Summary
1. Introduction
Violence against women, domestic violence, and gender-based violence are some of the most serious inflictions of human rights in Europe. These forms of violence are also largely silenced. The Nordic countries have expressed a zero tolerance for violence against women and domestic violence. But despite this, and despite the Nordic countries being among the most gender equal in the world, there is nevertheless a high prevalence of violence against women and domestic violence. This paradox suggests that there is still substantial work to be done to combat these forms of violence, also in the Nordic countries.
A key part of this work is the ratification and implementation of the Council of Europe Convention on preventing and combating violence against women and domestic violence (hereafter ‘the Istanbul Convention’ or ‘the Convention’). The Nordic countries have all signed the Istanbul Convention. Denmark, Finland, Norway and Sweden have also ratified it, and partly started reporting to GREVIO, the Group of Experts on Action against Violence against Women and Domestic Violence. In other words, substantial work is currently being carried out all over the Nordics to combat the forms of violence covered by the Convention.
This report discusses some of this work, and looks closely at what is currently being done in the Nordics with direct reference to a selection of Articles in the Convention. The report presents policy work and specific measures carried out in Denmark, Finland, Iceland, Norway, and Sweden, along with the autonomous territories of Åland, Greenland and the Faroe Island.
This project covers the following articles of the Istanbul convention:
Under Chapter 2 of the Istanbul Convention on integrated policies and data collection:
• Article 10 – Co-ordinating body
• Article 11 – Data collection and research
Under Chapter 3 of the Istanbul Convention on Prevention:
• Article 12 – General obligations
• Article 13 – Awareness-raising
• Article 14 – Education
• Article 15 – Training of professionals
• Article 17 – Participation of the private sector and the media
This project is funded by the Nordic Council of Ministers, and carried out as a part of the Norwegian presidency in 2017. The Norwegian Ministry of Children and Equality and the Norwegian Ministry of Justice and Public Security are the awarding authorities, and the project is led by KUN.
2. Methodology and theoretical approach
Chapter 2 outlines the methodology for data collection and theoretical approach used in the project. This report consists of a substantial collection of data, describing some of the work that the Nordic countries are doing to prevent violence against women and domestic violence. Data have been collected through questionnaires sent out to relevant ministries in the Nordic countries, a Nordic workshop with representatives from relevant ministries, interviews with public administrators and others in the public sector, as well as civil society organisations and researchers. The material has been collected by the project group and each country has read through and approved the material. The country overview presented here is not a full overview of everything the respective countries are doing in relation to each article of the Convention, but a reorganised and partly supplemented version of what the countries themselves have reported. The report has some limitations in terms of scope and the particular articles covered, and these limitations are discussed here.
Finally, we present the theoretical and analytical strategies we use in this report. The Istanbul Convention is in itself very specific in how it frames the forms of violence that are covered. In this regard, we discuss a theoretical and methodological approach that takes as a starting point the representation of policy problems, and how representations of political problems and their solutions contribute to the ways in which problems are understood.
3. Country overview
In chapter 3 we present the work of each of the Nordic countries in relation to Articles 10, 11, 12, 13, 14, 15, and 17 in the Istanbul Convention. The overviews are based on reports provided by each country, and vary somewhat in presentation. For each country we go systematically though all the Articles covered by this project. The country overviews include separate information on Åland, Greenland and the Faroe Island.
4. Gender and domestic violence: exploring the problem
In this chapter we take a comprehensive look at how the various types of measures in each of the Nordic countries suggest something about the underlying understanding of domestic violence, gender-based violence and violence against women. Carol Bacchi notes that behind every policy measure lies a specific understanding of the problem. In this chapter we examine some of the measures that are taken in the Nordic countries more closely, and how these measures also have an impact on what the problem is represented to be. Specifically, we discuss how gender plays a part in the understandings of these forms of violence.
The policies that are developed and the measures that are taken suggest something about the underlying understanding of violence against women and domestic violence. This is not an attempt to evaluate the various measures in the Nordic countries, or their effectiveness. This would require looking closely at prevalence studies over time and seeing these in relation to various measures taken, along with examining other factors that may influence the rate of violence, such as economic instability. The aim of this chapter is rather to take glance across the Nordic countries at the work that is being done, as highlighted in the previous chapters. In addition to the material presented throughout the discussions in this chapter, we also base our analysis on a general overview of some of the Articles (see Appendix 1).
We start by analysing the work reported by the Nordic countries under Article 10 and 11 under Integrated policies and data collection, and comment on similarities and differences in how the countries have chosen to fulfil their obligations (for those these obligations apply to).
Following this, we look more closely at the work that falls under the heading of Prevention, and the ambition to change society which we argue lie underneath the way the Convention frames this. We examine how the convention defines the different forms of violence, followed by a discussion of various understandings of intimate partner violence. In research as well as in policy making, there are different ways of understanding the phenomenon. Some of these understandings involve a more gender-neutral approach, and some define the problem as explicitly gendered. We look at the academic debates on these issues, with reference to the work that is currently being done in the Nordic countries.
However, there may also be a need to move beyond gender. Using Bacchi’s approach to policy analysis requires us, not only to look at what the problem is represented as in policy documents, but also at what is being left out. While gender, as discussed above, is central both in the Convention and in the work being done by the Nordic countries, it can be argued that the Convention, and the Nordic countries, to some extent builds on gender essentialism, or the assumption that women have some experiences in common independent of race, class, sexual orientation and gender identity, and other realities of experience. Violence may take different forms depending on who you are, and we examine more closely some aspects of the work that is partly missing in the Nordic countries’ reporting.
Finally, we look at some structural aspects of preventive work, both in terms of time (short and long-term efforts), and in terms of some key institutions that are particularly well placed for doing preventive work. Both shelters, and schools and kindergartens are institutions which are in a particularly good position to do preventive work. We end the chapter by pointing towards what could be an ambition for the Nordic countries, namely to keep making more inclusive policies that take into account different forms of lived realities.
5. Highlighted practices
A key task in this project has been to define highlighted practices, as a part of the overall goal, namely to facilitate learning across the Nordic context. We have systematised all the information from the Nordic countries, and have picked out a range of practices. As we are not evaluating the effectiveness of measures in this report, we have picked practices that appear to be particularly interesting, that provide a new take on an old problem, or that involve e.g. utilising existing resources in different ways. The practices are organised according to the selected articles in the Convention. The highlighted practices contain examples from all levels, from overarching policies to small projects carried out by civil-society actors.