpetrators and as victims of violent extremism very seriously. Women’s participation in counterterrorism can build bridges between local initiatives and ongoing international processes. Within the UN, Norway emphasises that a gender perspective must be included at all stages of counterterrorism work – prevention, protection, prosecution, reintegration and rehabilitation. Norway considers it important to ensure that counterterrorism measures do not violate women’s and girls’ rights, including the rights of women human rights defenders and peace mediators. Norway promoted these principles during its 2021–2022 term as a member of the UN Security Council. During negotiations on the UN Global Counter-Terrorism Strategy, Norway seeks to retain, and if possible strengthen, wording referring to the responsibilities of the UN and its member states in this area. Norway also promotes a gender perspective in all forums where it is represented, including the Global Counterterrorism Forum and projects and programmes related to counterterror and the prevention of violent extremism that receive Norwegian support.

Women and climate, peace and security

The world is facing a climate crisis. To succeed in the transformation process ahead of us, we must understand how the climate crisis will affect people and who will be hardest hit, and these groups must be able to take part in all phases of the planning and implementation of climate action. We know that climate change may have different impacts on women and men, and that it may exacerbate inequalities, but also that it may have consequences for traditional gender roles and existing power structures. Climate policy may also have different consequences for women and men. The climatecrisisthereforeincludes a clear gender component.

Women and men often have differential access to economic, political, social and cultural resources that make it possible for them to deal with the impacts of climate change. In the Global South, women are more dependent on natural resources and play a substantial part in agricultural production, which is often a mainstay of the economy. This means that it is women who are hardest hit when crops fail because of flooding or drought, and that climate action may also have the greatest consequences for women.

Climate change may aggravate already existing, underlying tensions in society, indirectly worsen local and regional conflicts, and be one of the factors driving migration. Climate change is thus a ‘threat multiplier’, which may undermine states’ ability to cope with climate change, their adaptive capacity, and risk reduction efforts. Climate-related internal displacement may also increase the risk of sexual and gender-based violence. It is therefore essential to be aware of how the impacts of climate change and climate policy may vary between population segments, including marginalised groups and people who are subject to multiple forms of discrimination. These factors must be taken into consideration when Norway supports activities such as local climate action and nature management as part of its development cooperation. Promoting sexual and reproductive health and rights17 is another important part of this picture, and is supported for example in connection with rainforest protection in Central Africa.

In many countries, women have limited opportunities to take part in public and private decision-making processes that have a strong influence on their prospects and welfare. As a result, important knowledge and women’s perspectives are excluded from policy development and the implementation of measures. This may be instrumental in maintaining a pattern of inadequate response to climate change, a focus on climate action that is weighted towards men’s priorities and areas where they play a dominant role, or the use of inappropriate adaptation measures. Omitting women’s perspectives makes it harder to achieve integrated, sustainable solutions for climate, peace and security. A number of studies have also shown that women’s networks and women peacebuilders play an important role at local level in preventing and mitigating climate-related conflict.18

Women may have a particular need and desire to take part, and also be in a particularly good position to influence policy and action to address and find solutions to climate and environmental problems and their impacts on women, whether in peacetime or in conflict and post-conflict situations. Environmental defenders are some of the human rights defenders who are at highest risk from threats and intimidation, harassment, violence and murder. Women environmental defenders therefore face even greater challenges, in addition to the general problems encountered by women in many societies. Women’s role as environmental defenders should therefore also be highlighted as part of efforts to increase women’s participation and influence locally, regionally and internationally. The aims are to benefit from women’s knowledge and experience, avoid situations that make them particularly vulnerable, and meet their needs.

At the same time, climate change may have positive effects on traditional gender roles and power structures, so that women take greater financial responsibility and acquire more power to make decisions. This has for example been observed in North Kordofan in Sudan, where women gain greater financial responsibility when men have to travel further with their livestock. Such developments can open up opportunities to strengthen the role and participation of women in conflict prevention and peacebuilding. In addition, women at grassroots level are often in a good position to identify and develop solutions for sustainable nature management and for building up resilience to climate change. Their knowledge gives women an important role to play during and after conflicts and as first responders after natural disasters. Management of natural resources, water resources and vegetation and climate change adaptation efforts can be suitable areas for cooperation, confidence building and peacebuilding locally and regionally, as Norway’s work in the UN Security Council has shown. It is vital to break down barriers to women’s full, equal and meaningful participation as a basis for such work.

There is growing recognition that nature-based solutions will be a vital part of efforts to address the climate crisis, while at the same time, a climate that supports life on earth is an essential basis for maintaining the biodiversity on which we all depend. Natural resource management will therefore be a key element of economic policy in the years ahead. We must create a more circular economy that uses resources more effectively. Women, particularly indigenous women, often possess a great deal of traditional knowledge on the management of scarce resources and ecologically marginal areas. At the same time, indigenous women’s traditional knowledge of and relationship with nature is an underutilised resource in national climate and biodiversity plans. The complex challenges society is facing in this connection make it vital to ensure that the resources both women and men have to offer are fully utilised in strategies for peace, security and welfare.

There has been relatively little research in Norway on how climate policy and women’s roles are interlinked at national level. Norway is one of the countries that has made most progress in gender equality, and it pursues a progressive climate policy. In 2021, a report on interactions between climate policies and gender in the Nordic countries was drawn up, commissioned by the Nordic Council of Ministers.19 The report identifies several links between climate policy and gender equality in the Nordic countries. For example, men are in the majority in science, technology, engineering, and mathematics (STEM) studies, which may give them an advantage in workplaces that have been identified as important in the green transition. At the same time, men dominate in the oil and gas industry, where there is a need for restructuring and emission reductions. The report concludes that Nordic climate policies lack an adequate gender perspective, and that more knowledge in this field is needed to remedy the situation.

The Norwegian Government recognises the importance of gender-specific data in developing in designing good strategies for climate, peace and security. Gender differences related to climate change must also be interpreted in conjunction with other factors such as age, ethnicity and so on. The Government is gathering more information on the links between climate change and gender equality, and has in recent years started or taken part in several initiatives focusing on this topic. There are studies that show synergies between the work of women’s networks and peacebuilders’ local efforts to prevent or reduce climate-related conflicts.

In autumn 2021, the Nordic Council of Ministers for Gender Equality and LGBTI (MR-JÄM)20 decided that the Nordic countries should undertake a multi-year effort under Feminist Action for Climate Justice, an action coalition which is part of the Generation Equality initiative convened by the UN. The purpose is to promote gender equality and women’s rights in responding to the challenges of climate change. In January 2022, Norway hosted a Nordic roundtable convened by FOKUS, UN Women and the Nordic Council of Ministers, which was entitled Gender Equality and Climate Justice. This resulted in a joint Nordic declaration on climate change and gender equality, which was presented to the UN Commission on the Status of Women later in 2022 (CSW66).21 As an elected member of the UN Security Council, Norway organised a first informal meeting of the Council on climate, peace and security in November 2022. The meeting discussed opportunities for the UN peace and security architecture, including using climate, peace and security efforts to support women in taking on leading roles in climate adaptation work, peace and security work and mediation, and recognising women as partners in efforts to achieve sustainable peace.

3 Humanitarian efforts, protection of civilians and protection of human rights

A gender perspective in the humanitarian response

Armed conflicts have severe consequences for civilians. Many people are forced to flee, both within their own countries and across national borders. This makes them more vulnerable. Violations of humanitarian law and human rights result in great human suffering and critical humanitarian needs, especially where conflicts are prolonged.

Norway will maintain its efforts to ensure compliance with international law during humanitarian crises and to ensure that protection is a key part of the humanitarian response. A gender perspective must be an integral part of all Norwegian efforts, from preparatory analyses to planning, implementation and reporting. It must be possible for those affected by crises to hold humanitarian organisations accountable, and to influence the planning and implementation of international humanitarian efforts. Norway will seek to ensure that women participate and are heard on equal terms with men. Our contribution is intended to prevent and combat sexual and gender-based violence and play a part in holding the parties accountable where such violence takes place in connection with armed conflicts, and to meet the needs and priorities of survivors in full.

The women, peace and security agenda is important in connection with several elements of the humanitarian response. Norway’s humanitarian efforts will always be based on its humanitarian strategy. It will not be possible to achieve the goal of providing effective humanitarian assistance unless a gender perspective is integrated into this work. Norway will seek to ensure that the humanitarian response meets the needs of the whole population for protection and basic services, including the needs of people who do not fit with norms for gender and sexuality.22 Women play an important role in the humanitarian response, and women of all ages must be able to take part in needs analyses and in designing the humanitarian response on equal terms with men. Norway will therefore maintain the requirement for organisations that receive funding from the humanitarian budget of the Ministry of Foreign Affairs to integrate a gender perspective into their work.

Sexual and gender-based violence is a serious problem in humanitarian crises, both during peacetime and during armed conflict. Women and girls are most at risk, but other segments of the population may also be affected. Men and boys may face other problems and have different needs from women and girls in the same situation. People who are forced to flee or are displaced may be more vulnerable. People who are subjected to these types of violence are also actors and survivors, not just victims in need of protection, and have a right to play a part in defining their own needs and priorities. Sexual and gender-based violence often leads to stigmatisation and exclusion, undermines stability and breaks down social structures. Children who are conceived through rape during armed conflict, and other children of war who have parents from opposite sides of a conflict, are particularly vulnerable.

The gender perspective and protection of the population in Norway

A gender perspective should also be an integral part of national efforts at all levels, including the preparation and revision of relevant emergency preparedness and crisis plans. This is particularly important during the preparation and revision of concepts and plans intended to ensure that the whole population receives protection, evacuation plans and planning of shelters. In this context, it is of crucial importance that other important characteristics of people are also taken into account, for example age, gender identity and disabilities. The Norwegian Directorate for Civil Protection has been tasked with further developing civil protection measures, and a gender perspective should be incorporated into this work.

Different groups are affected differently by war and conflict, and this applies both to the population generally and to operational personnel. The police are responsible for making decisions on whether it is necessary to evacuate people, and together with other civilian emergency services, for ensuring that evacuees reach safety. They need to be aware that the decisions they make have different consequences for different segments of the population. Gender roles may influence the results of mobilisation of operational personnel. For example, more women than men are single parents, which can make mobilisation more difficult.

In peacetime, the Norwegian Civil Defence provides extra personnel and equipment when the emergency services need support to deal with major incidents and disasters. In wartime, the Civil Defence is responsible for protecting the civilian population during hostilities and major incidents. A Swedish study24 related to the total defence concept found considerable differences between the situations of women and men. This is something that must be included in analyses of the population’s needs, behaviour and patterns of mobility, and of what action needs to be taken. The study found that a larger proportion of women than of men would be economically more vulnerable in the event of a prolonged crisis and/or evacuation (less access to resources, transport options, cash).

Women and conflict: protection and asylum policy

In the asylum system, a gender-sensitive approach must be taken at all stages of case processing.

Asylum seekers must be informed that gender-related persecution, including persecution related to sexual orientation and sexual identity, forced marriage and female genital mutilation, may be a basis for a right to protection in Norway. The asylum interview must be conducted in such a way that the applicant feels that it is safe to provide information. For example, women should be asked whether they want the interviewer and/or interpreter to be a woman. Other special needs should also be met as far as practicable.

Reception centres for asylum seekers are required to ensure that single women are offered accommodation that is physically segregated from accommodation for men. Centres must also do everything possible to ensure that women are not subjected to violence, harassment or sexual abuse, and must have written routines for their response in the event of violence and abuse targeting women. People who do not fit the norms for gender and sexuality may also need special arrangements at reception centres, for example a single room or transfer to another reception centre.

Reception centres must report all cases of violence and crime to the police. Residents who are the victims of criminal offences, for example rape or aggravated violence, must be given assistance to report the matter if they wish to do so. They must also be given help to contact a doctor or specialist. In such cases, the reception centre must in cooperation with the Norwegian Directorate of Immigration assess the security situation, including whether the need for transfer to another reception centre. It may also be appropriate to obtain assistance from the police to ensure that safe accommodation can be provided.

The staff at reception centres must take steps to prevent discrimination, and must seek to ensure equal treatment regardless of people’s gender, age, religion, sexual orientation, nationality and ethnicity. There are also requirements for identifying and following up women and other vulnerable groups who may have been subjected to human trafficking, domestic violence or conflict-related sexual violence. This makes it possible, for example, to organise safe accommodation and take steps to ensure that victims receive necessary assistance from other bodies.

Each reception centre must have a member of staff with the relevant expertise who can follow up women with special needs. These women must be offered individual advice and information. There are also requirements to ensure that the services and help provided to people staying at reception centres are adapted to varying needs; this could for example involve facilitating the establishment of a separate women’s group or enabling women to take part in practical activities at a centre. The Directorate of Immigration provides training for all personnel at reception centres to ensure that they are run satisfactorily. The courses include training in how to detect and prevent domestic violence.

Women human rights defenders

There are clear links between the life situation of women, the extent to which their human rights are upheld and women’s opportunities to take part in peace and security efforts. Work on the women, peace and security agenda and work on human rights and gender equality are therefore closely connected.

Intensifying unrest and conflict often puts pressure on women’s rights and security. Violence against women can undermine women’s participation in and influence on key processes. Women in conflict-affected countries often have less access to land rights than women in other countries. Without access to vital economic resources, women’s influence on peacebuilding is weakened.

Women human rights defenders play a key role in protecting everyone’s human rights, both in peacetime and in conflict situations. They may be involved in a personal capacity, as representatives of women’s and human rights organisations, or as politicians and representatives of public authorities. Through their efforts, they are also influential in strengthening women’s positions and voices in their communities and internationally. There are close links between women who promote human rights and women who take part in peace and security efforts. Some women may act in both roles at the same time.

Women human rights defenders often become the targets of threats and harassment as a result of their engagement, both because they are human rights defenders and because they are women. When women speak up in the public room or are engaged in politics and social issues, they may be perceived as challenging established gender roles. Women human rights defenders receive different types of threats from men. They more frequently experience violence, harassment and physical attacks.

It is important to strengthen the capacity of women’s organisations to put women’s rights and needs on the agenda in relevant processes and thus ensure that women’s protection needs are taken into account during these processes. Norway’s contributions include supporting the capacity of women and women’s organisations to take part in relevant peace and reconciliation processes, including multilateral forums and arenas.

Norway is also seeking to strengthen the normative protection framework for women human rights defenders in the UN.25 In spring 2022, Norway put forward a resolution on human rights defenders in conflict and post-conflict situations in the UN Human Rights Council. In the resolution, UN member states recognise the important role that human rights defenders and civil society play in conflict situations, including their role in cooperating with UN organisations and mechanisms. Member states also express their concern at the threats disproportionately faced by women human rights defenders in conflict situations.26

During its 2021–2022 term as a member of the UN Security Council, Norway worked systematically to promote participation by women human rights defenders and representatives of civil society in the Council’s work, and to raise awareness of the importance of protecting them against reprisals so that they can take part in this work safely. During its presidency of the Security Council, Norway organised a ministerial-level open debate on this topic. Norway also contributes to various arrangements, for example through the UN and civil society, to provide protection for human rights defenders who are at risk. People who are at risk of persecution because of their role and activities as human rights defenders in their home countries may meet the conditions for protection under Chapter 4 of the Norwegian Immigration Act.

Human rights defenders in exile can be an important voice for women’s rights in states where women lack a voice in the public domain. In Norway, the Ministry of Labour and Social Inclusion has broadened the criteria for allowing leave of absence from the obligatory introduction programme, including Norwegian language training and social studies. This enables newly arrived immigrants to take part in peace and reconciliation efforts at national and international level, including work to promote women’s rights. The purpose of these changes was to enable human rights defenders who are settled in Norway to continue their work and take part in international processes. The Ministry has also made it clear that the introduction programme is flexible, and that it is possible for municipalities to include the activities of human rights defenders as part of the programme.