3 Main findings: implementing the UNFCCC GAP in the nordic countries

Priority area A:

3.1 Capacity-building, knowledge management and communication

• The review shows that there is variation in the knowledge of the UNFCCC GAP and the interlinkages between climate and gender among governmental stakeholders informing the review across the Nordic countries. This also goes for regional and municipal stakeholders.
• Knowledge-strengthening initiatives exist in different capacities in the Nordic countries, carried out by ministries, governmental agencies and/or UNFCCC national gender and climate change focal points (NGCCFP), respectively. In Finland, Iceland and Sweden, there are several trainings, tools and knowledge-strengthening activities promoting gender mainstreaming in climate policies, available for policy makers, practitioners, and the industry.
• The review observes limited knowledge and an under-prioritisation of gender mainstreaming in domestic climate policies, especially in Denmark and Norway.
• Many stakeholders informing this review consider the absence of sex-disaggregated data and knowledge of the intersection of climate and gender a barrier to gender mainstreaming in climate policies. However, this review suggests that this is a misunderstood barrier. Rather, the review suggests that the existing sex-disaggregated data and evidence base in the Nordics is in many cases substantial enough to serve as a basis for initiating gender analyses. The existing data sources for example include insights into behaviour and attitudes regarding climate change and sustainability, transport patterns, food consumption, gender balance in sectors crucial to the green transition, as well as the gender composition in relevant ministries.

  Lander Svendsen, N., Weber, K., et al. (2022). How climate policies impact gender and vice versa in the Nordic countries

  Rather, this review indicates that existing sex-disaggregated data on the gendered impacts of climate policies are rarely analysed and communicated.
• The review shows that various aspects of climate efforts – mitigation, adaptation, and resilience – are given varying degrees of attention, where mitigation is most often considered in climate policies.
• In relation to the UNFCCC GAP’s encouragement to effectively communicate to the public the efforts to promote gender equality in climate work and policy, a range of collaborative efforts in the Nordic region can be highlighted. Specifically, the recently launched online platform The Nordic Knowledge Hub, developed by the Nordic Co-operation, stands out as a key initiative in terms of enhancing the knowledge base, by gathering existing relevant resources and recent publications supported by the Nordic Council of Ministers.

  Nordic Knowledge Hub (n.d.). A Green and Gender Equal Nordic Region -  How it works in practice.

Priority area B:

3.2 Gender balance, participation and women’s leadership

• The gender quota of the Nordic female delegates to the COP28 ranges from 49–67%, which is an overall increase since COP21 when the Paris Agreement was signed.

  Gender Climate Tracker (n.d.). Women’s participation in party delegations.

  All five Nordic countries work actively towards enhancing the gender balance in Party delegations, and Norway, Iceland, and Denmark have gender quotas or mandatory gender equality reporting in relation to boards.

  Gender Climate Tracker (n.d.). Women’s participation in party delegations.
• Men in the Nordic countries, as well as globally, make up the majority in STEM education and consequently dominate the sectors of the new green economy – energy, transport, agriculture, and construction.

  Danbolt, I. (2023) Bridging the Green Jobs Divide: Nordic gender barriers and opportunities in the spotlight

  This means that the new solutions, jobs, and investments demanded by the transition to a low-carbon society risk favouring men, missing out on the vital perspectives and competencies of women, as well as relevant non-STEM qualifications in general. All Nordic countries acknowledge the challenges with the gender imbalance in the STEM fields, and the review has identified various Nordic initiatives aimed at increasing women's participation in STEM education and green jobs.

  Lander Svendsen, N., Weber, K. et al (2022). How climate policies impact gender and vice versa in a Nordic context
• In continuation of this, the chapter discusses the need to value both technical and social dimensions of the green transition, including the care economy, and the potential consequences of neglecting care aspects in climate policies. While solutions addressing the gender imbalance of the STEM field is paramount, researchers also emphasise the importance of including non-STEM perspectives into climate work, e.g. the social sector and unpaid domestic work and care. While the importance of such inclusivity has been recognised at events like COP27 and COP28, there is a gap in concrete strategies to fully realise this approach.
• Finland, Norway and Sweden have in various ways emphasized the importance of involvement and consultation of the Sámi people on matters concerning them. By appointing the Sámi Climate Change Council in Finland,

  Finnish Ministry of the Environment (2023). Government appointed Sámi Climate Council.

  the Finnish government has been taking a step further in establishing a forum specifically dealing with the effects of climate change on Sámi people and their livelihoods and cultural practices.

Priority area C:

3.3 Coherence

• Denmark’s gender equality efforts are coordinated and supported by the Ministry of Digital Government and Gender Equality, particularly its Department of Gender Equality. The Gender Equality Act mandates public authorities to promote gender equality systematically across planning and administration. By law, the Danish Government must present an annual National Perspective and Action Plan for Gender Equality to the Danish parliament. The current Gender Action Plan from 2023 does not comprise a specific focus or measures on gender equality in climate policies and green transition.

  Danish Parliament. Committee on Equality (2023). National Perspective and Action Plan for Gender Equality 2023.

  All new legislative proposals in Denmark must undergo a relevance testing to conclude whether a Gender impact assessment (GIA) is relevant. The Ministry of Foreign Affairs has gender focal points in all development corporation departments within the Ministry, including in the Department of Green Diplomacy and Climate. The Danish national gender and climate change focal point (NGCCFP) is placed in the Ministry of Foreign Affairs.
• In Finland, the Gender Equality Unit, operating within the Ministry of Social Affairs and Health, supports and promotes gender mainstreaming in governmental decision-making process. Finland also employs an inter-departmental coordination structure, with gender mainstreaming working groups in every ministry. The Act on Equality between Women and Men requires authorities to promote gender equality actively, leading to the inclusion of gender perspectives in budget drafts and legislative reforms. The current gender action plan (2020–2023) includes climate change as one of six priority areas where gender equality shall be included, demonstrating political will and support for gender mainstreaming in climate policy.

  Finnish Ministry of Social Affairs and Health (2021). Making Finland a global leader in gender equality Government action plan for gender equality 2020–2023.

  The NGCCFP is placed in the Ministry of the Environment.

• In Iceland, the Directorate of Equality, under the Prime Minister’s Office, handles administration of all matters regarding (gender) equality. Gender mainstreaming in policymaking draws on the Act on Equal Status and Equal Rights Irrespective of Gender. Gender budgeting is a mandatory practice, integrated into decision-making processes and daily operations, structured around five-year plans to ensure gender considerations in strategic planning and budget proposals. Iceland has established gender equality officers in all ministries. These representatives are tasked with overseeing gender equality activities within their respective ministry's scope and ensuring gender mainstreaming in policymaking and decision-making. In the Proposal for the Parliament Resolution on Gender Equality Action Programme for the period of 2020–2023, gender equality integration in climate- and environmental policy and projects is explicitly addressed.

  Icelandic Government (2019). The Prime Minister’s Proposal for a Parliamentary Resolution on the Gender Equality Action Programme 2020–2023

  The NGCCFP is placed in the Department of Land and Natural Heritage, at the Ministry for the Environment and Natural Resources.
• In Norway, the Ministry of Culture and Equality in Norway is responsible for coordinating gender equality efforts. The Norwegian government presents an annual policy report for the Parliament on the status of the work of promoting equality and diversity in all sectors. The Equality and Anti-Discrimination Act mandates public authorities to engage actively in the promotion and reporting of equality. Prior to decisions regarding state measures with effects beyond internal operations, such as reforms, rule changes and investments, policy makers are required to consider e.g. what effects the decisions have on certain groups of people. The requirements are formulated in Instruction for Official Studies of Central Governmental Measures.

  Norwegian Government (n.d.). The investigation instruction

  The NGCCFP is placed in the Ministry of Climate and Environment.
• In Sweden, the Division for Gender Equality, under the Ministry of Employment, is responsible for overseeing gender equality policy and oversee gender mainstreaming processes. Gender mainstreaming is the Swedish Government’s overarching strategy to implement the national objectives on gender equality. The Swedish gender equality policy has sub-goals, and all gender mainstreaming actions are guided by the objectives set out in the policy, as well as of policy specific objectives that have been formulated based on the gender needs assessment of each Ministry. The Swedish Gender Equality Agency oversees two development programs focused on gender mainstreaming in government agencies and Swedish higher education (GMGA+).

  Swedish Gender Equality Agency (2020.) Gender mainstreaming in government agencies

  The Swedish Environmental Protection Agency is also part of this program, committed to assessing gender mainstreaming in climate – and environment policies. The Swedish government has shown commitment in implementing the UNFCCC GAP, by commissioning the Swedish Environmental Protection Agency to formulate a strategy for the national implementation.

  Swedish Environmental Protection Agency (2021). Draft strategy – considering and integrating gender equality aspects at Sweden's implementation of The Paris Agreement.

  The strategy is developed in cooperation with the Swedish Gender Equality Agency and offers a translation of the UNFCCC GAP priority areas into a Swedish national governance context. The NGCCFPs are placed in the Swedish Gender Equality Agency and the Swedish Environmental Protection Agency, respectively.

Priority area D:

3.4 Gender-responsive implementation and means of implementation

• In Denmark, in accordance with the legislation, the Ministry of Climate, Energy and Utilities has carried out relevance testing of all 71 legislative proposals put forward in the period 2005/2006 to 2022/2023.

  Danish Ministry of Digital Government and Gender Equality (2023) Notification to the Danish Parliament's Gender Equality Committee regarding the gender equality assessment of legislative proposal 2022/23; KVINFO (2023). Equality assessment of legislative proposals

  2 out of 71 bills underwent a gender impact assessment (GIA). Several ministries, including the Ministry of Transport and the Ministry of Environment, have not performed any GIAs since 2016/2017. The relevance testing of the current Danish Climate Law did not lead to a gender impact assessment, and the plan does not comprise gender-responsive measures.

  Danish Ministry of Climate, Energy and Utilities (2000). Notice of the Climate

  The Danish Climate Action Plan of 2020, which has not been subject to a GIA either, does not directly address gender issues but focuses on ensuring social balance during the green transition, aiming to protect livelihoods and prevent increased inequality, without including specific indicators for gender equality.

  Danish Ministry of Climate, Energy and Utilities (2020). Climate Action plan 2020.

  Conversely, Denmark's 2020 long-term low-emission strategy explicitly links climate adaptation to gender equality, recognising that efforts toward a green transition can support achieving gender equality (SDG 5).

  Danish Ministry of Climate, Energy and Utilities (2020). Climate Programme 2020, Denmark’s Mid-century, Long-term Low Greenhouse Gas Emission Development Strategy

  It advocates for investments in women's empowerment, such as education and health, as beneficial for broader climate goals. In their national ‘Beijing +25’ review report, Denmark demonstrate that they have integrated gender perspectives into disaster risk reduction, climate resilience, and mitigation policies, with a focus on supporting women's participation and leadership, particularly those affected by disasters, and on strengthening the evidence base and awareness about the unique vulnerabilities of women and girls to environmental impacts.

  Danish Ministry of Foreign Affairs (2019). Comprehensive national review report Beijing+25: Twenty-fifth anniversary of the Fourth World Conference on Women and adoption of the Beijing Declaration and Platform for Action (1995)

• In Finland, a GIA was conducted on the Finnish Climate and Energy Strategy in 2021, revealing that proposed policy measures would impact male-dominated sectors positively but negatively affect female-dominated fields within the services sector.

  Finnish Ministry of Economic Affairs and Employment (2022). Carbon Neutral Finland 2035 – National Climate and Energy Strategy; Finnish Ministry of Economic Affairs and Employment (2021). Gender Impact Assessment of the Finnish Climate and Energy Strategy

  Finland's Climate Action Plan of 2017 was also subject to a GIA.

  Finnish Ministry of the Environment (2017). Government Report on Medium-term Climate Change Policy Plan for 2030 Towards Climate-Smart Day-to-Day Living

  Recognising the gender-segregated labour market, the plan acknowledges the potential varying impacts of climate measures on different sectors and highlights gender differences in political participation, consumption patterns, and responses to climate change, such as mobility practices and eating habits. The plan emphasises the importance of considering these gendered differences in climate policy design and implementation, which makes the plan gender responsive. Conversely, Finland's 2020 long-term low-emission strategy does not explicitly address gender aspects.

  Finnish Ministry of Economic Affairs and Employment (2020). Finland’s long-term low greenhouse gas emission development strategy

  Although it mentions the government's responsibility to align climate action with human rights and efforts to reduce inequality, detailed actions or policies targeting gender equality are absent. As stated in their national ‘Beijing +25’ review report, Finland's actions to integrate gender perspectives into environmental policies and programs have focused on supporting women's participation in environmental management, raising awareness about gender-specific environmental hazards, promoting education in STEM fields related to the environment, ensuring women's equal opportunities in the green economy, and monitoring the impact of environmental policies on women and girls.

  Finnish Ministry of Foreign Affairs (2019). Comprehensive national-level review: Twenty-fifth anniversary of the Fourth World Conference on Women and adoption of the Beijing Declaration and Platform for Action (1995).
• In Iceland, the government's five-year plan on gender budgeting specifically mentions the importance of integrating gender perspectives in environmental, transportation, and rural development policies.

  Reykjavík city (n.d.). GB analysis of city services.

  The City of Reykjavík has implemented gender budgeting across all departments, and a GIA was conducted on the city’s 2021 Climate Strategy. In the 2022 status report mapping gendered aspects of every Icelandic department of government ministries, the relation between environmental and equality issues is highly emphasised, and it is stated that positive outcomes in one category benefit the other.

  Icelandic Prime Minister's Office, Ministry of Finance and Economy (2022). Mapping gender perspectives Status Report 2022

  In 2022, a GIA of Iceland's Climate Action Plan, particularly focusing on mobility, revealed differences in how men and women use bike lanes and walking paths, influenced by income levels.

  University of Iceland (2022), C22:01 Impact of climate action Cost and benefit assessment

  The Climate Action Plan of 2021 emphasises the importance of ensuring that climate change actions are socially just and aligned with the SDGs, with a specific focus on equality across various societal groups, including gender, income, and sector.

  Icelandic Ministry for the Environment and Natural Resources (2020). Climate Action Plan

  The 2021 long-term low-emission strategy in Iceland does not specifically mention gender aspects, focusing more on the impacts of climate action on different income groups and the need for a just transition.

  Icelandic Ministry for the Environment and Natural Resources (2021). On the Path to Climate Neutrality - Iceland’s Long-Term Low Emission Development Strategy

  Iceland’s ‘Beijing +25’ review report emphasises Iceland's policies and legislative frameworks supporting gender equality, alongside its efforts in international cooperation and national implementation of gender-focused actions. Climate is not directly mentioned within the report aside from a section on the Agenda 2030 on Sustainable Development and in the list of ‘Civil Society Initiatives’ including several climate-related projects.

  Icelandic Government, Prime Minister’s Office (2019). Iceland’s report on Beijing +25: Twenty-fifth anniversary of the Fourth World Conference on Women and adoption of the Beijing Declaration and Platform for Action (1995).

• In Norway, the Ministry of Climate and Environment is in the initial phase of launching an investigation aimed at enhancing the understanding of the distributional effects of climate policy, including its impact on gender. In the White Paper 26 (2022–2023), Climate in Change – Together for a Climate-Resilient Society, the Norwegian government states its intention to acquire more knowledge on how climate changes and climate adaptation can affect gender equality across various sectors in Norway. This will be done, among other things, in connection with the work on a national climate vulnerability analysis, where the gender equality perspective is one of several cross-cutting themes that will be explored. In this review, no GIA of domestic climate policies were found. Norway's Climate Action Plan of 2020 addresses the SDGs, including SDG 5 on gender equality, emphasising that climate action should be balanced with other SDGs and not negatively affect low-income or vulnerable groups or employment.

  Norwegian Government (2020). Climate Action Plan 2021–2030

  Norway's long-term low-emission strategy of 2020 does not specifically include gender aspects.

  Norwegian Government (2020). Norway’s long-term low-emission strategy for 2050

  Norway’s Eighth National Communication to the UNFCCC for 2022 mentions gender once in relation to “just transition” but contains no specific gender-responsive measures. In their “Beijing +25” review report, Norway highlights its active role in promoting gender concerns in international climate negotiations, especially in adaptation to climate change. Emphasis is placed on the importance of involving women in climate action due to their vulnerability to climate impacts. Additionally, initiatives to promote equality in farming are detailed, with specific measures to support women farmers and those involved in reindeer herding.

  Norwegian Ministry of Culture (2019). Beijing +25: The situation of women and girls in Norway: Development, progress and measures 2014–2019.

• Sweden's draft strategy for gender mainstreaming the Paris Agreement emphasises integrating gender equality into all budget areas, including climate. However, this review at hand did not identify concrete examples of gender budgeting in climate policy. Sweden's Climate Action Plans of 2019 and 2023 emphasise the importance of efforts towards climate neutrality not compromising other SDGs.

  Swedish Government (2019). A unified policy for the climate - climate policy action plan; Swedish Government (2023). The government's climate action plan – all the way to net zero

  The 2023 plan notably integrates gender equality into climate efforts, and acknowledges the mutual reinforcement between gender equality and climate action. It specifies the importance of a gender equality perspective in areas such as public transport, the labor market, and STEM fields. The plan was prepared with a gender analysis. The Swedish long-term low-emission strategy of 2020 outlines proposals for integrating gender equality into the implementation of the Paris Agreement and acknowledges the importance of considering distributional and regional effects of the green transition on gender equality. Sweden's Integrated Energy and Climate Plan, submitted to the EU in 2020,

  Swedish Ministry of Infrastructure (2020). Sweden’s Integrated National Energy and Climate Plan

  includes a dedicated section on gender mainstreaming, reflecting the country's long-standing commitment to gender equality. In their “Beijing +25 report”, Sweden emphasises the inclusion of gender concerns in international climate negotiations, notably through its support for the Gender Action Plan at COP23 and promoting women's influence in climate change decisions at COP24. Furthermore, Sweden has sought to integrate gender equality in climate and environmental work on an international scale, evidenced by its influence during its chairmanship of the Nordic Environment Finance Cooperation (NEFCO) and its support for the Climate & Clean Air Coalition (CCAC).

  Government Offices of Sweden, Ministry of Employment, Division for Gender Equality (2019). Sweden’s report on Beijing +25.

Priority area E:

3.5 Monitoring and reporting

• The Commission on the Status of Women (CSW) reviews the implementation of the Beijing Declaration and Platform for Action (BPfA) every fifth year. The most recent reports from 2019 marked the 25th anniversary of the BPfA (Beijing+25), during which member states were invited to review their progress and submit national review reports. The review reports (2019) consist of 40 questions through which the countries must report on their progress in enhancing gender equality. Two questions relate directly to environmental- and climate policies, namely what actions the countries have taken in the last five years to integrate gender perspectives and concerns into environmental policies and programmes for disaster risk reduction, climate resilience and mitigation. The contents of the five national reports are included in section 3.1.5 on Priority area D. UNFCCC GAP and its priority areas and activities are not explicitly referred to in the 40 questions on which the Parties must report. Nonetheless, the national review reports can be considered one example of an international monitoring- and reporting mechanism of gender mainstreaming in climate policies. Besides these, the review has identified the following national monitoring- and reporting mechanisms more or less related to gender mainstreaming in climate policies:
• Denmark employs the Act on Gender Equality to mandate public authorities to integrate gender equality into their operations, including legislative assessments and setting gender balance targets with a three-year reporting cycle. Public institutions report their gender equality efforts every third year, with recent reports indicating varying degrees of goal setting and incorporating a gender equality perspective in their operations. The review finds no monitoring efforts related to

• Finland has mandatory gender equality plans that require periodic evaluations, supported by the Finnish Institute for Health and Welfare. The Gender Equality Unit and the Ombudsman for Equality oversee these efforts. The new Climate Act highlights the significance of climate policy monitoring, suggesting a structured approach to gender mainstreaming monitoring.
• Iceland employs mandatory gender budgeting, supervised by the Directorate of Equality. The gender budgeting process involves a comprehensive monitoring framework. This approach includes annual progress reports on gender equality goals and integrates gender considerations into climate work.
• In Norway, this review finds no specific processes for monitoring, reporting, and accounting beyond UNFCCC submissions. The Equality and Anti-Discrimination Act outlines responsibilities for conducting regular equality assessments, with support from various governmental bodies.
• Sweden has established a comprehensive network for gender mainstreaming oversight across sectors, including climate policy. The Swedish Gender Equality Agency and the GMGA-network are central to these efforts. The Environmental Protection Agency’s gender mainstreaming strategy highlights a need for more effective monitoring and reporting mechanisms.