The Cluster Approach Presentation.ppt

Global Shelter Cluster
ShelterCluster.org
Coordinating Humanitarian Shelter
The Cluster Approach
1

ShelterCluster.org
The initial problem
What
organisations
are already
here?
Is anyone already
doing X?
Where do people
need assistance?
Who needs
assistance?
Where can I get
information?
How can I
get funds?
Who is doing Y
in X-town?
Why is the
government
(not) doing X?
2
Who is in
charge?

ShelterCluster.org
Origin of the Cluster approach
The Humanitarian Response Review:
 Commissioned in 2004 by the Emergency
Relief Coordinator to assess the capacities and
effectiveness of the global humanitarian
system.
 Led to the initiation of a Humanitarian Reform
Process as of 2005 to address several areas of
weakness.
3

ShelterCluster.org
Purpose of the Cluster approach
 Ensuring more predictable leadership and clearly defined
responsibilities by identifying cluster leads that are accountable for
the coordination of the activities of their respective sector,
including functioning as a provider of last resort, where necessary.
 Ensuring timely and effective responses, including through the
maintenance of global capacity, rosters of trained experts and
stockpiles.
 Strengthening partnerships between UN agencies, IOM, NGOs, the
International Red Cross Red Crescent Movement and other
humanitarian actors, while also ensuring more coherent linkages
with national authority counterparts.
 Improved strategic field-level coordination and prioritization,
leading to fewer gaps and duplication.
4

ShelterCluster.org
Transformative Agenda
The response to the Haiti earthquake and Pakistan
floods in 2010 exposed weaknesses and inefficiencies.
The “Transformative Agenda” aims to address these
shortcomings.
“We recognize that we need to focus not on the
process of implementing change, but on the
impact of change.” (IASC)
5
More info: IASC Principals Transformative Agenda

ShelterCluster.org
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ShelterCluster.org
The three pillars of the
Transformative Agenda
 Better leadership of the international
humanitarian response to support countries’
own relief efforts
 Improved coordination structures, needs
assessments, planning and monitoring
 Improved accountability to all stakeholders,
with special emphasis on the people affected
by disasters.
7
A detailed presentation on the Transformative
Agenda can be found on ShelterCluster.org

ShelterCluster.org
 The Inter-Agency Standing Committee (IASC)
is a coordination mechanism that brings UN
and non-UN actors together
 The Cluster approach is an IASC initiative
-> the Cluster approach is NOT a UN-only
coordination mechanism!
 The majority of global cluster leads are UN
agencies
IASC, the Clusters and the UN
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ShelterCluster.org
11 Clusters
Area of Activity Global Cluster Lead
Camp Coordination/Camp Management (CCCM) UNHCR (conflict)
IOM (natural disasters)
Education UNICEF/Save the Children
Shelter UNHCR (IDPs in conflict)
IFRC (natural disasters)
Emergency Telecommunications WFP/OCHA/UNICEF
Food Security (frm. Agriculture) FAO and WFP
Health WHO
Logistics WFP
Nutrition UNICEF
Protection UNHCR (conflict)
UNHCR/OHCHR/UNICEF (IDPs from disasters and
civilians other than IDPs affected by conflict)
Water, Sanitation and Hygiene UNICEF
Early Recovery (Cluster Working Group)* UNDP
9

ShelterCluster.org
Clusters and Cluster Leads
 Not all Clusters are activated in each emergency
 Clusters can be combined (for example Health and Nutrition)
 Global Cluster leads and Country Cluster leads don‘t have to
be identical.
 New thinking: train national NGOs in coordination so they can
lead Clusters
 Global Cluster leads are accountable to the Emergency
Response Coordinator (ERC).
– Exception: IFRC, because Red Cross Red Crescent is
independent from the UN system
10

ShelterCluster.org
Cross-cutting issues
List of cross-cutting issues for the Cluster Approach
Early Recovery HIV and AIDS
Age Human Rights
Housing, Land and Property Rights Gender
Disability Mental Health
Environment Landmines
Livestock
Sometimes referred to as cross-cutting issue
Information Management
11

ShelterCluster.org
12
Coordination
≠
Implementation
Cluster coordinators should not directly
implement programmes but support Cluster
partners in providing assistance in a
coordinated way.

ShelterCluster.org
The “provider of last resort”
 Sector leads act as “providers of last resort”,
meaning that they have committed themselves to
filling gaps in their sector if nobody else steps up.
Exception: IFRC is not a provider of last resort.
 The concept of the “provider of last resort” is
meant to improve predictability since it is clear
who will have to step up, if everything else fails.
13

ShelterCluster.org
Definition: provider of last resort
“Where necessary, and depending on access,
security and availability of funding, the cluster
lead, as provider of last resort, must be ready to
ensure the provision of services required to fulfil
critical gaps identified by the cluster and reflected
in the Humanitarian Coordinator‐led Humanitarian
Country Team Strategic Response Plan.”
14
Source: IASC Transformative Agenda, Chapeau and
Compendium of Actions 19 January 2012

ShelterCluster.org
Limitations to the concept of
“provider of last resort”
Source: IASC Guidance Note on Using the Cluster Approach
to Strengthen Humanitarian Response (November 2006)
 “… the commitment of cluster leads to do their
utmost to ensure an adequate and appropriate
response.”
 “…it is necessarily circumscribed by some basic
preconditions that affect any framework for
humanitarian action, namely unimpeded access,
security, and availability of funding.”
15

ShelterCluster.org
Cluster activation
 Based on an initial assessment of the needs and after discussion
with the host government, the Resident or Humanitarian
Coordinator (RC/HC) agrees with the Humanitarian Country Team
which Clusters should be activated.
 The RC/HC designates national cluster leads in consultation with
global cluster lead agencies.
 The RC/HC recommends the Cluster activation to the Emergency
Response Coordinator (ERC) of; ERC gives global cluster leads 24
hours to approve proposal
Where available, national/regional coordination mechanisms
should be supported. In these cases, the Cluster approach
needs to be adapted.
16

ShelterCluster.org
Cluster de-activation
Individual Clusters are de-activated when
 National and/or development partners are
able to take over from a Cluster
 Humanitarian needs in a particular sector
have sharply decreased or ceased
17

ShelterCluster.org
Coordination
Services

ShelterCluster.org
The Cluster is the forum where all actors can discuss
and agree on issues related to their sector.
It takes the commitment of all Cluster partners to
implement these decisions.
19

ShelterCluster.org
Coordination
≠
Tasking
20

ShelterCluster.org
Six core functions at field level
1. Supporting service delivery
 Provide a platform to ensure that service delivery is driven by the agreed strategic
priorities
 Develop mechanisms to eliminate duplication of service delivery
2. Informing strategic decision-making of the HC/HCT for the humanitarian response
 Needs assessment and response gap analysis (across sectors and within the sector)
 Analysis to identify and address (emerging) gaps, obstacles, duplication, and cross-
cutting issues including age, gender, environment and HIV/AIDs
 Prioritisation, grounded in response analysis
3. Planning and strategy development
 Develop sectoral plans, objectives and indicators that directly support realisation of
the HC/HCT strategic priorities
 Apply and adhere to existing standards and guidelines
 Clarify funding requirements, prioritisation and cluster contributions for the HC’s
overall humanitarian funding considerations (e.g. Flash Appeal, CAP, CERF,
Emergency Response Fund/Common Humanitarian Fund)
21

ShelterCluster.org
Six core functions at field level
4. Advocacy
 Identify advocacy concerns to contribute to HC and HCT messaging and action
 Undertake advocacy activities on behalf of cluster participants and the
affected population
5. Monitoring and reporting the implementation of the cluster strategy and results;
recommending corrective action where necessary
6. Contingency planning/preparedness/capacity building in situations where there is
a high risk of recurring or significant new disaster and where sufficient capacity exists
within the cluster.
→ Accountable to the HC/RC (except IFRC)
Source: IASC Reference Module for Cluster
Coordination at the Country Level; Oct 2012
22

ShelterCluster.org
Special role of the IFRC as
Shelter Cluster “convener”
 Not accountable to the HC/ERC because of
independence and neutrality of the Red Cross
Red Crescent Movement
 Not a “provider of last resort”
 IFRC does not receive funds from the CERF
23

ShelterCluster.org
24
Coordination
≠
Funding
But:
 The Cluster team will assist Cluster members in writing
proposals to access pool funds, such as the CAP and UN
Flash Appeal.
 Members of the Strategic Advisory Group (SAG) vet
proposals for pool funds to ensure a consistent shelter
response strategy.

ShelterCluster.org
Cluster products

ShelterCluster.org
26
Needs assessments and
strategic framework

ShelterCluster.org
3W and Factsheets
27

ShelterCluster.org
Accountability through agreed,
transparent processes and clear
technical guidelines
28

ShelterCluster.org
Communication and advocacy, minutes,
best practice and lessons learned
29
www.ShelterCluster.org

ShelterCluster.org
30
Cluster structures
in the field
Photo: OCHA/P Peron

ShelterCluster.org
Who are the Cluster partners?
 UN agencies
 Host government
 International NGOs
 Red Cross Red Crescent Movement
 Local NGOs / Civil Society Organizations
 Representatives of the Affected Population
 Donors
 Academia
31

ShelterCluster.org
What you can do for the Cluster
You are the Cluster! The Cluster is only as good as the
participation of its members.
As a Cluster member you should
 Participate in assessments
 Provide information about your activities
 Take actively part in the setting of strategies
 Provide analysis
 Accept limited coordination responsibilities
 Contribute resources (funds, personnel, coordination)
32

ShelterCluster.org
Ideal Country Cluster structure
SAG
TWIGs
Main
Cluster
Meeting
TWIGs
SAG = Strategic Advisory Group; TWIG = Technical Working Group
33

ShelterCluster.org
Country Cluster Structure
 Main Shelter Cluster meeting:
Everyone
 Strategic Advisory Group (SAG):
Max 15 key operational partners. Develops the
overall strategy and provides strategic
oversight. Vets proposal for Flash appeal etc.
 Technical Working Groups (TWiGs):
Specific, short-term. For example: Drainage,
Temporary shelter design, etc.
34

ShelterCluster.org
The Cluster cannot
live up to its full
potential if the
coordinator
is all alone.

ShelterCluster.org
Shelter Cluster Core
Coordination Team
Coordinator
Technical
coordinator
Information
manager
36
Remote
support

ShelterCluster.org
Potential Shelter Cluster
Coordination Team (large disaster)
Dept./Hub
coordinators
Logistics
Media
Debris
Contingency
planning
Community liaison
Land rights
Urban settlement
Environment
Gov. liaison
Coord IM
Tech
Remote support
37
Mapping/GIS

ShelterCluster.org
Challenges
Photo: OCHA/D DeLoroenzo

ShelterCluster.org
Challenges for the
Cluster Approach
 Lead agency staff often don’t understand role of Cluster
coordination (tasking vs. coordinating)
 Frequently no dedicated staff for Cluster coordination and not
enough resources to add value
 Still very UN centric and NGOs sometimes feel that they are not
equal partners
 Not enough involvement of local NGO/CSOs
 Not enough involvement of affected people
 Some new actors don’t know about the Cluster system such as
some faith based groups, very new or very small NGOs.
 Can be resource intensive for organizations (too many meetings) if
the Cluster is not well managed.
39

ShelterCluster.org
Thank you!
More info:
www.ShelterCluster.org
Follow us on Twitter:
@ShelterCluster
40

The Cluster Approach Presentation.ppt

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