4 Norway’s priorities for the Council of Europe
4.1 Obligatory and voluntary financial contributions
Norway’s contributions to the Council of Europe consist of obligatory and voluntary contributions and the secondment of personnel. In 2025, the obligatory contributions will amount to around NOK 90 million.
In recent years, Norway has given more than NOK 60 million per year in voluntary contributions to the work of the Council of Europe, mainly in the form of assistance funds for the work at the country level, as described below, but also to the European Court of Human Rights (ECHR), the Department for the Execution of Judgments and the Venice Commission. Norway has also been a driving force for real growth in the Council of Europe’s regular budget, a goal that was achieved for the 2024–2025 budget period.
4.2 Support for Council of Europe projects and action plans
The Council of Europe has six country-specific action plans for Member States (Armenia, Azerbaijan, Bosnia & Herzegovina, Georgia, Moldova and Ukraine) and four neighbourhood co-operation programmes (Kazakhstan, Kosovo, Morocco and Tunisia). These are partly funded under the ordinary budget, but the majority of the funds derive from voluntary additional contributions from EU or Council of Europe member states. Norway is one of the largest contributors to these action plans and neighbourhood co-operation programmes, with particular emphasis on Ukraine and Moldova through the Nansen Support Programme.
The largest action plan, the Action Plan for Ukraine ‘Resilience, Recovery and Reconstruction’ 2023–2026, focuses on supporting the country’s stability, security, and welfare during and after the war. Implementation of the Action Plan is crucial for Ukraine’s future as a stable European state. The Council of Europe’s expertise contributes to necessary judicial reforms, combating corruption, safeguarding minority rights, and ensuring media freedom.
Norway does not make voluntary contributions to the work in Azerbaijan. Funding for the Council of Europe’s work in Georgia was suspended in late 2024, partly as a reaction to the government’s conduct following the parliamentary elections on 26 October.
4.3 EEA and Norway Grants and co-operation with the EU
Through the EEA and Norway Grants, Norway contributes to promoting democracy, the rule of law and human rights in Europe. For 20 years, the grants have had a clear objective of supporting beneficiary states’ democratic institutions, the judiciary, civil society and fostering inclusive societies.
In the new agreement for the 2021-2028 programme period, the importance of these common values has been further reinforced. In the agreement with the EU, which is described in Prop. 119 S (2023-2024) and Innst. (Recommendation) 21 S (2024-2025), Article 1 sets out the objectives and common values and principles that apply to EEA and Norway Grants. This entails that compliance with fundamental values is required in order to receive funding.
In the upcoming period, the 15 EU countries covered by EEA and Norway Grants will receive funding in relation to three overall thematic priorities: European green transition; democracy, rule of law and human rights; and social inclusion and resilience.
Co-operation has been opened across a range of sectors considered important to strong and resilient democracies. This includes the justice sector, education, research, culture, local development, minorities and non-discrimination, gender equality, increased efforts to combat disinformation and prevention of gender-based violence, as well as general capacity building. Here, Norwegian actors will have an important role in capacity building and exchange of experience. This includes co-operation with, among others, the Norwegian Courts Administration, the Directorate of the Norwegian Correctional Service and the Ministry of Justice and Public Security.
In addition to the country-specific allocations, a separate Civil Society Fund of more than EUR 300 million has been established for the programme period, which will be distributed to selected Fund Operators for further distribution to civil society in each country. Funding for civil society over time through the EEA and Norway Grants has arguably been the most impactful aspect of Norway’s contribution to democratic development in Europe following the 2004 EU enlargement.
A dedicated fund has also been established to facilitate closer co-operation with international organisations. This effort seeks to strengthen co-operation with the Council of Europe, the OECD and the EU Agency for Fundamental Rights (FRA) to enhance expertise and knowledge transfer on European standards and values to beneficiary states. Through the Council of Europe’s participation as an advisor in programmes funded through EEA and Norway Grants, Norway contributes to consolidating, strengthening and improving democratic resilience in Central and Southern European beneficiary states.
In the Council of Europe, there is also close coordination between the permanent delegations, which involves joint statements, joint initiatives and ongoing co-operation to ensure that Norway’s positions are aligned with those of like-minded countries and contribute to strengthening European security and stability.
Norway also supports the EU’s enlargement policy and prioritises support for the candidate countries’ European integration.
4.4 Key partnerships (Nordic and Nordic-Baltic co-operation etc.)
The Nordic (N5) and Nordic-Baltic (NB8) co-operation has been strengthened following Russia’s full-scale invasion, with European security policy as a key focus. Swedish and Finnish NATO membership has reduced the divide between the Nordic and Baltic states. NB8 convenes annually at both prime ministerial and foreign ministerial level. Enhanced NB8 co-operation contributes to bringing the Baltic States closer to their Nordic counterparts, and vice versa. This could pave the way for more joint positions and statements in multilateral forums such as the Council of Europe and the UN.
At the same time as Norway continues its close NB8 co-operation within the Council of Europe, these are also good arenas for close contact and co-operation with important European allies such as Germany, Poland and others. The organisation’s work also creates opportunities for dialogue on the topics covered in this report with countries with which Norway does not have as close relations.
4.5 The role of parliamentarians and civil society participation
The Storting has a broad international commitment. Inter-parliamentary contact and co-operation strengthens democracy both in the Nordic co-operation and in the parliamentary assemblies of international organisations.
The Parliamentary Assembly of the Council of Europe (PACE) holds a unique position, as it elects both the Secretary General of the organisation and the judges of the European Court of Human Rights, and is also responsible for several of the Council of Europe’s largest initiatives and projects. PACE also undertakes election observation and has rapporteurs for various thematic and geographical areas, who prepare reports that lead to recommendations to the Committee of Ministers.
The parliamentary assemblies reflect the composition of national parliaments, encompassing the full spectrum of political parties, including the opposition. This means that it is not only the views and policies of the governing parties that are expressed. Parliamentarians tend to be able to go further in their statements and criticism, for example, regarding the work of Member States or lack of action in a particular area. Thus, parliamentarians add value to the Council of Europe and make an important contribution to democracy building in Europe.
A number of stakeholders have recently advocated closer co-operation between PACE and the Committee of Ministers to ensure better coordination between the two institutions. Norway can contribute to this effort through continued close dialogue with the Norwegian PACE delegation on the major challenges facing the Council of Europe and its Member States. Furthermore, Norway can contribute to PACE becoming a participating partner in the Council of Europe’s efforts to implement the ten Reykjavík Principles for Democracy.
A vibrant and broad-based organised civil society has provided much of the foundation for democracy and welfare in Norwegian society. Voluntary organisations, interest groups and academia are important contributors to diversity, quality of life, culture, politics and democratic attitudes. Norwegian civil society is also heavily involved in international organisations and processes related to human rights, the rule of law and democracy. This includes active participation in the standard-setting work of the Council of Europe and in various processes under OSCE institutions.
Although more opportunities are now provided for civil society participation than before, there is still room for improvement. As much of the Council of Europe’s work and documents are not subject to public scrutiny, it can be difficult to access information. However, several projects are underway to enable greater transparency and accessibility, for example, with the Thematic Co-ordinator on Information Policy (TC-INF).
The Norwegian Permanent Delegation in Strasbourg will continue to be available to international organisations interested in meeting with Norwegian representatives. However, it is important to emphasise that a willingness to speak with everyone does not necessarily imply recognising the actors’ agendas.
4.6 Coordination and strengthening of Norwegian efforts
By building and maintaining alliances with like-minded Member States and cultivating and further developing established co-operation with the EU and the Nordic-Baltic group, a small Member State such as Norway can make its voice heard in shaping European values.
It should be an objective for Norway to participate, take initiatives and hold leading positions in inter-governmental co-operation in committees in prioritised areas and to get more Norwegians into key positions in the Secretariat of the Council of Europe and field offices.
Development of Norwegian positions
To effectively promote Norwegian interests within the Council of Europe, close, structured coordination and information-sharing among relevant Norwegian public and private actors is essential. This is best accomplished by considering the use of voluntary contributions, EEA and Norway Grants, and participation in various forums within the broader context of Norwegian policies and diplomacy. The Ministry of Foreign Affairs coordinates Norway’s participation in the Council of Europe and has extensive contact with other government ministries, agencies and civil society organisations involved in work related to the organisation. The Ministry of Foreign Affairs will emphasise Norwegian interests and the possibility of achieving our priorities in the preparation of positions for work in the Council of Europe.
Co-operation with civil society actors strengthens efforts to promote human rights, democracy and the rule of law. A comprehensive strategy must ensure close information sharing and coordination of Norwegian contributions to relevant organisations, including the OSCE, such as election observation, rule of law development and support for civil society. A prerequisite for success in strengthening Norway’s influence in key areas is the formulation of clear national priorities within the Council of Europe’s areas of work, with defined objectives that are regularly updated to adapt to changes in the Council of Europe’s agenda and the regional situation.
Norway co-operates closely with the Nordic and Nordic-Baltic countries in many areas. For example, the Nordic ambassadors in Strasbourg meet weekly. Where it aligns with Norway’s interests, Norway also endorses statements from EU Member States.
Norwegian participation and employees in the organisations
Meld. St. No. 27 (2018–2019) Norway’s Role and Interests in Multilateral Co-operation summarises how the multilateral system works and how it affects Norwegian interests. One of the policy instruments referred to is the recruitment of more Norwegian citizens to international organisations. Norway is underrepresented in most international organisations. Norway is a major contributor to international organisations, and there is a clear imbalance between our financial contributions and our presence. This also applies to the Council of Europe. Better recruitment is necessary in order to strengthen Norwegian influence in the organisations, and at the same time to develop expertise and networks for multilateral work in the Norwegian public administration.
Increased recruitment of Norwegian citizens will provide better opportunities to promote Norwegian views and values. It is important to ensure representation at all levels, including junior, mid-level, and senior management positions. In addition to employment in the Council of Europe’s structures, secondment of employees from the Norwegian public administration is an important policy instrument. There is a need to raise awareness and visibility in Norway regarding the available opportunities and the eligible applicants. Clear financial and logistical framework conditions (pensions, membership in the Norwegian national social insurance scheme, etc.) are crucial. Norwegian employees’ experience from international organisations is an important resource for our own public administration. Therefore, it is in Norway’s interest to enhance the recruitment of Norwegians to the Council of Europe and to ensure that the expertise they gain is effectively utilised within the Norwegian public administration.
4.7 Norwegian leadership and responsibility in multilateral organisations
The Council of Europe possesses considerable professional expertise. The high level of professional expertise must be accompanied by political will in Member States in order to see positive results. As a small country that consistently honours its commitments, Norway possesses the credibility to speak out clearly against a lack of political will to uphold commitments, while also helping to build bridges between different actors and promote solutions.
Norway is also a major financial contributor to key functions in the organisation and the European Court of Human Rights, as well as to the work at the country level. This gives us leverage in terms of what can be done and where efforts should be focused.
Norway’s extensive experience as an aid donor and its presence in Member States co-operating with the Council of Europe provide a solid foundation for taking a leadership role in ensuring that the work of these organisations produces results. Norway can also offer constructive criticism. We should leverage our influence to contribute to the implementation of reforms and re-prioritisations where necessary.
In May 2028, Norway will assume the presidency of the Committee of Ministers and will hold it until mid-November of the same year. During our presidency, the Government can direct particular attention to topics such as the Council of Europe’s gender equality strategy, democracy, human rights, non-discrimination, artificial intelligence (AI), combating hate speech and strengthening the institution of ombudsman. Holding Russia accountable could be a key topic at any ministerial meetings, whether the war is still ongoing or has entered a post-war phase.
The presidency provides an opportunity to organise ministerial meetings (normally at least a Conference of Ministers of Justice) and promote new conventions or measures.