Estonia is often seen as a poster child for NATO, spending well above NATO targets and continuously modernising its military capabilities. Nonetheless, it has been somewhat selective in aligning with more values-based or ‘soft’ requirements, such as those of the NATO Women, Peace and Security agenda.
Women, Peace and Security (WPS) is a framework initially adopted by the UN that focuses on women’s participation in decision-making, the protection of women from gender based violence, the prevention of violence against women, and relief and recovery in conflict areas. It is closely tied to the promotion of human rights and democracy through a gendered lens. Organisations such as NATO have adopted and adapted the agenda, aiming for practical outcomes based on WPS principles.
This has also been embraced in Estonia, including through the development of WPS National Action Plans (NAP—the policy document which outlines a government’s approach to advancing the WPS agenda) and (partially) in national security documents. But recent research shows that the internalisation process has been incomplete, leaving significant room for further alignment and the uplifting of gender equality in the Estonian Defence Forces (EDF).
Estonian documents that have so far incorporated WPS principles may be seen as stepping stones towards inclusion at the national defence level. The NAP is the first step, mapping out the challenges related to the WPS agenda. These are then typically expressed in policy documents that set out the actions, priorities, and commitments a country intends to implement over a given period. A second, more concrete step is the inclusion of WPS commitments in national security documents. Estonia’s National Security Concept (NSC) outlines the measures necessary to achieve national security, both military and non-military, but references WPS principles only once (“Estonia’s defence capability is enhanced by boosting the attractiveness of conscription and reserve service, and a greater participation of women”).
While the percentage of women entering the EDF as conscripts rose, the dropout rate remained around 50%.
In implementing WPS initiatives, Estonia has been most successful in promoting women’s participation in the EDF. This was especially the case in the late 2010s, when initiatives such as Conscript Shadow Days, Women in Uniforms, and other targeted recruitment campaigns likely helped increase women’s voluntary participation in conscription. In 2015, just eight women out of a total of 2725 conscripts finished their service. Both the number of women voluntarily entering conscription and those who completed their service increased until 2021, but then tailed off. And while the percentage of women entering the EDF as conscripts rose, the dropout rate remained around 50%.
Number of women conscripts beginning and completing conscription service, 2015–24.
Source: The author, based on data from the Defence Resources Agency.
The promotion of participation, however, has not been equally addressed to all women. A 2023 study showed that campaigns have primarily targeted Estonian-speaking high school girls nearing graduation. Meanwhile, Russian-speaking girls have been overlooked, perceived as having low motivation to join the EDF voluntarily. Interviews revealed that while Estonian speakers could discuss the negative and positive aspects of conscription, Russian-speaking female students were modest in sharing opinions, as they had not considered the option of military service.
A second underdeveloped aspect of WPS in Estonia is the mitigation of gender-based violence (GBV), which can take physical, sexual, and psychological forms. While the issue is addressed in Estonia’s current NAP in both post-conflict and domestic settings, the last publicly accessible GBV assessment was published in 2017. It asked general questions about negative gendered experiences, such as shaming, unequal treatment compared to male colleagues, and inappropriate physical contact within the EDF. Among the interviewed women, around 60% had felt negative unequal treatment due to their gender, while only 35% of men had noticed that women received such treatment. Additionally, the study found that around 50% of women had experienced comments on their looks or figure, around 30% of women had been disparaged due to their gender, and around 20% of women had come across unwanted physical contact. Since then, no public surveys have been conducted, and it remains unclear if the mitigating actions set out in the NAP have yielded any outcomes.
The EDF’s apparent shift away from gender, and the somewhat limited reporting of WPS implementation in defence, raises concerns about transparency and accountability.
The EDF’s apparent shift away from gender, and the somewhat limited reporting of WPS implementation in defence, raises concerns about transparency and accountability. It is certainly not clear whether a genuine change is taking place towards more gender-inclusive defence forces or whether the focus has shifted to recruiting as many people as possible, prioritising general equality and overlooking the needs of women. Estonia has built a strong reputation as a country that takes defence seriously. But a credible and comprehensive defence is not only about weapons but also about ensuring that everyone can participate on an equal footing, regardless of gender. Estonia should not miss the opportunity to shine here too.
Views expressed in ICDS publications are those of the author(s).