6 A coherent and predictable UN policy
Norway’s active participation in the work of the UN has been a central element of its foreign and development policy for decades, regardless of the government in power. This engagement has enabled us to promote universal, and our own, values and interests. It is in our interest that international law is respected by all states and that the use of force is regulated. Thus our foreign and development policy is based on promoting international law, universal human rights and an international legal order. The UN Charter stands for universal values, while the international legal order helps to safeguard our economic and security policy interests.
6.1 Development trends and the consequences for Norway’s UN policy
The UN and the international legal order administered by the UN system have a vital role to play in addressing global issues.
The UN’s roles as norm-setter, political arena and operational actor are being influenced and challenged by developments in world affairs. At the political level, the UN system is being tested by the tension between legitimacy and effectiveness on the one hand, and the growing complexity of the agenda on the other. This presents a challenge not only to the UN system but also to the member states and other actors. Both the political agenda and the type and influence of the actors involved are unpredictable and constantly changing. The emerging powers are seeking greater influence, and wish to put their mark on agendas and structures.
There is also a growing trend towards the development of new regional and international power constellations. Individual countries and groups of countries have been forced, or have chosen, to seek solutions outside the formal collective organisations, and the number of regional and interest-based groups has grown substantially in the past few decades. This is nothing new, and is likely to continue, particularly in view of the fact that regional organisations such as the AU are playing a more important role in addressing cross-border issues in their own regions. Regional cooperation and cooperation in various formal or informal groupings such as the G20 may help countries to find solutions to shared challenges, but it is in Norway’s interest that the solutions continue to be legitimised by international organisations, thereby ensuring universal acceptance. In many areas, this means seeking agreement within a UN framework. Rather than being viewed as competitors to the UN, regional organisations and other groups should be regarded as complementary. The UN cannot and should not do everything.
In these circumstances, we are more dependent than ever on international cooperation and the maintenance of an international legal order. The network of institutions, standards and rules has a stabilising effect, but it cannot be taken for granted. A large part of the challenge inherent in creating the global order of the future lies in ensuring that countries of global importance perceive international organisations as relevant, and that the organisations reflect global power structures.
Norway and many other countries share the aim of protecting and further developing an international legal order and a UN-led global order. We intend to cooperate with like-minded countries across regional and political divides to protect and defend these interests. In this context, Norway will focus particularly on the following areas.
1. The normative function of the UN and the maintenance of an international legal order
The UN’s normative function and its protection of an international legal order are key foreign policy priorities for Norway. However, these are being challenged by the increasing discrepancy between the development of norms and the capacity to implement them. Norway takes the view that more attention must be focused on implementing existing conventions, norms and standards. The work of UN organisations at country level is important, not only to help countries meet their international obligations, but also to build inclusive societies on the basis of a rights-based approach. It is also important to ensure that the results of the normative work are documented. The experience gained by UN assistance to governments to comply with international conventions, norms and standards at country level must be used to improve operational capacity at country level and to ensure agreement between norms and practices. Norway will initiate a study that examines compliance with the normative work of UN specialised agencies at country level.
2. The role of the UN as the only organisation that can legitimise the use of force
Although the composition of the UN Security Council is much debated, its legitimacy when sanctioning the use of force and other action is accepted. Global public opinion questions the UN’s legitimacy when member states are unable to reach agreement. An example in this regard is the inability of the Security Council to agree on how to handle the situation in Syria. Norway will pursue a long-term strategy to secure a fundamental reform of the Security Council so that it reflects today’s global geopolitical reality and not the world as it was in 1945.
Improving the UN’s capacity to prevent conflicts through peacekeeping and conflict prevention activities is in Norway’s interest. Norway will continue its efforts to strengthen the UN in this sector, both through political support for the development of guidelines and frameworks, and through concrete contributions to civilian and military operations.
3. The UN’s promotion and protection of human rights
The promotion and protection of human rights is central to Norwegian foreign and development policy, and the UN is our most important platform for these efforts. The experience gained from the UN Human Rights Council thus far is positive. In particular, the Universal Periodic Reviews that all countries are obliged to conduct have proved effective. However, the member states will continue to discuss the interpretation of existing conventions and rights, and where to draw the line between non-intervention and respect for individual rights, including the right to be protected from abuse. The fact that countries that commit serious human rights violations are elected to the Human Rights Council is a difficult issue. This makes it even more important to prevent erosion of existing human rights protection by building alliances with countries that promote human rights. Norway expects human rights to be mainstreamed into all UN activities, and will work for the adoption of a rights-based approach.
4. The UN’s role in promoting development and global public goods
The work of the UN in the economic and social sectors is important not only for Norway’s national policies in various key areas, but also for the implementation of Norway’s development and humanitarian policies. The political debate is becoming more and more concerned with global public goods and the question of how sustainable development, climate and other such goods should be financed. Norway’s view is that equitable distribution and independent national responsibility for income generation must be given greater political and operational prominence on the UN agenda. In the debate on the post-2015 UN development agenda, Norway will seek to ensure continued support for the efforts to achieve key health and educational development goals, and that the agenda includes the Sustainable Development Goals, which apply to all countries and take greater account of the structural causes of poverty, such as inequitable distribution and conflict.
UN activities in these sectors are also linked with the capacity of UN organisations to follow up member states’ decisions at country level and to operate effectively. Norway will continue its efforts to increase the effectiveness of UN development and humanitarian organisations. As described in Chapter 5, we will work to ensure that these organisations document their results and have adequate control and management systems for the funds they receive. Norway will also seek to mobilise new donors to the UN, particularly for core contributions, to secure more sustainable funding and broader burden-sharing.
5. The need for UN reform
Because UN agendas are so complex and interconnected, they carry a risk of fragmentation and coordination at both operational and governance level. This means that member states and the UN system need the ability and will to view the different issues and thematic areas in relation to each other, and to ensure that procedures and follow-up are consistent. Dealing with complex challenges effectively requires arenas in which such issues can be addressed as a whole.
Cooperation in the areas of health and energy, and support for the UN Secretary-General’s Mediation Support Unit, are examples of Norwegian political initiatives that have been accompanied by financial support and have brought about substantial changes in the UN’s working methods. Norway has taken the lead in emphasising the importance of these initiatives, thereby mobilising other donors and encouraging important reforms. Norway’s broad engagement also helps us to identify and exploit opportunities to act when necessary. We will seek to improve the results reporting of UN organisations, use funding strategically to support our priorities, and promote initiatives that strengthen the UN and its work. We need to identify partners that share our priorities and build coalitions that will help achieve results and promote the reforms needed to strengthen the UN and make it more effective.
6.2 A coherent and predictable UN policy
The UN is not perfect, but for addressing many of the challenges facing Norway and the international community, it is the best alternative we have. Norway and other countries who would like to see a strong UN have a responsibility to help UN organisations and member states to deal with these challenges. The most effective way for Norway to do this is by projecting a coherent, predictable voice across all relevant forums, a voice that continues to stress our image as a critical friend of the UN and that focuses on improving results on the ground. Our actions will be clear, predictable and constructive.
Norway has considerable room for manoeuvre and influence within the UN. We have a history of success with reform initiatives, and of helping to develop and strengthen the Organisation. We are also known as a strong supporter of the UN with no hidden agendas. This is why we are listened to. We have the financial resources to back up our policy proposals in a credible way, and these also enable us to promote innovation and initiatives we consider important.
Our credibility and history allow us to build bridges between regional groups. Several of the countries that are becoming increasingly involved in the UN remain cautious about their own roles and agendas. Areas where interests overlap provide opportunities to form alliances, exercise influence and cooperate. Identifying common interests and priorities is thus an important part of our foreign and development work, not only in multilateral forums but also at country level. Multilateral issues, including those relating to reform, must be included in our permanent dialogues with governments, and integrated into our bilateral relations. Norway will give high priority to building and strengthening cross-regional alliances, since these are vital for promoting issues in the UN. This may reduce the current North–South polarisation that is obstructing progress in many fields. However, traditional partners, primarily the Nordic countries, will remain important to Norway.
We must invest our resources where they have the greatest effect, and channel our support to initiatives that are sustainable and organisations that deliver. Our starting point is that the UN is important for our interests, but we must continually review whether we are using the right channels and cooperating with the right actors, and also the best areas for our partnerships with the UN and other actors.
In addition to focusing on our thematic priority areas, such as health, education, decent work, and environment and sustainable development, we must also invest in and mobilise support for the institutions that are tasked with administering these efforts. We must do this in political dialogues, in governing bodies, and in our bilateral relations with member states and the UN at country level. Norway will pursue a coherent UN policy that is consistent across all forums. The policy will include the following elements.
Results and funding
Norway will work for a change of culture among member states and organisations in the UN system where the focus will be on results, willingness to reform and cooperation. Norway will seek to ensure that organisations have reliable control mechanisms and procedures in place to prevent irregularities and wasting of funds.
In Norway’s view, mandates must be accompanied by adequate resources. This principle must be applied in practice across the various forums. With regard to assessed contributions, Norway will work for a revision of the assessment scale that takes account of burden-sharing and ensures that all member states take responsibility for UN funding.
As regards voluntary contributions, Norway's aim is to maintain a high level of core contributions to organisations whose performance satisfies the assessment criteria. Organisations that achieve good results and promote coordination should be rewarded. Norway will cooperate with other Nordic countries to mobilise greater support from emerging economies for the humanitarian and development activities of UN funds, programmes and specialised agencies.
Norway will support efforts to modernise the UN and make it more effective. The UN needs to improve its ability to put the right person in the right place at the right time at all levels of the organisation. It should also improve coordination and allocation of tasks between the central level, UN funds and programmes, and the specialised agencies. Norway will give weight to good leadership and partnership mechanisms. To increase our influence, we will also give priority to the work of the UN Budget Committee (the Fifth Committee), and continue to intensify our efforts in the governing bodies of UN organisations.
Leadership
Norway considers that leadership is a key factor in ensuring that the UN system is effective and relevant. In our efforts to support the UN’s development activities at country level, we will give priority to strengthening the resident coordinators. We will also focus on improving leadership within the UN system as a whole.
Appointments to senior positions within the UN have often been guided by a tradition of selecting candidates from a particular group of countries and by fixed rotation, for example in the election of the Secretary-General. There are now five years until the next election, and during this period Norway will promote discussion about the continued relevance of the informal norms that govern the election of the Secretary-General and the leadership of organisations in the UN system. Norway will also strongly advocate transparency and accountability in all recruitment processes, particularly at leadership level, and seek to ensure that the final decision is based on the candidate’s qualifications.
UN organisations do not bear complete responsibility for their effectiveness. Micromanagement by member states limits organisational flexibility and room for manoeuvre. Moreover, there is a lack of political agreement and willingness to implement the necessary reforms. North–South polarisation is a major obstacle to progress. Norway will therefore initiate a discussion on the need for reform among interested member states across all regional groups.
Partnership
Norway takes the view that the UN cannot and should not perform all of its tasks alone. We will help to strengthen the UN’s capacity for partnership with NGOs, international financial institutions, the private sector, other actors and groups such as the G20. Particular emphasis will be given to improving cooperation with the World Bank and the regional development banks, and with NGOs. Norway will emphasise the importance of enhancing the UN’s cooperation with regional organisations, particularly in the context of peace operations. The UN also needs to identify better mechanisms for cooperation with the private sector, not least in fields such as global health, climate change and energy. While the UN system may initiate and lead such partnerships, in many areas it would be more logical for other actors to take leadership responsibility. The UN has a normative role, knowledge base, expert capacity and presence at country level. Norway will seek to ensure that at this level the UN focuses its efforts on its strengths rather than competing with other actors.
In the Government’s view the UN system should further develop its institutional ability to draw on the necessary expertise from member states or relevant actors. Norway has worked together with a number of UN organisations and entities on developing systems for obtaining relevant expertise in the humanitarian field, in the context of democracy-building and human rights, and for peace operations. We will support the current reform process by improving the procedures for forming partnerships and recruiting external experts through for example standby rosters. We will work to ensure that the UN plays a more prominent role in facilitating partnerships between member states, for example South–South cooperation and triangular cooperation, and between UN organisations and other actors. Such partnerships must be based on equality and mutual recognition of advantages and benefits. Programmes at country level must take account of and build further on local structures and actors.
Norway attaches great importance to ensuring that civil society continues to have access to UN meetings and conferences where policy is developed, and will work for the continued participation of civil society in UN forums. We also consider that other actors, such as philanthropists and the private sector, should have a voice in such forums, although not decision-making authority. Both member states and UN organisations need contact with academics and think tanks in order to become familiar with new ideas and ways of thinking. Norway will also make more systematic efforts to ensure that Norwegian NGOs and academics are consulted on issues within their areas of expertise, since this could be a source of mutual benefit for authorities and organisations. The national committees of UN organisations play an important part in presenting the work of the organisations to the general public, and Norway will continue to cooperate with these committees.
6.3 Financial and administrative consequences
Many policy areas relevant to the UN have also been described in other white papers. The present white paper is not intended to replace the white paper Interests, Responsibilities and Opportunities (Report No. 15 (2008–2009) to the Storting) or the recommendation of the Standing Committee on Foreign Affairs and Defence on interests, responsibilities and opportunities (Recommendation S No. 306 (2008–2009)), which set out Norway’s current overall foreign policy. The same applies to the white paper Climate, Conflict and Capital (Report No. 13 (2008–2009) to the Storting) and the recommendation of the Standing Committee on Foreign Affairs and Defence on climate, conflict and capital (Recommendation S No. 269 (2008–2009)), which set out Norway’s current overall development policy and the principles of our development cooperation. Important aspects of Norway’s UN policy are also discussed in the white papers from the Ministry of Foreign Affairs Towards Greener Development (Meld. St. 14 (2010–2011), Global Health in Foreign and Development Policy (Report No. 11 (2011–2012) to the Storting, and On Equal Terms (Report No. 11 (2007–2008) to the Storting). The Government’s UN policy is based on these white papers together with the Storting’s deliberations. The Government’s intention in the present white paper is to expand on its policy for Norway’s relations and cooperation with the UN, and make it more specific.
No administrative changes are envisaged in the areas of responsibility of the Ministry of Foreign Affairs or subordinate agencies as a result of this white paper. Norwegian development aid follows the OECD/DAC guidelines on criteria and performance. This white paper specifies certain areas where allocations could be increased, and supports the priorities presented in the recent budget proposals. Any increases in the allocations to specific areas will be effected by reallocating funds within the Ministry’s existing budgetary framework.