Translation from the Norwegian

Minister of International Development and Human Rights Hilde Frafjord Johnson

The Government's efforts to promote human rights

Statement to the Storting on Human Rights, 22 January 1998

Introduction

A hundred years ago the Norwegian Storting adopted a resolution that changed the Norwegian perception of human dignity. This resolution gave virtually all men the right to vote. Our concept of human dignity was no longer based on " who you are" or "what you have". It was now sufficient " that you are". It took another 15 years before women too were granted the right to vote. Then it was no longer a question of " what you are" either.

Fifty years later Norway, together with the other UN Member States, passed a resolution that has had great significance for attitudes to human dignity – the Universal Declaration of Human Rights.

Today, fifty years after the Declaration of Human Rights was adopted, the work of promoting respect for human rights is rooted in a fundamental belief in human dignity. One of our overriding aims is to contribute to a world where every human being is guaranteed the right to life, an opportunity to live in peace, freedom and security, and the fulfilment of basic needs. Observance of human rights is the foundation of a life of dignity.

The promotion of human rights will influence the Government’s policy in all areas, and will be a guiding principle for our political decisions.

The Norwegian people have traditionally shown a strong commitment to combating human rights violations wherever they may occur. The Government is reminded daily of the strong support for the priority that we give to such efforts. The goal of our involvement in this area is quite simply to strengthen respect for human rights for our fellow human beings, irrespective of who they are or where they live.

We must be aware that a rigorous attitude towards human rights will not always be appreciated in the countries with whom we cooperate. This applies both to bilateral relations and in international fora. We must be prepared to pay a price for our policy, in both economic and political terms. In certain situations our giving priority to human rights may have a cost in the form of lost opportunities for Norwegian firms. There may also be political costs in the form of strained relations with other countries, the risk of being regarded as "difficult" in international fora, etc. We must be willing to pay this price if we believe we can advance the cause of human rights by adopting this attitude. The results of our efforts for the people concerned must always be our main consideration, and must determine our choice of means. Moreover, we must weigh the benefit of swift, unambiguous action against less visible, long-term involvement, which in certain situations may have a greater impact. Sometimes an emphatic response is most effective, at other times more is achieved through dialogue and cooperation.

The Government's organization of efforts to promote human rights

The present Government did not decide to have a minister who is responsible for both human rights and development issues in order to lighten the workload or responsibilities onf other members of the Government. On the contrary, the other ministers will continue to be responsible for human rights within their own fields. My function is to ensure that greater attention is focused on human rights in connection with various issues and help /make sure that the overall efforts to promoteand safeguarding /investment in human rights are intensifiedcreased in a coordinated, consistent manner. This task is not confined to my duties as Minister of International Development. To achieve this, we will establish a separate unit in the Ministry to work on human rights.

The Government has decided to set up a committee for human rights issues. It will consist of the Ministers of Foreign Affairs, Justice, Trade and Industry, Petroleum and Energy, and myself.

Human rights obligations

Framework for human rights

Human rights should not be a remote ideal. They cannot be invoked when convenient, when it seems appropriate or suitable for us. In short, human rights involve a set of obligations that Norway and other countries have undertaken. Many of these obligations are quite specific, for example those set out in the International Covenant on Civil and Political Rights and the European Convention on Human Rights. Others may be worded more like general objectives, such as in the International Covenant on Economic, Social and Cultural Rights and the UN Convention on the Elimination of All Forms of Discrimination against Women. Some of the obligations are binding under international law, such as the conventions I just mentioned, while others are politically binding, such as decisions of the OSCE. The following are among the most basic human rights:

Everyone has the right to life, liberty and security of person.

No one shall be subjected to torture, arbitrary detention or exile.

Everyone has the right to freedom of thought, conscience and religion.

Everyone has the right to freedom of opinion and expression.

Everyone has the right to freedom of peaceful assembly and to take part in the government of his country on a democratic basis.

Everyone has the right to work, to adequate health care and social services, to education and to participate in the cultural life of the community, in accordance with the resources available to the individual country.

Relationship between development and human rights – between social, economic and cultural rights on the one hand and civil and political rights on the other

In the debate on human rights, civil and political rights have often been pitched against social, economic and cultural rights. While Western countries have often focused on civil and political rights, many developing countries have been more concerned with social, economic and cultural rights. However, it is not a question of either/or. One might rightly say that certain human rights are of little value to people who are starving and in need. However, the struggle for human rights is basically about human dignity – about individual human beings, about protecting the individual against oppression and exploitation, poverty and injustice, marginalization and degradation. Thus development and human rights are closely linked up with one another.

The principle of universality

It is not the case that some human rights apply today and others tomorrow. Nor do some of them apply to you and others to me. Nor do some apply to men and others to women. The obligations are universal.

Many attempts have been made to deny or explain away responsibility for civil and political rights by defining them as a Western concept that conflicts with a country's own culture. UN Secretary-General Kofi Annan has rejected such views, presented among others by certain Asian countries, with pointed questions in respect of his own people: "Do not African mothers weep when their sons or daughters are killed or maimed by agents of repressive rule? Are not African fathers saddened when their children are unjustly jailed or tortured?" The fact that one comes from a different culture does not change what constitutes human dignity.

Relationship between rights and obligations

In other words, there have been, and still are, constant attempts to dilute human rights. Some claim that fundamental rights must be balanced by a set of fundamental obligations. But human rights entail duties for states, while the rights are for individuals, never the other way around. Prime Minister Tony Blair said that the right to enjoy our freedoms comes with the obligation to support the human rights of others. We simply do not have the right to close our eyes to injustice merely because there is already so much evil in the world that it seems hopeless to do anything about it. This view is shared by the Government. We have no excuse for not becoming involved in efforts to safeguard human rights. A great deal is being done to further develop international human rights law and ensure that obligations are fulfilled. I will return to this later.

Efforts to promote human rights in Norway

If our efforts to promote human rights in other countries are to have credibility, we must make sure that our own house is in order. The Government has therefore begun work on incorporating several of the human rights conventions into Norwegian law.

However, the task of promoting human rights is not simply a matter of making decisions, drawing up budgets or devoting a particular number of man-years to it. Human rights obligations can always be complied with even better, to an even greater extent, for even longer. There have been situations where the international community, as represented by an institution like the Court of Human Rights in Strasbourg, has told us that we have made a mistake that ought to be corrected. We have a responsibility to fulfil our obligations. Our own compliance with our human rights obligations should be re-examined, particularly in this anniversary year. In 1993 the second World Conference on Human Rights was held in Vienna. The conference adopted an action plan, among other things, which entailed the obligation to prepare five-year national reports. Thus all countries are to submit a report this year. This is a good opportunity for us to assess our own human rights record.

I would like to give a brief account of the human rights issues that directly affect us here in Norway.

- The situation of the Sami/indigenous peoples

Human rights entail obligations for the Norwegian State in respect of the Sami as an indigenous people. The right to enjoy their own culture, confess and practise their own religion and use their own language are key elements of the rights of indigenous peoples. Indigenous peoples have both individual and collective rights. Norwegian Sami policy is based on respect for the Sami identity.

We will be working in cooperation with the Sami Assembly and other institutions to achieve greater justice at both national and regional levels. A supplementary report to Report No. 41 (1996-97) to the Storting on Norwegian Sami policy will be submitted. The Government has strengthened efforts as regards Sami issues by appointing a special state secretary and a separate committee of state secretaries to deal with this.

Norway is also engaged in efforts to promote the rights of indigenous peoples internationally. I would like to briefly mention a couple of international processes that may affect Norwegian Sami policy and the Norwegian Sami people. Negotiations are in progress on a UN declaration on the rights of indigenous peoples. Moreover, an effort is being made to establish a permanent forum in the UN to discuss issues relating to indigenous peoples and coordinate UN activities in relation to indigenous peoples, a proposal that the Government supports. We also support indigenous peoples through our development cooperation.

Work is also in progress on a Nordic Sami convention within the framework of Nordic cooperation. A working group plans to present its report in the spring of 1998.

- The rights of minorities, including those of the Romani people

In addition to our commitment to the rights of the Sami people, the Government will work to advance the interests of national minorities. Norway has signed the Council of Europe's Framework Convention for the Protection of National Minorities. We plan to submit a proposal to the Storting concerning consent to ratification around Easter. The Government has also decided to appoint an inter-ministerial working group to evaluate ways in which the state can better coordinate its policy with regard to a number of national minorities. In particular, this will provide an opportunity to focus attention on the situation of the Romani people and travellers, among others.

- Efforts to combat racism

Norway has in many ways become a multicultural society. We must acknowledge the existence of racial discrimination in this country. This problem is reflected in the labour market and other areas. Government statistics show that unemployment rates among immigrants are three times higher than for the population in general. There are regular reports in the media indicating that there is racial discrimination in the labour market. This is a breach of fundamental human rights. The Government has initiated efforts to draw up an action plan for measures to remedy this situation. Through preparations for the UN Conference on Racism and Racial Discrimination in the year 2001 we will also be able to contribute to the international struggle to combat racism.

- Policy towards refugees/asylum-seekers

The situation for refugees and asylum-seekers is also a question of respect for human rights. In keeping with the Government's inaugural statement, which referred to a liberalization of Norway's policy as regards refugees and asylum-seekers, the Minister of Justice has recently issued new guidelines for less stringent criteria for granting asylum. This means that it will be easier to be granted a residence permit in Norway on grounds of asylum. For example, it is now easier to receive asylum on the grounds of persecution by groups other than the authorities of the home country. The Government has also relaxed the requirement that asylum must be sought in the first safe country in which the asylum-seeker arrives. This means that more people will have their applications dealt with in Norway. The Government earlier announced that Norway will accept a larger number of quota refugees from the UN. Furthermore, the Minister of Justice will review the practice of granting a residence permit on humanitarian grounds and for family reunification with a view to relaxing requirements.

- Use of remand in custody

The Council of Europe's Committee for the Prevention of Torture and Inhuman or Degrading Treatment or Punishment (CPT) has criticized Norway for its use of police cells for persons remanded in custody. We will do something about this. This also applies to asylum-seekers whose identity is unknown. I can inform the Storting that the Government has now notified the CPT of the measures that will be implemented to remedy the situation. The Government will work to ensure better rules, guidelines and practices in this area. The Central Prison Administration has now made it a goal to ensure that arrestees are transferred from a police cell to prison no more than 24 hours after the remand order has been issued. The Director General of Public Prosecutions is also prepared to instruct the prosecuting authorities to include in the application for a remand in custody a statement as to whether the accused has a place in an ordinary remand prison.

- The rights of the disabled

As for the situation of the disabled, we cannot really do enough to establish favourable conditions that ensure them a decent life in every way. We must strive to make use of the entire range of measures at our disposal, from campaigns to influence opinion and advisory services to the building of access ramps, to reduce the consequences of disablement for all of those affected. The Minister of Social Affairs is currently following up the UN's standard rules for equalization of opportunities for persons with disabilities in the Government's revised plan of action for the disabled 1998-2001. It will include measures related to accessibility, user participation and employment for the disabled.

- Gender equality

This year the UN Commission on the Status of Women has chosen human rights as a special priority area, which will also be reflected in national initiatives. A relevant topic is the need to consider and remunerate women's work according to the same standards as men's work. Efforts to combat rape and other acts of abuse are particularly important.

Annual report on the promotion of human rights

Responsibility for the issues I have mentioned lies primarily within the sphere of other ministers. In order to re-examine our own efforts to promote human rights, the Government will publish the first annual Report on Human Rights at the end of the year, giving an account of Norwegian efforts to promote human rights in Norway and abroad. The report will be written for the general public, and we will make sure that it will be a useful instrument for the full range of Norwegian efforts to promote human rights.

International efforts to promote human rights

Reports describing the human rights situation in various parts of the world make depressing reading.

• More than a quarter of the world population lives below the poverty line - the vast majority of these people are women and children.
• Prisoners were tortured, ill-treated and raped in at least 124 countries in 1997.
• Prisoners of conscience or "possible" prisoners of conscience were imprisoned in 94 countries.
• Extra-legal executions or "possible" extra-legal executions were reported in 69 countries last year.
• 140 million children receive no basic schooling.
• 250 million children work, often in jobs that are harmful to their development.

These figures must be reduced. We will therefore give priority to strengthening human rights in countries that contribute to such statistics.

However, there are some encouraging signs in human rights work. Attitudes are changing around the world. Not long ago oppressive regimes could invoke "internal affairs" when accused of violating human rights. In today's world more countries are accepting that violations of human rights are an international concern. An increasing number of nations are acknowledging their own violations, and agreeing to cooperate with other countries to put matters right. The choice of Mary Robinson as new High Commissioner for Human Rights and the intensification of UN efforts are examples of how international human rights work is being strengthened. There is a clearly rising trend in the efforts, expertise and insight of NGOs. This shows that the commitment to human rights is increasing in terms of both quality and quantity.

Instruments in the struggle for human rights

The Government will pursue a more clearly defined and more rigorous human rights policy internationally. We will criticize serious violations of human rights and make systematic efforts to enhance respect for these rights.

In such cases the choice of means is often difficult. On the one hand public criticism and clear positions are often necessary to demonstrate our views. On the other hand we have seen on several occasions that more has been achieved by building mutual confidence and entering into a dialogue.

In this context we must never lose sight of the goal; our choice of means must always be decided by the interests of the people we wish to support. The immediate consequences must be weighed against the possible long-term consequences. The signal effect in Norway and in the world at large must be weighed against the possibilities of bringing about concrete improvements in the country concerned. The basis of all our assessments must always be the best interests of the individual.

This is where the greatest challenge lies, in identifying the instruments that yield the best results in any given situation.

This formed the basis for then parliamentary leader Bondevik’s contribution to the human rights debate in the Storting on 28 November 1996, where he outlined a full scale of instruments ranging from “prohibition and full boycott to positive support”. Although this was primarily linked with economic relations, the point was nevertheless that there is a scale for adapting the means to the task. I should like to enlarge on this perspective by presenting a number of political, economic, development assistance and multilateral instruments. The Government will make use of all these instruments in a more systematic, strategic manner in efforts to strengthen human rights internationally. I will be referring to matters that also lie within the province of the Foreign Minister. In his statement he has emphasized the importance of human rights in foreign policy. We will be working closely together on these questions in order to ensure that Norway's international efforts on behalf of human rights have the greatest possible effect.

The range of political instruments

Political talks and visits provide many opportunities to raise human rights issues with the governments of other countries. This is done on a regular basis, either publicly or behind closed doors. There is broad political agreement in Norway as to the importance of pursuing a critical dialogue with regimes we disagree with, and that we find reason to criticize.

Upgrading or downgrading of diplomatic contact and representation can signal a desire for contact or be an expression of dissatisfaction. The Government generally regards it as advantageous to keep channels open for communicating Norwegian points of view, even in countries of whose governments we are critical. Political isolation may result in a regime receiving fewer signals from other countries and becoming even more oppressive.

Twenty-five years ago, Pinochet’s brutally oppressive regime in Chile caused many countries to reduce their presence and to withdraw their ambassadors – some as a protest against the Junta, others as a result of the stagnation of bilateral relations. Norway chose to retain its ambassador in Santiago. This aroused criticism, and it cannot have been an easy decision. Today, however, we know that it was indisputably the right decision. Our ambassador, Frode Nilsen, was able to bring his influence to bear on the Chilean authorities so as to get a large number of prisoners out of the country. Another example of the importance of maintaining a presence is South Africa during the apartheid regime. Our Consulate-General in Cape Town kept in close contact with opposition groups and NGOs during the apartheid regime, and provided extensive moral and practical support.

Restrictions on the issue of visas to representatives of a regime constitute another clear political expression of criticism of their policies. Norway has introduced such restrictions for representatives of the governments of Burma and Nigeria. Other restrictions that have been used as political instruments include boycotts of sporting events.

The range of economic instruments

The Norwegian authorities also use various instruments to influence trade with and investments in other countries.

The Norwegian debate can often give one the impression that the only choice is between "full stop" and "full speed" in this area. This is seldom the case. A full economic boycott would only be an option in very special cases, such as the apartheid regime in South Africa or when the UN Security Council adopts such measures, as in the case of Iraq. The UN has a broad range of sanctions at its disposal. The Government will exercise caution in introducing unilateral measures. This is also important as regards respect for international codes of conduct. Moreover, broader international measures carried out in cooperation with other countries will have a considerably greater impact. For instance, Norway has advocated international sanctions against Nigeria within a UN context. So far, there has been no support for such action. However, the Government will raise this question again in the UN.

However, there are far more instruments along the economic scale that can be used in relation to countries where gross human rights violations occur. One such instrument is to appeal to Norwegian companies to refrain from financial involvement in countries where there are serious breaches of human rights and a lack of willingness to enter into a dialogue. This currently applies to Iran and Burma. There is no statutory ban on economic relations with these countries, but government assistance is not provided for trade promotion. Such appeals will only apply to a limited number of countries where the human rights situation is particularly difficult and where dialogue is not possible.

The Norwegian authorities also have a number of instruments that we use, or refrain from using, to stimulate trade and investments. Examples are the generalized system of preferences (GSP) and a number of schemes for industrial and commercial cooperation financed with development assistance funds. In addition to this, support for marketing is provided by the Norwegian Trade Council and the Foreign Service. The use of such instruments will be tailored to a greater degree to the human rights situation in the various countries.

The range of development assistance instruments

Our development policy and our development assistance also provide a number of instruments for promoting human rights. Development assistance in itself contributes towards promoting economic, social and cultural rights. In many partner countries, human rights and democratization have become priority areas. The list of measures is long and extensive, ranging from technical advisory services to specific human rights monitoring and establishment of the rule of law. Typical examples are Ethiopia and Zambia. We know from experience that influence through persuasion and practical measures is more sustainable than results achieved by means of sanctions and penalties. We therefore encourage cooperation between Norwegian institutions and corresponding institutions in partner countries for the transfer of knowledge and expertise. We also provide support to NGOs. The Government will strengthen this aspect of Norwegian development assistance.

As regards democracy and respect for human rights, there is a positive trend in many of our partner countries.

Unfortunately, however, we occasionally have reason to react against violations of civil and political rights in a partner country. One example is the Palestinian areas, where we have repeatedly raised the issue of human rights violations. In such situations we first consider increasing the amount of assistance for human rights measures. This will also serve as a signal to the recipient country. If this is not possible, we must consider other measures such as shifting the focus of or reducing the total amount of assistance to the country, withholding part of the assistance or, in extreme cases, discontinuing cooperation altogether. This is, of course, a response that we wish to avoid. It is therefore important to make our views clear to the recipient country, and to maintain a continuous dialogue.

Discontinuing cooperation will have major consequences for those who really need our assistance. It may also affect our possibilities of safeguarding the economic, social and cultural rights of the poor and of promoting peace and reconciliation and supporting democratic forces in the country. This must always be an important consideration when making our decisions.

The range of multilateral instruments

The promotion of human rights at the multilateral level includes both compliance with international rules and their further development.

The most important forum for official Norwegian criticism of human rights violations is the United Nations. Through its debates on draft resolutions, the General Assembly and the Commission on Human Rights express the international community's perception of the conditions in a particular country. Norway participates in order to help focus attention on violations of human rights. Norway is a candidate for election as a member of the Commission on Human Rights for a three-year period from 1999. This is an assignment to which the Government would give high priority.

In addition to sanctions, the UN has a variety of useful instruments that can be employed to promote human rights. The United Nations has monitoring committees for the various conventions and more specific investigative mechanisms. We are also involved in efforts to introduce the right of appeal in connection with violations of the Convention on the Elimination of All Forms of Discrimination against Women and the right of inspection for the Committee for the Prevention of Torture and Inhuman or Degrading Treatment or Punishment. The Commission on Human Rights appoints special rapporteurs for selected countries, and what are termed thematic rapporteurs to investigate, for instance, allegations of violations of the freedom of religion, restrictions on freedom of expression, or possible abuse of internally displaced persons. One example of this is Algeria, as the Foreign Minister mentioned earlier, where the UN is working, through the Commissioner for Human Rights, on sending special rapporteurs to investigate extra-legal execution and torture.

In the Commission on Human Rights we will be emphasizing the importance of strengthening the work of the investigative mechanisms. The UN High Commissioner for Human Rights plays an essential role in international human rights efforts. However, these efforts are seriously limited by lack of resources, and the Government is advocating a major international effort to improve the situation. I can inform the Storting today that we will lead the way with a commitment of NOK 10 million from the allocation for assistance to refugees and human rights measures (chapter 191), for a fund to support the work of High Commissioner Mary Robinson in the fight for human rights.

The need for more and better mechanisms also applies to compliance with the fundamental rules of international law. The Government therefore wishes Norway to continue to be a prime mover in the establishment of a global tribunal for the most serious international crimes. The establishment of the ad-hoc tribunals for the former Yugoslavia and Rwanda has led to a revival of the discussion in the UN on a tribunal of this kind. We can now see how important it is for the peace process in, for example, Bosnia that people see that justice can be done in that the worst of the war criminals are tried and convicted. In this way an international tribunal that enjoys universal support can contribute to peacemaking, reconciliation and democracy. This is why Norway will participate actively in the forthcoming treaty conference in Rome in June this year.

The efficiency of the tribunals for the former Yugoslavia and Rwanda must be increased. The Government will provide more resources to these tribunals for this purpose.

The new European Court of Human Rights in Strasbourg, which convenes on 1 November this year, will be better equipped to deal with the increasing number of cases resulting from the admission of new member countries. The Government wishes to emphasize the need to coordinate the work of the Council of Europe with that of the Organization for Security and Cooperation in Europe (OSCE). The Minister of Foreign Affairs has already given an account of what we hope to achieve in connection with our forthcoming chairmanship of this organization. I would like to emphasize that Norway will continue to be active in reporting breaches of OSCE obligations. We will also be involved in resolving conflicts, and will contribute financially to laying the groundwork for better observance of human rights obligations.

The most important human rights efforts in international fora are concerned with ensuring compliance with human rights obligations. However, the Government also attaches importance to active participation in the further development of existing rules governing human rights. We are strongly involved in efforts to prevent children being used as soldiers, ensure a more effective prohibition against the sale of children, establish stricter rules against harmful child labour, improve protection of human rights advocates and strengthen legal protection in states of emergency and internal conflicts.

The International Labour Organization (ILO) has a special responsibility for following up the work on compliance with worldwide minimum labour standards. The Government will participate in the work on an ILO declaration, which will be discussed at the International Labour Conference later this year.

I would also like to mention more ad-hoc international fora, such as the Conference on Child Labour that was held in Oslo last autumn. The Government will now take a leading role in following up the agenda for action adopted at the Conference. This will be an important contribution to the efforts to eliminate child labour in accordance with the UN Convention on the Rights of the Child. We also aim to take an active part in the drafting of an ILO Convention that will prohibit harmful forms of child labour.

Dialogue as an approach

This spectrum of measures I have been describing, which ranges from "full speed" to "full stop", shows the need to adapt instruments to the task at hand.

In our efforts to increase respect for human rights in a particular country, we can make use of all opportunities for contact and influence. Political talks can be followed up with concrete offers of assistance in improving conditions and be combined with criticism in multilateral organisations. In my view, there is no contradiction between putting forward criticism and making an active effort to improve the situation. On the contrary.

I would characterize a human rights dialogue as an involvement in the promotion of human rights in a country that goes beyond criticizing it in international fora. A dialogue must always be targeted towards specific needs and adapted to the conditions of the country concerned. I regard such dialogue as being an increasingly important part of our human rights policy, and would like to discuss this in more detail. I will begin with some examples that I hope will clarify the fact that a dialogue is not the same as a cosy chat. A dialogue allows for the expression of concern and constructive criticism more directly and in greater depth than any unilateral statement.

China provides a good example of an ongoing human rights dialogue. The Government is in the process of intensifying such cooperation. In order to enhance the political level-dialogue, we are providing financial and technical assistance through a number of projects. This includes cooperation with human rights entities and development of the rule of law and local self-government. Although we can now see some signs of progress in a positive direction, we continue to raise the question of China’s violations of human rights, as was done by the Foreign Minister during the state visit to China last autumn.

Turkey is also an example of a country we consider it important to have a dialogue with. Last Friday the Turkish supreme court decided to ban the country's largest political party, the Islamic party Refah. This is a serious blow to the freedom of expression and the right of association in Turkey. The Government took this matter up as recently as yesterday with the Turkish authorities. The visit of the Turkish deputy prime minister, Mr. Bulent Ecevit, to Oslo last November provided a good opportunity to draw attention to the occurrence of torture, the conditions concerning freedom of expression, and the detention of journalists and members of parliament, and the situation of the Kurds. As part of this human rights dialogue, I have accepted an invitation to visit Turkey in the autumn. I would also like to mention that the Government is committed to supplementing the political dialogue with support for practical, concrete bilateral joint projects to improve the human rights situation in Turkey, among others in the field of justice. We also wish to focus on conditions for children and young people in a human rights perspective.

Burma has so far refused to enter into a dialogue with Norway. And the opposition, which won the most recent election, has called for boycott and recommended refraining from dialogue. Such cases justify stronger methods, such as those the Government has now applied. In some cases, however, it is possible to envisage a dialogue that does not involve the authorities, as in Nigeria, where Norway is supporting modest but useful cooperation on human rights projects run by NGOs.

For a long time Chile and South Africa were synonymous with the most serious of all human rights violations. Extensive violations of human rights took place daily behind closed doors. Today, both Chile and South Africa are active champions of human rights, but there are still far too many closed doors around the world. However, unlike 25 years ago, many of these doors are now unlocked, or even ajar, open to involvement by the world at large. Human rights, as I said before, are largely accepted as being an international concern. This gives us considerable scope for practical efforts to combat human rights violations. This potential exceeds our capacity, but if an increasing number of countries join forces in the struggle for human rights, there is hope that more and more doors can be opened to let in fresh air, throw more light on the situation and let in the helpers.

It is important not to let our policy be dominated by the "CNN effect": in when the camera is pointing in the right direction, out when the arc lights are turned off. We must take a stand on human rights violations wherever they occur. It is the gravity of the human rights situation that should be our driving force, not whatever the media may have chosen to headline. The means we choose are also dependent on the resources at our disposal. In order to take on tasks with a view to strengthening human rights in another country, we must have the expertise to do so. We must be able to offer useful and relevant expertise when we take part in projects to enhance respect for human rights. Our efforts should also be coordinated with those of other like-minded countries. In today's world, no one should be allowed to get away with major violations of human rights, but we neither can nor shall take upon ourselves all of the tasks to be carried out in this area.

Different channels of influence: non-governmental organizations and support for the media

The commitment to human rights demonstrated by many Norwegian NGOs is gratifying. These organizations have extensive networks and contacts with groups in other countries. In many countries there are local human rights activists working under difficult conditions and at considerable personal risk to strengthen freedom of expression, union rights and other rights. These people deserve respect and support. A UN working party headed by Norway is drafting a declaration aimed at ensuring safer working conditions for these activists. A declaration will probably be adopted this year.

The contribution made by many Norwegian organizations is crucial to the provision of technical assistance and financial and political support to colleagues, sister organizations and human rights organizations in many parts of the world. NGOs are often able to make contacts and provide assistance in ways that are not open to governments. In Norway, we have a fundamental belief in the impetus that strong NGOs can provide in building a community with democratic institutions and participation by large groups of the population at all levels. I am pleased to note that business and industry also appreciate the substantial expertise that human rights organizations can offer.

Unfortunately, many governments view critical organizations as a threat, and accuse them of subversive activities. They also have a negative attitude to foreign financing of such organizations, especially by the authorities of other countries. We can contribute various forms of financial support, and will continue the practice of supporting human rights measures carried out by Norwegian and international organizations. We will also continue to support local organizations, both directly and through support to the Norwegian Human Rights Fund, which has been established by the largest Norwegian humanitarian organizations. Our support is directed to organizations that gather documentation and disseminate information on violations of human rights, assist victims of such violations, run training schemes for teachers, the legal system, journalists, doctors or other groups, organize measures to strengthen freedom of expression, etc.

We also give considerable support to independent media, for example newspapers and radio broadcasts. This is not only an expression of support for freedom of expression, but it may also help to mobilize and motivate individuals to continue their efforts to promote human rights in countries where there are serious violations of these rights. Freedom of expression is of major importance in ensuring the other human rights. We ourselves are continually reminded of the significance of an independent media for social development. In countries where the authorities control and manipulate the media to a great extent, support from external donors helps to make alternative information available.

Human rights in development cooperation

The significance of development assistance for human rights

Reducing poverty and meeting the fundamental needs of individuals are in themselves means of promoting human rights. Norwegian development cooperation and support for humanitarian organizations are part of these efforts. In many of our partner countries, there is a need for greater compliance with human rights obligations. However, these countries often have a hard-pressed public administration and a poorly developed judicial system. Some lack fully developed democratic institutions and have few active NGOs that are able to function as pressure groups to bring about positive changes. Our development policy goals therefore include increasing our assistance to strengthen the judicial system, to electoral systems and to expertise in the field of human rights, to mention just a few priorities.

Earlier on, I spoke of our development assistance aimed at strengthening respect for human rights and democracy in recipient countries. Thanks to democratic reforms in a majority of our partner countries, the possibilities for cooperation and results in this field have improved significantly. NORAD, in cooperation with the Institute of Human Rights, is currently drafting guidelines for human rights in development assistance. In this way, we will help to ensure that our assistance promotes respect for civil and political rights. The Government wishes to intensify these efforts. This is an important supplement to much of our other assistance, which is targeted towards greater realization of economic, social and cultural rights. This applies, for instance, to support for education, the health care system and industrial and commercial development.

The significance of human rights for development

We are now focusing even more strongly on human rights in Norwegian development assistance. Several studies conclude that development projects are more often successful and achieve better results in countries where civil rights in particular are respected. This is related to the fact that the authorities act in a more responsible manner when the inhabitants enjoy legal protection and thus where there is room for criticism and scrutiny. In brief, the protection of human rights helps to give the authorities a greater sense of responsibility towards the population, which in turn has a favourable impact in terms of development. Thus there is a strong interplay between greater observance of civil and political rights on the one hand and economic, social and cultural rights on the other.

Human rights and business and industry

Ethical and commercial considerations

Norwegian business and industry have turned their gaze far beyond our national frontiers and are now involved in business operations all over the world. Most business sectors and large enterprises have their own internationalization strategies and international trading partners. Many companies have also invested in other countries and cooperate closely with foreign companies and authorities. The fact that Norwegian business and industry are doing so well in international competition and trade has many positive aspects. Greater financial involvement can in itself help to pave the way for new ideas in the human rights area as well. At the same time, this poses a number of challenges for both companies and public authorities, and I think it would be useful for both parties to confer on some of these issues. This is why the Government has decided to establish a special forum for dialogue with the business sector.

In the debate on human rights, ethical considerations and commercial profit have often been presented as two extremes or conflicting concepts. Previously, business leaders often chose to dismiss the problem, claiming that "politics is politics, business is business". Those days are now gone. I have noted a significant change of attitude in this connection in the Confederation of Norwegian Business and Industry (NHO) and various business sectors, which now recognize that ethical and commercial considerations cannot be kept separate. The Government notes an increasing involvement in these issues.

Among authorities and consumers and, I believe, in the companies themselves, there are clear expectations as regards the companies’ ethical standards abroad. We expect them to take with them norms and attitudes that are accepted in Norway in fields such as employees’ rights and environmental issues. People should be able to recognize Norway – Norwegian standards and values – when they encounter Norwegian companies abroad.

This places a demand on companies to maintain a conscious approach to the questions of where to invest and how to assess local conditions. Financial calculations do not suffice. In the light of greater consumer awareness, many companies realize that it is in their own interest to avoid being linked with repressive regimes or unacceptable working conditions. The focus on child labour is a good example, but I believe that greater attention will also be drawn to other matters in future, such as the rights of employees. Stable political conditions will also be a concern for companies interested in securing their investments and commercial ties, and regimes which do not allow opposition and gradual change may appear to be potentially unstable. The business sector is showing growing interest in political and human rights conditions for both commercial and ethical reasons.

The Norwegian trade unions have long been involved in efforts to promote human rights, and business associations are playing an increasingly active role. The Confederation of Norwegian Business and Industry has recently produced a "checklist for companies establishing international operations", which will contribute constructively to the further dialogue on these issues. Moreover, a number of companies have taken the initiative for drawing up their own ethical guidelines and hiring personnel with expertise in the field of human rights. This is commendable, and will serve as a good example. We for our part will strengthen our capacity to provide Norwegian companies with guidance and information in matters relating to human rights issues in international business.

As I mentioned earlier, the Government is now establishing a consultative body comprising representatives of the ministries concerned, trade and employee organizations, human rights organizations and relevant research institutions. The Consultative Body, which will be headed by the Ministry of Foreign Affairs, is intended to serve as a forum for discussion of problems encountered by business and industry in their activities abroad. The first meeting of the Consultative Body will be held on 5 February 1998.

A political-level committee has been established which will also deal with these problems. It is made up of the state secretaries from the Ministry of Foreign Affairs, the Ministry of Trade and Industry and the Ministry of Petroleum and Energy.

We will also strengthen the capacity of the Ministry of Foreign Affairs to provide information on human rights issues to companies considering potential financial involvement. We are currently establishing a unit in the Ministry to handle such inquiries.

These measures should illustrate our readiness as public authorities to take part in consultations with companies and trade organizations to consider the many difficult aspects of questions concerning human rights.

As public authorities we can provide information, make our expertise available and take part in a dialogue with the business sector, but the final decision on financial investments must be made by the company concerned. The decisions involved often have major, long-term economic consequences. That is why the increased awareness of the business sector itself is so important.

Our expectations as regards companies' assessment of the human rights situation will depend partly on the time frame involved. We will expect greater account to be taken of such considerations where long-term investments are concerned than in the case of short-term commercial transactions. It is also easier for the company to take into account such assessments before making a decision on investment. If at a later point there are changes in the situation in the country or in the evaluation of the situation, it is much more difficult for a company to withdraw. This applies, for example, to changes in the political parameters.

The internationalization of our petroleum industry represents a particular challenge for Norway as an oil nation. Norwegian companies in this sector need to be able to operate internationally in order to develop their technologies, market position and competitiveness.

In other words, it is not a question of whether the Norwegian oil industry is to take part in the internationalization process, but of how the challenges that this poses for the industry should be tackled. It is an unfortunate fact that the bulk of the world’s petroleum resources is concentrated in countries where political institutions, democracy and human rights are not firmly established. However, under favourable conditions, the petroleum industry and the revenues it generates could promote the political and economic development of these countries. Unfortunately, it is not hard to find tragic examples of the opposite.

Today, Statoil and other Norwegian companies have a substantial international involvement. In this connection, it may be worthwhile recalling that the guidelines for Statoil’s activity were drawn up by the Government and the Storting. The Storting has decided that the state oil company is to operate commercially on a par with private companies. However, Statoil has been encouraged to maintain close contact with the authorities and base its activities on the views of the Storting as regards the approach of Norwegian business and industry to issues regarding human rights and the environment. This means that the Government expects the state companies to show vigilance, particularly in these sensitive areas.

Before I leave this subject, I would like to reiterate the importance of companies pursuing a carefully considered policy regarding the choice of countries in which to invest. As I mentioned earlier, there are countries in which the Norwegian Government takes a critical view of new investments. As for the possible winding-up of already existing operations, the effect of such action – not least with regard to the human rights situation – would have to be assessed very carefully.

The Petroleum Fund and new guidelines

Since the Government expects the business sector to take account of the human rights situation in its investment decisions, it is natural that we also apply certain criteria to the investment of State funds. As you know, the State is a major investor by virtue of its investments from the Petroleum Fund. However, we wish to draw up guidelines that are clearer than the existing ones, particularly as regards the environment and human rights. The Government will therefore come back to the Storting in the course of the spring with a proposal to supplement the guidelines for management of the Petroleum Fund.

Conclusion

Action plan for human rights

I have now reviewed the various instruments at our disposal in the fight to promote human rights. The Government will make active use of them all in order to strengthen Norwegian efforts in this field. I can inform the Storting today that the Government will draw up an action plan for the advancement of human rights, which will be submitted to the Storting this autumn in the form of a Report to the Storting. In its work on the action plan, the Government will make use of the entire range of cooperation bodies, consultations and other fora in the field of human rights in order to ensure the broadest possible dialogue, insights and views. Human rights is a topic that demands – and deserves – the broad commitment of the entire Norwegian society.

50th anniversary

The best way of commemorating the 50th anniversary of the Universal Declaration of Human Rights would be to intensify our efforts on behalf of human rights. Many events are being planned to mark this milestone, and the Government will contribute in different ways. Such an occasion should include everyone: schoolchildren and parents, young and old, activists and couch potatoes.

Human rights apply to all of us - human rights concern all of us. All of us possess the same human dignity. When an individual's rights are violated, it is our duty to come to his aid. When the values at stake concern human life, human dignity, freedom from oppression and injustice, the only meaningful response is action. It is this kind of concerted effort that will be the most worthy celebration of this 50th anniversary.