1 Introduction
1.1 Europe at war: Our values under attack
We are living in a period of geopolitical upheaval and rapid changes, where much seems uncertain. Three decades ago, we experienced a strengthening of democratic values and multilateral co-operation. Today, the situation is starkly different. Globalisation has stalled amidst rising great power rivalry and deepening polarisation. We are witnessing authoritarian political forces gaining ground – even in allied and closely aligned countries. The rules-based world order, which has served Norway well, is now under intense pressure. All of these developments are affecting Europe, which is undergoing changes in step with the geopolitical upheavals unfolding in the world around us.
The challenges to human rights are also evident. Freedoms are weakened and democratic institutions are being eroded and pressurised. Democratic rules and the rule of law are being undermined by internal and external forces. We recognise that the combined military and non-military instruments employed by foreign states have both a direct and indirect impact on Norwegian interests and security.
Our security, economy, freedom, and prosperity depend on safeguarding the system we have been building since the Second World War from erosion. At the same time as the NATO defence alliance was established in 1949, the Council of Europe was founded, in the belief that democracy, human rights, and the rule of law are the best defence against another war on the European continent. The forerunner of the EU, the European Coal and Steel Community (ECSC), was established three years later to foster peace through integration, based on a strong shared community of values.
With the fall of the Berlin Wall in 1989 and the dissolution of the Soviet Union shortly thereafter, the former Eastern Bloc countries were invited to become members of the Council of Europe. At the same time, the Organisation for Security and Co-operation in Europe (OSCE) was founded, based on the principles of the Helsinki Final Act of 1975, as an extension of the Conference on Security and Co-operation in Europe (CSCE). The aim was to promote security through a comprehensive approach that encompasses politico-military, economic and environmental, and human security aspects. At the time, the prevailing perception was that adapting to common values and commitments would be a gradual process and that the challenges stemmed mainly from limited resources and capacity. However, we are now seeing that many of the challenges are more closely tied to a lack of political will.
Russia’s invasion of the Crimean Peninsula in 2014 and its full-scale invasion of Ukraine on 24 February 2022 pose a threat to international peace and security and marked a watershed moment both globally and for Europe. Russia’s attack on Ukraine violates the principle of sovereignty, a pivotal principle of international law. Russia’s aggression primarily affects the Ukrainian people, but also puts the European security architecture under pressure and undermines existing co-operation agreements. What is at stake in Ukraine is not only the rule of law, democracy, and territorial integrity, but Ukraine’s very existence as a free and independent nation and state. Norway’s security, prosperity and freedom of action are based on respect for international law in a rules-based international order. The outcome of Russia’s aggression in Ukraine will have a direct impact on European and Norwegian security.
We are now witnessing a new urgency in Europe – a reversal of 1989. In 2022, Russia was excluded from the Council of Europe. In recent years, the world – and our neighbouring regions – have grown more perilous. We face a range of unpredictable and complex threats that undermine the values and principles on which we have built our societies. Several countries across Europe are introducing restrictive laws that limit the democratic space of NGOs and political opposition, for example, through anti-terrorism or other security legislation. This diminishes the space for seeking peaceful solutions to conflicts.
This situation is compounded by the three major global environmental crises – climate change, biodiversity loss and pollution – which we also require both global and regional co-operation to solve. These crises are intensifying, and the search for solutions is hindered by the unpredictable and complex threats we now face. They also impact human rights, democracy and the rule of law, all of which are critical to solving the crises.
An important measure to combat the above-mentioned threats and crises is the white paper on total preparedness (Meld. St. 9 (2024–2025)), which aims to ensure that Norwegian civil society is equipped to deal with a crisis or war. The Government also wants to highlight how we can promote democracy, the rule of law and human rights – and thereby security – in Europe, with a primary focus on the efforts and priorities of the Council of Europe. That is the purpose of this white paper. A policy update in the Council of Europe is needed to provide guidance and political direction on how to use our membership in the organisation to best support democracy and the rule of law in Europe. This endeavour is more important than ever.
The EU plays a central role in protecting fundamental values and defending democracy in Europe. Norway co-operates closely with the EU and its member states in various forums and through various co-operation structures to support this, including through EEA and Norway Grants. Closer co-operation with the EU to protect our values is necessary.
Thus, the timing of this report is particularly apt. The Government is deeply concerned about how human rights, democracy and the rule of law are being undermined in Europe. Russia’s brutal war has triggered a profound security crisis. We also see that Russia is using a wide range of destructive means – major intelligence activities, influence campaigns, cyberattacks, infiltration and sabotage against targets in Europe. These are targeted activities aimed at undermining our interests. In doing so, Russia – and others – contribute to weakening the international legal order and multilateral institutions.
Against this backdrop, Norway’s foreign policy objectives remain firm: it is in Norway’s interest to contribute to stability and predictability in the world. Compliance with international law, democratic values, and human rights are crucial to realising this objective. Although Norway can influence developments, it is essential that our policies develop in step with changes at the international level.
1.2 Democracy and security
Security, democracy, human rights and the rule of law are interrelated and interdependent. Democracies depend on the rule of law and human rights to function, and human rights are best safeguarded in democracies. Human rights form the foundation of individual freedom and dignity, the rule of law ensures that rights are upheld fairly and impartially, and democracy empowers people to influence the governance of society. Citizens should not have to fear the authorities, but should be able to safely work for the betterment of society – and exchange ideas, goods and services with neighbouring countries. Collectively, this lays the foundation for both just and stable societies – as well as peaceful relations among states.
Norway has many allies and friends, countries that are committed to protecting the same values we hold dear: democracy, freedom of expression, the rule of law and human rights. In a security situation marked by considerable uncertainty, it is important that we maintain close ties with those who share our commitment to these values.
Being surrounded by well-functioning democracies is key to our security. European history post-World War II has demonstrated that democracies do not go to war against each other. The Council of Europe was born out of this conviction.
While NATO and military co-operation constitutes the hard power of our security policy, part of our soft security is derived from stable democratic neighbouring states.
The Council of Europe’s approach to securing sustainable peace in Europe is grounded in legal standards for democracy, human rights and the rule of law, centred around the European Court of Human Rights (ECtHR). In comparison, the OSCE has adopted a comprehensive concept of security based on three dimensions in which democracy and human rights, security and military issues and economy and climate are considered in relation to one another, but without legal standards.
Norway’s work in the Council of Europe is supported by substantial development assistance and the EEA and Norway Grants. The Government believes it is important to initiate a discussion on how international co-operation can be used most effectively to advance our objectives.
1.3 Delimitations
This white paper is centred on our efforts in the Council of Europe. It highlights how we can best strengthen Norwegian efforts to promote our interests in international co-operation for democracy, the rule of law and human rights as part of our efforts to promote peace and security in Europe. The Government is thereby seeking to ensure a strategic and targeted engagement that strengthens both Norway’s position and the European response to some of the present challenges.
When work on this report commenced in 2024, the plan was also to review our efforts in the OSCE. Due to the considerable geopolitical uncertainty in the winter of 2025, the Government does not consider this to be the most appropriate course of action at this time. The OSCE’s broad approach to security and its future role in the European security architecture will be subject to more thorough consideration at a later stage.
In addition to clarifying Norway’s priorities, the Government wants to strengthen Norway’s ability to harness synergies between the European organisations in which we participate. The OSCE’s comprehensive approach to security and democracy, as well as military co-operation and NATO, will be addressed where relevant to the main theme of the white paper. The same applies to the EU and the EEA co-operation.
Chapter 2 describes our current threat landscape, while Chapter 3 outlines the most important European institutions. Chapters 4 and 5 present the Government’s priorities and how Norway is working to address the threats.