1 Introduction

Diplomacy for peace and conflict resolution is one of Norway’s most important lines of action for a safer and more stable world, which is in Norway’s clear interest. Efforts to resolve wars and conflicts are an integral part of Norwegian foreign policy and are intertwined with Norway’s foreign policy efforts to ensure our own security and welfare and to find common solutions to global challenges. Norway’s National Security Strategy (2025) emphasises the significance of our principled defence of international law and the importance of efforts to reduce war and conflict. Efforts to promote peace and conflict resolution are an essential part of this. The work is often done in close contact with close allies, key countries in other regions, the UN and civil society.

The work is wide-ranging and has included over forty wars and conflicts over the past thirty-five years. Norway has facilitated comprehensive peace agreements in distant conflicts, such as in Colombia, Nepal and Guatemala, and for a number of ceasefires and humanitarian agreements. We have also worked purposefully on conflicts that affect Europe more directly, from the Palestine issue and Afghanistan, to Iran, Yemen, Syria and the Horn of Africa. Following Russia’s full-scale invasion, we have drawn on our broad experience to support Ukraine in its preparation for and conduct of negotiations.

Norway’s participation in conflict resolution is in demand. The reasons for this are described in the white paper. It is a premise that Norwegian diplomats are in principle willing to talk to all parties in a conflict, even those with whom we fundamentally disagree, as long as they are interested in discussing political solutions. Another prerequisite is Norway’s willingness to work long-term with conflicts, across changing governments, which requires broad political support. Norway is also a flexible peace actor, with the ability and willingness to assume the risks involved in addressing new challenges.

For Norway, it is always important to work to include women and minorities and to promote solutions in line with international law and human rights. Experience indicates that this provides better conditions for lasting peace.

The white paper shows that Norway’s efforts to promote peace and conflict resolution are more important than ever in a world that is changing at a rapid pace, with more war and conflict and with the UN Charter under pressure. Norway’s security rests on a global order based on international law, and the same applies to our welfare. Russia’s war against Ukraine represents a direct threat to Ukraine’s sovereignty and European security. In Europe, we must do our utmost to meet this threat. The United States’ orientation towards Asia as a result of its rivalry with China means that Europe must take a greater responsibility. Conflicts are also getting closer to us. In today’s globalised world, Norway’s security is affected both directly and indirectly by distant conflicts.

Diplomacy for peace and conflict resolution builds valuable political capital and expertise. The work provides links to key countries and actors, and this is important in the shaping of Norwegian foreign policy and the promotion of national interests. Norway is internationally regarded as a leading player in conflict resolution, due to its long experience and credibility in the field. It is important to maintain this capital.

The white paper provides an account of these efforts, both historically and today. It discusses various examples of Norwegian involvement in conflict resolution, dilemmas we face, and lessons on which we must draw. It describes why Norway is working for peace and conflict resolution, what the objectives of these efforts are, and which conditions are important for working to achieve results. The white paper shows that we achieve a great deal with relatively few resources, through a broad diplomatic effort that cannot solely be measured in the number of peace agreements signed. The white paper shows that the work is significant, both where solutions are achieved, and where it is not possible to find lasting solutions. It emphasises the importance of further developing and prioritising this work as a key part of Norwegian foreign policy, with the expertise and resources required.

1.1 Delimitation

In the autumn of 2024, the Storting asked the Government to “present a white paper on Norway’s long-term international efforts for peace and reconciliation”.1 Norway’s international work for peace has a long tradition in Norwegian foreign policy. It includes a broad set of measures and instruments, including humanitarian efforts, conflict prevention, peacebuilding, long-term development efforts and the strengthening of multilateral commitments, with the objectives of disarmament and non-proliferation of nuclear weapons, among other things. A large number of state and non-state actors are involved in this work.

The topic of this white paper is limited to Norwegian diplomatic efforts to reduce or resolve conflicts. Efforts are made through diplomatic contact with actors in conflicts, facilitation of talks and negotiations between conflict parties, as well as follow-up of ceasefires and peace agreements. This part of Norwegian foreign policy is discussed here using the terms peace and conflict diplomacy and efforts for peace and conflict resolution.

The term reconciliation often has a broader meaning and is considered less appropriate here for the focused diplomacy that aims to reduce conflicts or guide them into a political negotiation track.

The white paper deals with Norway’s own efforts and cooperation with state and non-state partners. Some processes have not previously been discussed publicly by Norway. The white paper limits itself to those processes that can be transparent. Many processes in which Norway is involved are highly sensitive. At worst, publicising and disclosing our own work can put individuals at risk, exacerbate ongoing conflicts and contribute to mistrust both between parties and towards Norway as a discreet and low-profile supporter.

In terms of timeframe, the white paper is limited to the period from the early 1990s until today, while at the same time pointing the way forward. This does not mean that Norway was not engaged in peace work prior to the 1990s. But it was only then that peace and conflict diplomacy emerged as a separate, delimited discipline in Norwegian foreign policy and was established as a separate operational instrument. This was possible due to political attention and broad political support. Governments led by various parties agreed on the importance of contributing to international conflict resolution. Norway’s role in peace processes opened doors and promoted international relevance. Later, steps were taken to professionalise and institutionalise the efforts. The white paper first describes this journey – and important choices that were made along the way – before pointing the way forward for further Norwegian efforts, in an increasingly conflicted world.

Presented in May 2025, Norway’s National Security Strategy (NSS) provides a comprehensive and overarching presentation of foreign, security, defence and emergency preparedness policy, based on Norway’s national security.2 The priorities in this white paper are in line with the NSS, which emphasises international law and binding international cooperation as the foundation for peace and international security.

1.2 Summary

International politics is entering challenging times. We are facing a changing world order, with greater geopolitical tension, weakened cooperation in international institutions and increased pressure on international law. The number of conflicts has not been higher since the end of World War II, and the conflicts are becoming increasingly complex. They have also come closer to home, and distant conflicts can affect us directly. The heightened security policy situation and a more unpredictable Russia require that we must invest more in the security and defence of Norway. This is the reason why all parties in the Storting support the Long-term Plan for the Defence Sector,3 which was adopted in 2024, and why the Government presented the first National Security Strategy in May 2025, with which the priorities in this white paper align.

With increased conflict in the world, the need for peaceful international conflict resolution will also increase. Diplomacy for peace and conflict resolution has long been a priority and an integral part of Norwegian foreign policy. For a small state with an open economy, it has been in our own interest to contribute to the settlement of armed conflict and to promote a global order in which international law is respected. Today, this work is more important but also even more demanding, than ever.

At a time when war and conflict threaten our security and interests directly and indirectly to a greater extent than they have for a long time, the Government will give priority to further developing diplomatic efforts to promote peace and conflict resolution. There is much to build on. Over several decades, Norway has built up sought-after expertise in this field.

The white paper identifies three goals for further work. Overall, the goal is to mitigate and resolve conflicts. Peace and conflict diplomacy is an important instrument in the work to promote peace and security, together with broader efforts such as humanitarian aid, development assistance, support for multilateral institutions and security policy cooperation. Another goal is to promote measures and solutions based on international law and the ownership of the parties. This is important at a time when international law is under pressure. The parties’ ownership means that it is the parties to the conflict themselves who are responsible for a peace process and the negotiated results, which, together with the inclusion of war victims, women and local communities, increases the chance of sustainable solutions. A third goal is to create political capital and insight. The work on peace and conflict resolution positions Norway in international arenas and provides insight into the interests and positions of various actors, including global and regional powers and other third countries.

Important cross-cutting priorities throughout are women, peace and security, victims’ rights and transitional justice, humanitarian diplomacy, and climate and the environment.

Since around 1990, Norway has been involved in peace and conflict diplomacy in more than 40 countries and processes. Norway’s involvement can be divided into four types of roles: 1) contact diplomacy, 2) informal facilitation, 3) formal facilitation, and 4) contribution to processes that are formally led by others. The white paper shows examples of and describes how Norway has worked in a number of different processes.

Norway’s efforts to promote peace and conflict resolution are characterised by a number of approaches that we believe provide advantages and results, including discretion and a willingness to talk to all parties to a conflict who are open to discussing political solutions, violence reduction or confidence-building measures. Norway’s efforts are also characterised by a long-term perspective, flexibility and willingness to take risks, based on political consensus and political commitment on the Norwegian side.

In the various roles and many conflict situations described in the white paper, we face a variety of dilemmas that require a good understanding of conflict and actors and solid risk analyses. Firstly, there is a risk that Norwegian involvement may contribute to legitimising controversial actors or behaviour. This must be weighed against the risk that breaking off contact will undermine the ability to exert influence and may lead to diplomatic isolation of the parties to the conflict. This can further worsen the security situation and social conditions. The assessment of successive Norwegian governments has been that the upsides can outweigh the downsides if the contact is handled in a good way and at the right level, with clear messages and expectations.

Secondly, there may be tension between the need for firmness of principle in the event of violations of international law and the need for pragmatism in conflict resolution. For Norway, it is crucial that there is broad support for international law, including humanitarian law and human rights. At the same time, it may reduce Norway’s ability to facilitate a peace process if we come out with strong public criticism of the parties to a conflict.

A third dilemma can arise when we engage in conflict resolution where we cannot take an impartial role. In Afghanistan and Libya, Norway participated in NATO operations, while we also worked diplomatically for peaceful solutions. In Russia’s war against Ukraine, where Norway has chosen a clear side, it is out of the question to take a role as an impartial facilitator. Nevertheless, Norway is contributing by exchanging experiences and providing support to strengthen Ukraine’s participation in negotiations. We are also actively contributing in European diplomacy to support the peace process, in close contact with the United States.

Norway’s role in several key conflicts from the early 1990s highlighted the value of the efforts and how it promoted Norwegian interests. The need to systematise and professionalise the efforts led to the establishment of the Ministry of Foreign Affairs’ Section for Peace and Reconciliation, which heads many of Norway’s operational roles in conflict resolution and administers aid funds for the work. This amounts to approximately 0.68 per cent of the Ministry of Foreign Affairs’ total budget for humanitarian efforts and development cooperation.4 Budget item 151.70 includes support to NOREF and other international conflict resolution organisations.

Norway’s work for peace and conflict resolution draws on cooperation with a number of actors. The efforts are usually part of an international division of labour and are rooted in communication with close allies, including the EU and the US. Norway also cooperates closely with the UN and many international non-state actors, in addition to a number of other countries. On the Norwegian side, other ministries and agencies are providing important support. NOREF Centre for International Conflict Resolution is an independent foundation funded by the Ministry of Foreign Affairs, which contributes to peace work in many processes. The Ministry of Foreign Affairs cooperates well with several Norwegian civil society organisations. Historically, several of Norway’s peace engagements have started with Norwegian civil society organisations.

What do we achieve? Sometimes fully-fledged peace agreements are reached, but this does not happen often. Nevertheless, Norway’s efforts can help lay the foundation for de-escalation or conflict resolution and alleviate suffering for the civilian population in conflict areas, for example through confidence-building, violence reduction, ceasefires and humanitarian corridors.

Furthermore, peace and conflict diplomacy contributes to strengthening Norway’s bilateral relations with individual countries and organisations both within and outside our closest circle of allies. The white paper refers to a number of examples of this. In a troubled world, it is in Norway’s interest to strengthen these contacts. A number of countries are also investing considerable resources in conflict resolution and wish to learn from Norwegian experiences. This reflects the perception of Norway as a pioneering country in the field and the recognition that peace and conflict diplomacy is an area of foreign policy that provides political capital and is important for safeguarding national interests.

We expect that the demand for Norway’s involvement in conflict resolution will continue. To be effective in a changing world, Norway must build on the lessons learned about what works, and at the same time further develop its policies and tools. By exploiting existing Norwegian advantages in peace and conflict diplomacy, this can continue to be a cost-effective investment. Norway should continue to prioritise the field politically and with sufficient resources, and the white paper outlines several concrete measures.