Statement to the Storting on Human Rights and Development Cooperation by Minister of Development Cooperation Kari Norheim-Larsen, 10 October 1996

Statement to the Storting on Human Rights and Development Cooperation by Minister of Development Cooperation Kari Norheim-Larsen, 10 October 1996

Unofficial translation

Madam President,

One of the primary objectives of Norwegian development cooperation policy is to ensure the realization of human rights, whether economic, social and cultural or political and civil rights. The Government's development cooperation policy actively promotes human rights within all of these areas, primarily by means of positive measures.

Norwegian development cooperation policy focuses on poverty alleviation. Our partner countries are facing enormous challenges and unmet needs in most areas of society. Poverty is an obstacle to the realization of human rights, particularly economic and social rights, but also civil and political rights. There is a lack of resources to strengthen democratic institutions, run the courts and the judicial system, produce new legislation, and provide legal aid, education and training, to mention a few of the many areas that play an important role in facilitating the promotion of human rights.

However, poverty does not relieve states of the responsibility for protecting human rights. The fact that a country is poor does not mean that the violation of fundamental political and civil rights can be accepted. All states have an obligation to promote and protect human rights under the United Nations Charter, existing conventions and the provisions of international law. This overriding principle was confirmed by the United Nations World Conference on Human Rights held in Vienna in 1993. I would add that all of the countries with which Norway is engaged in development cooperation have agreed in principle on the validity of internationally adopted standards for fundamental human rights. Not all of these countries, however, have ratified the main conventions in this field, particularly the two UN covenants of 1966 relating to human rights, to which the Minister of Foreign Affairs referred in his speech.

The reality we unfortunately often encounter is that violations of human rights occur to a greater or lesser extent in countries with which Norway is engaged in development cooperation. By means of development aid, we endeavour to support measures, institutions and reform processes that promote democracy. The Ministry of Foreign Affairs has prepared a special strategy for "Support for Democratic Development". With regard to countries in which a willingness to improve the human rights situation is reflected in practical policies, positive measures will constitute an important component of development cooperation.

Let me draw your attention to some examples. In South Africa, Norway provides support for the work of the Truth and Reconciliation Commission, for research and courses on human rights and for a number of non-governmental human rights organizations. In Eritrea and Ethiopia Norway supports legislative work, voter education and institutional cooperation. I would like to add that in the case of Ethiopia we are currently preparing to considerably intensify our efforts for democracy and human rights, in cooperation with the Norwegian Institute for Human Rights. In Uganda and Nepal we provide assistance for projects designed to improve legal aid. This week, Prime Minister Gro Harlem Brundtland is in Vietnam, where a Memorandum of Understanding will be signed which underlines the importance of support for democracy, for instance by strengthening grass roots organizations, local administration and an independent judicial system. In Zimbabwe, Norway supports study programmes in women's law and, in Sri Lanka, efforts to promote contact between ethnic groups. In Zambia, we have supported information campaigns run by local organizations aimed at raising public awareness of issues relating to democracy. Our cooperation with Tanzania includes measures to promote freedom of expression. Concrete initiatives with a view to combating child labour play a key role in relation to several of our partner countries, particularly in Asia. Support for indigenous peoples has been included in our development cooperation with several countries, especially in Latin America. These are all important areas in Norwegian development cooperation.

In addition to government-to-government cooperation, support for the development of the civil society will be a key element in the efforts to consolidate democracies and promote respect for human rights. The demand from ordinary citizens for increased respect for fundamental rights and their participation in efforts to achieve this goal will enhance progress. Strengthening the civil society is therefore an important focus of efforts to promote human rights. Much of this work is carried out in cooperation with Norwegian non-governmental organizations. The active involvement of NGOs is a mainstay of Norway's efforts to strengthen democracy and promote human rights in developing countries. Especially in countries where there is no government-to-government cooperation, cooperation with NGOs will be of decisive importance in this area.

Norway's efforts to promote human rights and democratization requires knowledge and expertise, not least in the administration of development cooperation. There has therefore been a greater emphasis in the last few years on courses and training programmes focused on these issues, some of which are run by the training division of the Ministry of Foreign Affairs and the Norwegian Development Cooperation Training Centre.

Today, human rights and democratization are routine topics in the regular consultations on development aid that are held with our partner countries at all levels of government. Human rights will be one of the issues on the agenda during my visit to Zimbabwe in a few weeks' time.

If the human rights situation in a country with which Norway is engaged in development cooperation shows clearly negative trends, the Government will consider taking appropriate measures. These measures may include adjusting, reducing or suspending development assistance funds. This will apply particularly to cases where it is evident that the authorities of the country in question are party to violations of human rights. It will also apply when violations are long-term and large-scale, and the authorities have made no effort to put a stop to them or to prosecute the perpetrators.

Our response to serious human rights violations must be based on an assessment of a number of considerations. In the case of a country which is in the throes of a deep internal crisis, at war or in conflict, it may be necessary to focus efforts on achieving peace and reconciliation, which in turn is a prerequisite for securing human rights. On the other hand, our expectations with regard to countries that are in a normal phase of development and in which the democratic process is already underway will be different.

The extent of our relations with a country must also enter into our assessment. A constructive form of response and interaction can best be achieved in the case of countries we know well, especially countries that have been established as priority countries. One example is Zambia. Because of what Norway and other donor countries perceive as a step backward in the democratic reform process, we have postponed decisions on new development aid measures. At the same time, we are maintaining a close dialogue with the Zambian authorities. We are confident that this kind of holistic approach, coordinated with the efforts of other donor countries, will contribute towards a more positive trend and reinforce the basic platform for future cooperation.

Extremes are seldom constructive. We should choose forms of response which will help to curtail or put an end to human rights violations as effectively as possible. We must take into account the role that Norway may be able to play with respect to the country in question and the way our efforts in a given situation can support or promote measures implemented by other members of the international community.

Our responses will necessarily vary from one country to another, depending on the situation. Some countries will best be influenced through silent diplomacy. Others are more likely to take our views into account if the matter is given extensive publicity. We must steer our course according to the goals we have set, selecting appropriate methods on the basis of what we consider most effective.

Our efforts will have the greatest impact if they are part of a coordinated approach. The UN and the multilateral aid organizations also have a role to play in this context, a role the Norwegian Government would like to help develop further. This applies especially to the ability to implement concrete, constructive measures to promote the democratic process and human rights in individual countries. To this end, Norway has provided substantial contributions to an earmarked UNDP fund for the promotion of democracy and good governance. Donor country meetings arranged by the World Bank and the OECD Development Assistance Committee (DAC) are also important fora for coordinating the standpoints of donor countries. It will not always be possible for the donor countries to agree on a common stance, and in special circumstances it may be appropriate for Norway to respond even if our position is not shared by other countries.

The Government will continue its efforts to develop the bilateral framework for cooperation with priority countries, focusing especially on human rights and democratization. The objective will be to clarify expectations and prerequisites as regards efforts and follow-up by both parties. We shall endeavour to formulate development agreements so as to allow for positive measures, active contact between groups of experts and an ongoing dialogue. Non-compliance with the conditions of such agreements could have negative consequences. The Storting will be kept informed of the progress of this endeavour.

In collaboration with Norwegian groups of experts, the Government will help to develop Norwegian resources and preparedness measures in connection with aid to developing countries to promote human rights and democracy activities. Within the framework of such aid, the Government will attach additional importance to

• education, training and human resource development,
• efforts to secure human rights, especially for women, children and indigenous peoples, and
• support for the civil society.

To sum up, I would like to stress the following: The Government will continue to focus on efforts to promote human rights in our relations with developing countries, primarily through cooperation and dialogue. Consideration will be given to adjusting, reducing or suspending development aid if the situation should warrant such measures.

In the field of development aid, it is important to have a long-term perspective, and not make an over-hasty decision to withdraw or break off a dialogue even though there may at times appear to be little progress, or perhaps noticeable setbacks.

The Government will strengthen the bilateral framework for cooperation and dialogue in the field of human rights. At the same time, we will endeavour to achieve greater effectiveness by strengthening our own capacity in this area.

Finally, I would like to say a few words about the criticism that has been voiced concerning our aid involvement in parts of Asia, especially China and Indonesia. I refer to the Foreign Minister's general comments on Norwegian policy in the field of human rights with regard to these countries. As far as development aid is concerned, I would like to point out that these countries have come further in their economic and institutional development than our priority countries. Therefore, it would not be in keeping with the emphasis on poverty alleviation, on which Norwegian development aid is based, to enter into traditional development cooperation with these countries. However, China and Indonesia are facing major environmental problems. The threat to the environment is a global one. Norway has a great contribution to make in this connection, for the benefit of the countries themselves, the region and the rest of the world. For this reason, we have entered into limited environmental cooperation with China and Indonesia, which includes industrial and commercial cooperation. This kind of limited aid involvement also provides us with a platform, both for a broader political dialogue and for constructive cooperation on concrete human rights projects.