Guidelines to the Foreign Service's Work on Women, Peace and Security - Guidelines (2019-2022)
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Guidelines (2019–2022) Guidelines to the Foreign Service’s Work on Women, Peace and Security Norwegian Ministries
Contents Preface 6 HOW WE WORK IN PRACTICE 1. Peace and reconciliation processes 12 2. Implementation of peace agreements 18 3. Operations and missions 22 4. Humanitarian efforts 26 5. Sustaining Peace 30 ✔ Checklist 34 Appendix 1. How we work on the gender perspective 39 Appendix 2. The Security Council Resolutions 40 Appendix 3. Resources 42 Appendix 4. Results framework 48
4 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 5
Preface
Twenty years ago, Norway and Sweden supported a study of women in peacekeeping
operations. The study inspired the Windhoek Declaration, which formed part of the
backdrop to the UN Security Council in 2000 recognising for the first time that women
and men are affected differently by conflicts, and that both women and men must take
part in peace and security efforts if we are to succeed.
Through Security Council Resolution 1325 and the The ideas reflected in the Women, Peace and increase our efforts for girls and women, among responsibilities in his/her section or country team,
eight subsequent resolutions on women, peace Security agenda were already part of our thinking other things by placing greater emphasis on at the embassy or in a delegation. The Guidelines
and security, UN member states undertake to ensure before the agenda was adopted, and our work participation and women’s rights, including sexual highlight key resources and references, reminds
women’s participation and rights in connection on the agenda has from the outset been based and reproductive health and rights. The plan also users about important processes and partners,
with conflict prevention and conflict resolution, on both research and practice. And it still is. The highlights the long-term, wide-ranging work for and includes tips, advice and checklists. Use it.
and in connection with humanitarian, peace- current action plan draws on new knowledge and women’s rights carried out in countries affected by
building and peacekeeping efforts. Many countries many years’ experience. This is reflected in this armed conflict. One chapter is dedicated to gender, As the 20th anniversary of Security Resolution 1325
make a substantial contribution. Seventy-nine new and updated Guidelines to the Foreign women and violent extremism. Preventing and approaches, we must be creative, goal-oriented
countries have followed up by developing national Service’s Work on Women, Peace and Security. dealing with sexual and gender-based violence and strategic. We must intensify our efforts to
action plans for women, peace and security. remain a priority throughout. make sure that plans are translated into actions.
Our Action Plan on Women, Peace and Security The action plan emphasises women’s participation Norway will contribute, which means that both you
(2019–2022) is Norway’s fourth such plan. and rights in both initial peace talks and in formal The conflicts we are facing are complex and and I must do our bit.
peace processes. We must demonstrate the same demanding. The human suffering is enormous.
The Women, Peace and Security agenda is about dedication to women, peace and security in our Our efforts for women, peace and security are part
thinking in new ways. Conflict resolution is not support for the implementation of peace agreements of Norway’s response to this suffering. Everyone in
just about who can stop a war, but also about as during the negotiating phase. Operations and the foreign service who works on issues relating to
those who can build peace. It involves more than missions both at home and abroad must emphasise peace and security must therefore contribute to
just sharing power – it is also about sharing women, peace and security, and transnational the implementation of the plan. These Guidelines Minister of Foreign Affairs
responsibility. crime and conflict must be seen in conjunction will make this possible even when work on women, Ine Eriksen Søreide
with each other. In our humanitarian work, we will peace and security is only one part of an employee’s
6 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 7
The main goals of the Government’s and Gender Equality. The latter
Action Plan on Women, Peace and describes how we organise our
It was a unanimous Security
Security 2019–2022 are to strengthen wide-ranging, long-term work to
Council that, through
women’s participation and influence strengthen women’s rights in foreign
I N T R OD U CTI O N
Resolution 1325, recognised
in Norwegian contributions to peace and development policy, and there- that women’s participation,
and security, and to ensure that by to ensure that women can rights and needs are of great
our efforts safeguard women’s and contribute to building resistance, importance to international
men’s rights, needs and priorities. preventing conflict and maintaining peace and security. A Security
Council Resolution is legally
At the same time, we will endeavour peace. Through this new Action Plan
binding on all UN member
to ensure that the international on Women, Peace and Security, we states. The member states and
effort under the auspices of the will therefore also strengthen the the UN’s own bodies are there-
UN and regional organisations is implementation of the Action Plan fore obliged to
The Action Plan on Women, Peace and Security correspondingly strengthened. This for Women’s Rights and Gender
• increase women’s
sets out Norway’s policy for following up the applies to: Equality in countries affected by
participation in and
armed conflict.
resolutions on women, peace and security. influence on processes
relating to peace and
These Guidelines are an aid for the foreign • peace and reconciliation Chapter 5b states that the different security
service missions, the Ministry of Foreign Affairs processes gender roles of women and men • protect women and girls
will be emphasised and the gender and their rights in conflict
and Norad – a tool that will help to translate • the implementation of peace perspective integrated into Norway’s situations
• integrate a gender
policy into practice. The Guidelines supplement agreements efforts to prevent and combat
perspective in international
the Action Plan and must be read together violent extremism. The Action Plan operations
• operations and missions also shows how the international • integrate a gender
with it. effort and national measures are perspective in the UN’s work
• humanitarian efforts part of the same whole. relating to conflict, peace
and security
While responsibility for following up
The work on preventing and the efforts for women, peace and
combating conflict-related sexual security in international operations
violence will be integrated in peace and missions largely rests with the
and security work and linked to all Ministry of Defence and the Ministry
the focus areas in the plan. of Justice and Public Security, the
foreign service supports these
We have called Chapter 5 of the efforts. The chapter in the Guide-
plan ‘Sustaining Peace’. Chapter 5a lines about operations and missions
clarifies how the efforts for women, describes how the foreign service
peace and security are related to can contribute to Norway’s work in
the Action Plan for Women’s Rights this area.
8 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 9
A results framework has been a resolution recognising that women Why?
developed in order to document and men are affected differently by
The Convention on the
the effects of our efforts for women, war and conflict, that women must Women’s participation in peace and The UN Secretary-General’s annual reports to the
Elimination of Discrimi-
nation against Women’s peace and security. The results be protected against violence in reconciliation processes is a goal in Security Council – an important information source
General Recommendation framework covers the activities of conflict situations and that women’s itself, and an important means of
No 30 all ministries with responsibility for participation and rights are crucial achieving sustainable peace, econo- Every year the UN Secretary-General presents his report to
implementing the plan,1 and it is to international peace and security. mic growth and welfare. the Security Council on the fulfilment of obligations relating to
The recommendation states included at the end of these Guide- The normative framework has been women, peace and security. The report forms the backdrop to
that the Convention applies
lines. To enable systematic analysis expanded since 2000. Eight new • Women have a right to participate an open debate in the Security Council on women, peace and
universally and under all
circumstances, also in conflict of the results, it is important that resolutions have been passed: five in processes that concern their security, which is usually held in the last week of October. The
areas, and to everyone, both relevant entities contribute infor- on sexual violence in conflicts, seve- future. report contains a lot of useful information about the status
citizens and non-citizens, within mation about results in accordance ral that raise the need for fund-ing • Women, men, girls and boys have of the UN’s and member states’ efforts in this area, the UN’s
a territory. It states that both with the framework. and technical assistance, and the different needs that must be met in ambitions, identified challenges and possibilities.
states and non-state actors last resolution, which, among other different ways.
have a duty to fulfil international
things, emphasises the importance • Integrating a gender perspective Note also the annual open debate in the Security Council on
human rights obligations in
relation to women in conflict What? of linking the work on women, pea- is decisive in order to arrive at a conflict-related sexual violence. This debate usually takes place
situations. It underpins the ce and security to combating violent better analysis of the challenges we in April. The UN Secretary-General also presents a report in
Security Council resolutions The term ‘women, peace and security’ extremism. See the list of are facing and to ensure access to this context – an important point of reference in the efforts to
on women, peace and security (WPS) refers to nine resolutions pas- security council resolutions and possible solutions. combat such violence.
and links the resolutions to the sed by the UN Security Council (SCR their main messages in Appendix 2. • Women’s participation in processes
Convention.
1325, 1820, 1888, 1889, 1960, 2106, relating to peace and security is a It is worth noting that other organisations, such as the
The recommendation also 2122, 2242 and 2467). Most states in the world, Norway precondition for sustainable peace. Organization for Security and Co-operation in Europe (OSCE)
contributes to women, peace included, have ratified the UN • Women’s participation increases and the African Union, often hold debates on the same issue
and security being included in The resolutions have the following Convention on the Elimination national and international legiti- during the same periods, October and April, respectively.
the reporting mechanism that is overall objectives: equal participation of All Forms of Discrimination macy and strengthens the popu-
built into the Convention on the and influence for women in the against Women (CEDAW). The lation’s ownership and thereby It is important that Norway plays an active role in the fulfilment
Elimination of Discrimination
work on preventing, handling and UN Committee on the Elimination implementation capacity. of obligations to women, peace and security going forward,
Against Women. It is important
for the embassies to keep this resolving conflicts, and stronger of Discrimination against Women among other things by making concrete and good contributions
in mind in their dialogue with protection of women, girls, boys (the CEDAW Committee) has issued to these debates.
the authorities in connection and men, particularly against sexual general recommendation no 30,
with reporting to the CEDAW violence. which contains concrete measu-
Committee. res for how states can safeguard
Security Council Resolution women’s rights before, during and
1325 was passed in 2000. It was a after conflicts.
groundbreaking resolution. This was
the first time that the UN’s supreme
body for peace and security adopted
1. Including subordinate agencies and foreign service missions.
10 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 11
MYANMAR
How? • earmarking of funding for women,
peace and security. The Action
No one represents
Norway works on women, peace Plan on Women, Peace and Ethnic groups in Myanmar have been in armed Myanmar does not have its own national 1325
everyone
and security in different ways: Security states that the gender conflict with the central authorities since 1962. action plan. The embassy therefore supports the
Like men, women are a hetero- perspective must be an integral Today, there are around 20 operational armed important work done by UN Women to contribute
geneous group. Women have • We work normatively in mul- part of all efforts in vulnerable ethnic groups, and the country is characterised by to the implementation of action plans at regional
different agendas and priorities. tilateral forums: through nego- states and in all countries affected strong male-dominated traditions after many years level – as we have seen in Mon, Kayin and Kayah
Women who engage in politics tiations about resolutions and by armed conflict. We make targe- under military rule. There is very little participation states.
cannot be expected to represent
debates, political discussions ted efforts, among other things in and leadership by women in society as a whole, and
the experience and opinions of
all women. and concrete measures. The UN relation to women’s employment especially in the peace process.
is a main actor in this context, and including the gender perspe-
When we are involved in but NATO, the OSCE, the African ctive in security sector reform. The embassy’s work in relation to women, peace
facilitating peace processes, Union and other regional actors Norway is an important donor to and security is therefore wide-ranging. Support
as dialogue partners in conflict are becoming increasingly impor- multilateral organisations, and we for women’s networks at the local level – aimed at
prevention, the implementation
tant. At the normative level, we will use this position to advance participation in regional decision-making processes
of peace agreements and in
peacebuilding, and in humani- emphasise countries’ responsi- the work on women, peace and – is important. The same applies to facilitating parti-
tarian efforts or in other roles, bility, the rights perspective and security and to hold UN agencies cipation by women representatives in formal peace
we must take a broad approach women’s participation. accountable for fulfilling their conferences. This includes both capacity building
to inclusion and the gender obligations in relation to women, and support for travel. The embassy supports the
Ph o
perspective. • We pursue an active political peace and security. establishment of platforms for network building and t o: T
he em go n
b as s y in Yan
dialogue with the authorities exchanging views, as well as independent media
Examples of relevant issues:
• National women’s in different countries. Norway • We support civil society’s coverage of vulnerable voices in conflict areas so
organisations do not always will contribute to accountability, efforts for peace and security. that they can be heard by decision-makers.
represent women’s needs based on countries’ own commit-
and challenges at the grass- ments, also as regards sensitive • We support and use research in In October 2018, the embassy organised a gathering of
roots level. Is it necessary to questions. Knowledge about order to ensure an evidence-based Norway’s priority countries for work on women, peace
consult more actors? and security. Here, representatives of the embassy are in
national and local conditions is approach to implementation of
• Indigenous peoples and dialogue with local partners.
minorities often face important: What commitments the resolutions. The Action Plan Yang
on
P h o t o: T h e e m b a s s y i n
challenges as regards access has the country taken on? What contains examples of this.
to political processes. Do they needs and priorities do the diffe- See also the list of resources in
need our help in order to rent women’s groups emphasise? Appendix 3 to these Guidelines.
be heard?
• Lesbian, bisexual and trans
• We give financial support. The following chapters describe how
women are often at greater
risk of sexual violence and The Ministry of Foreign Affairs we work in practice.
abuse. Have we thought administers grant funds for work
about what this means for on peace and security and for The Guidelines also include examples
how we plan our work? humanitarian work via different of how we work in different contexts,
budget items, with some both at country level and in New York.
Ph o
Norway’s embassy in Myanmar has a good dialogue t o: T h
e emb as s y in Yangon
with the women members of parliament in Naypyidaw.
12 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 13
C HA PT E R 1.
Norwegian diplomats must themselves • Endeavour to ensure that
place women, peace and security women have an opportunity to
GENDER-SENSITIVE
on the agenda, and they must call influence the negotiations and
PEACE AND RECONCILIATION
CONFLICT AND ACTOR
for female participants in formal decision-making processes by ANALYSES
negotiations, in various consultations, • working to raise the parties’
on committees, hearings etc. that awareness of the benefits of Some basic questions we
PROCESSES
take place in and around peace and inclusion, should ask:
reconciliation processes.2 • helping to ensure that the • How does the conflict affect
women and men, girls and
parties in a peace process
boys?
In peace processes in which Norway is increase the proportion of • How do the agenda items
involved, we shall: women in their delegations, reflect these considerations?
• proposing that women’s • Who represents the parties
Norway will endeavour to ensure that peace and reconci- • Endeavour to ensure a good organisations can participate and other actors involved
gender balance in our own as observers during the (both women and men)?
liation processes in which Norway is engaged involve both • Who is not included?
teams and that there are women negotiations,
women and men, and that peace agreements include both among our special envoys. • supporting and facilitating
• Who are the change agents?
women’s and men’s rights, needs and priorities. parallel consultations for civil
• Carry out gender-sensitive society, and ensuring that civil
Also in initial discussions, Norway will prepare the ground conflict and actor analyses. society’s views are presented,
for inclusive processes that safeguard both women’s and discussed and taken into
• Create a simple strategy or plan account in decision-making
men’s rights, needs and priorities. for how women’s participation processes,
and a gender perspective can be • making practical and logistical
taken into account in the peace support available, for example
negotiations and in the dialogue transport and security, when
with the parties. necessary.
• Offer technical assistance and • Support women’s organisa-
expert help to peace mediators, tions’, women human rights
facilitators, the parties and defenders’ and peace workers’
women’s organisations relating role as monitors in peace and
to how a gender perspective reconciliation processes and as
can be integrated into the actors that can hold the parties
peace negotiations. accountable for following through
their commitments.
2. See O’Reilly, O’Suillebaihn & Paffenholz, 2015 for an analysis of different forms of inclusion.
14 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 15
• Help to ensure that preventing The above guidelines also apply
and combating sexual violence
THE BUILDING BLOCKS are part of peace and reconciliation
to preliminary dialogue initiatives.
The minimum goals for this phase
processes and the peace agree- should be to
Create a space for women to enter, remain and contribute effectively ment, and ensure that the rights
in peace processes requires an enabling environment. This includes: of survivors of sexual violence – • emphasise international
women, men, girls and boys, as commitments to ensure
well as children born of war – are women’s participation and
safeguarded. This can be done at rights, and national and
several levels. It is important to international benefits of
take a comprehensive approach, following up commitments,
for example by supporting • highlight the connection
Equality before Inclusivity as a Security & between inclusive processes
the law social & cultural protection from • preventive measures and and sustainable peace, how
norm violence mechanisms for monitoring broader consultations affect
abuse, the credibility and legitimacy
• security sector reforms and of an agreement, the
states’ ability to hold perpe- population’s ownership of the
trators accountable within the agreement and thereby also
bounds of transitional justice, the capacity to implement it.3
• women’s organisations and • urge the parties to include
others who are working to women in their delegations,
combat sexual violence and • identify women’s groups that
Social services Presence & support
support survivors, could play a role if the
(e.g childcare) for women’s
movement • zero tolerance of abuse by discussions evolve into a
UN personnel, and be a clear peace process.
advocate for this.
The Section for Peace and Recon-
• Endeavour to ensure that ciliation has two general priorities
initial peace talks also prepare for its work: women, peace and
the ground for an inclusive security, and transitional justice.
process that safeguards both The section has adopted a separate
women’s and men’s rights, needs strategy for following up women,
Access to Financial Logistic support
and priorities. peace and security in its peace and
knowledge support (e.g visas,
& training transportation) reconciliation work. More information
can be sent to embassies and country
teams on request.
* www.unwomen.org/en/digital-library/multimedia/2018/10/infographic-womens-meaningful-participation-builds-peace
3. Jana Krause et al. Women’s Participation in Peace Negotiations and the Durability of Peace. International Interactions (2018).
16 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 17
MOZAMBIQUE
Peace and reconciliation processes Norwegian support. It is available
can give rise to difficult dilemmas, in several languages, and several
THE NORWEGIAN
for example in the efforts to include animated films have been produced The Norwegian embassy in Maputo supports the Mozambique launched its Action Plan for Women,
NETWORK OF WOMEN
MEDIATORS women. Ask the Section for Peace that are freely available on YouTube. peace process in Mozambique in several ways. Peace and Security in June 2018, with Norway as a
and Reconciliation for help in The Better Peace Tool contains practi- Norway is a member of the Contact Group for the strategic partner. A Memorandum of Understanding
At the beginning of 2019, the assessing long-term and short-term cal advice and tips about how to Peace Process together with Switzerland (chair), (MoU) formalising the partnership was signed by
Norwegian branch of the Nor- benefits in different phases of contribute to women’s participation the USA, the UK, Botswana, China and the EU. both countries during the visit by Mozambique’s
dic network had 50 members. peace processes. and how to participate more actively Norway also provides an expert in disarmament, President Filipe Nyusis to Norway in November
All of them have experience of
in peace processes. You can find demobilisation and reintegration (DDR). 2018. Norway supports the implementation of the
working on peace processes.
Some of them are experts in The International Civil Society Action this guide by searching for action plan via UN Women.
process design, the inclusion Network (ICAN) has developed the The Better Peace Initiative.
of women in peace proces- guide The Better Peace Tool with
ses, strategic communication
in peace processes, national Mozambique’s armed
dialogue or transitional justice, forces and police play
while others have experience an important role
from UN Peacekeeping Forces, in connection with
police and security work or implementation of
work with civil society. Gender Equality Minister the country’s Action
Cidalia Oliveira, Ondina da Plan for Women,
Use the network if you see Barca Vieira from UN Women Peace and Security.
possibilities in your country. WOMEN’S REPRESENTATION and Ambassador Anne Lene Here from the launch
Consider whether it could be Women remain under-represented and unrecognized Dale at the launch of of the plan in June
useful for you for someone for their efforts and successes in peace and political Mozambique’s Action 2018.
en
from the network to contribute processes at all levels. Plan for Women, Peace
r in
i
ka
O
to the work in the country whe- and Security. n/ Jaa
na
ome
re you are. Offer experience WOMEN’S REPRESENTATION IN P h o t o: U N W
sharing and expert assistance MAJOR PEACE PROCESSES
to the authorities, women’s
organisations or other groups between 1990 and 2017
it is natural to support. Re-
sources have been allocated to
cover travel and accommodati-
on expenses if it is not possible
for the embassy to cover these
expenses. Contact the Section
for Peace and Reconciliation 2% 5% 8%
for more information.
Mediators Witnesses & Negotiators
See also PRIO’s website https:// signatories
www.prio.org/Projects/Proje-
* www.unwomen.org/en/digital-library/multimedia/2018/10/infographic-
ct/?x=1770. womens-meaningful-participation-builds-peace
en
ar in
P h o t o : U N Wo m e n / J a a n a O i k
18 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 19
C HA PT E R 2.
To contribute to this, we will: and security in Norway’s work in
support of the implementation
• Have the same focus on women’s of a peace agreement.
IMPLEMENTATION
participation in the implemen-
tation phase as in the negotia- • Endeavour to ensure that disar-
ting phase. This means that we mament, demobilisation and
OF PEACE AGREEMENTS
must work for women’s partici- reintegration programmes do
pation in all councils, committees not have negative consequences
and mechanisms for following for girls, women, boys or men,
up the agreement, for example and try to ensure positive effects
in connection with constitutional for all. This also applies to work on
and security sector reform, in peace the reintegration of child soldiers.
When Norway supports the implementation of peace monitoring mechanisms and in • In reintegration programmes,
agreements, we must endeavour to ensure that women structures aimed at ensuring account must be taken of the
transitional justice. different roles women and girls
participate and have influence and that both women’s can play in a conflict. What
and men’s rights are safeguarded. • Support civil society organi- attitudes they might be faced
sations and women’s groups with when they move back to
that have or may play a role in or to a new place should be
the implementation phase. studied. Conflict prevention
measures should be included
• Endeavour to ensure that the in the programme.
clauses in the peace agree- • Camps must have secure
ment that address women’s facilities for women and girls,
rights are respected and that and training that is provided
general clauses in peace agree- must be adapted to women
ments are implemented as re- and girls, both in practical
gards women’s rights and needs. terms (security, child care
provision) and socially.
• Help to ensure that conflict
analyses carried out by donor • Support integration of the gender
groups, the UN and other partners perspective in the rebuilding of
have a gender perspective. the justice sector and in
Consider whether it is necessary connection with security
for us to conduct such an analysis. sector reform (SSR). Among
other things, this will mean that
• Develop a simple strategy for • women shall be guaranteed
following up women, peace due process and access to20 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 21
CONSULTATION MECHANISMS IN COLOMBIA
the legal system, and that are satisfactorily safeguarded It is important to be aware that
women’s rights and as regards access to the the biggest problem is not
equality must be included courts, legal assistance etc. necessarily sexual violence In Colombia, Norway makes wide-ranging efforts for meet women’s groups to discuss specific security
in justice sector and and abuses committed by women, peace and security. Among other things, it challenges and other pressing needs. These security
defence sector reform, in • Support measures that armed fighters, and that sexual supports the work carried out by the Geneva Center dialogues involve women from different backgrounds,
both operational guidelines involve men and boys in violence committed by intimate for the Democratic Control of Armed Forces (DCAF) including indigenous people, Afro-Colombians,
and through the right to awareness-raising work aimed partners is widespread in to promote security and public welfare services farmers etc. DCAF also offers capacity-building
participate and work, at combating gender-based conflict areas. for women and marginalised groups. The project to the women who take part. The consultation
• discriminatory laws should and sexual violence in conflict primarily focuses on the areas that have been worst mechanisms are linked to the Colombian police’s
be identified, and it should situations. At the same time, • Support measures relating affected by the conflict. DCAF has established mobile gender equality unit, which helps to combat
be considered whether to it is important to remember to the gender perspective consultation mechanisms whereby the authorities gender-related violence in the same areas.
support endeavours to that men and boys can also in the work on the preven-
amend them. Today, be victims of sexual violence tion of violent extremism
inequalities between in conflict situations and that (PVE). Such measures can
women and men are still the number of unreported include measures to mobilise
enshrined in law in 155 cases is high. Both boys and women’s organisations in the
countries. men and girls and women effort against violent extremism, The Colombian organisation
can also be victims of forced locally, regionally and globally, ‘Fundación Mujeres del Mundo
• Oppose the granting of recruitment as soldiers and and measures that help to Anna Perenna’ supports women
leaders in the village of Tutunendo
impunity for sexual violence. child soldiers. defend women’s lives, health
in the county of Chocó.
This can be done, among ot- and rights as part of the fight
her things, by supporting the • Monitor the situation for against violent extremism.
improvement of legislation and human rights defenders
the justice sector’s capacity and peace workers, and P h o to
: E s te f a n
to deal with cases of sexual assess what freedom of action i a Pa rd o
violence. and security is available to
active and high-profile women.
• Support transitional justice They play a key role during
arrangements that involve the implementation phase.
alternative methods for In that context, it should
reparation and justice. These be considered whether to
processes should be initiated support their work politically
at a point in time when they and financially.
are perceived as legitimate
by the population and across • Seek partners who are
lines of conflict. They must engaged in combating
include mechanisms that domestic violence in
Ph
o:
ensure that women’s rights conflict situations.4
ot
Es
te
fan
ia P
a rd
o
4. Human Security Report, 2012.22 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 23
C HA PT E R 3.
To contribute to the achievement of sent on international operations
these goals, we will: and missions, and inviting
women with this kind of expe-
OPERATIONS
• Endeavour to ensure that rience to participate in rele-
peace operations have strong vant forums and discussions.
mandates that take account
AND MISSIONS
of both women’s and men’s • Work to ensure that the UN,
security needs and strengthen NATO and the OSCE integrate
women’s position. the gender perspective in
their work.
• Highlight women, peace and
security in the UN, NATO and • Support the multilateral
In all operations and missions, one of the goals is to the OSCE in contributions to de- collaboration aimed at pro-
ensure the security and safety of the whole population. bates and relevant side events, tecting women, children and
in dialogue with secretariats and men from sexual violence,
This is achieved by making the gender perspective the other countries’ representatives, for example by working for
basis for the actions of the organisation and personnel, in budget discussions and in more cooperation in vulnerable
other important forums. regions between international
for how personnel are selected for participation in
organisations such as the UN
operations and missions, and for their contribution to • Work for greater women’s and Interpol.
building competence. representation in peace
operations, including by • Establish and maintain contact
• proposing Norwegian women with relevant actors in peace
for international missions, operations about women,
also in leading positions, peace and security.
• supporting other countries’ Where the UN, NATO or the
efforts to increase the pro- OSCE have operations in which
portion of women in their Norway takes part or contributes
contributions, substantial support, or other
• supporting research that considerations call for this, our
contributes to increasing embassies, delegations and/or
knowledge about women’s country teams shall, preferably
participation in operations and in cooperation with others,
missions, to ensure that the • establish and maintain contact
measures we take are well with the leadership of the
founded and relevant, operation about women’s
• helping to raise the profile of participation and men’s and
women who are or have been women’s role in the operations,24 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 25
SOUTH SUDAN
• ask what is being done about representatives in operations
women’s rights and protection, and missions.
and how sexual violence is being The civilian population has been the main target To lay the foundation for a sustainable peace, the
prevented and followed up. • Where relevant and possible, in the conflict in South Sudan, which has largely negotiations had to be demilitarised and represen-
our embassies and delegations followed ethnopolitical divisions. After several tatives of civil society had to be included to a greater
The work of other regional organi- should take steps to facilitate decades of war, South Sudan is a militarised society, extent. Norway has worked strategically, among other
sations and operations is also worth regular contact with the those and sexual and gender-based violence is commonly things by cooperating with women’s organisations
following up closely, for example the deployed on operations and used as a weapon in the conflict. Only six per cent and UN Women. In cooperation with the UK, the em-
work of the African Union. missions, thereby strength- of girls complete lower secondary school and about bassy has strengthened the gender perspective
ening Norway’s voice in the 50 per cent are married before they are 18. in the monitoring bodies for the peace agreement,
• Maintain close contact with dialogue with national autho- and especially monitoring of the truce, to ensure that
Norwegian representatives rities and with the leadership Women in South Sudan have sexual abuses are documented and reported to the
on operations and missions. of the operation, and making succeeded in joining forces across regional cooperative body IGAD. Contact was establis-
• We must challenge and support Norway’s contribution as dividing lines. Here, together with hed between the women’s network, representatives
Norway’s Special Envoy for Women,
the efforts for women, peace coherent, goal-oriented and of the troika countries and IGAD’s special envoy for the
Peace and Security, Marita Sørheim-
and security made by our consistent as possible. Rensvik, at a meeting at UN Women peace process. This helped to strengthen the women
in Juba. organisations’ participation in the negotiations. The
result was that the revitalised peace agreement states
that there must be at least 35 per cent women on
the different committees and political bodies.
The challenge now is to ensure that commitments
are followed through.
ho
P
to
:M
on
aL
øvst
ad Tranø y
In Entebbe:
Representatives
of the South Sudan
women’s coalition
and deputy head
of the Norwegian
embassy in Juba
meet members of
parliament from
Uganda.
ho
P
to
:E V
E26 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 27
C HA PT E R 4.
To ensure that our efforts have an • Collect and spread best
integrated gender perspective, we shall: practice from the humanita-
We should be particularly
rian organisations that have
H U M A NITAR IAN
aware of the needs of
• Ensure that women and men come furthest in integrating the • refugees and internally
who are affected by a human- combating of sexual violence, displaced persons,
itarian crisis have influence also against boys and men, in the • women of reproductive age,
EFFORTS
over the humanitarian response. planning of humanitarian efforts • children born of war,5
at the strategic and operational • women and men subjected
to discrimination of different
• Make sure that both women’s level.
kinds, for example on the
and men’s rights are safe- basis of sexual orientation,
guarded in the humanitarian • Collect information and expe- ethnic and religious identity
response. This includes sexual and rience from representatives or impaired functional
Norway’s efforts in humanitarian crises must safeguard reproductive health and rights. of civil society at country level ability.
women’s and men’s, girls’ and boys’ rights, and their different who are endeavouring to ensure
• Work on the basis of the that gender-based and sexual
needs and priorities. The Action Plan on Women, Peace and humanitarian principle ‘Do violence is included in the prepa-
Security and the Humanitarian Strategy provide guidelines no harm’. This also means that rations for and implementation
humanitarian aid must be designed of international humanitarian
for this work.
in such a way that it does not create efforts.
new conflicts or discrimination –
including on the basis of gender. • Be a driving force for
ensuring that UN agencies
• Expect recipients of Norwegian comply with relevant guidelines
humanitarian funds to carry for inclusion of the gender per-
out needs analyses that identi- spective and combating of sexual
fy the needs of different groups, violence in humanitarian efforts,
and that this will form the basis including the Gender Handbook
for how the humanitarian efforts and guidelines from the Inter-
are organised. Agency Standing Committee (IASC)
(see the list of resources in
• Expect humanitarian aid Appendix 3).
organisations that receive
Norwegian support to report • Offer expertise and advice
on how women, peace and on the gender perspective and
security is integrated into all protection in field operations,
parts of the planning, implemen- including continuing to support
tation and evaluation of efforts in the Protection Standby Capacity
crises and conflicts. Project (ProCap), Norwegian
5. ‘Children born of war’ is now an established term. It includes children conceived as a result of abuse, but also includes all children born during and after conflicts
and wars, where the father belongs to the enemy, an ally or a peacekeeping force, and the mother is a member of the local community.28 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 29
NEW YORK
Expert Deployment Capacity • Help to ensure that donor
(NorCap) and the Gender Capacity cooperation and coordina-
Standby Project (GenCap), tion at country level takes Norway’s work for women, peace and security at 8 per cent of peace negotiators and 5 per cent of
which are administered by the account of the work on women, the UN in New York. witnesses and those who sign peace agreements.
Norwegian Refugee Council and peace and security in different Norway has extensive experience of peace processes
are a resource in this field. phases of the response to crises In 2020, we will celebrate the 20th anniversary of and women’s rights and participation – and we are
and conflicts – from emergency the first resolution on women, peace and security. more than happy to share it! In 2019, Norway is a
aid to assistance and reconstru- The issue is more relevant than ever before. We member of the UN’s Peacebuilding Commission
ction in the medium and long have succeeded in putting in place a good norma- and we will also make active endeavours to move the
term. This must include prote- tive framework from the Security Council. Norway topic higher up the agenda. In New York, Norway
cting whistleblowers who report is now focusing on concrete follow-up on the gro- chairs the Group of Friends for the Prevention of
abuses within humanitarian und, also in the UN. There is still a long way to go Violent Extremism together with Jordan. Through
organisations. despite expressions of support from UN member the Group of Friends, Norway works to ensure that
states. The Secretary-General’s report shows that the gender perspective is integrated into the UN’s
women make up 2 per cent of peace mediators, work on terrorism and violent extremism.
Pho
to:
UN
Ph
oto
/Lo
ey
Fe
lip
e
Mona Juul, Norway’s
ambassador to the UN, is Norway’s voice
Children on the way to school in Aleppo, at the UN Headquarters in New York. For Norway,
Syria, 2017. the Security Council is one of the most important arenas
for placing women, peace and security on the agenda.30 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 31
C HA PT E R 5.
Women’s rights and gender Women, gender and violent
equality in countries affected by extremism
armed conflict.
SUSTAINING PEACE
• Undermining women’s rights is a
REMEMBER: common goal of most extremists
The Action Plan on Women, Peace — including far-right extremists.
PREVENT CONFLICTS,
and Security and the Action Plan Women are affected at an
for Women’s Rights and Gender early stage and often by violent
Equality both govern how peace- extremists’ ideology and warring
building efforts are implemented in activities.
BUILD AND SUSTAIN PEACE countries in conflict and post-conflict
situations.
•
•
Sexual violence is a significant
part of extremist violence.
Many violent extremist groups
Illustration made for
Norway’s Action Plan for
Women’s Rights and
Gender Equality in Foreign
Norway’s efforts in support of limit, distort or exploit men’s
and Development Policy
women’s rights and gender equality and women’s gender roles 2016-2020: Freedom,
in its foreign policy and development strategically. empowerment and
The different phases of the peacebuilding process are intertwined. policy focus on five areas: • Women’s key role in the family and opportunities.
Reconstruction and reconciliation are often immediately followed society is sometimes exploited
• Girls’ right to education in connection with preventive
by both conflict prevention and new conflict resolution. The work on • Women’s political rights and measures, so that their security
preventing and combating violent extremism has points of contact participation is threatened and their loyalty to
• Women’s economic rights and the family challenged.
with all our work for peace and security. To build sustaining peace,
participation • Some women join terrorist groups,
women rights and gender equality must be given a central place. • A life free from violence and serve as foreign fighters and
harmful customs recruit others to these groups.
• Sexual and reproductive health A gendered approach is therefore
and rights required.
• Many women are influential
peace workers who prevent
and resolve conflicts, also in
the face of violent extremism.
Recognition of these facts must
permeate our work on preventing
and combating violent extremism.32 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 33
LEBANON
Lebanon has a long way to go before women are The Lebanese authorities are contributing by
admitted to the political arena as equal participants preparing a National Action Plan on Women, Peace
and decision-makers. When the government was and Security. At the same time, however, endeavours
formed in 2019, four of the 30 ministers appointed must be made to ensure that the plan produces
were women. That is a higher number than in concrete and practical results. Far too many decisions
any previous government, and it includes the first are taken behind closed doors and in forums where
woman Minister of the Interior in the Arab world. women are not allowed to participate. As elsewhere,
Six of the 128 representatives in the newly elected many women feel that they come up against a wall
parliament are women, compared with four in the of tacit resistance. It is important to constantly
previous one. In the security sector, there is a remind the national authorities about this, and to
corresponding lack of women in leading positions. endeavour to ensure that, through their activities,
Decision-making structures and leaders often the UN, the World Bank and civil society contribute
choose to reinforce cultural and other normative to creating a more gender equal society with equal
systems that perpetuate differences between political and economic opportunities for women
women’s and men’s participation in the life of society. and men, girls and boys.
There is a great need to raise awareness of the
Women, Peace and Security agenda in Lebanon.
t
iru
Be
yi
n
ss
ba
e em
h
o: T
Phot
Ambassador Lene
Natasha Lind with
Major Makki from
the Lebanese Mine
Action Center.
Major General Kristin Lund is
head of the UN’s Truce Super-
vision Organization. Here
together with representatives
Ph
o to
of the Lebanese army.
: Gu
nna
r Gab
r iels en34 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 35
A special effort and reporting are and their possibility of improving
expected of the embassies in the their situation themselves.
countries selected as priority countries Also think gender when
for the action plan: Afghanistan, country strategies are being
C HE C K L I S T Colombia, Mali, Myanmar, Nigeria,
Palestine, the Philippines, Syria and
prepared.
South Sudan. Our delegation to the 3. Make women, peace and security
African Union is included in the same a permanent agenda item in con-
follow-up. versations with all relevant actors:
partners, the authorities, the UN
1. Always think about how women and multilateral organisations, other
are represented and visible in countries and important individuals/
Norwegian embassies in countries affected by meetings and delegations. organisations in society.
armed conflict shall follow up women, peace • Do women participate and
who represents them? 4. Be aware of the country’s
and security, in both political dialogues and
• Do the women in our team commitments and its own goals, and
development cooperation. The approach have visible and active roles? hold the authorities accountable for
taken must be adapted to the role Norway • Do we call for participation following through on them.
by women in meetings and • Familiarise yourself with ratified
plays in the context in question, as facilitator, negotiations? conventions, national action
mediator, aid donor etc. • How do we follow up the issues plans or legislation relating to
women raise in discussions women and gender equality.
and negotiations? Make active use of the reporting
• How do we highlight women’s on the Convention on the
contribution in social media? Elimination of All Forms of
Discrimination against Women
2. Think gender when analysing the and the Universal Periodic Review
conflict and the actors, and when (UPR). Pay close attention when
the process is being designed. This the reports are being prepared
involves, for example, interpreting and debated. Take note of
• differences in men’s and recommendations and how
women’s participation, they are followed up.
• the use made by the different • Support the authorities’ follow-
political actors of gender roles up of national commitments
and gender equality issues in in relation to women, peace and
their ideology and recruitment, security. If relevant, support
• differences in men’s and the preparation of national
women’s security situation commitments, such as action36 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 37
plans for women, peace and Be particularly aware of the resource 8. Call for active participation by wo- 11. Include messages about women,
security. Note that UN Women Norwegians deployed on operations men’s organisations, national gender peace and security in background
has produced guidelines to and missions represent for the equality bodies or similar in dialogues updates, speaking points, reporting
working on national action plans. embassy, the delegation and/or the and decision-making processes. home and in dialogues with politicians,
• Familiarise yourself with the country team, and how the foreign the political opposition, the civil
work done by other actors service can support Norwegian women 9. Consider supporting women’s orga- service, civil society, the UN and the
that monitor follow-up of the and men who participate in inter- nisations. In this context, support for development banks.
Women, Peace and Security national operations and missions. the following is particularly relevant:
agenda at the national level, • participation in peace and References can be included to na-
for example the Global Network 7. Map civil society, women’s organi- reconciliation processes, tional commitments, local women’s
of Women Peacebuilders. sations and networks. • prevention of terrorism and organisations’ priorities, Security
• Join forces with other countries’ • Who are they? What are their violent extremism, Council resolutions on women,
embassies to formulate joint views? Who do they represent? • participation in the implemen- peace and security, the CEDAW
reactions or follow up priority What challenges do they face? tation of peace agreements, Committee’s General Recommen-
areas where necessary. Many Who are potential allies and • collecting information and dation No 30, the international
voices are stronger than one. who represent forces opposed documentation that can form protocol for documentation and
to women’s rights? the basis for more targeted investigations of sexual violence and
5. Familiarise yourself with the man- • What strategies do the women work, the UN Secretary-General’s System-
dates and obligations of the multi- use to create alliances with men • survivors of abuse and sexual Wide Strategy on Gender Parity from
lateral organisations in connection and to overcome resistance? violence, and children born 2017.7
with the resolutions on women, peace • Does Norway support regional of war, including as a result of
and security, and hold the organisa- organisations that have national abuse, 12. Raise questions relating to women,
tions accountable for fulfilling them. or local members that it could • efforts for women refugees, peace and security in dialogues with
Note that many regional organisati- be useful to get to know? Note • organisations that work with grant recipients working in countries
ons have their own action plans for that, among others, Norway men and male roles, as victims, affected by armed conflict.
women, peace and security. supports the Women’s Inter- allies and abusers.
national League for Peace and 13. Include goals relating to the
6. Establish contact with the leader- Freedom (WILPF), the Global 10. Keep track of whether the Action Plan on Women, Peace and
ship of peace operations about Network of Women Peace- situation for women is generally Security 2019–2022 in the activity
matters relating to women, peace builders (GNWP) and the Inter- deteriorating. Focus in particular plan, and report on this based on
and security, such as national Civil Society Action on the situation for women human the indicators in the action plan.
• women’s and men’s role in Network (ICAN), which have rights advocates, politicians and
the operation peace workers in many activists, because they are at special 14. Consider whether the embassy
• girls’ and women’s rights and different countries. risk of being subjected to threats might benefit from having its own
position in the area of operations • Do Norwegian civil society and abuse. See also the guidelines work plan for its efforts for women,
• efforts to protect against, organisations have established to Norway’s efforts for human rights peace and security. Priority countries
prevent and deal with sexual partners in the country? advocates.6 for women, peace and security should
violence. prepare such plans.
6. https://www.regjeringen.no/contentassets/b7384abb48db487885e216bf53d30a3c/veiledningmrforkjnorskfin.pdf
7. https://www.un.int/sites/www.un.int/files/Permanent%20Missions/delegate/17-00102b_gender_strategy_report_13_sept_2017.pdf38 UPDATED GUIDELINES (2019–2022) WOMEN, PEACE AND SECURITY 39
APPENDIX 1. HOW WE WORK ON
THE GENDER PERSPECTIVE
Definition Explanation
To take account of or integrate In the data collection for the action plan’s results report, information is
A PPE N DI X a gender perspective means
making systematic use of gender
requested about whether the gender perspective has been taken into
account or integrated in various measures supported by Norway (see the
competence. results framework in Appendix 4 to the Guidelines). To be able to answer
‘yes’ or ‘no’ to this question, we must understand what is meant by gender
competence and systematic use of it.
By gender competence is meant This includes, for example, knowledge about policy, legislations and
a contextual understanding of national plans that contribute to maintaining and changing attitudes and
how power relations between practices relating to gender-based violence, the experiences and needs of
women and men are related to victims of violence, and the most important change agents.
systematic violations of human
rights, particularly the rights of
vulnerable groups of women, girls,
men and boys.
By systematic use of gender The Action Plan states that Norway shall support integration of the gender
competence is meant that gender perspective in mechanisms for transitional justice, in the implementation
competence is grounded in all the of peace agreements and in humanitarian efforts under UN auspices.
organisation’s work.
In the work on transitional justice, this will include contextual knowledge
about the current situation, what has shaped it, and how systematic work
can be done to change it with respect to laws that promote/limit the human
rights of particular target groups, the special experiences of women and
girls in conflict situations and reintegration, and the needs of those who
have been subjected to sexual violence, the strengths and weaknesses
of truth commissions and tribunals’ handling of the prosecution of sexual
abuse, and support for survivors in the reintegration context.
See the OECD’s guidelines here: https://www.oecd.org/dac/gender-
development/Handbook-OECD-DAC-Gender-Equality-Policy-Marker.pdfYou can also read
