Udenrigsudvalget 2019-20
URU Alm.del Bilag 21
Offentligt
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MINISTRY OF FOREIGN AFFAIRS
OF DENMARK
Danida
OCTOBER 2019
EVALUATION
OF THE DANISH NATIONAL
ACTION PLANS FOR THE
IMPLEMENTATION OF
UN SECURITY COUNCIL
RESOLUTION 1325 ON WOMEN,
PEACE AND SECURITY
 URU, Alm.del - 2019-20 - Bilag 21: Evaluering af de danske handlingsplaner for FN's Sikkerhedsråds resolution 1325 om kvinder, fred og sikkerhed URU, Alm.del - 2019-20 - Bilag 21: Evaluering af de danske handlingsplaner for FN's Sikkerhedsråds resolution 1325 om kvinder, fred og sikkerhed
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MINISTRY OF FOREIGN AFFAIRS
OF DENMARK
Danida
EVALUATION OF THE DANISH NATIONAL
ACTION PLANS FOR THE
IMPLEMENTATION OF UN SECURITY
COUNCIL RESOLUTION 1325 ON WOMEN,
PEACE AND SECURITY
OCTOBER 2019
 URU, Alm.del - 2019-20 - Bilag 21: Evaluering af de danske handlingsplaner for FN's Sikkerhedsråds resolution 1325 om kvinder, fred og sikkerhed
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Production:
Cover:
Graphic Production:
Evaluation Department, Ministry of Foreign Affairs of Denmark,
October 2019
UN Women
OTW
ISBN: PDF: 978-87-93760-24-0
ISBN: HTML: 978-87-93760-25-7
This report can be downloaded through the homepage of the Ministry of Foreign
Affairs www.um.dk or directly from the homepage of the Evaluation Department
http://evaluation.um.dk.
Contact:
[email protected]
Responsibility for content and presentations of findings and recommendations
rests with the authors.
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Contents
Acronyms
Executive summary
1
Introduction
1.1 Purpose of the evaluation
1.2 Evaluation objectives
1.3 Evaluation questions
1.4 Evaluation methodology
1.5 Scope of the evaluation
1.6 Structure of the evaluation report
1.7 Challenges and limitations
Background
2.1 UNSCR 1325
2.2 Overview of the Danish NAPs
Findings
3.1 Evaluation question 1: Results achieved in NAP portfolio
3.2 Evaluation question 2: Results of the NAPs against stated
objectives
3.3 Evaluation question 3: NAPs and stakeholder cooperation
3.4 Evaluation question 4: NAP benchmarking
3.5 Evaluation question 5: NAP policy coherence
3.6 Evaluation question 6: Overall lessons
Conclusions and recommendations
4.1 Strategy and vision
4.2 Capacity building and resourcing
4.3 Monitoring, evaluation and learning
4.4 Communications and engagement with Danish missions
4.5 Governance and stakeholder engagement
Bibliography
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Contents
The following annexes to the Evaluation Report can be downloaded as
separate PDF files from evaluation.um.dk.
Annexes
Annex A: Terms of Reference
Annex B: Evaluation Matrix
Annex C: Evaluation Methodology
Annex D: Documents reviewed
Annex E: Portfolio analysis
Annex F: List of interviewees
Annex G: Case study – Danish contribution to NATO
Annex H: Case study – Danish contribution to the EU
Annex I: Case study – Mali Core Funding to UNWOMEN
Annex J: Case study – Regional Development and Protection Pro-
gramme
Annex K: Case study – UNFPA’s Innovations to Eliminate GBV in
Humanitarian Contexts
Annex L: Case study – Peace and Stabilisation Programme in the
Horn of Africa
Annex M: Benchmarking analysis
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Acronyms
AMISOM
APP
AU
CSO
DAC
DAPP
DIHS
DNP
EAPC
EASF
EQ
ERG
EU
EVAL
FCAS
GenCap
GBV
HRBA
IASC
IGAD
IMWG
MENA
MFA
MoD
MoJ
NAP
NATO
OECD
OSCE
P/CVE
PSF
PSP
RAP
RDPP
African Union Mission in Somalia
Africa Programme for Peace
African Union
Civil Society Organisation
Development Assistance Committee
Danish Arab Partnership Programme
Danish International Humanitarian Services
Danish National Police
Euro-Atlantic Partnership Council
East Africa Standby Force
Evaluation question
Evaluation Reference Group
European Union
Evaluation Department (MFA Denmark)
Fragile and Conflict-Affected Settings
Gender Standby Capacity Project
Gender-based violence
Human rights-based approach
Inter-Agency Standing Committee
Intergovernmental Authority on Development
Inter-Ministerial Working Group
Middle East and North Africa
Ministry of Foreign Affairs
Ministry of Defence
Ministry of Justice
National Action Plan
North Atlantic Treaty Organization
Economic Cooperation and Development
Organization for Security and Co-operation in Europe
Preventing and countering violent extremism
Peace and Stabilisation Fund
Peace and Stabilisation Programme
Regional Action Plan
Regional Development and Protection Programme
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List of Abbreviations
SDDirect
SDG
SGBV
SRHR
SSF
ToR
UNFPA
UNSC
UNSCR
UNWOMEN
WILPF
WPS
Social Development Direct
Sustainable Development Goal
Sexual and gender-based violence
Sexual and reproductive health and rights
Somalia Stability Fund
Terms of Reference
United Nations Population Fund
United Nations Security Council
United Nations Security Council Resolution
United Nations Entity for Gender Equality and the Empowerment of
Women
Women’s International League for Peace and Freedom
Women, peace and security
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Executive summary
This report presents the findings of the evaluation of Denmark’s second
and third Danish National Action Plans (NAPs) for the implementation
of UN Security Council Resolution (UNSCR) 1325 on women, peace and
security (WPS) (2008-13 and 2014-19). The purpose of the evaluation was
to learn from past implementation and inform the development and
strategic direction of the fourth Danish NAP. The evaluation therefore
has a forward-looking perspective and aims to provide a constructive
discussion about Denmark’s engagement with the broader WPS agenda.
The evaluation sought to answer six key evaluation questions:
1.
What results have been achieved in portfolios related to the
National Action Plans?
Based on EQ1, what are the results of the NAPs against their
stated objectives to address and enhance women’s full and
equal participation, protection of women, transitional justice and
mainstreaming of gender equality in humanitarian efforts and
international operations?
1
How have the NAPs been used as a framework for stakeholder
cooperation? What has been the added value of this cooperation?
2
How has the Danish NAP performed when measured against
relevant NAP-benchmarks?
2.
3.
4.
1
In the evaluation ToR (Annex A), three sub-questions under EQ2 were in-
cluded:
(a) Have the NAPs been a relevant instrument for implementation of the WPS
agenda more broadly?
(b) What are the priority areas of intervention and why were these selected?
(c) What is the relation of the NAPs to overall Danish priorities and policies on
WPS and fragility? How have the NAPs been used to further the WPS agenda?
These have been incorporated into sub-questions in the evaluation matrix, al-
though not necessarily under EQ 2. For instance, (c) is more aligned with Dan-
ish policy coherence and has been included as a sub-question under EQ 5.
According to the ToR (Annex A), this includes an assessment of the current
organisation of the NAP implementation, the roles of the different stake-
holders and the collaboration between the stakeholders, including the role,
function, and composition of the Inter-Ministerial Working Group (IMWG) on
the implementation of the UNSCR 1325.
2
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Executive summary
5.
Has the NAP been coherent with the overall Danish policy on
fragile states, peace and security – as well as the Danish priority
with regards to development cooperation and humanitarian
assistance? How have the NAPs been aligned with the broader
WPS and 2030 agendas that emerged during implementation of
the two NAPs?
What are the overall lessons learned for the Danish engagement
in women, peace and security (WPS) and fragility? How can these
lessons learned be taken forward in the formulation of a new NAP
in 2020?
6.
In order to respond to these questions, the evaluation drew from five
key methods: a desk review of literature and documentation related
to UNSCR 1325 and the Danish NAPs; a portfolio analysis of 36 NAP
engagements; six in-depth case studies of selected engagements; key
informant interviews; and a benchmarking analysis of Denmark’s third
NAP against the NAPs of six likeminded countries.
A summary of the key findings of the evaluation is presented below.
The results achieved in Danish NAP portfolio engagements vary substan-
tially across different types of interventions, geographies and thematic
areas. The most
effective
engagements are those targeting women’s
participation, including in local-level peacebuilding, and protection of
women in conflict and humanitarian emergencies, particularly from
sexual and gender-based violence (SGBV). Engagements targeting or
working with specialist partners with expertise in WPS and/or gender
have been particularly
effective.
The least
impact
has been observed
for NAP engagements involving gender mainstreaming in non-WPS
focused engagements.
Humanitarian engagements have been
relevant and appropriate
to the
needs of the most vulnerable groups, including women and girls, with
evidence of growing attention to how intersecting identities increase
or reduce vulnerabilities. However, this attention to intersectionality is
much less visible in development cooperation, security and stabilisation
engagements.
Although there has been wide
coverage
of NAP engagements according
to thematic area, geography and type of engagement (bilateral, multilat-
eral and regional), there is little evidence to suggest that this coverage
was strategically driven by the NAPs. There is also limited evidence
that the NAPs themselves have been
relevant
drivers of Danish com-
mitment to WPS or strategic decision-making about WPS investment.
WPS achievements have been more widely driven by individual and
cultural factors rather than institutional or strategic factors. The explicit
de-prioritisation of a WPS and 1325 agenda within the Danish Ministry of
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Executive summary
Foreign Affairs has likely contributed to the NAP’s decreasing
relevance
over time.
The benchmarking analysis identified high scores for the Danish NAP’s
attention to participation, protection and international cooperation
themes. High scores for participation and protection are in line with the
relevance
of these themes to the UNSCR 1325 pillars. When comparing
Denmark’s NAP with the NAPs of like-minded countries, Denmark had
the lowest score across the seven countries included in the analysis
(Denmark, Finland, Iceland, Norway, Sweden, the Netherlands and Ire-
land). Despite Denmark’s low score comparatively to other like-minded
countries, several themes stood out as particular Danish ‘value-add’
areas, and these can be mobilised for greater
impact
and to carve a
deeper niche for Denmark. These include:
•
Supporting the development of partner NAPs or Regional Action
Plans (RAPs).
Emphasising women’s participation in local-level peacebuilding
efforts, with a focus on empowering and supporting the agendas
of local women’s organisations – although the extent of implemen-
tation has been varied in practice
Promoting women’s participation in peacekeeping
Pursuing development-humanitarian nexus programming by
linking the protection of women from SGBV with the promotion of
women’s empowerment and livelihoods.
Including SRHR in the fourth NAP, which would help to build wider
Danish policy coherence and concretize an increasing interest in
the humanitarian linkage between SRHR and SGBV in emergen-
cies.
•
•
•
•
Although attention to gender and women’s rights as cross-cutting
themes are listed in all Danish country programme and policy docu-
ments, references to UNSCR 1325 and the Danish NAP have become
less prominent in Danish policy, strategy and programme documents
over time. There has also been a strong shift away from WPS language
in recent development and humanitarian policies and strategies. The
declining
relevance
of the NAP for driving Danish WPS priorities may
suggest that the NAP has existed in parallel to other strategies and
policies rather than being
coherent
with them. Although the SDGs are
consistently referenced in NAP programme documents developed since
2015, references to SDG 5 in particular are not developed conceptually
or translated into practice, including at the level of results frameworks.
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Executive summary
Recommendations to strengthen
the overall strategy and vision of the
NAP
are therefore as follows:
a.
Clarify the overall Danish vision and priorities for WPS and the
fourth NAP through a structured, participatory and consultative
process ensuring input from – and reflecting the strategic priori-
ties of – the three NAP signatory departments, the PSF and civil
society stakeholders. The fourth NAP could be considered as an
overarching strategic vision and policy framework, which could
be accompanied by a more detailed and practical implementation
plan to allow for flexibility and detailed monitoring during the NAP
period.
Build political buy-in for the NAP and WPS agenda at a high level,
identifying senior stakeholders within Danish government and at
a ministerial level who could have an interest in the WPS agenda.
Devise a clear strategy for engaging those stakeholders.
Leverage thematic areas where Denmark has value-add. For
example, the inclusion of SRHR in the fourth NAP; women’s par-
ticipation in local level peacebuilding; supporting domestication of
the 1325 framework in partner countries or regions; strengthening
Danish participation in the EU Informal Task Force on 1325; and
development-humanitarian nexus programming.
Define Danish WPS vision and priorities in geographical areas
of interest for Danish foreign policy, security and development,
and integrate into other guiding strategies, policies and M&E
processes for those geographies.
Strengthen the focus on addressing underlying structural and
gender inequalities within the fourth NAP to target persistent
barriers to WPS progress.
Strengthen the focus on the needs and experiences of diverse
groups of women within the fourth NAP, acknowledging the
impact that intersecting identities have on the WPS agenda.
Ensure the NAP is integrated into existing strategic planning
processes with Danish government. For example, the annual
strategic dialogue between MFA and CSO partners; integrating
WPS into country task force missions; as well as templates for
country policies and programme development.
b.
c.
d.
e.
f.
g.
Overall, Danish NAP engagements have been moderately
effective
in
contributing to the WPS objectives of the NAPs. Where engagements
have been observed to be less
effective
and linked to poorer
impact,
lack of human and other types of resourcing is a contributing factor. As
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Executive summary
noted, NAP engagements involving gender mainstreaming in non-WPS
focused engagements were also weaker, in part as a result of weak-
nesses in staff and partner capacity to assess or support better gender
mainstreaming, or weaknesses in results frameworks. The benchmark-
ing exercise also found that Denmark’s NAP has been less
effective
than
other country NAPs in providing clear directives for gender mainstream-
ing.
The lack of a clear monitoring and tracking system for the NAP is an
important gap and is part of broader limitations in the costing frame-
work and allocated budget for NAP implementation. Funding modalities
for NAP engagements at the country and regional levels appear to be
ad hoc rather than strategic, raising questions about the
efficiency
of
Danish spend on WPS engagements.
The best examples of
sustainable
approaches to WPS activity identi-
fied are those that included partnerships with – and targeted capacity
building and financial support to – national civil society and government
partners; collaboration with and support to long term multi-stakeholder
or multilateral structures in-country; and engagements working
with and through UN agencies. Gaps highlighted in the Danish NAP
compared to other likeminded countries include defining the role of
and providing resources for national CSO involvement and allocating
earmarked funding for NAP implementation.
Recommendations related to
capacity and resourcing
are therefore as
follows:
h.
Strengthen human resources within MFA to manage and oversee
Denmark’s NAP, for example by recruiting a gender adviser or
appointing an existing staff member with gender expertise as a
focal point (for example in the PSF), as well as clarifying the time
key staff in MFA participating in the IMWG have to dedicate to the
NAP and integrate this into appraisals and job descriptions.
Take steps to make WPS funding more strategic and in order to
enhance impact, focusing on lessons learned regarding what
works, what doesn’t, under which contexts and which program-
ming modalities.
Continue to fund targeted WPS programming in addition to
mainstreaming activities. This is critical to advancing a WPS
agenda, particularly in the most complex settings where women’s
participation and rights are extremely limited.
Make internal capacity building and training on WPS and gender
mainstreaming available to MFA staff and mission staff from all
three NAP signatories. For example, how to conduct an intersec-
i.
j.
k.
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Executive summary
tional gender analysis, or integrating gender (and other dimen-
sions) into results frameworks and proposal review processes. Civil
society partners could support this.
l.
Ensure implementing partners are using gender-sensitive results
frameworks, including sex and age-disaggregated data and
gender-sensitive indicators, by making this a requirement in grant/
contract compliance procedures.
Take steps to enhance retention of female personnel, particularly
in the MoD. This may require a more introspective analysis of the
possible persisting masculine cultures in the Danish armed forces.
Earmark funds for civil society engagement in Denmark’s NAP
development and implementation, learning from the approach of
other Nordic donors.
m.
n.
As noted above, the lack of a systematic monitoring and evaluation
framework and learning processes on the NAP is hindering its
relevance
to Danish activity on WPS, and peace, security, humanitarian and
development cooperation more broadly. This is essential if Denmark is
to understand the impact of the fourth NAP on the vulnerable popula-
tions it seeks to reach, and on the wider WPS agenda, in future – and
in securing greater political will and buy-in to the WPS agenda. Recom-
mendations to strengthen
monitoring, evaluation and learning
are
therefore as follows:
a.
Develop a systematic monitoring, evaluation and learning
framework for the NAP, which is implemented and followed up on
regularly. It must also be resourced if its development, implemen-
tation and tracking are to be sustained.
Integrate NAP monitoring into programme-level results frame-
works for future NAP engagements and ensure data is disaggre-
gated by gender (and other relevant intersecting identities).
Integrate the NAP’s themes and objectives into existing review
processes
of Danish country programmes and other relevant
programmes.
b.
c.
Danish staff in missions, but also across government in Copenhagen,
are not clear on the Danish vision for the NAP/WPS, are not aware of its
content nor
relevance
to their work and have not been engaged in a
consultative process to define those priorities. There is an opportunity
for Denmark to raise awareness on the NAP and engage mission
staff in communications and dialogue to increase its relevance on the
ground, as well as gaining valuable input and collaboration from staff in
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Executive summary
missions. Recommendations to improve
communications and engage-
ment with Danish missions
are therefore as follows:
a.
Carry out structured communications activities on Denmark’s com-
mitments and vision under the NAP, and how this relates to other
peace and security, humanitarian and development commitments,
in Copenhagen and at post.
Consider producing learning products highlighting Denmark’s
contributions to WPS
and circulating widely in Copenhagen and at
post. Mobilise the 20-year anniversary of 1325 to raise awareness
within government.
b.
Finally, the NAP has not been an
effective
framework for stakeholder
collaboration. Any observations of enhanced collaboration were
attributed to the Whole of Government Approach rather than the NAP.
The Inter-Ministerial Working Group (IMWG) has not been an
effective
forum for strategic collaboration between the three NAP signatories,
with no terms of reference or direct outputs from the group contributing
to a lack of
effectiveness.
The role of civil society in the development,
drafting and monitoring of the Danish NAP has been limited, and its role
in NAP consultations can be better described as ad hoc and fragmented.
Denmark’s lack of
effective
engagement with civil society has negatively
affected the level of WPS commitment due to civil society not having a
formalised role or a clear channel of influence, in turn negatively affect-
ing NAP ownership and
sustainability.
Recommendations to improve
governance and stakeholder engage-
ment
are as follows:
a.
Revitalize the Inter-Ministerial Working Group with a clear Terms
of Reference, defining the IMWG’s role in M&E and accountability
to internal and external stakeholders.
Develop a more systematic partnership with civil society in NAP
development and implementation. The NGO Network for Conflict
Prevention and Peacebuilding (CPPB Network
3
) could be the
starting point for this.
Strategic partnerships should be built at mission level with
partners with WPS specialism, particularly in priority fragile and
conflict-affected contexts where Denmark is engaged worldwide.
Women affected by conflict should be consulted and included in
these processes
b.
c.
3
http://www.globaltfokus.dk/om-os/organisationen/arbejdsgrupper/net-
vaerk-for-konfliktforebyggelse-og-fred
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1
Introduction
Social Development Direct (SDDirect) was awarded the contract to
evaluate the second and third Danish National Action Plans (NAPs)
for the implementation of UN Security Council Resolution (UNSCR)
1325 on women, peace and security (WPS) (2008-13 and 2014-19)
4
.
The three key signatories to the Danish NAPs include the Ministry of
Foreign Affairs (MFA), the Ministry of Defence (MoD) and the Danish
National Police (DNP) representing the Ministry of Justice (MoJ). An
inter-ministerial working group (IMWG) comprised of representatives
from the three signatory ministries is responsible for coordination and
guiding implementation of the NAP. The evaluation is overseen by the
Evaluation Department at MFA (EVAL), with support, quality assurance
and additional oversight contributed by an Evaluation Reference Group
(ERG) and the IMWG.
1.1
Purpose of the evaluation
According to the evaluation ToR (see Annex A), the purpose of the
evaluation of Denmark’s second and third NAP is to learn from past
implementation and inform the development and strategic direction of
the next NAP. The evaluation therefore has a forward-looking perspec-
tive and aims to provide a constructive discussion about Denmark’s
engagement with the broader WPS agenda, the role of women in fragile
and conflict affected settings, and Denmark’s alignment of WPS with the
Sustainable Development Goals (SDGs). This evaluation report assesses
Denmark’s implementation of the NAPs against the priorities and
contributions of all relevant stakeholders, primarily the three signatories
to the NAPs.
1.2
Evaluation objectives
According to the ToR, the objectives of the evaluation are threefold:
1.
To document the results of Danish policy influence and program-
matic and operational engagements against stated priorities of
the Danish SCR 1325 NAP;
4
whe authors of the evalation report are: Julienne Corboz, Sophie Stevens,
Laura Martineau-Searle and Henry Smith.
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1 Introduction
2.
To assess the relevance of the Danish NAP against an evolving
WPS agenda, including a focus on the achievement of the SDGs –
in particular SDG 5 and 16;
On the basis of the lessons learned, to inform decision making on
the strategic and operational direction of a NAP on SCR 1325 after
2020, its coherence with overall Danish priorities and actions in the
context of current political priorities.
3.
Through objective 1, the evaluation has assessed the specific results of
Danish NAP engagements and documented results achieved at policy,
programmatic and operational levels against stated NAP priorities. This
has included assessing engagements across the three signatories of
the NAPs (MFA, MoD and DP). Through objective 2, the evaluation has
also assessed the relevance
more broadly of the NAP as a framework for
convening stakeholders, driving change in relation to the broader global
WPS agenda and supporting the implementation of SDGs 5 and 16. As
outlined in objective 3, the evaluation findings have resulted in a number
of lessons learned for Denmark’s future work on and commitment to the
UNSCR 1325 and the wider WPS agenda.
1.3
Evaluation questions
According to the original ToR for the evaluation (Annex A), the evaluation
sought to answer six key evaluation questions (EQs):
1.
What results have been achieved in portfolios related to the
National Action Plans (NAPs)?
Based on EQ1, what are the results of the NAPs against their
stated objectives to address and enhance women’s full and
equal participation, protection of women, transitional justice and
mainstreaming of gender equality in humanitarian efforts and
international operations?
5
2.
5
In the evaluation ToR (Annex A), three sub-questions under EQ2 were in-
cluded:
(a) Have the NAPs been a relevant instrument for implementation of the WPS
agenda more broadly?
(b) What are the priority areas of intervention and why were these selected?
(c) What is the relation of the NAPs to overall Danish priorities and policies on
WPS and fragility? How have the NAPs been used to further the WPS agenda?
These have been incorporated into sub-questions in the evaluation matrix, al-
though not necessarily under EQ 2. For instance, (c) is more aligned with Dan-
ish policy coherence and has been included as a sub-question under EQ 5.
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1 Introduction
3.
How have the NAPs been used as a framework for stakeholder
cooperation? What has been the added value of this cooperation?
6
How has the Danish NAP performed when measured against
relevant NAP-benchmarks?
Has the NAP been coherent with the overall Danish policy on
fragile states, peace and security – as well as the Danish priority
with regards to development cooperation and humanitarian
assistance? How have the NAPs been aligned with the broader
WPS and 2030 agendas that emerged during implementation of
the two NAPs?
What are the overall lessons learned for the Danish engagement
in women, peace and security (WPS) and fragility? How can these
lessons learned be taken forward in the formulation of a new NAP
in 2020?
4.
5.
6.
These EQs guided the evaluation inception and a series of sub-questions
were developed and are included in the evaluation matrix (Annex B).
These sub-questions and all methods employed in the evaluation were
based on two key evaluation frameworks: the OECD DAC criteria, and a
set of benchmarking themes used to frame NAP methods and categorise
results (see Annex C for a full description of the evaluation methodol-
ogy).
1.4
Evaluation methodology
A full description of the evaluation approach, framework and methods
employed is contained in Annex C, and summarised below.
In line with the Danida Evaluation guidelines (MFA 2018a) and the
evaluation ToR (Annex A), the primary framework that guided the evalua-
tion was the five criteria for evaluating development assistance, from the
OECD/DAC. There was a particular focus on relevance and effectiveness,
but with efficiency, impact and sustainability also addressed. Three
additional criteria were included to cover the humanitarian dimension,
including appropriateness (alongside the criteria of relevance), coher-
ence and coverage (ALNAP & ODI 2008). These criteria formed the
basis of the evaluation sub-questions, which are presented in full in the
Evaluation Matrix (see Annex B of the evaluation report).
6
According to the ToR (Annex A), this includes an assessment of the current
organisation of the NAP implementation, the roles of the different stake-
holders and the collaboration between the stakeholders, including the role,
function, and composition of the Inter-Ministerial Working Group (IMWG) on
the implementation of the UNSCR 1325.
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1 Introduction
A secondary evaluation framework made use of nine thematic ‘bench-
marks’. These were developed through an exercise to benchmark Den-
mark’s NAP against those of likeminded countries. During the evaluation
design these benchmark themes were streamlined throughout each
evaluation method. These themes are listed below (see Annex C for the
definition and scope of the benchmarks).
1.
2.
3.
4.
5.
6.
7.
8.
9.
The domestication of a global normative framework on WPS
Participation
Protection
Mainstreaming
A gender perspective
The role and organisation of national CSO involvement
International cooperation
Indicators
Earmarked funding
The evaluation drew from five key methods:
1.
A desk review of literature and documentation related to UNSCR
1325 and the Danish NAPs (almost 500 documents)
A portfolio analysis of 36 Danish NAP engagements and 18 sub-
engagements
Six in-depth case studies of NAP engagements selected during the
inception period, including 46 interviews with key stakeholders,
including Danish embassy focal points in missions, other donors,
Danish implementing partners and civil society actors
Seventeen additional key informant interviews, including with
MFA, MoD and DNP stakeholders in Copenhagen and New York,
and civil society focal points in Copenhagen and in other countries
Benchmarking Denmark’s third NAP against the NAPs of six
likeminded countries.
2.
3.
4.
5.
Overall, a total of 72 people were included in 63 interviews at the
case study and key informant levels. An additional seven people not
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1 Introduction
interviewed during the implementation period were involved in initial
consultations during the inception period.
1.5
Scope of the evaluation
This evaluation covers the Danish implementation of the second and
third NAPs (2008-13 and 2014-19). There has been a breadth of Danish
WPS engagements across multiple geographical settings between 2008
and 2019, with shifting geographical attention at different time points.
For instance, while Afghanistan was a key site for NAP II engagements,
there has been more Danish emphasis on the Sahel region and the
Horn of Africa in more recent years. This is reflected in the selection of
case studies leaning more heavily towards the Sahel and Horn of Africa
regions, done in part in order to support a forward-looking perspective
in sites that are of key strategic interest for Denmark. The Middle East
and North Africa (MENA) region is also captured in the case study selec-
tion.
The evaluation team acknowledges that there have been some limita-
tions in retrospectively analysing the second NAP with the evaluation
methodologies employed and available resources. As might be expected,
during the desk review conducted to inform the evaluation inception
and design, more recent NAP documents covering the current NAP
were more easily available and complete. Further, Danish stakeholders
involved in the second NAP drafting and implementation were difficult to
locate for consultations, and current stakeholders had little institutional
knowledge or memory of the time spanning the second NAP. To address
these limitations, the evaluation team included NAP II engagements
in the evaluation methods employed as much as possible, in order to
analyse key changes between the NAP phases.
1.6
Structure of the evaluation report
The evaluation report is structured in three main chapters:
1.
The background, including a description of UNSCR 1325 and the
global WPS agenda, and an overview of the Danish NAPs;
The key findings of the evaluation presented according to the six
primary evaluation questions and sub-questions as outlined in the
evaluation matrix (Annex B);
7
2.
7
Note that the findings for some sub-questions are presented in a different
order within the evaluation report to that found in the evaluation matrix.
This is simply for clarity and narrative purposes.
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1 Introduction
3.
The conclusions and recommendations.
The full content or results from each method listed in Section 1.4 above
is included in annexes to the report, including:
•
Desk review – a full list of documents reviewed is contained in
Annex D
Portfolio analysis – a narrative analysis and description of portfolio
results is included in Annex E
Key informant interviews – a list of all interviewees, including for
case studies, is included in Annex F
Case studies – six full case studies are included in Annexes G to L
Benchmarking analysis – a full comparative analysis of nine
benchmarking themes across the Danish NAP and the NAPs of six
likeminded countries is included in Annex M.
•
•
•
•
1.7
Challenges and limitations
The evaluation encountered some challenges in measuring NAP results
against indicators given the very different structure of indicators
between the two NAP documents. The second NAP includes five broad
indicators, which made it difficult to isolate progress on specific engage-
ments. The third NAP includes more specific actions and indicators
for all specific engagements, leading to a different set of challenges.
Even where NAP actions had been delivered, results could not always
be measured against NAP indicators if indicators were not clearly
and coherently linked to the activities. In some cases, WPS-related
programme or project results were extensive, but these could not be
captured under the specific indicators listed in the NAP. To overcome
these challenges, the evaluation analysed NAP results against both NAP
indicators and broader WPS achievements.
The evaluation faced a number of challenges obtaining documentation.
There were particular challenges accessing older documents covering
the second NAP period (2008-2013), documents listing concrete results
of NAP or WPS-related engagements, documents linked to the Peace
and Stabilisation Fund (PSF) and documents from the MoD and DNP.
Gaps in documentation are partly related to the lack of clear monitoring
and reporting mechanism to track NAP results; however, there appears
to be a broader gap in capturing WPS-related achievements due to
poor gender mainstreaming and reporting of results, particularly
within multilateral engagements. The evaluation thus recognises that
there may be some bias in the portfolio analysis results. For instance,
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1 Introduction
it is likely that the breadth of NAP and WPS engagements during the
second NAP period is larger than that captured in this evaluation. The
geographical coverage presented in the portfolio analysis is also not fully
representative of Denmark’s support to a WPS agenda, given the lack of
documentation available on NAP engagements in some countries.
In relation to the benchmarking analysis, it is recognised that there
are some limitations in benchmarking based on NAP documents alone
given that countries may not implement what is stated in a NAP. The
benchmarking analysis consists primarily of comparing Denmark’s NAP
with those of like-minded countries but evaluating the actual implemen-
tation of other country NAPs was beyond the scope of this evaluation.
However, the evaluation attempted to triangulate the NAP content
of like-minded countries with actual implementation where relevant
by reviewing more recent reports and assessments of country NAPs.
This was challenging given that the NAPs reviewed are currently being
implemented. It is recognised that there is some bias in this approach
given that triangulation was more likely to have happened for countries
prioritising mid-term reviews and making these publicly available.
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2
Background
2.1
UNSCR 1325
In October 2000, the United Nations Security Council (UNSC) adopted
Resolution 1325 (UNSCR 1325) after recognition that women and girls
experience specific needs and vulnerabilities during conflict and instabil-
ity and have a vital role to play in conflict prevention and resolution,
peacebuilding, peacekeeping and post-conflict reconstruction. Prior
to the resolution being passed there had been more than a decade of
increasing concern about human rights violations against women and
girls in conflict settings. These violations included the systematic use of
rape and other forms of abuse as an instrument of war, including in the
Rwandan genocide and civil wars in former Yugoslavia, the Democratic
Republic of Congo, Sierra Leone and Liberia. Furthermore, the 1995
Beijing Declaration and Platform for Action acknowledged human rights
violations against women in times of armed conflict.
8
Despite some
precursors to the 1325 resolution, the resolution itself is often referred
to as being a landmark due to the UNSC for the first time directly
acknowledging the importance of addressing the needs of women in
armed conflict (Cohn 2008).
The UNSCR 1325 resolution includes a series of mandates that are
commonly aligned with four pillars: participation, protection, prevention,
and relief and recovery (Table 1). These pillars are not mutually exclusive
and intersect in a number of ways; for instance, the participation of
women in peacekeeping missions and military operations can have a
positive impact on the protection of women and girls in conflict settings,
including in relief and recovery. Further, protecting the rights of women
and girls, including by increasing their economic security, can assist in
the prevention of GBV.
8
https://www.un.org/womenwatch/daw/beijing/platform/plat1.htm
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2 Background
Table 1: Women, peace and security pillars
Pillar
Participation
Definition
Calls for the participation and inclusion of women in all levels of decision-making, including at local,
national and international levels. This involves the inclusion of women as peacekeepers, negotiators in
peace processes, mediators in the prevention and management of conflict resolution, and in key posi-
tions within peace and security engagements, including military, police and humanitarian personnel.
Calls for the protection of the rights of women and girls, particularly from sexual and gender-based
violence (SGBV), and assurance of their rights to safety, health, and social and economic security. The
pillar especially highlights the protection needs of women and girls in humanitarian settings, including in
conflict-driven displacement.
Calls for the prevention of conflict and all forms of SGBV, including by involving women and gender
mainstreaming approaches in conflict early warning systems, disarmament and preventing/countering
violent extremism (P/CVE), and adopting measures to prevent SGBV, such as through legislation and
activities that challenge gender-discrimination and work with men and boys.
Calls for the specific needs of women and girls in conflict and post-conflict relief and recovery to be met.
This includes in the delivery of humanitarian assistance, and in processes such as resettlement, disarma-
ment, demobilization and reintegration.
Protection
Prevention
Relief and
recovery
Since the adoption of the 1325 resolutions in 2000, the UNSC has
adopted seven additional resolutions that align with and extend the
WPS agenda, including resolutions 1820, 1888, 1889, 1960, 2106, 2122,
and 2422. However, 1325 continues to be the core driver of a global
WPS agenda, which has seen some important gains. According to the
Women’s International League for Peace and Freedom (WILPF), as of
November 2018 79 UN member states have developed UNSCR 1325
NAPs, and 11 Regional Action Plans (RAPs) are in place, including RAPs
of the European Union (EU), African Union (AU), and the North Atlantic
Treaty Organization/ Euro-Atlantic Partnership Council (NATO/EAPC).
9
Over the past few decades there have been more women participating
as senior leaders in the UN and other organisations central to peace and
security, and a number of different normative frameworks supporting a
WPS agenda have been developed and endorsed, particularly in relation
to sexual violence in conflict (UNWOMEN 2015).
Approaching the 20
th
anniversary of UNSCR 1325, the global setting is
significantly different to the one that pushed forward a WPS agenda
during the 1990s and early 2000s. There are new global normative
frameworks for development and humanitarian action, including the
2030 Agenda and 17 sustainable development goals (SDGs). There
are also new driving factors for conflict and vulnerability, including
large-scale global migration and displacement, climate change and
violent extremism. These new driving factors have paved the road for a
9
http://www.peacewomen.org/member-states
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2 Background
set of WPS global priority issues, highlighted in particular in the global
study on 1325 conducted by UNWOMEN (2015). Several of the themes
emerging in the UNWOMEN report and in more recent documents were
highlighted as priority areas in the interviews conducted for this evalu-
ation, particularly by civil society focal points and stakeholders at the
country level. A selection of these priority areas identified are described
briefly below. This is not an exhaustive list but rather a selection based
on some of the core themes emerging from this evaluation.
Displacement and migration
UNSCR 1325 and corresponding NAPs have acknowledged the impor-
tance of displacement to a WPS agenda, particularly in relation to the
protection pillar and the exploitation, violence and abuse that women
and girls experience due to conflict-driven displacement. The issue of
displacement has become even more prominent after the global refugee
crisis following the war in Syria. Nevertheless, the issue of displacement
in 1325 NAPs has more commonly been addressed through foreign
policy rather than domestic policies addressing the needs of female
refugees and asylum seekers (Trojanowska et al. 2018). This is linked to
a broader tendency of outward-looking NAPs to exclude the domestica-
tion of 1325 (WILPF 2018; WILPF 2019). An evolving WPS agenda thus
requires greater attention to the protection of women and girls in
multiple contexts of migration and displacement. This priority is in line
with revised indicator 20 in the comprehensive approach to the EU
implementation of UNSCR 1325 and 1820 on WPS, ‘Protection of female
asylum seekers in the EU’ (Council of the European Union 2016: 20).
Prevention of conflict
UNWOMEN’s (2015: 191) Global Study reminds us that at the heart of
the 1325 resolution should be the prevention of conflict rather than the
use of force: “Women, peace and security is about preventing war, not
making war safer for women”. This is reflected in a greater discourse
throughout the WPS literature on the importance of prevention; how-
ever, few NAPs focus on conflict prevention or adopt activities specifically
related to prevention of conflict (OSCE and Inclusive Security 2016).
There are a number of ways in which the global WPS agenda is empha-
sizing the importance of conflict prevention. A key one highlighted in the
findings of this evaluation is the importance of addressing root causes of
conflict, including gender inequality, exclusion, discrimination, structural
inequalities and violent masculinities (UNWOMEN 2015). A recent
UNWOMEN (2018) study found that patriarchal and militarized systems
that reproduce gender inequality are the most significant barriers to
women’s participation in the prevention of conflict.
Preventing and countering violent extremism
Radicalisation and violent extremism have gained increasing attention
across the International Community, with corresponding attention
placed on the role of women and girls in preventing and countering
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2 Background
violent extremism (P/CVE). UNWOMEN’s (2015: 222) Global Study
stresses that while women should be consulted in P/CVE activities,
their autonomy needs to be respected and their rights “should not
be securitized and should not be seen as an instrumental tool for
countering extremism”. Securitizing the rights of women can lead to the
co-opting of their rights for the use of counter-terrorism and place them
at increased risk of violence.
Intersectionality
Intersectionality is the recognition that people experience multiple
forms of inequality and discrimination and that these intersect in various
ways across categories of identity such as gender, class, age, ethnicity,
race, ability, sexual orientation and socioeconomic status. Women and
girls are not a homogenous group and gender is only one dimension of
difference or identity (UNWOMEN 2015). Intersectionality is clearly repre-
sented in the 2030 Agenda through ‘Leaving no one behind’, which seeks
to ensure that the needs of the most marginalised and disadvantaged
are met (United Nations 2015). It was also referenced in the UNSC (2016)
Report of the Secretary-General on women and peace and security,
which outlines the “need to address multiple and intersecting forms of
discrimination, including those based on disabilities, indigenous status,
sexual orientation or other factors” (p. 2).
Sexual and reproductive health and rights
The UNWOMEN study recognises, in line with UNSC 2122, the impor-
tance of ensuring that humanitarian aid includes provision of health
services for women, such as services supporting sexual and reproductive
health and rights (SRHR), including regarding pregnancies resulting
from rape. The issue of SRHR emerged strongly in the interviews for
this evaluation. In a global context of increasing conservatism around
the concept of SRHR, the withdrawal of support from this priority
area is being felt on the ground. Civil society actors in the Horn Africa
interviewed for this evaluation highlighted examples of how withdraw-
ing SRHR from protection efforts is eroding women’s rights and putting
them at greater risk of SGBV and sexual exploitation abuse.
2.2
Overview of the Danish NAPs
As the first country to launch its own NAP, Denmark has been at the fore-
front of the global WPS agenda since 2005. There have been a number
of shifts in stakeholder, thematic and policy content in Denmark’s NAPs
since the first one was developed in 2005. This section provides a brief
description of the Danish NAPs and how they have changed and evolved
over the past 13 years, with a particular focus on the second and third
NAPs, which form the basis of this evaluation.
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2 Background
NAP 2005
The first NAP (MFA and MoD 2005) had two signatories, the MFA and
MoD, and comprised a brief first NAP document (although the key refer-
ence document in English is a summary translation). At the operational
and policy levels, the NAP had three priority areas: increased gender
balance in the recruitment of staff members to the Danish defence
forces and in international operations; the protection of women’s and
girls’ rights in areas where Danish troops were deployed; and increased
participation and representation of women in peace building and recon-
struction processes in areas where Danish troops were deployed. There
is also reference to strengthening UNSCR 1325 implementation through
multilateral partnerships, including the UN, Organization for Security
and Co-operation in Europe (OSCE), NATO and EU, with a number of cor-
responding lines of action stated for partnerships with these multilateral
organizations as well as the AU and sub-regional organisations through
the Africa Programme for Peace (APP). The NAP also outlines Danish
development cooperation and humanitarian assistance as key vehicles
of 1325 implementation in conflict-affected settings. It is interesting to
note that the NAP does not follow the four pillars of the 1325 mandate
(participation, protection, prevention, and relief and recovery), although
participation and protection in particular are emphasised through the
priority areas.
NAP 2008-2013
The second Danish NAP (MFA, MoD and DNP 2008) emphasised the
continuity of Danish commitment to bilateral, multilateral, regional and
humanitarian WPS engagements and incorporates a number of new
key actors, including: the DNP as an additional signatory to the NAP, the
IMWG as the responsible party for reporting on NAP implementation,
monitoring and progress, and civil society as key stakeholders in the
NAP consultative process and implementation, with specific mention
of Danish civil society organisations (CSOs). The second NAP outlined a
number of lessons learned from the previous NAP, including the need
to incorporate a more systematic approach to addressing gender and
WPS in development and humanitarian settings affected by conflict, the
need for more systematic monitoring of NAP results, and more focus on
women’s participation in conflict resolution and peacebuilding given that
the previous NAP had focused much more on protection.
The second NAP outlined three key objectives:
1.
Achieving greater, active participation of women in peace building
at international and local levels
Enhancing the recognition of the special needs and rights of
women and girls before, during and after armed conflict
2.
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2 Background
3.
Providing protection of girls and women against violence, includ-
ing SGBV, and ending impunity for gender crimes.
The second NAP also included five key indicators against which to
measure results:
1.
A SCR 1325 perspective is part of the guidelines for civil-military
co-planning activities and incorporated into all relevant missions,
SCR 1325 actions are included in the human resource development
and management portfolio of the MoD, DNP and Danish Interna-
tional Humanitarian Services (DIHS)
Higher female ratio is obtained in Danish police and armed forces
contributions to international peace missions
Examples of specific actions related to combatting SGBV and
increasing women’s participation in peacebuilding are presented
in IMWG meetings and documented as relevant and feasible
The annual and ongoing dialogue between Denmark and the UN
raises awareness of SCR 1325 actions and this is documented in
dialogues and reports.
2.
3.
4.
5.
The second NAP is more extensive and departs from the first NAP in a
number of ways, including through: a greater focus on pursuing peace
building and non-military processes in conflict and post-conflict settings;
explicit reference to gender equality and the promotion of human rights
of women, men, boys and girls; and recognition that women are both
affected by SGBV and agents of change, marking a shift away from
discourses of women as victims of conflict (Bergman 2014).
NAP 2014-2019
The third Danish NAP (MFA, MoD and DNP 2014), spanning the years
2014-2019, outlines a number of key lessons learned from the previous
NAP, including the need to be more specific regarding implementation
of activities to facilitate follow up and delivery of results. This is strongly
reflected in the style and content of the third NAP, which contains an
extensive list of specific engagements along with corresponding actions
and indicators for each of the NAP signatories. The MFA engagements
are organised according to bilateral engagements (within corresponding
countries), and multilateral, regional and humanitarian engagements. In
contrast, the MoD and DNP list NAP engagements and indicators mainly
according to planning, coordination, training and recruitment, in line
with the more operational nature of MoD and DNP NAP activities.
The third NAP does not present specific objectives, but rather empha-
sises the continuation of the objectives of its predecessor. The third NAP
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2 Background
does however highlight a number of additional lessons learned from the
previous NAP, including the need to better integrate longer-term devel-
opment and humanitarian assistance, and the importance of emphasis-
ing women’s income generation and employment, and gender equality
through education, not just women’s justice, security and protection.
The NAP also highlights a number of guidance points for implementa-
tion of interventions, including: working with women’s organisations,
CSOs and international partners, including the UN, to ensure women’s
representation; focusing on results at country level; supporting capacity
development in partner organisations; integrating work to combat SGBV
in reconstruction efforts, particularly related to security sector reform
and support to the rule of law; supporting the Gender Standby Capacity
Project (GenCap) through the use of the Inter-Agency Standing Commit-
tee (IASC) Gender Marker tool in humanitarian projects, and deployment
of GenCap Advisors; and adding value to gender analysis by focusing
on the roles of men and boys in drivers of conflict in fragile and conflict-
affected settings (FCAS). In addition to outlining specific NAP engage-
ments and indicators, the third NAP also lists key overarching actions to
be implemented over the NAP period, supported by NAP signatories.
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3
Findings
3.1
Evaluation question 1: Results achieved in NAP
portfolio
WHAT RESULTS HAVE BEEN ACHIEVED IN PORTFOLIOS
RELATED TO THE NAPS, INCLUDING: BILATERAL COOPERATION
AND HUMANITARIAN ACTION, REGIONAL PROGRAMMES,
MULTILATERAL COOPERATION (INCLUDING UN, NATO AND
EU), DANISH NGO PARTNERS, DNP AND MOD?
The results achieved in NAP portfolio engagements vary substantially
across different types of interventions, geographies and thematic areas.
The most
effective
engagements are those targeting women’s participa-
tion, including in local-level peacebuilding, and protection of women in
conflict and humanitarian emergencies, particularly from SGBV. Engage-
ments targeting specialist partners have been particularly
effective.
The
least
impact
has been observed for NAP engagements involving gender
mainstreaming in non-WPS focused engagements.
Humanitarian engagements have been
relevant and appropriate
to the
needs of the most vulnerable groups, including women and girls, with
evidence of growing attention to how intersecting identities increase or
reduce vulnerabilities. However, this attention to intersectionality is much
less visible in development cooperation, security and stabilisation engage-
ments.
The best examples of
sustainable
approaches to WPS activity identified
are those that included partnerships with – and targeted capacity building
and financial support to – national civil society and government partners;
collaboration with and support to long term multi-stakeholder or multi-
lateral structures in-country; and engagements working with and through
UN agencies.
To answer EQ1, a portfolio analysis was completed based on key data
extracted from 36 NAP engagements for which documentation was
shared with the evaluation team. Additional data for the MoD and DNP
NAP activities was also reviewed. The full portfolio analysis can be found
in Annex E of the evaluation report. The description of the methodology
for the portfolio analysis is included in Annex C. Data from the portfolio
analysis is complemented by the findings from the desk review, case
studies and interviews with key informants.
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3 Findings
To what extent have NAP portfolio engagements attained their
outputs, outcomes and objectives?
Overall, there is a very
mixed picture
across the NAP portfolio engage-
ments in relation to achievement of outputs, outcomes and objectives.
However, there are some clear trends in terms of theme and to some
extent type of engagement. For example, engagements under the
participation theme had much stronger results than those focused on
WPS mainstreaming. Bilateral engagements (as per the categorisation
within Denmark’s third NAP and within the portfolio analysis) appeared
to show the most concrete results in many cases with much more
variable performance across regional and multilateral engagements.
As noted in Section 1.7, a limitation in assessing results of NAP engage-
ments was the
lack of or inconsistent data
in relation to both NAP
indicators and other programme or project level results. This is due to a
combination of factors, including no system to track and measure NAP
results, and NAP actions and indicators not necessarily aligned with
actual WPS activities. This was particularly the case for MFA engage-
ments, as opposed to MoD and DNP activity. Based on available data,
the following observations can be made in relation to achievement of
both
NAP indicators and wider outputs, outcomes and objectives.
Engagements with a primary focus on
participation
performed
better than the other primary themes (protection, domestication of a
normative framework on 1325, and mainstreaming) against both NAP
indicators and other relevant objectives. Bilateral engagements focused
on women’s political participation and participation in peacebuilding
performed the strongest within this thematic, as well as regional pro-
grammes that engaged specialist partners; for example, the
Danish Arab
Partnership Programme (DAPP)
work with the Danish partner KVINFO, and
UNWOMEN in Mali. Participation of women in peacekeeping was more
varied with evidence of more recruitment and better retention of women
in the DNP than the MoD, and poor results for women’s participation in
peacekeeping in the Iraq/Syria PSP and the Horn of Africa PSP.
Engagements with a primary focus on
protection
performed the best
in relation to SGBV and, as above, when engaging a specialist partner;
for example, the
Regional Development and Protection Programme (RDPP)
work with ABAAD in Lebanon, or bilateral engagement with a GBV
recovery centre in Kenya. Results were poorer in relation to targeting
protection through livelihoods and income-generation activities. RDPP
faced several complex challenges in targeting sustainable and effective
livelihoods support to SGBV survivors, with a key lesson learned that
SGBV survivors experience multiple vulnerabilities requiring more
intensive support to achieve sustainable livelihoods that can support
their families, whereas the DAPP appeared more successful through
the work of its partner KVINFO. As above, the strongest results were
achieved where a specialist partner was engaged, for example KVINFO
under the DAPP.
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3 Findings
More varied results were observed for engagements with a primary
thematic focus on
domestication of a global normative framework
on 1325
and
mainstreaming,
with the weakest performance observed
in relation to mainstreaming focused engagements. In many cases data
was not disaggregated by gender within results frameworks, which
made mainstreaming impossible to measure.
Overall, engagements that included funding to
specialist partners
with WPS and gender expertise,
including UN agencies, and local and
international civil society organisations, also yielded some of the most
concrete results – owing to their specialisms in doing this work within
their particular contexts (see for example RDPP and UNWOMEN Mali
case studies).
Results for the MoD against third NAP actions and indicators are mixed.
There are clear areas of success as measured in the 2017 NAP status
document. For example, NAP actions were successfully completed in
relation to
monitoring the numbers of women and gender/cultural
advisers
participating in international missions, integrating gender into
training and educational initiatives and
participation in international
fora
like NORFEDCO, NATO and other cooperation in the Nordic region.
However,
more than half of MoD’s NAP actions were not completed.
These all relate to analysis and evaluation exercises; for example, re-
evaluating the opportunity to bring in gender/cultural advisers due in
2017, or evaluation of the MoD’s Diversity Policy. The general HR strategy
and defence action plan for 1325 were also not developed. It is possible
that some of these actions have been implemented since the 2017 status
update. However, it could be that NAP actions were not realistic, or there
was not subsequent resource to fulfil them. There were no targets set
on deployment of female peacekeepers or gender advisers to missions,
so it is hard to judge achievement here. There was however an increase
in the numbers of gender/cultural advisers in missions but these still
remained at a fairly low level.
In the 2017 NAP status document for the MoD, two research-related
outputs were noted, including a joint research project by the Royal
Danish Defence College´s Institute for Language and Culture with the
Danish Institute for International Studies about the United Nations
Multidimensional Integrated Stabilization Mission in Mali (MINUSMA)
(DIIS 2016). The Royal Danish Defence College’s Institute for Language
and Culture also worked on a gender-related project in 2017, although
the NAP status document does not provide any detail about the content
or its relationship with WPS.
10
10
2017 NAP Status Document Ministry of Defence.
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3 Findings
Results for the DNP against the third NAP actions and indicators were
more consistent, with
three out of four NAP actions completed
and indicators fulfilled. Integration of gender-related issues into
training of local police forces,
for example, has seen some strong
results. UNSCR 1325 has been integrated into training for overseas
policing instructors and a smaller number have been trained in SGBV as
an international crime. There has also been an increase in the number
of female instructors. In addition, all pre-deployment training now
includes aspects on gender and 1325. The DNP has also reached and
maintained its target of
≥10%
Danish female police officers deployed to
missions, with a 23% current deployment rate, although the absolute
number remains limited given small overall deployment rates. The NAP
action not completed relates to integrating gender-related issues in the
planning of missions. This is due to the DNP not having any influence on
mission strategic plans, which is done in Brussels. However, the DNP is
committed to fulfilling this should they get an opportunity.
What factors facilitated or constrained the achievement of
results?
11
Multiple factors appear to have influenced the achievement of results
in different contexts, including funding modality, geographical context,
implementing partners and commitment or awareness of the individual
staff involved in WPS activities.
Overall,
bilateral engagements
(as defined by Denmark’s third NAP
and portfolio analysis – where Denmark was engaging bilaterally in one
country context) achieved more concrete and consistent results than
multilateral and regional engagements. This finding is likely due in part
to clearer and more structured monitoring and reporting of results in
bilateral engagements, linked to more Danish oversight over account-
ability. Several MFA stakeholders in Copenhagen and country missions
noted that investing in multilateral engagements eased accountability
and reporting requirements for Denmark, which in turn eased pressure
on Danish staff given limitations in human resourcing. Several Danish
stakeholders also referred to Denmark being a ‘lean’ donor that avoided
putting unnecessary accountability and reporting pressures on imple-
menting partners.
These issues aside, the more
direct relationship
Denmark has with
bilateral partners at the country level appears to be a key facilitator of
more effective results, particularly where individuals are committed to
a WPS agenda and have the WPS knowledge and skills, and resources
to engage more actively with implementing partners. For instance, a
bilaterally funded participatory governance and peacebuilding project
11
(E.g. extent and nature of partnerships, funding modalities, cross-govern-
ment collaboration, programme management processes).
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3 Findings
in Somalia and Somaliland exceeded most of its targets, including those
related to engaging women, with the Danish focal point in Hargeisa
playing a pivotal role in pushing the project to rethink how to engage
women at critical moments.
Lack of resources,
however, continues to
be a challenge. For instance, a Danish focal point from the Embassy in
Bamako, Mali, noted that Denmark did not have the time or resources to
engage more actively in its bilateral engagement with UNWOMEN and
were happy for them to continue given the embassy’s confidence in their
performance (see Annex I for the UNWOMEN Mali case study). It may
be that more Danish support is required when working with non-WPS
specialist organisations, such as the one mentioned above supported by
Denmark’s office in Hargeisa.
Geographical context
is also a strong factor that has facilitated or
constrained the achievement of NAP results. Although results varied
across geographical contexts, the most challenges to WPS achievements
were observed in
highly unstable and insecure contexts
such as
Somalia. In these contexts, conflict and fragility intersect with highly
patriarchal social and cultural norms that restrict women’s participation
in peacebuilding and political governance. Examples of these challenges
are evident in the Somalia Stability Fund (SSF) where, for instance,
projects have struggled to translate commitments for a 30% quota for
women’s participation in parliament and other governance bodies into
actual appointments (see Annex L for the PSP in the Horn of Africa case
study).
To what extent have NAP engagements indicated evidence of
WPS/gender mainstreaming, and how is this done (through 1325
or other policies and strategies)?
The
poorest results
across the four main thematic areas are for
mainstreaming gender or WPS into non-WPS focused engagements,
and this is evident for engagements that have mainstreaming as either
the primary or secondary thematic focus.
A key finding is that although
gender, women’s rights and WPS are consistently listed as crosscutting
themes in Danish country, PSP and regional programme documents and
policies, this is rarely reflected in results frameworks.
Based on consultations with key informants, there are several reasons
for this. A key one, particularly for PSP, regional and country pro-
grammes, is the
difficulty of integrating multiple sub-engagements
under a coherent programme results framework.
This means that
programme results frameworks are driven by individual project results
frameworks, and there is little evidence of Denmark mandating the
inclusion of WPS indicators or sex-disaggregated data. Several Danish
stakeholders in both Copenhagen and at mission level suggested that
this was partly driven by the Danish tendency to be a ‘lean donor’ and
limit requests made of partners, as mentioned further above. One stake-
holder at mission level did, however, suggest that some mechanisms
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3 Findings
were in place to support better mainstreaming. For instance, attention
to mainstreaming may be reflected in the selection of engagements,
with preference sometimes given to those with clear WPS or gender ele-
ments and indicators. Further, programme appraisal processes should
lead to the adjustment of results frameworks if gender is not adequately
captured. This should be integrated into quality assurance processes
around appraisals.
The findings of this evaluation suggest that
programme appraisals
are not always translated into effective mainstreaming.
In the PSP
in the Horn of Africa, it appears that an appraisal of the first phase that
recommended more attention to gender mainstreaming and analysis
was not incorporated into the final programme document (see Annex L).
One MFA stakeholder in Copenhagen confirmed that appraisals are not
always effective facilitators of more comprehensive attention to WPS in
programme documents. In particular, it was suggested that the Peace
and Stabilisation Fund (PSF) Inter-Ministerial Steering Committee, which
oversees PSPs, could easily reject appraisal recommendations if they
were perceived to lack relevancy. A key challenge reported in this regard
was the lack of capacity or commitment to gender and WPS within the
committee, which meant that appraisal recommendations related to
gender mainstreaming were unlikely to be adopted.
Another gap identified was the
lack of gender marking of humani-
tarian project proposals – as per the NAP indicator.
One Danish
stakeholder in Copenhagen noted a particular constraint around the lack
of attention to gender in the vetting for established funding streams
with Danish NGOs. This restricts the extent to which demands for
significant change can be made around individual engagements. Nev-
ertheless, there are clear possibilities for improving attention to gender
mainstreaming in humanitarian partner organisations, some of which
are being implemented. For instance, when partners are submitting new
proposals there are some criteria used to measure success, one being
attention to vulnerable groups, including women and girls. This could
be elaborated to have a clearer set of criteria, for example that results
frameworks and indicators are disaggregated by gender and other
dimensions. Further, extent of gender mainstreaming and WPS focus
could be included in the annual consultation with humanitarian and civil
society strategic partners.
Were NAP engagements with a particular thematic focus more
successful than others, and what accounted for success or
non-success?
Each NAP engagement had a primary focus on one of four themes:
domestication of a normative framework on 1325, participation, protec-
tion, and mainstreaming.
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3 Findings
Overall, the strongest results were observed for engagements with
participation
as their primary theme. This may partly be due to the
more quantitative nature of indicators under this thematic which made
it easier to assess whether targets had been met. Efforts to promote
women’s political participation were reasonably successful; for example
the DAPP’s work on supporting female electoral candidates, the National
Democratic Institute’s (NDI) work in Mali on
Gender mainstreaming
of NDI
election activities,
and
Mali core funding for UNWOMEN’s
work on high-
level peace mechanisms. PSP engagements saw more varied results for
political participation, particularly in the Horn of Africa where the Somali
context was cited as being particularly challenging, and where previ-
ous gender mainstreaming approaches were weak.
Results related to
women’s participation in peacebuilding were also varied but with some
clear successes within bilateral engagements in Somalia and Somaliland,
and Mali. Results related to promoting women’s participation in peace-
keeping were weaker, in particular under the Iraq-Syria PSP and the
Horn of Africa PSP. Overall the participation thematic is where the most
challenges were reported related to implementation.
As discussed above, the weakest results across the four main thematic
areas were observed for engagements with ‘mainstreaming’ as their
primary theme.
The engagements with
protection
as a primary theme saw the largest
number of engagements with either no NAP action listed, NAP actions
not completed or if completed, results either not achieved or unclear.
Many of the second NAP engagements included in the portfolio
(and for which documentation of results was difficult to obtain) were
predominantly aligned with protection. Further, several newer protec-
tion engagements were conceived after the development of the third
NAP (and thus are not listed in the NAP document). Where results are
available, the most concrete results were observed for SGBV engage-
ments. Denmark is also emerging as a leader in linking SGBV and SRHR
in humanitarian emergencies, including hosting the Danish Forum on
SRHR in Humanitarian Assistance in September 2018. Denmark is also
funding the research sub-working group of the Interagency Working
Group (IAWG) on Reproductive Health in Crises, which is conducting
research on what works on the ground in SRHR and SGBV response.
The majority of NAP activity related to supporting
domestication of a
global normative framework on 1325
focused on multilateral engage-
ment; in particular, support to institutional structures and policies on
1325/WPS within multilaterals and multilateral missions. However, the
most concrete NAP results were documented within engagements
at a country level
in relation to adoption of new NAPs in South Sudan
and Mali, for which Denmark was a key partner contributing to both
processes.
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3 Findings
To what extent have NAP engagements been in line with the
needs of the most vulnerable groups, including women and
girls?
Humanitarian engagements supported by Denmark make various refer-
ences to meeting the needs of the most vulnerable groups. This
atten-
tion to appears to have strengthened
in recent years. For instance, the
UNFPA-implemented Innovations to Eliminate Gender-Based Violence in
Humanitarian Contexts (2014-2019) makes explicit reference to reaching
specific categories of women and girls, such as young girls being par-
ticularly vulnerable to trafficking, and women and girls with disabilities,
and improved on earlier documentation (see Annex K). However, these
references are still limited to a select number of countries; for instance,
reaching women and girls with disabilities in Palestine. A targeted
intersectional approach that identifies vulnerability according to the
interconnected identities of women and girls would enhance project
impact in reaching the most vulnerable populations.
According to a MFA stakeholder in Copenhagen, the
humanitarian
team makes concerted efforts
to ensure that implementing partners
address the needs of the most vulnerable populations. For instance,
attention to vulnerable groups, including women and girls, is a criterium
for Danish selection of humanitarian proposals, with information
requested about specific beneficiary groups. An example was provided
of an organisation that submitted a proposal on birth delivery, with
attention just to pregnant women. In the proposal review process,
the humanitarian department requested additional details, including
whether pregnant women targeted would be young/older, young
mothers, poor or from female-headed households. Thus, an intersec-
tional approach is supported by Danish humanitarian staff, although
‘intersectionality’ is not necessarily a term commonly used by the MFA or
in project documentation.
Attention to implementing an intersectional
approach is much less
visible in development cooperation, security and stabilisation
engagements.
Danish programme and country policy documents all
contain sections on gender and women’s rights, more recently alongside
a human rights based approach. Much of this documentation includes
an analysis of gender in specific contexts that identifies women and
girls as vulnerable. However, this is rarely extended to a deeper analysis
of how intersecting identities increase or reduce vulnerability. At the
monitoring and evaluation level, results frameworks tend to include
women as a homogenous group.
To what extent were indicators used in the NAPs appropriate
for capturing results from NAP actions?
As discussed earlier in this report, a basic limitation in assessing results
of NAP engagements was the lack of or inconsistent data in relation
to both NAP indicators and other programme or project level results.
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3 Findings
The evaluation team experienced missing documentation or informa-
tion across engagements, including lack of progress, monitoring and
evaluation reports or unclear information in existing reports. The NAP
indicators themselves were also not systematically measured through
any M&E processes, so some indicators were ignored, appear irrelevant
to the subsequent engagement’s activities, or were never communicated
to those implementing the engagements (lead departments or imple-
menting partners) and thus not measured. This was particularly the case
for MFA engagements, as opposed to MoD and DNP activity.
Which types of engagements have been the most sustainable
and why?
The
best examples
of sustainable approaches to WPS activity identi-
fied seem to be those that included partnerships with – and targeted
capacity building and financial support to – national civil society and
government partners; collaboration with and support to long term multi-
stakeholder or multilateral structures in-country; and engagements
working with and through UN agencies.
Despite some significant challenges, discussed further below, examples
of success include the following.
•
Through earmarked Danish support to UNWOMEN core funding
in Mali,
embedding technical assistance within government
structures
over several years and supporting national NAP
domestication processes has had clear sustainability benefits
compared to other potential approaches (see Annex I).
Work through the Somalia UN Multi-Partner Trust Fund, which
embedded gender advisers within the Somali Ministry for Women
and Human Rights and supported establishment of a national task
force on women in Parliament. UNWOMEN was also funded by
Denmark under the MPTF, which helped to align Danish support
with wider UN efforts and strategy in Somalia on the WPS agenda.
Although staff from the Danish embassy in Nairobi noted that
there were some challenges with the UNWOMEN component
of the engagement, mainly related to capacity gaps, with
UNWOMEN-specific funding discontinued more recently.
Bilateral support
for WPS engagements with
close oversight
from Danish stakeholders,
particularly with non-WPS specialist
implementing partners, has had clear sustainability benefits, with
learning about what works to address the needs of women and
girls being incorporated into subsequent projects funded by other
donors. Danish human resources supporting this learning have
been critical to success.
•
•
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3 Findings
•
Contributions to the Joint Peace Fund in Myanmar which had a
strong focus on achieving benefits for women and girls, accompa-
nied by a
clear Fund-wide strategy, integration into M&E and
gender adviser capacity
within the fund.
Several
challenges
to the sustainability of NAP engagements were
identified in this report, with some specific findings on sustainability
emerging from the portfolio analysis and case studies. Some key lessons
regarding sustainability are synthesised below.
•
Sustainability of NAP engagements is linked to
support for a
WPS agenda
and a recognition of its
relevance and importance
among key stakeholders.
The NATO case study identified lack of
buy in, or perceptions of irrelevancy of gender and WPS, as both
obstacles to progressing on 1325 commitments and a threat to the
sustainability of gains made (see Annex G).
There were several examples of NAP engagements that have not
been or are unlikely to be sustainable due to
insufficient atten-
tion to addressing structural and gender inequalities,
including
patriarchal and militarised structures. For instance, in the PSP
in the Horn of Africa case study, local level peacebuilding efforts
have lacked sustainability where insufficient attention was paid
to patriarchal systems of control over women’s decision making.
Training of female peacekeepers has lacked sustainability where
hierarchical military structures have prevented the participation
of lower ranked women, often those most in need of capacity
support (see Annex L).
•
An issue that emerged across the evaluation was the importance of
localisation, particularly
sustaining peacebuilding efforts by
funding
local actors,
in line with Grand Bargain commitments. This issue was
raised in several interviews with civil society focal points who stressed
that there were
large gaps in donor attention to resourcing women’s
rights organisations and WPS civil society actors at the local level,
particularly through earmarked funding. Denmark is also perceived to
be responsible for this gap in funding local-level women’s CSOs.
The portfolio analysis suggests that although there are few examples
of Denmark providing direct funding support to civil society, there
are multiple engagements in the NAP portfolio targeting support for
local women actors, in peacebuilding efforts in particular. However,
this support isn’t very visible because of the general lack of adequate
monitoring, reporting and learning, which makes it difficult to observe
achievements in this area. This is in turn linked to many of these engage-
ments being funded through multilateral partners, pooled funds or
through larger regional programmes where results are more difficult to
capture.
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3 Findings
The portfolio analysis found that some types of WPS engagements may
be more successful when funded bilaterally, particularly in contexts
where encouraging women’s participation and changing social norms
are highly challenging, in part due to the more direct support that
Denmark could provide. Success was also observed in deliberate atten-
tion to supporting local civil society actors in multilateral engagements.
This suggests that there needs to be more strategic thought directed
towards the funding modality of WPS engagements.
3.2
Evaluation question 2: Results of the NAPs
against stated objectives
BaseD on evaluatIon questIon 1, what are the results
OF THE NAPS AGAINST THEIR STATED OBJECTIVES TO ADDRESS
AND ENHANCE WOMEN’S FULL AND EqUAL PARTICIPATION,
PROTECTION OF WOMEN, TRANSITIONAL JUSTICE AND
MAINSTREAMING OF GENDER EqUALITy IN HUMANITARIAN
EFFORTS AND INTERNATIONAL OPERATIONS?
Overall, Danish NAP engagements have been moderately effective in
contributing to the WPS objectives of the NAPs. Where engagements have
been observed to be less effective and linked to poorer impact, lack of
human and other types of resourcing is a contributing factor. The lack of
a clear monitoring and tracking system for the NAP is an important gap
and is part of broader limitations in the costing framework and allocated
budget for NAP implementation. Funding modalities for NAP engage-
ments at the country and regional levels appear to be ad hoc rather than
strategic, raising questions about the efficiency of Danish spend on WPS
engagements.
Although there has been wide coverage of NAP engagements according
to thematic area, geography and type of engagement (bilateral, multilat-
eral and regional), there is little evidence to suggest that this coverage
was strategically driven by the NAPs. There is also limited evidence that
the NAPs themselves have been relevant drivers of Danish commitment
to WPS or strategic decision-making about WPS investment. WPS achieve-
ments have been more widely driven by individual and cultural factors
rather than institutional or strategic factors. The explicit de-prioritisation
of a WPS and 1325 agenda within the MFA has likely contributed to the
NAP’s decreasing relevance over time.
To what extent have NAP portfolio engagements contributed
to the overall objectives of the NAPs?
The focus on participation and protection within NAP engagements, as
highlighted by the portfolio analysis, clearly aligns with the overarching
objectives outlined within the second Danish NAP, which continue to act
as a guiding framework for the third NAP, notably:
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3 Findings
1.
Achieving greater, active
participation
of women in peace build-
ing at international and local levels (third NAP: “Support the full
and equal participation of women in prevention and resolution
of conflicts, peace negotiations, peacebuilding, peacekeeping,
humanitarian response and in post-conflict reconstruction in
accordance with SCR 1325”.
Enhancing the recognition of the
special needs and rights
of
women and girls before, during and after armed conflicts;
Providing
protection
of girls and women against violence, includ-
ing gender-based violence, such as rape and sexual abuse, and
ending impunity for gender crimes.
12
2.
3.
More could be done however to enhance the
recognition of the special
needs and rights of women and girls before, during and after armed
conflicts
through mechanisms such as the Peace and Stabilisation Fund
(PSF). Regional peace and stabilisation programme (PSP) results from a
gender and WPS perspective were generally weaker than bilateral and
multilateral engagements. Some of this relates to the persistent barriers
to women’s participation in contexts such as Somalia, as reported by PSP
Horn of African stakeholders (see Annex L for PSP Horn of Africa case
study) but there is also evidence that
Denmark is not making the most
of the PSF at a strategic, global level to promote WPS objectives.
There is no overarching strategy, M&E system or targeted incentives to
promote WPS mainstreaming into the PSF. Although the Guidelines for
the PSF (MFA and MoD 2018b) contain a brief section on the importance
of addressing human rights, gender and youth, no guidance is given on
how this should be done and there is no reference to tools or checklists
that would aid a gender mainstreaming approach.
The contribution of NAP portfolio engagements towards the additional
strategic priorities in the third NAP, outlined below, is less consistent:
13
1.
Actively promote
gender aspects of the Responsibility to
Protect and transitional justice
programmes to end impunity for
sexual and gender-based violence in conflicts (somewhat echoes
objective three above from the second NAP).
Participate in the
International Dialogue on Peacebuilding and
State-building
and focus on implementing the New Deal and
its embedded five peace and state building goals, which require
systematic inclusion of a gender perspective.
2.
12
13
These objectives are outlined on page 9 of Denmark’s second NAP 2008-
2013.
These strategic priorities are outlined on page 9 of Denmark’s third NAP
2014-2019.
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3 Findings
3.
Focus on
promoting women as peace-builders
in specific
country programmes in fragile and conflict-affected states with a
particular focus on active involvement of multilateral actors.
Work to ensure that
international operations and humanitarian
efforts
include a clear gender perspective.
4.
Whilst the portfolio analysis identified women’s participation in peace-
building as an area of relative strength for Denmark’s NAP activity, there
was little focus on gender aspects of the
Responsibility to Protect (R2P)
agenda
or
transitional justice.
The only work on R2P identified for
this evaluation was at the UN mission in New York, where Denmark has
been active in making relevant statements in the UN Security Council
and General Assembly on the protection of women.
14
Only two out of
36 engagements had a focus on transitional justice, although both
saw strong results: Denmark’s bilateral contribution to UNWOMEN’s
core funding in Mali, and Danish support to The Day After in Syria
through the Syria-Iraq PSP. Strong results are particularly visible for the
UNWOMEN engagement in Mali, where transitional justice mechanisms
have been successful in increasing women’s leadership and testimonials
from women survivors of SGBV.
Engagements targeting
women’s participation in peacebuilding
comprise the dominant focus of participation thematic work, particularly
within bilateral engagements, and to a lesser extent, multilateral
engagements. Almost all engagements related to peacebuilding have
focused on women’s local-level peacebuilding and participation in
conflict resolution and mitigation, with few engagements targeting
women’s higher-level participation in peace negotiations. Interviews
with key stakeholders suggest that this has been deliberate, at least at
individual country/mission or programme level, with other states such
as Sweden, Finland and Norway more active in this space (see Section
3.4 of the report), and Danish staff attempting to carve a stronger
niche in support to women’s participation in local-level peacebuilding.
However this does not necessarily represent a strategic choice on behalf
of Denmark at a higher level since no evidence was found of this when
reviewing other policy documents, but rather may reflect the recognition
by staff in missions or Copenhagen level that investment in local level
peacebuilding is important and in many cases, a gap on the ground
where Denmark can support. This is also in line with the findings of a
recent piece of research conducted on Nordic cooperation on peace and
conflict resolution (Hagemann & Bramsen 2019). There is therefore an
opportunity for Denmark to better integrate this thematic into strategic
policy under the fourth NAP and beyond.
14
Stakeholder interview with Danish representative to UN in New York.
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3 Findings
There has been less focus on and weaker results in relation to integrat-
ing gender into
international operations,
including in peacekeeping
efforts. The portfolio analysis suggests that the MoD and DNP have
focused on WPS-related training and recruitment of women; however,
the MoD in particular has struggled to retain female recruits. At the
international level, a focus specifically on training and recruitment has
not necessarily led to impact on the ground. For instance, the case study
of the PSP in the Horn of Africa (see Annex L) found that the women in
peacekeeping missions most in need of capacity building are not neces-
sarily the ones who have access to training. Further, women in peace-
keeping are not necessarily being recruited into protective environments
with adequate resources.
Have the NAPs been a relevant instrument for implementation
of Denmark’s WPS priorities?
Interviews with key Danish stakeholders revealed widespread percep-
tions that the first and second NAP were important in driving forward
the importance of the 1325 agenda for Denmark, but that the third
NAPs has not been the critical driver of Danish WPS priorities, though it
is often difficult to separate the impact from other plans, strategies and
policies.
There are however a number of examples of how the NAP has been
useful in driving forward a WPS agenda. These are mostly in relation to
Danish multilateral contributions, including to NATO and the EU. Two
stakeholders who previously worked in the Danish mission to NATO
in Brussels suggested that although the NAP did not necessarily drive
commitment to a WPS agenda, the NAP document had been useful in
legitimizing attention to 1325. For example, according to one Danish
stakeholder, the NAP had been useful in mobilising support in Copenha-
gen for a Danish voluntary contribution to the office of the NATO Special
Representative for WPS (see Annex G, NATO case study). The NAP was
also noted to have been useful in feeding into EU council conclusions,
particularly when states disagreed on the right language to use (see
Annex H, EU case study). The NAP appears to have had less relevance in
the Danish mission to the UN in New York, with the Danish 1325 focal
point suggesting that the NAP does not contain anything specific related
to the everyday work of the mission. Nevertheless, he expressed hope
that this would change with the fourth NAP. Strengthening the1325
political mandate from Denmark could contribute to Denmark’s 2024
campaign for inclusion in the UN Security Council in 2025-2026, should
Denmark decide to run.
The question of whether the NAPs have been relevant instruments for
the implementation of Denmark’s WPS priorities is in some ways difficult
to answer given the temporal nature of how they have intersected
with other key plans, strategies and policies. For example, one MoD
stakeholder suggested that the MoD’s Diversity Policy has likely been
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3 Findings
more responsible than the NAP for MoD commitment to and success in
recruitment of women. However, it is possible that the redevelopment
of the MoD’s Diversity Policy in 2011 was itself partly driven by the vision
included in the second Danish NAP. One MFA stakeholder suggested
that the question of what has driven Danish commitment to WPS is a bit
of ‘chicken or the egg’ based on the fact that Denmark has a NAP based
on its commitment to women’s rights and gender equality. Various
stakeholders emphasised that although the first and second Danish
NAPs were pivotal in driving forward the importance of a 1325 agenda
for Denmark, the third NAP has been less relevant for driving change.
Several reasons were provided for why the third NAP in particular has
lacked relevancy.
•
Because the third NAP was based on
indicators linked to very
specific engagements
rather than a Danish vision, it has lost
relevance for stakeholders, particularly those who are not impli-
cated in specific engagements outlined in the NAP.
The specific structure and content of the third NAP
does not allow
the flexibility
to shape or provide direction to
new global and
Danish priorities
as they arise. For instance, both the second and
third Danish NAPs are weak in attention to how a 1325 agenda
intersects with displacement. Subsequently, a growing focus on
the refugee crisis and migration lacks strategic links to the NAPs
and Denmark’s WPS priorities.
Denmark is
less active in deployments to peacekeeping mis-
sions,
and this has likely detracted attention from a WPS agenda.
•
•
Stakeholders interviewed for the evaluation repeatedly stated that
gender equality and WPS are key features of and priorities within
Danish development cooperation, humanitarian assistance and military
and peacekeeping engagements. This is strongly reflected in the
documentation reviewed for the evaluation, where gender equality and/
or WPS are referenced across policy, strategy and programme docu-
ments as crosscutting themes. Nevertheless, MFA stakeholders both in
Copenhagen and missions also reported that clear messaging had been
given to de-prioritise gender and WPS. One stakeholder in Copenhagen
noted that Denmark’s official development aid (ODA) reduced from 0.84
to 0.7%, leading to cutbacks on several priorities, including gender and
WPS, with MFA decisions made to ‘do maintenance’ rather than focus on
new engagements.
At the mission level, the de-prioritisation of a WPS agenda has caused
some confusion. According to one staff member in the Danish Embassy
in Nairobi:
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3 Findings
“There is a strong recognition in the field that 1325 is important in Somalia
and also in Kenya, but there was a directive from Copenhagen to downsize
prioritisation to the NAP and 1325. This may have changed the perspective
in Copenhagen, but in the field if you want to work on peace, security and
stabilisation, you have to work on gender. We cannot downsize prioritisation
here at the field level, so it is strange and a bit confusing to see those direc-
tives.”
Several MFA stakeholders also reported confusion about having to
report on NAP indicators in the 2017 NAP status update requested by
parliament after being told to downsize prioritisation to 1325.
To what extent did the NAP drive Denmark’s WPS achievements,
as compared to WPS achievements driven by other means? What
is the value added of the NAP?
The findings of the evaluation suggest that although earlier NAPs may
have been important to framing Denmark’s commitment to 1325 and a
WPS agenda,
Danish WPS achievements in more recent years have
been largely disconnected from the NAP.
The desk review identified
references to the Danish NAP in country programme and policy docu-
ments during the period spanning the second NAP; however, these
references have waned over the period of the third NAP and are almost
entirely absent from Danish policies, programme documents and
strategies. There are some references to UNSCR 1325 in more recent
documentation; however, not specifically in relation to the Danish NAP.
Interviews with key stakeholders confirm these findings. Almost all
stakeholders interviewed for the evaluation, both in Copenhagen and
in field missions, suggested that the NAP was not a document they
referred to or used in their daily work, and some staff had not heard
of it or read it until being requested by the parliament to report on the
NAP status in 2017. Key stakeholders were asked about what has driven
Danish commitment to WPS and achievements in this area, if not the
NAPs. There were several responses to this question:
•
Almost all Danish stakeholders interviewed for the evaluation
referred to attention to gender equality and women’s rights being
a ‘natural’ part of Danish culture and identity: ‘gender
is just what
we do’.
Stakeholders in both Copenhagen and at the mission level sug-
gested that currently, the ‘World 2030 - Denmark’s strategy for
development cooperation and humanitarian action’ (MFA 2017a) is
a more important driver of decision-making related to WPS issues.
Several stakeholders also referred to specific individuals driving
forward commitment to a WPS agenda; in particular, the former
Minister for Development Cooperation, who was named as pivotal
•
•
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3 Findings
in decision-making to support WPS issues, including in relation to
SGBV and SRHR.
•
At the mission level, several Danish stakeholders suggested that
attention to WPS was rooted in a personal or individual recogni-
tion that lack of attention to gender equality and women’s rights in
fragile and conflicted affected settings (FCAS) would be damaging.
According to these responses, although the ‘World 2030’ features as an
important policy document, WPS achievements have been more widely
driven by individual and cultural factors rather than institutional or
strategic factors. References in particular to gender equality being inher-
ent in Danish culture appear to be driving some complacency in terms of
attention to WPS, with the perception that ‘we are Denmark, we just do
it’ replacing more targeted and systematic attention to WPS priorities.
To what extent has Denmark balanced different thematic,
geographical and types of engagements in order to ensure
coverage of 1325 priorities?
The dominant themes within the NAP portfolio in terms of each
engagement’s
primary theme are protection and participation.
Just
over a third of the portfolio (13 engagements, or 36%) had ‘protection’
as a primary theme, with a similar number (12 engagements, or 33%)
focused primarily on ‘participation’. Fewer engagements had ‘domestica-
tion of a global normative framework on 1325’ and ‘mainstreaming’ as
their primary themes, with 16% and 14% of the portfolio respectively. In
the analysis of relevant themes across all engagements, protection and
participation remained two of the most significant, but
mainstreaming
was identified across the largest number of engagements. Around 27%,
or 23 engagements, include some element of ‘mainstreaming’ relevant
to WPS.
The engagements are spread across a range of geographies, with the
highest number of engagements (over a third) being multi-country in
nature, three of which are implemented across different global regions
(Figure 1).
Afghanistan
and
South Sudan
have the highest number of
engagements in a single country, with four engagements in each. Other
significant geographies are Sahel Region (particularly Mali) and the Horn
of Africa (predominantly Kenya and Somalia/Somaliland), where there is
both a regional PSP as well as several single-country engagements. The
Middle East and North Africa (MENA) region also features geographically,
with Iraq and/or Syria being a major focus, and Iraq, Jordan, Palestine,
Lebanon and other MENA countries targeted through regional pro-
grammes such as the RDPP and the DAPP.
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3 Findings
Figure 1: Portfolio by geography
The majority of NAP engagements (19) fall under the third NAP period
with a balance of largely bilateral and multilateral engagements (see
Figure 2). Six engagements (all bilateral) fall within the second NAP
period and eleven engagements cross over both NAP periods, compris-
ing five continuing multilateral engagements (e.g. UN, EU, NATO), three
regional engagements and three bilateral engagements.
Figure 2: Spread of engagements across NAPs
Although the majority of engagements are overseen solely by the MFA,
three regional engagements (all PSPs) involve NAP stakeholder col-
laboration (two between the MFA and MoD, and one between the MFA,
MoD and DNP) and two multilateral engagements involve stakeholder
collaboration (MFA and MoD in the NATO engagement and MFA and DNP
in the EU engagement).
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3 Findings
Overall the portfolio is comprised of an equal number of multilateral and
bilateral engagements (15 of each out of 36, or 42%). The remaining six
engagements (16%) are comprised of regional programmes such as the
DAPP, RDPP and regional PSPs.
Despite wide coverage of NAP engagements according to thematic area,
geography and type of engagement (bilateral, multilateral and regional),
there is
little evidence to suggest that this coverage was strategi-
cally driven by the NAPs.
The Horn of Africa and the Sahel region are
noted as priority regions for Denmark in the ‘World 2030: Denmark’s
strategy for development cooperation and humanitarian action’ (MFA
2017a) and in other Danish policies and strategies. However, there is
no specific reference in the third Danish NAP to priority countries and
regions. This may be due to shifting Danish priorities over time; however,
stakeholders interviewed for the evaluation suggested that the NAP
consisted of a ‘hodge-podge’ or ‘cherry-picking’ of WPS-related engage-
ments, predominantly those that were already in existence or planned at
the time of NAP drafting, rather than strategically selected engagements
balanced in favour of Danish priorities.
To what extent has Denmark’s internal capacity building on
1325 and WPS issues, including in peacekeeping and military
engagements, been effective in contributing to the NAP
objectives?
Capacity building on 1325 and WPS issues is
clearly integrated into
MoD and DNP NAP indicators and achievements,
particularly in rela-
tion to peacekeeping mission pre-deployment. Although MoD training
covering WPS issues is not necessarily framed in WPS-specific language,
content on ‘cultural awareness’ is streamlined through pre-deployment
training and this incorporates attention to gender and women’s rights.
MoD training also covers specific thematic content on preventing sexual
exploitation and abuse (PSEA) in peacekeeping missions.
The DNP has an instructor pool, in which a smaller number of police
officers are specially trained to perform various training assignments
for local police around the world. This pool of almost 50 instructors
is deployed to participate in various types of training, including on
1325-related topics in order to build knowledge and capacity within the
instructor pool. Examples of training that DNP instructors have partici-
pated in include SGBV training for police on how to handle SGBV and
rape as a weapon of war, and rapid justice reaction training to prepare
investigators and judicial experts to investigate SGBV in conflict areas.
Four police instructors are currently capacitated to instruct 1325 topics
and work as gender advisors and 25% of Danish trainers (11 out of 44)
are women.
Internal capacity building on 1325 and WPS is much less visible among
senior MFA staff or field mission staff (MFA, MoD or DNP). Interviews
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3 Findings
with stakeholders in Copenhagen and in field missions suggested that
pre-deployment training on 1325, WPS or gender more broadly is not
a requirement for field mission staff and it is unclear if such training is
made available.
Field mission staff in particular suggested that
WPS pre-deployment
training would be useful,
although the content of it should be tailored
to their needs given that mission staff would require different knowl-
edge and skills than advisors and peacekeepers. For instance, one field
mission staff member suggested that training on gender mainstreaming
was not available but would be helpful given that gender is a crosscut-
ting theme in Danish policies and programmes, including in the PSP.
Underneath the gap in internal capacity building on WPS lies the belief
that although military training should be required, non-military and
civilian Danish staff do not require internal capacity building on gender
or WPS given that gender equality is a ‘natural’ part of Danish way of life
and has largely been internalised among Danish civil servants. Several
civil society focal points in Copenhagen and in other settings suggested
that the tendency for internal capacity building to be targeted towards
military rather than civilian engagements is part of the external-looking
nature of NAPs in Denmark and in other like-minded countries.
Despite some
perceptions that Danish MFa staff are capacitated
enough
in WPS to mainstream gender in development cooperation,
humanitarian and peace and stabilisation engagements, the weak
portfolio results observed in mainstreaming, and poor integration of
sex-disaggregated data and gender analysis in results frameworks may
suggest otherwise.
One Danish stakeholder in Copenhagen suggested
that gender advisors were rarely if ever integrated into consultant teams
developing documents for country or regional programmes due to lack
of prioritising human resource funding in this area.
To what extent has Denmark earmarked budgets for NAP
implementation either at the overall NAP level or for specific
WPS activities? What has been the driver of earmarking?
There are two levels of resourcing that are key to enabling successful
NAP implementation: resourcing the implementation of the NAP itself,
and resourcing NAP engagements. The evaluation findings suggest that
there are gaps in particular in the first type of resourcing.
Resourcing NAP implementation
Lack of human resources in the MFA to support WPS and gender main-
streaming in NAP engagements is part of a broader gap in resourcing
the implementation of the NAP.
The Danish NAP does not include a
costing framework, or an allocated budget for its implementation. Lack
of resourcing appears to
be further driven by the de-prioritisation of
a WPS agenda. This is visible, for example, in perceptions in Brussels
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3 Findings
that Denmark has withdrawn its 1325 attention from the EU, with the
Danish seat in the EU 1325 Informal Taskforce reported by a number
of stakeholders to be largely vacant (see Annex H, EU case study). MFA
staff members both in Copenhagen and at the mission level in different
countries stressed that attention to WPS was only one of many compet-
ing responsibilities.
Another key gap in NAP resourcing to emerge from interviews with
stakeholders and key informants was the shortage of funding to civil
society at the domestic level. Civil society focal points in Copenhagen
and in other European settings emphasised that if governments want
to improve their work on WPS and be more accountable, inclusive and
impactful, funding civil society is vital. There was some recognition in
Copenhagen that larger NGOs had more ability to access funding to
engage in WPS activities, including though strategic partnerships with
the Danish MFA. However, focal points emphasised the need to fund
smaller CSOs in order to facilitate their involvement in WPS advocacy
and consultations.
Resourcing NAP engagements
It is evident from the portfolio analysis that there has been significant
spend on NAP engagements, with particularly large spend on broader
PSP and regional engagements that attempt to mainstream gender or
WPS. However, the finding that mainstreaming has been poor overall
suggests that this spend has not necessarily been effective or efficient in
pursuing a WPS agenda.
There is little evidence of budgets allocated specifically for NAP
implementation at the global level. There is some earmarking of funds
for specific WPS activities at the regional and country level and these
engagements generally achieved good results. There were three particu-
lar engagements linked to earmarked funding that have shown strong
results or appear to be promising.
1.
Under the
Danish Arab Partnership Programme, 2013-2016,
impres-
sive results were achieved by the targeted WPS partner KVINFO
within their activities across target countries for the period 2013-
2016 (no evidence was provided for 2017-2022). This appears to be
a result of funding a partner with specialist expertise in WPS able
to identify priorities and entry points.
Through earmarked Danish support to
UNWOMEN core funding
in Mali,
UNWOMEN has taken to embedding technical assistance
within the Ministry for the Promotion of Women, Children and
Families and providing significant resources to the domestication
and institutionalisation of Mali’s NAP. This approach has had clear
sustainability benefits compared to other potential approaches.
UNWOMEN cited the funding of their WPS P4 adviser by Denmark
2.
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3 Findings
as a key enabler of their achievements with the Ministry and in
securing cross-government engagement in Mali’s NAP implemen-
tation. UNWOMEN also reported that the funding of a dedicated
staff team in UNWOMEN over multiple years via the core funding
approach taken by Denmark had enabled more flexible, adaptive
and context-appropriate support to WPS in Mali (see Annex I).
3.
Under the
Africa Programme for Peace,
the Danish embassy in
Addis is currently taking the lead on WPS engagements in the AU
and there is a new WPS earmarked engagement worth 25 million
DKK to support 1325 coordination in the AU. It is hoped that this
will improve WPS results under the APP which have been poor to
date due to weak gender mainstreaming.
When asked about earmarking funding for the implementation of WPS
engagements, MFA stakeholders in both Copenhagen and at the field
mission level expressed caution in doing so for several reasons. One MFA
stakeholder at the mission level suggested that earmarking funding for
specific engagements required resources to follow those engagements,
which was challenging in a resource-limited environment. Another MFA
stakeholder in Copenhagen suggested that donors should be cautious
of earmarking funding for WPS as a particular focus on certain thematic
areas might lead to gaps in other important areas.
To what extent are staffing resources for NAP
implementation, monitoring and reporting sufficient for
carrying out a WPS agenda?
The
lack of a systematic monitoring and reporting mechanism
for
the NAP is a key gap identified in the evaluation. There has been no
system established for awareness raising or lesson learning across NAP
stakeholders on 1325 portfolio implementation. Several stakeholders
noted that they had not read the third NAP and were not aware of NAP
actions or indicators corresponding to their work until requested to
submit reporting data for the 2017 status update. This gap in recording
WPS achievements suggests a blind spot and underreporting of Danish
WPS efforts and achievements, and limits Denmark’s capacity to contrib-
ute to the global evidence base on what works and what doesn’t work in
advancing a WPS agenda.
This blind spot is further compounded by Denmark’s tendency to be
a ‘lean’ donor and limit requests made of partners to integrate WPS
indicators and sex disaggregation of data into results frameworks (as
observed in Section 3.1). This is a particular issue at the field mission
level. Feedback from the MFA in Mali suggested that although Danish
support to UNWOMEN had contributed to strong results, these contribu-
tions were not systematically captured within a monitoring framework
and there has been no mechanism for reporting them to Copenhagen.
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3 Findings
This was felt to have weakened prioritization of WPS objectives within
the Danish Embassy in Mali.
The tendency to be a ‘lean donor’ is as much about lack of human
resources as it is about easing pressures on implementing partners. As
outlined in Section 3.1, the evaluation identified broader gaps in human
resourcing to support NAP implementation and engagement. At the field
mission level, Danish staff are stretched across multiple and competing
priorities and there is little if any support from dedicated gender advi-
sors.
3.3
Evaluation question 3: NAPs and stakeholder
cooperation
HOW HAVE THE NAPS BEEN USED AS A FRAMEWORK FOR
STAKEHOLDER COOPERATION? WHAT HAS BEEN THE ADDED
VALUE OF THIS COOPERATION?
The third NAP in particular has not been
relevant
to NAP signatories
(MFA, MoD, DNP). Stakeholders overall felt that the third NAP lacked policy
relevance to their everyday work, and to any strategic vision for advancing
a WPS agenda.
The NAP has not been an
effective
framework for stakeholder collabora-
tion. Any observations of enhanced collaboration were attributed to the
Whole of Government Approach rather than the NAP. The Inter-Ministerial
Working Group (IMWG) has not been an
effective
forum for strategic
collaboration between the three NAP signatories, with no ToR or direct
outputs from the group contributing to a lack of
effectiveness.
The role of civil society in the development, drafting and monitoring of
the Danish NAP has been limited, and its role in NAP consultations can be
better described as ad hoc and fragmented. Denmark’s lack of
effective
engagement with civil society has negatively affected the level of WPS
commitment due to civil society not having a formalised role or a clear
channel of influence, in turn negatively affecting NAP ownership and
sustainability.
To what extent was the design of the NAPs relevant to the
three NAP signatories?
Stakeholders overall felt that the third NAP lacked policy relevance to
their everyday work, and to any strategic vision for advancing a WPS
agenda. There were more mixed perceptions, however, about the
extent to which the
actual design
of the third NAP was relevant in a
more practical and useful way. As mentioned previously, several NAP
stakeholders, including from the three signatories, perceived the NAP
document to read as a list of engagements that were ‘cherry picked’
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3 Findings
rather than providing a strategic direction for Denmark. As one MFA
stakeholder suggested:
“It is easier to just list what you are already doing, and more risky to state a
vision for where you want to be in five years, but the rewards for the second
approach would surely be more valuable”.
Several stakeholders suggested that the structure of the NAP was good
as a model for clearly listing priority engagements; however, there was
some recognition that this was limited by the lack of further guidance on
framing future engagements and the fit with changing priorities at the
overall policy and strategy levels. Nevertheless, overall, NAP stakehold-
ers agreed that the actions, outputs and indicators were too broad and
often self-evident. One stakeholder suggested that the NAP was useful
as a way to gather different activities in one place; however, there were
few perceptions of broader utility.
One MoD stakeholder suggested that in order to provide useful
guidance for military stakeholders, the NAP would need to have an
implementation plan
with instructions on how to mainstream 1325 and
WPS activities into daily work streams: “It
is too generic at the moment and
up to each officer to do what they want but then it does not get done.”
To what extent did the NAPs facilitate effective collaboration
between the three NAP signatories?
Interviews with stakeholders suggest that there have been increasing
opportunities for collaboration between NAP signatories on WPS issues.
However, it is not necessarily the NAP that has facilitated this collabora-
tion. Multiple stakeholders referred to Denmark’s
Whole of Govern-
ment Approach
(sometimes referred to as a Comprehensive Approach)
as a more relevant framework for stakeholder collaboration. According
to one MFA staff member:
“What characterises us is the comprehensive approach, linking the MFA, MoD
and DNP. We develop these programmes together and in close cooperation.
It allows us to influence military colleagues. The military do not have the
same resources as the MFA. In NATO, Denmark initiated “gender week” as we
had the first NAP. It was driven by the military, but MFA was also engaged.”
Other stakeholders referred specifically to the Peace and Stabilisation
Fund as an important framework for collaboration. One MoD stake-
holder noted that the military component of the Peace and Stabilisation
Fund has learned a lot from the MFA, particularly in relation to gender
and human rights, which would not have been as prominent in MoD
engagements if the MFA had not been part of the process of design-
ing peace and stabilisation programmes. However, the NAP was not
referenced as a key driver of stakeholder collaboration on peace and
stabilisation programmes, even where WPS had a central focus.
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What was the role of the IMWG in NAP implementation,
monitoring and reporting, and how effective was it in
achieving its objectives?
The NAP IMWG has been meeting approximately once a year, with
minutes of meetings suggesting that the IMWG is
more a forum for
the sharing of information rather than for facilitating strategic
discussions about NAP implementation
or resource mobilisation. One
member reported that the lack of human resourcing had come up in one
meeting; however, this does not appear to have led to any decision-mak-
ing or advocacy for human resource mobilisation. The IMWG does not
have a ToR, and so it is difficult to establish whether a more strategic role
was envisioned for the group and what the expectations of members
has been in the past. According to interviews with active members, the
IMWG has no formal reporting requirements and other than the minutes
of meetings, no direct outputs have been produced. Although members
spoke positively about the interactions within the IMWG meetings, the
general perception is that the group has not been an effective forum for
strategic collaboration between the three NAP signatories.
To what extent did Denmark facilitate engagement with civil
society in drafting, implementing and monitoring the NAPs, and
corresponding NAP activities, and what was the value added of
this engagement?
The role of civil society in the development, drafting and monitoring of
the Danish NAP has been limited, and its role in past NAP consultations
can be better described as
ad hoc and fragmented.
Although there is
currently a civil society group engaged to feed into the NAP evaluation
process and participate in the ERG, this is not a formal structure. There
is strong interest from civil society to play a greater role in the develop-
ment, drafting and monitoring of the fourth NAP, with particular interest
in obtaining a more formal and systematic role across the lifespan of the
NAP.
Several options emerged of how this might take place. One civil society
focal point suggested that civil society could have a
formalised seat
within the IMWG,
which might also revitalise the role of the IMWG and
provide some more strategic direction to how it will function under the
fourth NAP. Another civil society focal point suggested the use of
exist-
ing conflict prevention networks
as hooks to link to the IMWG. More
generally across civil society, the level of WPS commitment was reported
to have been negatively affected by the fact that it does not have a
formalised role or a clear channel of influence. Consequently, more
structured civil society involvement in the IMWG or another mechanism
would likely increase broader civil society ownership over the NAP.
Several stakeholders stressed the importance of
wider reaching consul-
tation for the development of the fourth NAP;
in particular, including
the voices of women affected by conflict, who are often excluded from
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the processes designed to affect them. One civil society focal point
suggested drawing from diaspora networks with the inclusion of women
previously based in conflict-affected settings.
Denmark has already been a key voice in the inclusion of and consulta-
tion with women affected by conflict. For instance, the Danish chapter of
the Nordic Women Mediators (NWM) network spearheaded a tradition
of including women affected by conflict in annual meetings, with
Syrian women affected by conflict invited to attend and participate in
the November 2018 meeting in Copenhagen. This tradition has been
continued, with the May 2019 annual meeting in Oslo inviting women
from Afghanistan, Yemen and Libya to share insights about women’s
engagement in peace processes in their countries.
3.4
Evaluation question 4: NAP benchmarking
HOW HAS THE DANISH NAP PERFORMED WHEN MEASURED
AGAINST RELEVANT NAP BENCHMARKS?
Denmark’s benchmarking scores are high for the participation, protection
and international cooperation themes. High scores for participation and
protection are in line with the
relevance
of these themes to the UNSCR
1325 pillars.
Denmark scored lowest on the benchmarking exercise when compared
with six like-minded countries. In particular, Denmark’s NAP has been
less
effective
than other country NAPs in providing clear directives for
mainstreaming, the role of national CSO involvement, and earmarked
funding.
Several themes stood out as particular Danish ‘value-add’ areas, and these
can be mobilised for greater
impact
and to carve a deeper niche for
Denmark. These include:
• Supporting the development of partner NAPs or RAPs.
• Emphasising women’s participation in peacebuilding and peacekeeping
engagements.
• Pursuing development-humanitarian nexus programming by linking
the protection of women from SGBV with the promotion of women’s
empowerment and livelihoods.
• Including SRHR in the fourth NAP, which would help to build wider
Danish policy coherence and concretize an increasing interest in the
humanitarian linkage between SRHR and SGBV in emergencies.
A full benchmarking analysis has been conducted in order to analyse
the third Danish NAP against the NAPs of six like-minded countries,
with the full analysis presented in Annex M. For ease of reference, the
benchmark scoring system is presented in Table 2, with a description of
the outcomes of Denmark’s NAP outlined in below. Denmark’s results
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3 Findings
comparatively to the other six countries are also described below. It
should be noted that the results from the benchmarking analysis relate
only to what is stated within the NAP documents themselves and does
not take into account the extent of implementation in practice, nor
results and outcomes achieved.
Table 2: Benchmark scoring system
Score Scale
0
1
Benchmark theme not referenced in the NAP
Benchmark theme referenced in passing but no substantial
development
Benchmark theme referenced repeatedly but little conceptual
development
Benchmark theme referenced repeatedly and concept developed
Benchmark theme referenced, concept is developed, and clear directive
is given for implementation
2
3
4
At the overall NAP level, to what extent are benchmarking
themes referenced or linked to clear directives in the third
NAP?
Denmark’s NAP results for all nine benchmarking themes are outlined
in Figure 3, and summarised below. Denmark’s benchmarking scores
are high for the participation, protection and international cooperation
themes. High scores for participation and protection are expected given
that these themes are central to the UNSCR 1325 and form two of the
four pillars central to the resolution. The Danish attention to interna-
tional cooperation is referenced throughout the NAP, which particularly
emphasises the importance of partnerships with the EU, UN and NATO,
and with other Nordic countries. The results, however, are poorer for
other themes.
•
Although mainstreaming is a strong theme throughout the second
NAP, the concept is poorly referenced in the third NAP with few
clear directives.
Similarly, although engaging civil society is referenced in the third
NAP, there is no reference to the mechanism for engagement or
what the role of civil society should be.
The third NAP lists a series of indicators intended to measure
the successful implementation of activities; however, there is no
•
•
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3 Findings
reference made to who will monitor the implementation of these
activities and track progress against indicators.
•
A gender perspective is largely absent from the document, except
for one reference to “add
value to gender analysis by including a
focus on the roles of men and boys in analysing drivers of conflict in
fragile and post-conflict situations.”
Although the NAP does refer to plans to support other countries
to develop their own NAPs, the NAP is largely outward-looking
and the domestication of a 1325 agenda is absent except for the
recruitment of female officers in the MoD and DNP.
The poorest results are for earmarked funding, which obtained a
score of zero. The NAP does not include an allocated or estimated
budget for its overall implementation, or the implementation of
specific activities. Although there are debates among practitioners
regarding whether earmarked funding is the best approach to
achieve WPS results through NAPs, there is a broader global
recognition that targeted funding in addition to mainstreaming is
critical to WPS achievements.
•
•
Figure 3: Benchmarking scores for Denmark’s third NAP
How do the Danish NAPs perform alongside the NAPs of like-
minded countries when analysing key benchmarks?
Figure 4 presents average scores across benchmarks for all seven
countries. Denmark has the lowest score (2.2), with Sweden and Iceland
also scoring below 3. Norway, Finland, the Netherlands and Ireland all
scored above 3, with Ireland having the highest average score across
NAP benchmarks. The full benchmarking analysis is presented in Annex
M, with a narrative summary of the benchmarking comparison across
countries presented below. A key focus of this section is to identify how
thematic areas have mobilised in different ways across countries.
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Figure 4: Average scores across benchmarks, disaggregated
by country
Domestication of global normative framework on WPS
The domestication of global normative framework on WPS benchmark
included two dimensions: the domestication of a WPS agenda domesti-
cally, and the support provided to other countries or regions to establish
1325 normative frameworks. More than half of the countries, including
Denmark, obtained low scores for this benchmark theme. The highest
scores were obtained by Norway, Iceland and Ireland, all three of which
have inward looking components, including in relation to supporting
women refugees and asylum seekers and/or preventing SGBV domesti-
cally (see further below). It is notable that
Denmark and Finland were
the only countries to refer to supporting the NAPs or regional action
plans (RAPs)
in partner countries or regions, although these references
were only made in passing.
Participation
In line with the centrality of the 1325 pillar of participation, seven coun-
tries scored 4 on this benchmarking theme. There are, however, sig-
nificant differences between the NAPs in how participation is mobilised
as a thematic area. Denmark’s NAP emphasises women’s participation
in conflict resolution and
peacebuilding,
and
peacekeeping
through
police and military deployments to international missions, which is line
with the focus areas observed in the portfolio analysis. In contrast, other
countries highlight different thematic components linked to participa-
tion.
•
Norway, Finland and Sweden emphasize the participation of
women in peace talks, mediation and implementation of peace
agreements.
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3 Findings
•
Iceland’s emphasis is on participation women in prevention of
conflict, and the mobilisation of gender specialists to humanitarian
organisations and NATO.
The Netherlands highlights women’s participation in the preven-
tion of conflict and in peacebuilding efforts, and outlines commit-
ment to facilitating an enabling environment for participation by
addressing barriers to women’s meaningful participation.
Ireland’s NAP pays notable attention to disarmament and arms
control, and the provision of technical support to civil society
initiatives that strengthen women’s role in peacebuilding.
•
•
Protection
Six countries scored 4 on the protection benchmarking theme, with
Norway scoring 3 due to a much stronger emphasis on participation
than protection. Denmark makes reference to protecting women and
girls from
SGBV
and supporting efforts to
end impunity
for acts of SGBV
in conflict. Denmark also promises to
link humanitarian assistance,
particularly in relation to the protection of women from SGBV, with
its long-term development agenda
to promote gender equality and
women’s empowerment, particularly in relation to
access to education
and livelihoods/income generation.
Other country’s thematic focus on
protection is outlined below.
•
Sweden and Finland both highlight the protection of women from
SGBV in conflict, ending impunity for acts of SGBV in conflict,
supporting women’s SRHR in emergencies and protecting women’s
rights defenders. The Swedish NAP also refers to
improving data
collection on how armed violence affects women, men, boys and
girls in different ways.
Norway’s NAP has a much stronger emphasis on participation
than protection; however, it does refer to addressing SGBV in
conflict and emergencies by ensuring that a gender perspective is
integrated into humanitarian budgets.
Iceland and Ireland’s NAPs are different to the other NAPs in their
focus on the protection of women domestically, including sup-
porting women refugees and asylum seekers, and implementing
the Council of Europe Convention on preventing and combatting
violence against women, including domestic violence.
The Netherlands emphasises sexual violence in conflict, increasing
capacities and resources for women in security and justice sector
development, and supporting research and policy development on
SGBV.
•
•
•
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Mainstreaming
Scores for mainstreaming varied across the seven countries. Sweden,
Norway, Finland and Ireland had scores of 4 for mainstreaming, while
Denmark and the Netherlands scored 2 and 3 respectively. Iceland
scored 1 for this theme. Where countries had higher scores, this was due
to explicit reference to integrating WPS at all levels (policies, strategies,
planning and implementation), including in non-WPS engagements and
particularly in security and stabilisation engagements. Iceland’s NAP is
very focused on WPS-specific programming with very little reference to
mainstreaming.
Gender perspective
Most countries obtained weak scores in the gender perspective bench-
mark theme, particularly Denmark and Iceland due to a lack of attention
in their respective NAPs on harmful gender identities, including harmful
masculinities, and the role that these play in driving conflict. In contrast,
the Dutch and Irish NAPs make explicit reference to these gender roles
and identities, including clear directives to work with men and boys on
violence and conflict prevention. The Dutch NAP is particularly notable
for supporting a gender perspective approach, with one of the NAP’s
strategic outcomes being to “Subvert harmful gender norms, which
are an obstacle to sustainable peace”. The NAP contains reference to a
series of activities dedicated to creating positive male role models who
challenge harmful gender roles, responsibilities and norms and who
develop and help implement a gender transformative legislation and
policy agenda.
Role and organisation of national CSO involvement
Denmark and Iceland obtained low scores for the role and organisation
of national CSO involvement benchmark theme (2 and 1 respectively)
due to limited reference to civil society in drafting, monitoring or
implementing NAPs. In contrast, Norway, Finland, the Netherlands and
Ireland (scores of 4), and to some extent Sweden (score of 3), articulate
clear roles for civil society partners and their relationship to NAP govern-
ment stakeholders, including mechanisms for this engagement. These
countries also articulate clear roles for civil society and women’s rights
organisations in implementing NAP commitments.
The Netherlands is particularly notable for its approach, which includes
civil society as both a signatory to the NAP, alongside government
stakeholders, and a ‘watchdog’ to hold responsible parties accountable.
One Dutch civil society stakeholder interviewed for the evaluation
suggested that a key strength of the Dutch NAP approach has been that
civil society has been meaningfully engaged and consulted before any
steps are taken in NAP implementation. This is facilitated in part by civil
society being a signatory to the NAP; however, some challenges with this
approach were described. For instance, the Dutch civil society stake-
holder mentioned above noted that the strong emphasis on supporting
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3 Findings
civil society’s role to do the work on NAP implementation, alongside the
Ministry of Foreign Affairs, has led to other ministry stakeholders feeling
they have a lesser role, with a lack of clear implementation plans mean-
ing that other ministries were unsure of how to translate a WPS agenda
into diplomacy discussions or incorporate WPS issues into work on
security (e.g. P/CVE). The fourth NAP, which is due for revision, is planned
to have clearer roles for civil society and ministry stakeholders.
International cooperation
Six out of seven countries scored 4 for the international cooperation
theme and Norway scored 1. Norway’s NAP makes only passing refer-
ence to cooperation with UN, NATO and regional organisations, although
it does mention cooperation with other Nordic countries, particularly
through the NWM network. Overall, there was little variation across
the countries in the types of international partnerships that would be
formed, with all countries referring to commitments to 1325 cooperation
with multilateral organisations such as the UN, NATO, EU, OSCE and
African Union. All Nordic countries also emphasised the importance of
Nordic cooperation.
Indicators
The scores for the indicator theme were moderate across most countries
(scores of 2 or 3) and low for Sweden which obtained a score of 1.
This is largely due to countries across the board making no or little
reference to monitoring and tracking 1325 achievements and progress
according to global indicators (e.g. UNSC indicators) or other multilateral
organisational indicators (e.g. the EU). Nevertheless, several countries
stand out for their inclusion of clear indicators that are designed to go
beyond output level results and capture outcomes and impact, including
Norway, or results frameworks that articulate clear actions, indicators
and responsible parties for monitoring and tracking results, including
Finland, Ireland and Iceland.
Earmarked funding
Across almost all countries, earmarked funding for NAPs was the
poorest scoring benchmark theme. Denmark’s NAP makes no reference
to an allocated budget for NAP implementation, and other countries
mostly make reference to funding driven by international development
cooperation budgets or individual NAP signatories. The Netherlands and
Norway are the exceptions. The fourth Norwegian NAP (2019-2022) has a
chapter on implementation with a section on funding where reference is
made to how “dedicated funding is provided at the same time as endeav-
ours are made to integrate women, peace and security in all our efforts
and via several budget lines” (p. 59). The NAP notes continued plans to
allocate NOK 25 million annually for civil society support for women’s
participation in peace and reconciliation, and also outlines plans to
earmark NOK 50 million for ‘the women’s allocation’ for WPS annually.
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3 Findings
In the third Dutch NAP (2016-2019), it notes that the Ministry of Foreign
Affairs allocated a budget of 4 million EUR a year for the period of the
second NAP (2012-2015) to support projects implemented by consortia
in NAP focus countries, and 15 million EUR has been allocated for the
third NAP period (2016-2019).
15
Several sources suggest that there have
been some important lessons learned in the Dutch approach to NAP
funding. For instance, an evaluation of the second NAP (2012-2015)
found that country consortia focused on “activities and the division
of funds, and far less on strategic cooperation”.
16
An interview with a
Dutch civil society actor forming part of a consortium funded by the
Dutch NAP also provided an example of attempts to formulate broader
civil society thematic working groups on each NAP country context (the
Dutch NAP specifies eight target countries). These have been only partly
successful given the groups are not funded by the NAP and civil society
organisations not participating in NAP consortia have fewer incentives to
participate.
At the (Danish) NAP engagement level, to what extent are
benchmarking themes referenced or given clear directives in
key programming or project documents?
As mentioned in Section 1.7 of the report, a limitation of the benchmark-
ing exercise is that countries may not implement what is stated in a NAP
and thus a NAP benchmarking analysis may not be representative of
what a country is actually doing on the ground. This evaluation sub-
question is targeted towards benchmarking themes referenced or given
directives in other types of documentation, which runs a similar risk
of failing to recognise the actual implementation of directives. Con-
sequently, the evaluation team has modified slightly the scope of this
sub-question to reflect on the extent to which Denmark’s benchmarking
results are coherent with the NAP results recorded in the portfolio
analysis and case studies. Results for several key themes of relevance to
Denmark are outlined below.
Domestication of global normative framework on 1325
Denmark scores poorly (1 on a scale of 0-4) within the benchmarking
analysis on this theme. This is primarily because this benchmark
includes both national domestication “within domestic legislation,
policies and other relevant institutional structures and practices” as
well as outward-focused support to domestication and development of
other countries’ NAPs and RAPs. Whilst some relevant commitments are
highlighted within Denmark’s third NAP, such as increasing the numbers
15
Order of the Minister for Foreign Trade and Development Cooperation of
3 May 2016, no. MINBUZA-2016.242245, laying down administrative rules
and a ceiling for grants awarded under the Ministry of Foreign Affairs Grant-
Regulations 2006 (Women, Peace and Security 2016-2019).
1325 Dutch NAP Partnership, The Netherlands National Action Plan on
Women, Peace and Security (2016-2019), p.18-19. See also IOB (2015).
16
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3 Findings
of female staff officers in the MoD and DNP and support to several other
countries’ NAPs, the score remains as “Referenced in passing but no
substantial development”.
Results from the portfolio analysis (see Annex E, Section 5.1) are largely
consistent with this score but in fact provide a slightly more positive
picture:
•
Whilst only ‘passing reference’ is made to support for domestica-
tion of 1325 in other countries/regions within the NAP document
itself, some strong results were achieved by engagements under
this benchmark where Denmark’s funding and role was an impor-
tant driving force; including in Mali, Somalia and South Sudan.
Denmark’s participation or role in creating several ‘Friends of WPS’
groups, including at the UN in New York, NATO and OSCE, was also
documented in the analysis – although gaps are also noted, for
example in relation to EU engagement, and poor results to date
within the Africa Programme for Peace.
Denmark’s results domestically are largely as described within the
NAP document itself and benchmarking analysis, i.e. work by the
MoD and DNP to include more women in international deploy-
ments. However as noted elsewhere, results for MoD and DNP on
this have been varied.
•
It is worth noting that few European countries are domesticating a 1325
agenda, despite the EU adding a new indicator (#20) on the protection
of female asylum seekers in its revised indicators for the Comprehensive
Approach to the EU Implementation of UNSCR 1325 and 1820 (2016).
Danish civil society continue to advocate for improvements in this area.
Participation
Denmark received the highest possible score (4) for participation within
the benchmarking analysis – meaning this theme is “Referenced, con-
cept is developed, and clear directive is given for implementation” within
the third NAP.
Results identified by the portfolio analysis relevant to participation are
largely in line with this benchmarking score. Compared to the other
primary themes, the strongest results were observed for engagements
with participation as their primary theme. Particular areas of strength
included promoting women’s participation in local-level peacebuilding
which Denmark has achieved some good results on in practice, if not
as a deliberate WPS strategic choice (see Section 3.2 and examples
discussed in Annex, E, Portfolio Analysis, such as Somaliland:
the
Par-
ticipatory Governance and Peacebuilding programme
and support to UN
WOMEN in Mali as discussed in Annex I),
as well as promoting women’s
political participation. However as discussed under EQ1, some chal-
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3 Findings
lenges were observed in practice which constrained the full achievement
of participation ambitions set out in the NAP, notably:
•
Poorer results against participation indicators within the PSP
in the Horn of Africa, related to both the challenging context in
Somalia for women’s political participation but also weaknesses
in programming, for example the poor inclusion of women in
peacekeeping training activities.
Poor NAP results within the Syria/Iraq PSP in terms of participation
of female police in training in the Access to Justice and Community
Security sub-engagement.
Varied results for MoD and DNP indicators related to women’s
participation in international deployments, with better results by
DNP overall.
•
•
Given the continuing importance of participation as a theme within
both the global WPS agenda and within Denmark’s own development,
foreign policy and security agendas, the fourth NAP and subsequent
implementation activity should seek to incorporate lessons learned on
this thematic to date, to achieve even stronger results in future. For
example, sharing lessons learned from successes on the ground such
as in Somaliland on women’s peacebuilding, and considering how to
incorporate this more strategically across Denmark’s engagement on the
ground in priority fragile and conflict affected contexts.
Protection
As with participation, Denmark scored as high as it could (4) on the
protection benchmark within the benchmarking analysis. The third NAP
was found to make “repeated references to protection and its centrality
to plans to advance the implementation of UNSCR 1325 and the WPS
agenda” for Denmark.
Unlike participation, the results identified in practice relevant to the
protection thematic are not as strong as the benchmarking score. The
portfolio analysis notes that the engagements with ‘protection’ as a
primary theme saw the largest number of engagements with either no
NAP action listed, NAP actions not completed or if completed, results
either not achieved or unclear. Out of the 13 engagements under this
category, seven engagements either did not have a NAP action or results
were not evident (see Annex E, Section 5.3). It is important to note that
this was driven in large part by difficulties in obtaining documentation
for protection-related engagements.
Some trends can be observed for which aspects of protection program-
ming were most and least successful:
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•
The most concrete results were observed for SGBV-focused
engagements. This aligns with findings from the benchmarking
analysis that Denmark will “support humanitarian partners to
respond and provide essential services to GBV survivors”.
The NAP also commits Denmark to supporting “efforts to end
impunity for acts of sexual and gender-based violence in conflict”.
As noted elsewhere, little and inconsistent effort was observed in
practice, with only two engagements identified as relevant to this,
although both achieved strong results (UNWOMEN Mali, Syria/Iraq
PSP).
The NAP commits Denmark to “linking humanitarian assistance
with its long-term development agenda and promote gender
equality and women’s empowerment, particularly in relation to
access to education and jobs”. This is an important area for future
work in protracted crisis and conflict, but in practice, protection-
related engagements which focused on livelihoods and economic
development performed weaker than those focused on SGBV,
due to challenges in achieving sustainable livelihoods for women
experiencing severe vulnerabilities which require more intensive
support and investment (for example under RDPP).
•
•
Mainstreaming
Denmark received an average score (2) for mainstreaming within the
benchmarking analysis, meaning this theme is “referenced repeatedly
but little conceptual development”. The benchmarking notes that the
second NAP provides “a comprehensive framework for mainstreaming
WPS into Denmark’s foreign, security and development cooperation
activities” whereas this is less evident in the third NAP. It also notes that
“there
are only a few references to overall directives to mainstream
gender and WPS, one example being the planned action to ‘ensure
that
international operations and humanitarian efforts include a clear gender
perspective’.
17
The third NAP also states that the Danish Ministry of
Defence integrates gender perspectives in all tasks, although there is
little conceptual clarity on what this means and how this is done” (see
Annex M).
In practice, results observed for mainstreaming did not live up to
ambitions set out in the NAP itself, and were the poorest overall when
compared to the other three primary themes discussed above. The
portfolio analysis highlights several key gaps, including:
17
Government of Denmark (2014) Denmark’s National Action Plan for Imple-
mentation of UN Security Council Resolution 1325 on Women, Peace and
Security 2014-2019. P.9.
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3 Findings
•
The lack of gender mainstreaming and inclusion of gender-disag-
gregated data within results frameworks across all engagements.
The lack of humanitarian implementation of the NAP indicator
outlining requirements for gender marking project proposals.
•
Despite this, there are some strong examples which can provide lessons
and be built on within the fourth NAP, including MoD activity to integrate
gender perspectives into training courses and activities; UNICEF’s work
in South Sudan on
reintegration of children and adolescents released
from armed forces and armed groups through education and economic
empowerment;
and the Danish humanitarian support to the World Food
Programme’s ‘Advancing creative operational partnerships with a focus
on women and girls in the field’ (2018-2019), which is mainstreaming
SGBV protection and prevention, and SRHR into food security and
nutrition engagements (see Annex E, Section 5.4).
Role of civil society
Whilst not ‘primary’ themes according to the findings of this evaluation,
the role of civil society and earmarked funding were also important
themes within the benchmarking analysis and merit some discussion.
Denmark also scored averagely (2) for the ‘role and Organisation of
National CSO Involvement’ benchmark. The benchmarking analysis
highlights that in the third NAP, “only
passing references are made
to plans by the MFA to work with civil society organisations” with the
Tawanmandi Civil Society Trust Fund as an example.
In practice, the portfolio analysis identified several additional examples
of direct support to civil society, including the following.
•
The RDPP has funded CSOs directly, including women’s rights
organisations. Civil society partners expressed feeling empowered
as partners in the design of projects as opposed to just instru-
ments for implementation (see Annex J).
Direct bilateral support has been provided for civil society groups
through the Peace and Security for Development engagement in
Kenya, which engaged civil society stakeholders in dialogue and
initiatives for promoting peace and stability in security sector
agencies, with a specific focus on the participation of women and
youth in District Peace Committees.
•
Despite some direct funding to civil society stakeholders at country
level, the role of Danish civil society in the development, drafting and
monitoring of the Danish NAP has been limited, and its role in past
NAP consultations has been ad hoc and fragmented (see Section 3.3).
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3 Findings
Consequently, a score of 2 for the benchmarking analysis appears to be
a realistic depiction of overall civil society engagement.
Earmarked funding
Denmark received the lowest score possible (0) for the ‘earmarked
funding’ benchmark, meaning this theme was “not referenced” at all in
the third NAP. The benchmarking analysis notes that it “does not include
an allocated or estimated budget for its overall implementation, or the
implementation of specific activities. There is no reference to a fundrais-
ing strategy to ensure sufficient resources are available to implement
the commitments set out in the NAP” (see Annex M). In practice two
engagements were identified with some relevance to this theme – the
APP’s work with the AU, which includes a new WPS earmarked engage-
ment, and the DAPP’s work with a WPS targeted partner, KVINFO. The
latter has achieved strong results. The AU engagement is too new to
show any results yet. However, evidence from stakeholder interviews
and case studies validates the benchmarking finding that resources
(human or financial) are not being systematically set aside for overall
Danish NAP implementation, and engagements on WPS have not been
driven by the NAP as a strategic framework.
What have been the key areas of Danish ‘value-add’ achieved
under the NAPs in comparison to/with reference to other
like-minded donors?
Several themes stood out as particular Danish ‘value-add’ areas, and
these can be mobilised to carve a deeper niche for Denmark. These
include:
•
Supporting the development of partner NAPs or RAPs,
which
is not a strong area of focus for many other country NAPs, as
highlighted in the benchmarking analysis. The most concrete NAP
results were documented within
engagements at a country level
in relation to adoption of new NAPs in South Sudan and Mali, for
which Denmark was a key partner contributing to both processes
Emphasising women’s participation in
peacebuilding and
peacekeeping engagements.
Although Denmark is less active in
mobilising peacekeepers to international missions than in previ-
ous years, it has played a significant role in supporting regional
peacekeeping missions, for instance AMISOM and EASF in the
Horn of Africa. Although there are some gaps in how Denmark is
currently supporting 1325 integration into these missions, there
are clear links in programming documents between peacekeeping
and peacebuilding efforts that could be made stronger at the level
of implementation (see Annex L).
•
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3 Findings
•
Pursuing
development-humanitarian nexus programming
by
linking the protection of women from SGBV with the promotion of
women’s empowerment and livelihoods.
Including SRHR in the fourth NAP,
which
would help to build
wider Danish policy
coherence
and concretize an increasing
interest in the
humanitarian linkage between SRHR and SGBV
in emergencies,
which could also be a WPS niche for Denmark.
•
3.5
Evaluation question 5: NAP policy coherence
HAS THE NAP BEEN COHERENT WITH THE OVERALL DANISH
POLICY ON FRAGILE STATES, PEACE AND SECURITY – AS WELL
AS THE DANISH PRIORITY WITH REGARDS TO DEVELOPMENT
COOPERATION AND HUMANITARIAN ASSISTANCE? HOW HAVE
THE NAPS BEEN ALIGNED WITH THE BROADER WPS AND 2030
AGENDAS EMERGING DURING IMPLEMENTATION OF THE TWO
NAPS?
Although attention to gender and women’s rights as crosscutting themes
are listed in all country programme and policy documents, references to
UNSCR 1325 and the Danish NAP have become less prominent in Danish
policy, strategy and programme documents over time. There has also
been a strong shift away from WPS language in recent development and
humanitarian policies and strategies. The declining
relevance
of the NAP
for driving Danish WPS priorities may suggest that the NAP has existed in
parallel to other strategies and policies rather than being
coherent
with
them.
Although the SDGs are consistently referenced in NAP programme
documents developed since 2015, references to SDG 5 in particular are
not developed conceptually or translated into practice, including at the
level of results frameworks.
Despite poor NAP
coherence
with broader Danish policies, several clear
possibilities exist for improving
coherence
in the fourth Danish NAP,
including greater attention to SRHR, a development-humanitarian nexus
approach, and how 1325 intersects with other Danish priorities, such
as youth, peace and security, and migration. This may lead to improved
stakeholder ownership over the NAP and thus greater
sustainability.
What is the relation of the NAPs to overall Danish priorities
and policies on WPS and fragility?
Development cooperation and humanitarian assistance
There are a number of Danish policy and strategy documents that reflect
Denmark’s efforts to prioritize gender equality, women’s empowerment
and women’s SRHR as part of its foreign policy, development coopera-
tion and humanitarian assistance commitments. However, references
to UNSCR 1325 and, more specifically, the Danish NAP, have become
less prominent over time. The declining relevance of the NAP for driving
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3 Findings
Danish WPS priorities may suggest that the NAP has existed in parallel
to other strategies and policies rather than active coherence between
them.
There has been a strong shift away from WPS language in recent devel-
opment and humanitarian policies and strategies. This shift is particu-
larly visible in ‘The
World 2030: Denmark’s strategy for development
cooperation and humanitarian action’
(MFA 2017a), as illustrated
below when compared with previous development cooperation and
humanitarian strategies.
•
In alignment with the Danish NAPs, the ‘Strategy
for Denmark’s
Development Cooperation - The Right to a Better Life’
(2012)
makes explicit reference to UNSCR 1325 under its ‘Stability and
protection’ priority area, and notes the importance of women’s
participation in peace agreements and peacebuilding, the protec-
tion of women and girls from GBV in armed conflict and ending
impunity for gender-based crimes.
‘The Strategic Framework for Gender Equality, Rights and
Diversity in Danish Development Cooperation’
(2014) is in com-
plete alignment with the third Danish NAP, both in terms of the list
of priority areas for security and protection and suggestions for
interventions. It is unclear, however, whether the former informed
the development of the latter NAP, or in fact it was the Danish
NAP which informed the development of the Strategic Framework
for Gender Equality, Rights and Diversity in Danish Development
Cooperation (2014).
In alignment with the Danish NAPs, ‘The
Strategy for Danish
Humanitarian Action 2010-2015’
(MFA 2010a) emphasizes
combating SGBV and protecting conflict-affected populations,
particularly women and girls. Although no reference is made to
the Danish NAP, the strategy does emphasize Denmark’s active
commitment to supporting UNSCR 1325, and the importance
of the resolution in protecting women and girls from SGBV and
including women in peace processes and post-conflict reconstruc-
tion.
In
The World 2030
there is specific emphasis on women’s political,
social, cultural and economic participation, and access to social
services such as health and education. However, the strategy
makes no reference to UNSCR 1325 or the Danish NAP and men-
tions sexual violence in emergencies fleetingly. The strategy also
makes no reference to women’s participation in peacebuilding or
post-conflict reconstruction, with the only reference to women’s
participation according to a WPS agenda being that Denmark
•
•
•
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3 Findings
“recognizes the often over-looked resource represented by women
in peace negotiations and conflict resolution”.
There were mixed views among MFA staff about The World 2030’s lack of
reference to 1325 and the Danish NAP, and the apparent downsizing of
WPS language. One MFA stakeholder suggested that the decision to not
specifically reference the Danish NAP was in part due to the MFA already
having multiple internal strategies and policies, and the recognition that
“1325 is a brick in the building, but it is one brick”. Other stakeholders
suggested that the lack of reference to 1325 was a missed opportunity,
and that for the fourth Danish NAP to maintain relevance, a stronger link
needed to be established with The World 2030 document.
Peace and stabilisation
Attention to WPS has varied across Danish peace and stabilisation poli-
cies and strategies. ‘Denmark’s
Integrated Stabilisation Engagement
in Fragile and Conflict-affected areas of the world’
(2013) marked
the beginning of integrated stabilisation efforts between MFA, MoD
and the MoJ, with the PSF created to support joint stabilisation efforts.
No specific mention is made in the document of 1325, although 1325 is
implied where the document refers to the importance of UNSC resolu-
tions “as well as normative resolutions regarding women, children…” (p.
27). The earlier ‘Peace
and Stabilisation - Denmark’s Policy towards
Fragile States 2010-2015’
(MFA 2010b), is more aligned with the Danish
NAP, including in relation to promoting the participation of women at
all levels and protecting women and children affected by human rights
violations and abuse. Further, explicit reference is made to the Danish
NAP, the first and only explicit reference to the NAP found among the
policy and strategy documents reviewed.
In the recently developed
‘Guidelines:
The Peace and Stabilisation
Fund’
(MFA and MoD 2018b), there is a greater emphasis on WPS and
1325 language, with reference made to the different impacts that violent
conflicts have on men and women. The guidelines include a section on
human rights, gender and youth as crosscutting priorities, and state
that they must be reflected in Danish peace and stabilisation efforts.
The guidelines also state that PSF engagements must comply with
UNSCR 1325, and that the Secretariat will provide technical assistance,
for instance, on how to provide a gender and human rights approach.
However, no guidance is given on how this should be done and there is
no reference to tools or checklists that would aid a gender mainstream-
ing approach.
There are a number of tools available in the MFA to facilitate gender
analysis and gender mainstreaming, including the Human Rights Based
Approach (HRBA)/Gender Screening Note; however, it is unclear the
extent to which stabilisation focal points draw from these tools if at all.
One MFA colleague in Copenhagen suggested that guidance documents
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3 Findings
had stopped making gender checklists compulsory in order to be ‘leaner’
and reduce requirements, but also because there was an assumption
that everybody knew how to do this now (see Annex L for more detail).
Several stakeholders in Copenhagen noted that although attention to
1325 and gender mainstreaming has, for some time, been acknowl-
edged as important to Danish peace and stabilisation efforts, this
has not translated to concrete action on the ground. One stakeholder
suggested that this was in part due to the structure of the PSF Inter-Min-
isterial Steering Committee, which is co-chaired by MFA’s Stabilisation
and Security Policy Department and MOD with participation from MoJ
but not partners on the development cooperation side. This structure is
perceived to be weakening attention to WPS priorities due to a general
lack of knowledge of and commitment to 1325 within the PSF.
To what extent has Denmark integrated its WPS activities with
the 2030 Agenda in general, and SDGs 5 and 16 in particular?
The extent to which Denmark has integrated its WPS activities with
the 2030 agenda and SDGs 5 and 16, particularly the former, varies
enormously across engagements, with no consistent integration across
the documentation reviewed for the evaluation. The integration of the
SDGs, particularly SDG 5, is described below for three NAP engagements
selected for illustrative purposes.
•
In Peace and Stabilisation Engagement Documents (PSEDs), there
are requirements to fill in appropriation cover notes outlining
which SDGs engagements are aligned with. For instance, the PSP
in the Horn of Africa cover note for phase III (2018-2022) includes
SDGs 5 (Gender Equality), 16 (Peace & Justice, Strong Institutions)
and 17 (Partnerships for Goals). However, SDG 5 is not mentioned
at all in the PSP Horn of Africa III Programme document (MFA and
MoD 2018a).
The Africa Programme for Peace IV (2018-2021) programme
document (MFA 2017b) mentions SDG 5 in the cover note and in
the body of the document, but does not go into any detail about
how SDG 5 intersects with other SDGs that are the primary focus
(16 and 17).
The DAPP IV (2017-2022) Programme document (MFA 2016b)
makes explicit reference to SDG 5 and how it intersects with other
SDGs. There is also a key impact indicator included under the
Governance Standards Enhanced by Rights-Holders and Duty Bearers
thematic programme objective: % of SDG 5 targets related to law
reforms, political participation, gender-based violence and sexual
and reproductive health and rights fulfilled at national level. At
outcome level, specific SDG 5 sub-indicators are also included for
all four outcomes under gender equality; for instance,
Degree to
•
•
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3 Findings
which legal frameworks are in place to promote, enforce and monitor
equality and non-discrimination on the basis of sex (SDG indicator
5.1.1).
Although the SDGs are consistently referenced in NAP programme
documents developed since 2015, references to SDG 5 are not developed
conceptually or translated into practice, including at the level of results
frameworks.
To what extent are the NAPs or a WPS agenda mentioned and
reflected in Danish programme and country documents, and
policies and strategies?
As noted in Section 3.5, references to UNSCR 1325 and, more specifi-
cally, the Danish NAP, have become less prominent in Danish policy
and strategy documents over time. The desk review also revealed that
although attention to gender and women’s rights as crosscutting themes
are listed in all country programme and policy documents, few of these
documents have directly referenced 1325. Further, only a few have
directly referenced the Danish NAP: see for instance the South Sudan
Country Programme 2016-2018 (MFA 2016a), and the PSP I in the Horn
of Africa Programme 2011-2014 (MFA and MoD 2011).
To what extent do the NAPs remain relevant to Danish global
peace and security priorities in 2019?
Given the structure of the third NAP was shaped around specific
engagements rather than a strategic vision, it is
difficult to establish
the extent to which this NAP has remained relevant to Danish global
peace and security priorities.
The third NAP’s focus on protection
remains relevant to overarching Danish development and humanitar-
ian priorities. The NAP’s increasing attention to improving livelihoods
and women’s access to income generation in conflict and post-conflict
settings is in line with the World 2030’s ‘Security and Development –
Peace, Stability and Protection’ priority, which promises to strengthen
assistance to IDPs, refugees and local communities, including women, to
protection and livelihoods programming. It also remains relevant to the
humanitarian-development-peace nexus and its increasing importance
for the changing nature of contexts of protracted crisis and fragility in
which Denmark operates.
There are some clear possibilities for ensuring that the fourth Danish
NAP is more coherent with current development cooperation and
humanitarian strategies, particularly in relation to SRHR. Attention to
SRHR is also reflected in recent Danish security strategies, including
the Foreign and Security Policy Strategy 2019-2020 (MFA 2018b), which
states that:
“Global gender equality and the rights of girls and women are central to
realizing the Sustainable Development Goals. Lack of access to education,
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3 Findings
health services, contraceptives and sex education undermines women’s fun-
damental right to decide whether, and whom, when and how many children
they want to have. The Government of Denmark will intensify its efforts for
the rights of girls and women in developing countries, in humanitarian crises
and conflict situations, and in international negotiations, where countries
that previously shared Danish views are now pushing strongly in the opposite
direction.” (p.19)
Although the Danish NAPs themselves make no reference to SRHR, the
inclusion of SRHR in the fourth NAP, in line with UNSC 2122, would also
help to concretise an increasing interest in the humanitarian linkage
between SRHR and SGBV in emergencies, which could be a particular
WPS niche for Denmark. This would also be in line with the growing
attention to the importance of a development-humanitarian nexus
approach, which is at the core of the World 2030 strategy (MFA 2017a).
There are other weak areas in the third NAP that could be better aligned
with current Danish priorities, including attention to
migration and
displacement
and how a 1325 agenda intersects with
UNSCR 2250 on
youth, peace and security.
On the former, civil society stakeholders
consulted emphasised the importance of adopting a “comprehensive
and holistic approach towards the humanitarian-development-peace
nexus, which recognizes, unpacks and addresses the linkages and
interconnectedness between the rights and role of women in situations
of displacement and conflict”.
18
Such an approach could align with the
Global Compact and existing EU-wide policy on the rights and protection
needs of displaced, refugee and asylum-seeking women and girls.
The youth, peace and security agenda was mentioned as important to
Denmark in various country contexts of conflict and fragility, for example
Mali. The fourth NAP presents an opportunity to explicitly cross-refer-
ence this agenda and what Denmark will do in future to integrate a WPS
perspective into existing and future youth, peace and security activity, to
maximise impact on gender equality and other WPS objectives.
To what extent do stakeholders (NAP signatories, civil society
and implementing partners) express ownership of the NAP and
the WPS agenda more broadly?
It is clear from other evaluation sub-questions that Danish NAP stake-
holders across the three signatories express poor ownership over the
NAP. There has also been poor civil society ownership; in part due to civil
society not have a formalised role or a clear channel of influence. Never-
theless, Danish NAP signatories, Danish civil society and NAP implement-
ing partners for the most part express strong support for and ownership
over the WPS and 1325 agenda more broadly. There were only a few
18
Consolidated submission from civil society actors related to the Preliminary
Findings Paper for this evaluation.
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3 Findings
examples of stakeholders who did not necessarily indicate 1325 owner-
ship, one case being an MFA representative who, despite expressing
support for gender and women’s rights more broadly, suggested that
there had been some ‘1325 fatigue’ in the MFA: “There
was a hype around
1325 issues at one point and politically it was very important for Denmark,
but there has been some 1325 fatigue I think.”
Other cases were mainly
Danish civil servants who knew little about UNSC 1325 or WPS, assuming
that this referred more generically to gender and women’s rights.
3.6
Evaluation question 6: Overall lessons
WHAT ARE THE OVERALL LESSONS LEARNED FOR THE DANISH
ENGAGEMENT IN WPS AND FRAGILITY? HOW CAN THESE
LESSONS LEARNED BE TAKEN FORWARD IN THE FORMULATION
OF A NEW NAP IN 2020?
What can be learned about how NAPs in like-minded countries
have engaged in WPS and fragility, and how they have
responded to an evolving WPS agenda?
A number of lessons have emerged about how NAPs in like-minded
countries have engaged in WPS and fragility and how this has contrib-
uted to a UNSCR 1325 agenda.
Like-minded countries are increasingly recognising the
vital role of civil
society
in contributing to the drafting, monitoring and implementation
of NAPs on 1325. Approaches to engaging civil society differ across
countries. For instance, the Dutch approach has included civil society as
a partner and key signatory to the NAP, building strong ownership of a
WPS agenda. The Irish approach has involved civil society through a Con-
sultative Group that was formed to advise on the development of the
second NAP, and a Monitoring Group comprising civil society actors that
meet quarterly to monitor and track NAP progress. A common theme in
like-minded countries’ NAPs that emphasise active involvement of civil
society is the importance of a ‘watch dog’ role that ensures governments
are accountable to WPS commitment and achievements.
The
lack of resourcing of NAPs is a critical barrier
to furthering a WPS
agenda, with few NAPs globally having a specific budget for implemen-
tation. The benchmarking analysis identified strong examples of how
Norway and the Netherlands have developed formal, dedicated funding
streams for NAP implementation. In the case of the Netherlands,
embedded monitoring and evaluation of NAP progress has ensured that
lessons learned about the efficacy of civil society’s role and the role of
broader partners/NAP signatories are fed back into NAP strategies and
activities.
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3 Findings
The domestication of 1325 is recognised as a key part of an evolving
WPS agenda that has emphasised countries including national measures
of WPS achievements. Despite a strong global push from civil society for
NAPs to be both inward and outward looking, few like-minded countries
have
domesticated a 1325 agenda
‘at home’. Ireland is notable for its
emphasis on NAP domestication, partly due to its history of conflict and
also in recognition of the growing number of people seeking refuge
and asylum. The Irish NAP incorporates elements of addressing SGBV
through the development of a National Strategy on Sexual and Gender
Based Violence, and strengthening outreach to women and girls affected
by conflict, including ensuring that SGBV services are capacitated to
address the needs of migrant women and those seeking asylum.
Although focus on the
1325 participation pillar
is not new to an
evolving WPS agenda, there is global recognition that growth in this
area has not been substantive enough. Few women participate in peace
processes in meaningful ways. According to the Council on Foreign
Relations, between 1990 and 2019, only two percent of mediators, eight
percent of negotiators and five percent of witnesses and signatories
were women. Further, in an analysis of 1,187 peace agreements made
between 1990 and 2017, 19% made reference to women and 5% to
GBV.
19
Several like-minded countries, particularly Nordic countries, have
been strong advocates for the participation of women in high-level
peace mediation and negotiation. Although Denmark has not been
active at this level, its support for women’s meaningful participation in
local-level peacebuilding in practice is a niche area that could comple-
ment the efforts of other countries. In particular, Denmark can work
more deliberately with Nordic partners to focus on this Danish niche,
which could demonstrate Danish added value in the context of the 20
th
Anniversary of UNSCR 1325, and potential Danish Candidacy for the UN
Security Council in 2024, should Denmark decide to run.
The
poor measurement of 1325 progress
is a significant gap glob-
ally, with attention to an evolving WPS agenda hampered by limited
understanding of implementation, what has been achieved at country
level, and how this has impacted on the lives of those affected by conflict
and fragility. Capturing these achievements requires stronger tracking,
monitoring and evaluation of NAP implementation, and moving beyond
outputs and measuring outcomes and impact. Several countries stand
out in this regard, including Norway, Finland, Ireland and Iceland, which
have included NAP results frameworks that articulate clear actions,
indicators and responsible parties for monitoring and tracking results.
19
https://www.cfr.org/interactive/womens-participation-in-peace-processes
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3 Findings
What adjustments and additions should be made to the
Danish NAP to address gaps, and make it more relevant for
stakeholders, Danish strategic priorities and a global WPS
agenda?
The results of this evaluation have helped to shape a series of recom-
mendations for the development and implementation of the fourth
Danish NAP. These recommendations cut across five key areas of future
action by Denmark, listed below, with full recommendations included in
Chapter 4 of the report.
1.
2.
3.
4.
5.
Strategy and vision;
Monitoring, evaluation and learning;
Capacity building and resourcing;
Communications and engagement with Danish missions; and
Governance and stakeholder engagement.
For which thematic areas of the NAPs has Denmark’s
leadership and contribution been clearest (i.e. greatest value-
add in reference to other partners and actors in WPS)?
The evaluation has identified several thematic areas that demonstrate
Denmark’s value added in its third NAP and wider commitment to a WPS
agenda. These are summarised below and outlined in more detail in
Section 3.4.
•
•
Supporting the development of partner NAPs or RAPs.
Emphasising women’s participation in local-level
peacebuilding
and peacekeeping engagements.
Pursuing
development-humanitarian nexus programming
by
linking the protection of women from SGBV with the promotion of
women’s empowerment and livelihoods.
Strengthening the
humanitarian linkage between SRHR and
SGBV in emergencies.
•
•
How relevant are the thematic focuses of the current NAP to
Denmark’s current and future position in the world?
Overall, the thematic focuses and objectives of the current NAP remain
central today. These include:
1.
Achieving greater, active
participation
of women in peace build-
ing at international and local levels;
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3 Findings
2.
Enhancing the recognition of the
special needs and rights
of
women and girls before, during and after armed conflicts;
Providing
protection
of girls and women against violence,
including gender-based violence, such as rape and sexual abuse,
promoting
transitional justice
and ending impunity for gender
crimes;
Participating in the
international dialogue on peacebuilding
and state-building;
Focusing on
promoting women as peace-builders
in specific
country programmes in fragile and conflict-affected states;
Working to ensure that
international operations and humani-
tarian efforts
include a clear gender perspective.
3.
4.
5.
6.
Nevertheless, there are several gaps in Denmark’s NAP, both in terms
of content and implementation, that limit its relevance against a global
WPS agenda.
Globally, some important steps have been made to address the impunity
of perpetrators of SGBV in conflict, including through the development
of global normative frameworks that aim to prevent SGBV in conflict
and seek justice for survivors; however, few prosecutions mean that
transformative justice for women is limited. The evaluation identified
limited Danish focus on gender aspects of the
Responsibility to Protect
(R2P) agenda
or
transitional justice,
suggesting that this should be an
area strengthened in the Denmark’s fourth NAP.
UNSCR 1325 has acknowledged the
importance of displacement
to
a WPS agenda, particularly in relation to the protection pillar and the
exploitation, violence and abuse that women and girls experience due
to conflict-driven displacement. An evolving WPS agenda emphasizes
the need for greater attention to the protection of women and girls in
multiple contexts of migration and displacement.
Denmark’s NAP is
weak in this area,
which should be addressed in the fourth NAP; for
instance, in alignment with the Global Compact and existing EU-wide
policy on the rights and protection needs of displaced, refugee and
asylum-seeking women and girls.
Although Denmark’s NAP emphasizes its commitment to the
special
needs and rights
of women and girls before, during and after armed
conflicts, these commitments are not specifically framed by an intersec-
tional approach. Although the evaluation identified Danish humanitarian
efforts to address the needs of women and girls with intersecting
identities, this approach is less visible in development cooperation and
stabilisation efforts. A more specific conceptualisation of intersectional-
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ity in the fourth NAP will strengthen Denmark’s ability to ensure that
the most vulnerable women and girls are reached, in line with the 2030
Agenda to leave no one behind.
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4 Conclusions and recommendations
4
Conclusions and
recommendations
This chapter presents key conclusions and subsequent recommenda-
tions emerging from this evaluation. Recommendations cut across five
key areas of proposed future action by Denmark, in line with the key
findings of the evaluation. These are as follows:
1.
2.
3.
4.
5.
Strategy and vision;
Monitoring, evaluation and learning;
Capacity building and resourcing;
Communications and engagement with Danish missions; and
Governance and stakeholder engagement.
4.1
Strategy and vision
The evaluation found that
although there has been wide coverage of
NAP engagements according to thematic area, geography and type of
engagement (bilateral, multilateral and regional), there is little evidence
to suggest that this coverage was strategically driven by the NAPs. There
is also limited evidence that the NAPs themselves have been relevant
drivers of Danish commitment to WPS or strategic decision-making
about WPS investment. WPS achievements have been more widely
driven by individual and cultural factors rather than institutional or
strategic factors. The explicit de-prioritisation of a WPS and 1325 agenda
within the Danish Ministry of Foreign Affairs has likely contributed to the
NAP’s decreasing relevance over time.
Although attention to gender and women’s rights as crosscutting
themes are listed in all Danish country programme and policy docu-
ments, references to UNSCR 1325 and the Danish NAP have become
less prominent in Danish policy, strategy and programme documents
over time. There has also been a strong shift away from WPS language
in recent development and humanitarian policies and strategies. The
declining relevance of the NAP for driving Danish WPS priorities may
suggest that the NAP has existed in parallel to other strategies and
policies rather than being coherent with them.
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4 Conclusions and recommendations
Simultaneously, the evaluation identified a number of areas where
Denmark appears to have a ‘niche’ value-add in comparison to other
likeminded countries, either in terms of NAP themes (like participation
and protection), policy beyond WPS (for example, SRHR) or practical
results on the ground (for example, local peacebuilding) which are not
consistently articulated within the NAP.
Finally, the evaluation found evidence that Danish staff – particularly in
missions, but also across government in Copenhagen – are not clear
on the Danish vision for the NAP/WPS, are not aware of its content nor
relevance to their work, and have not been engaged in a consultative
process to define those priorities. WPS has not been well-integrated into
existing Danish processes for developing policy, programming and selec-
tion and oversight of implementing partners. Civil society participation
and alignment in Denmark’s WPS vision has also been lacking. Recom-
mendations to clarify and strengthen Denmark’s strategy and vision for
WPS are therefore as follows:
a.
Clarify the overall Danish vision and priorities for WPS and the
fourth NAP through a structured, participatory and consultative
process,
ensuring input from – and reflecting the strategic priori-
ties of – the three NAP signatory departments, the PSF and civil
society stakeholders. The fourth NAP is an opportunity to build a
new and shared consensus and vision for Denmark’s engagement
on WPS. It should set out a clear strategic vision – whilst high-
lighting some of Denmark’s key WPS activities/engagements in
practice, the NAP should be a document which endures a four-five
year period, allowing for flexibility in practice in what Denmark
does on the ground and in practice to realise the vision. This could
be achieved through an accompanying implementation plan
alongside the NAP which is more of a ‘living’ document that the
NAP itself, which is more of a policy document, strategic vision and
guiding framework.
Build political buy-in for the NAP and WPS agenda at a high level,
identifying senior stakeholders within Danish government and at
a ministerial level who could have an interest in the WPS agenda.
Devise a clear strategy for engaging those stakeholders using
targeted meetings
20
, events and communications, coordinated
across departments as far as possible.
b.
20
Inspiration could be drawn from the cross-political network on sexual and
reproductive health and rights and SDGs as key platforms for harnessing
political engagement and leverage. A similar mechanism could be built on
WPS, or links could be made between the existing platform and other pil-
lars of the WPS agenda. See: http://www.tvaerpolitisknetvaerk.dk/, https://
www.2030netvaerket.dk/om
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4 Conclusions and recommendations
c.
Leverage thematic areas where Denmark has value-add. Although
Denmark has limited resources for NAP prioritisation, it can still
make a strong difference by mobilising its niche thematic areas
and strengthening its voice in support of these areas, particularly
in multilateral and normative arenas, including the EU, UN and
NATO. Specific proposals include:
I.
Consider including SRHR in the fourth NAP to build wider
Danish policy coherence and concretize an increasing
interest in the humanitarian linkage between SRHR and
SGBV in emergencies;
Women’s participation in local level peacebuilding;
Supporting domestication of the 1325 framework in
partner country or region NAPs and RAPS, with a focus
on Denmark’s strategic priority focus countries;
Pursuing development-humanitarian nexus program-
ming;
Strengthening Danish participation in the EU’s Informal
Task Force on UNSCR 1325, prioritizing attendance at
meetings and engagement with others in the European
External Action Service on WPS.
II.
III.
IV.
V.
d.
Define Danish WPS vision and priorities in geographical areas
of interest for Danish foreign policy, security and development
cooperation,
and integrate this into other guiding strategies,
policies and M&E processes for those target geographies. For
example, the Sahel, MENA, Horn of Africa, Afghanistan and South
Sudan emerged as existing and ongoing geographical priorities
for both Denmark as a whole but also in relation to WPS needs
and entry points.
Strengthen the focus on addressing underlying structural and
gender inequalities within the fourth NAP to target persistent
barriers to WPS progress.
Strengthen the focus on the needs and experiences of diverse
groups of women within the fourth NAP, acknowledging the
impact that intersecting identities have on the WPS agenda (for
example age, class, disability, sexuality, gender identity, ethnicity,
religion and others).
Ensure the NAP is integrated into existing strategic planning
processes with Danish Government. For example, include WPS as
a standard agenda item in the annual strategic dialogue between
e.
f.
g.
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4 Conclusions and recommendations
MFA and strategic CSO partners; ensure upcoming country task
forces include an assessment of opportunities to address WPS
issues in that country context as part of their mission; and inte-
grate WPS issues more explicitly in templates for country policies
and programme development.
4.2
Capacity building and resourcing
Where engagements were observed to be less effective and linked
to poorer impact, lack of human and other types of resourcing is a
contributing factor. The lack of a clear monitoring and tracking system
for the NAP is an important gap and is part of broader limitations in
the costing framework and allocated budget for NAP implementation.
Funding modalities for NAP engagements at the country and regional
levels appear to be ad hoc rather than strategic, raising questions about
the efficiency of Danish spend on WPS engagements.
Conversely the most effective engagements were found to be those
targeting women’s participation, including in local-level peacebuilding,
and protection of women in conflict and humanitarian emergencies,
particularly from SGBV. Engagements targeting or working with
specialist WPS/gender partners have been particularly effective. The
least impact has been observed for NAP engagements involving gender
mainstreaming in non-WPS focused engagements, in part as a result
of weaknesses in staff and partner capacity to assess or support better
gender mainstreaming, or weaknesses in results frameworks.
Civil society engagement in the NAP overall is currently ad hoc, con-
strained by the lack of earmarked funds for civil society participation in
NAP implementation, monitoring and oversight. The benchmarking also
found this a weak area for Denmark compared to others.
Stakeholders within government reported lack of time alongside other
priorities to effectively advocate for and support NAP integration into
key channels such as the PSF, through political channels such as with
the EU and NATO, and via M&E processes. Recommendations related to
capacity and resourcing are therefore as follows:
a.
Strengthen human resources within MFA to manage and oversee
Denmark’s NAP. This could involve recruiting for a gender adviser
position or appointing an existing staff member with some
relevant experience as a gender focal point, for example within the
PSF. MFA should also clarify the time key staff in MFA participating
in the IMWG have to dedicate to the NAP and integrate this clearly
into job descriptions and appraisal processes.
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4 Conclusions and recommendations
b.
Take steps to make WPS funding more strategic and in order to
enhance impact, focusing on lessons learned regarding what
works, what doesn’t, under which contexts and under which
programming modalities and portfolio types. Consideration
should also be given to targeted funding for Danish areas of WPS
value-add.
Continue to fund targeted WPS programming in addition to
mainstreaming activities. This is critical to advancing a WPS
agenda, particularly in the most complex settings where women’s
participation and rights are extremely limited. Some of the
strongest results found in the evaluation were achieved through
targeted initiatives with specialist partners. This should include
development cooperation funding in addition to targeted WPS
stabilisation, international defence and policing initiatives, and
should be linked to existing Danish policies and strategies in these
sectors.
Make internal capacity building and training on WPS and gender
mainstreaming available to MFA staff and mission staff from all
three NAP signatories, and ensure key staff receive this training.
For instance, training may include skills in how to conduct an
intersectional gender analysis or in assessing the gender sensitiv-
ity of programme proposals and results frameworks. Civil society
partners with specialism in these areas could be invited to deliver
such training to Danish NAP government partners.
Ensure implementing partners are using gender-sensitive results
frameworks, including the collection of sex and age-disaggregated
data and gender-sensitive indicators, by making this a require-
ment in grant/contract compliance procedures. This should be
integrated into due diligence, contracting and reporting processes
so that results frameworks have to be ‘signed off’ from a gender
sensitivity perspective before M&E gets underway.
Take steps to enhance retention of female personnel, particularly
in the MoD. This may require a more introspective analysis of
the possible persisting masculine cultures in the Danish armed
forces
21
. Bring on board voices of female personnel and identify
good experiences, learning from past practice, and explore
c.
d.
e.
f.
21
Inspiration could be drawn from the Nordic Centre for Gender in Military
Operations (NCGM) which assists the military in integrating gender per-
spectives into the planning, execution and evaluation phases of operations
through education and training, integrating gender into military exercises,
cooperation through a network of key experts and institutions and by pro-
viding advice to policy and process development.
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4 Conclusions and recommendations
the possibility of having trained gender advisers within Danish
defence institutions.
g.
Earmark funds for civil society engagement in Denmark’s NAP
development and implementation, learning from the approach of
other Nordic donors.
4.3
Monitoring, evaluation and learning
As noted above, the lack of a systematic M&E framework and learning
processes on the NAP is hindering its relevance to Danish activity on
WPS, and peace, security, humanitarian and development cooperation
more broadly. This is essential if Denmark is to understand the impact of
the fourth NAP on the vulnerable populations it seeks to reach, and on
the wider WPS agenda, in future – and in securing greater political will
and buy-in to the WPS agenda. Recommendations under monitoring,
evaluation and learning are as follows:
a.
Develop a systematic monitoring, evaluation and learning
framework for the NAP, which is implemented and followed
up on regularly. Civil society actors should be engaged in the
development and ongoing implementation of an M&E system,
for example inputting at strategic review and reporting points to
strengthen external accountability and collaboration. It must also
be resourced within government if its development, implementa-
tion and tracking are to be sustained.
Integrate NAP monitoring into programme-level results frame-
works for future NAP engagements and ensure data is disag-
gregated by gender (and other intersecting identities such as age,
disability, and other relevant identify factors in that context).
Integrate the NAP’s themes and objectives into existing review
processes of Danish country programmes and other relevant
programmes (peace and security, humanitarian, stabilization,
peacekeeping).
b.
c.
4.4
Communications and engagement with Danish
missions
As noted above, Danish staff in missions, but also across government
in Copenhagen, are not clear on the Danish vision for the NAP/WPS, are
not aware of its content nor relevance to their work and have not been
engaged in a consultative process to define those priorities. There is an
opportunity for Denmark to raise awareness on the NAP and engage
mission staff in communications and dialogue to increase its relevance
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4 Conclusions and recommendations
on the ground, as well as gaining valuable input and collaboration from
staff in missions, as follows:
a.
Carry out structured communications activities at both Copen-
hagen and mission level on Denmark’s commitments and vision
under the NAP and how this relates to its other commitments on
peace and security, humanitarian and development programming.
This would help to raise awareness within government as well as
strengthening unified political influencing and messaging by staff
at post. Messaging needs to be consistent with gender equality
and WPS priorities stated in broader Danish policies and strate-
gies.
Consider producing learning products highlighting Denmark’s
contributions to WPS and circulating widely in Copenhagen and at
post.
Mobilise the 20-year anniversary of 1325 to raise awareness
within government.
b.
4.5
Governance and stakeholder engagement
The NAP has not been an effective framework for stakeholder collabora-
tion. Any observations of enhanced collaboration were attributed to the
Whole of Government Approach rather than the NAP. The IMWG has not
been an effective forum for strategic collaboration between the three
NAP signatories, with no terms of reference or direct outputs from the
group contributing to a lack of effectiveness. The role of civil society in
the development, drafting and monitoring of the Danish NAP has been
limited, and its role in NAP consultations can be better described as ad
hoc and fragmented. Denmark’s lack of effective engagement with civil
society has negatively affected the level of WPS commitment due to
civil society not having a formalised role or a clear channel of influence,
in turn negatively affecting NAP ownership and sustainability. Recom-
mendations to strengthen governance and stakeholder engagement are
therefore as follows:
a.
Revitalize the Inter-Ministerial Working Group with a clear Terms
of Reference defining the IMWG’s role in M&E and accountability
to internal and external stakeholders. Although it does not have
a role in monitoring the NAP currently, it may be well placed
to contribute to that in the fourth NAP, although this needs to
be accompanied with adequate resourcing. If funding for NAP
implementation is mobilized, the IMWG could build a greater
sense of collaboration, learning and accountability through shared
activities such as co-facilitating workshops or learning forums, or
co-producing learning outputs related to NAP engagements.
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4 Conclusions and recommendations
b.
Develop a more systematic partnership with civil society in all
phases of NAP development, implementation, monitoring and
evaluation.
The NGO Network for Conflict Prevention and Peace-
building (CPPB Network
22
) could be the starting point for this,
engaging with the IMWG. The IMWG can connect to the Danish
chapter of the Nordic Women Mediators’ Network
23
, comprising
five Nordic Networks (DK, Sweden, Norway, Finland and Iceland)
whose members are prominent female peacebuilding and media-
tion experts.
Strategic partnerships should be built at mission level with
partners with WPS specialism, particularly in priority fragile and
conflict-affected contexts where Denmark is engaged worldwide.
Women affected by conflict should be consulted and included in
these processes.
c.
22
23
http://www.globaltfokus.dk/om-os/organisationen/arbejdsgrupper/net-
vaerk-for-konfliktforebyggelse-og-fred
https://cric.ku.dk/nwmn/
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5
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EVALUATION
OF THE DANISH NATIONAL ACTION
PLANS FOR THE IMPLEMENTATION OF UN
SECURITY COUNCIL RESOLUTION 1325 ON
WOMEN, PEACE AND SECURITY
Ministry of Foreign Affairs
of Denmark
2 Asiatisk Plads
DK-1448 Copenhagen K
Denmark
Tel +45 33 92 00 00
Fax +45 32 54 05 33
[email protected]
www.um.dk
ISBN: PDF: 978-87-93760-24-0
ISBN: HTML: 978-87-93760-25-7