Introduction to Humanitarian Coordination in EmergenciesIntroduction to Humanitarian Coordination in Emergencies

Patricia KormossWHO Geneva HAC

ATHA, 4-6 October 2010, Sweden

Patricia KormossWHO Geneva HAC

ATHA, 4-6 October 2010, Sweden

“Well-known long-standing gaps” - (e.g. low preparedness in human resources, sector capacities, stockpiles)

Weak partnerships - “limited linkages between UN, Red Cross/Red Crescent Movement, NGOs”

Irregular coordination within/between sectors with duplication of response activities

Insufficient accountability to affected populations

“UN humanitarian coordination depends too much on personal qualities”

Inconsistencies in donor policies

Why Was Humanitarian Reform Needed?Why Was Humanitarian Reform Needed?Some Findings: Humanitarian Response Review 2005Some Findings: Humanitarian Response Review 2005

What’s the same?

Government holds primary responsibility

RC/HC coordinates international response in support of government

Response is coordinated sectorally (sector/cluster)

What’s new?

Predictability Predictability

Accountability Accountability

Inclusiveness Inclusiveness

Higher Standards Higher Standards

Global SupportGlobal Support

Humanitarian Reform

Sufficient humanitarian response capacity and enhanced leadership, accountability and predictability in emergency response

Adequate, timely, flexible and predictable humanitarian financing

Improved humanitarian coordination and leadership

More effective partnerships between UN and non-UN humanitarian actors

Goals of Humanitarian ReformGoals of Humanitarian Reform

ImprovedHumanitarian Response

Partnerships (PoP)

Str

eng

then

ed

HC

Sys

tem

Imp

rove

d

fin

anci

ng

Clu

ster

A

pp

roac

h

CLAsCLAsHCsHCs CERFCERF

Principles of Humanitarian PartnershipPrinciples of Humanitarian Partnership

Equality

Transparency

Result-oriented approach

Responsibility

Complementarity

Approach of organising coordination and cooperation among humanitarian actors to facilitate joint strategic planning.

Country level:

– establishes a clear system of leadership and accountability for response in each sector

– provides a framework for effective partnerships among all national and international humanitarian actors

Cluster approach now used in 29 countries and for new large-scale emergencies

Cluster ApproachCluster Approach

Clusters and Cluster Lead Agencies (CLAs)

Clusters and Cluster Lead Agencies (CLAs)

Nutrition UNICEF

Water/Sanitation UNICEF

Health WHO

Shelter UNHCR (conflict) & IFRC (natural disasters)

Education UNICEF and SCF (at global level)

Camp Coordination & Mgmt UNHCR (conflict, IDPs)

IOM (natural disasters)

Protection UNHCR (conflict, IDPs and affected)

UNHCR/OHCHR/UNICEF (natural disasters)

Early Recovery UNDP

Logistics WFP

Telecommunications OCHA/UNICEF/WFP

How the cluster approach fills gaps and strengthens sector coordination

How the cluster approach fills gaps and strengthens sector coordination

The intent: “Smarter” sector coordination and leadership

Terms of Reference for cluster leads

Technical capacity and stockpiles built at global level

Response is more predictable because “who does what” is pre-defined

Real accountability from operational agencies

More strategic field-level coordination & prioritization = more timely and effective response

Real partnerships between UN & non-UN humanitarian agencies

How the cluster approach fills gaps and strengthens sector coordination (2)How the cluster approach fills gaps and strengthens sector coordination (2)

The Challenges:

Uneven leadership by Cluster Leads Field still perceives as “top down” NGOs do not feel adequately consulted,

added-value to them in some countries still unclear

Donors not yet forthcoming with support for building global capacity

Dilution of objectivity - difficulty to separate cluster responsibility from agency mandated function; responsibility over load

Inter-Cluster Coordination (e.g. for health: NUT, WASH, Health, LOG, Shelter)

Governments role Sub-national levels Surge capacities

How the cluster approach fills gaps and strengthens sector coordination (3)How the cluster approach fills gaps and strengthens sector coordination (3)

The Opportunities

Pre-agreed working dynamics

Improved linkages

Response readiness/contingency planning beefed up

Donors respect and clarity on funding

Improved M & E

Established structures available to guide relief and transition into recovery

Cluster mechanism and partnerships built are being capitalized upon to support EP & RR

Humanitarian Architecture Humanitarian Architecture

At Global and at Country Level

Humanitarian ArchitectureHumanitarian Architecture

At Global Level

Global level

System-wide accountability

IASC

Agency Head ERC

OCHA

Global Cluster

Head of Global Cluster Lead Agency

Agency Head

Global Cluster Coordinator

Global Cluster members Clear accountable lead agencies

Stockpiles, surge capacity, and resources

Operational guidance, toolkits and handbook

Who is involvedInter-Agency Standing Committee

Who is involvedInter-Agency Standing Committee

Inter-Agency Standing Committee Full Members and Standing Invitees

Full Members

Food and Agricultural

Organisation (FAO)

Office for the Coordination of

Humanitarian Affairs (OCHA)

United Nations Development

Programme (UNDP)

United Nations Population Fund

(UNFPA)

United Nations High Comissioner

for Refugees (UNHCR)

United Nations Children’s Fund

(UNICEF)

World Food Programme (WFP)

World Health Organisation

(WHO)

Standing Invitees

International Committee of the

Red Cross (ICRC)

International Council of Voluntary

Agencies (ICVA)

International Federation of Red

Cross and Red Crescent

Societies (IFRC)

American Council for Voluntary

International Action (InterAction)

International Organisation for

Migration (IOM)

Office of the High Commissioner

for Human Rights (OHCHR)

Office of the Special

Representative of the Secretary

General on the Human Rights of

Internally Displaced Persons

(RSG on HR of IDPs)

Steering Committee for

Humanitarian Response (SCHR)

World Bank (World Bank)

Inter-Agency Standing Committee Inter-Agency Standing Committee

Established June 1992, under the leadership of the Emergency Relief Coordinator

Inter-agency forum for coordination, policy development and decision-making involving the key UN and non-UN humanitarian partners

Primary Objectives System-wide humanitarian policies

Allocate responsibilities among agencies

Common ethical framework for all humanitarian activities

Common humanitarian principles to parties outside the IASC

Identification of gaps in mandates or lack of operational capacity

To resolve disputes or disagreement about and between humanitarian agencies on system-wide humanitarian issues

Humanitarian Architecture (1)

In which countries

29 countries

AFRO (13)BurundiCARChadCôte d'IvoireDRCEritreaEthiopia

GuineaKenyaLiberiaNigerUgandaZimbabwe

EMRO (6)AfghanistanIraqOPT (Palestine)PakistanSomaliaSudan

SEARO (5)IndonesiaMyanmarNepalSri LankaTimor-Leste

PAHO (2)ColombiaHaiti

EURO (3)GeorgiaTajikistanKyrgyzstan

Humanitarian ArchitectureHumanitarian Architecture

At Country Level

Humanitarian Architecture (7)

Cluster Coordinator

Agency Country Representative

ERCAgency HeadGlobal level

National level

System-wide accountability

Global Cluster Coordinator

IASC

HCT

Cluster member Cluster memberCluster member

Agency Country Representative

RC or HCOCHA

OCHA

Global Cluster members

Global Cluster

Cluster

Head of Cluster Lead

Agency

Agency Country Representative

Head of Global Cluster Lead Agency

Agency Head

UN Country

Team

OCHA

Lead AgencyCountry Rep

Management:

RC/HC

Strategic & Operational Coordination:

Government

Designated

Cluster Lead Agency

Cluster

Partners

Humanitarian Country Team

Inter-cluster coordination group

Non – State Actors

Cluster Coordinator

Line

Ministry

Health Cluster Functions & Responsibilities at Country Level, by actor (Health Cluster Coordinator, Cluster Lead Agency Rep., HC Partners)

Health Cluster Functions & Responsibilities at Country Level, by actor (Health Cluster Coordinator, Cluster Lead Agency Rep., HC Partners)

Functions of the Health Cluster HCC CLARep.

Partners

1. Coordination mechanisms and inclusion of all health actors within the Health Cluster and inter-cluster

2. Coordination with national authorities & other local actors

3. Needs assessment & analysis including identifying gaps in health response

4. Strategy development & planning, including: Community based approaches, attention to priority cross cutting issues, and filling gaps

5. Contingency planning

6. Application of standards

7. Training and capacity building

8. Monitoring and reporting

9. Advocacy and resource mobilization

10. Provider of Last ResortNotes: = lead responsibility for the set of activities defined in column 1.

Early Recovery / RecoveryEarly Recovery / Recovery

Need for a common language

Key challenges

In what is a transition different

from an acute crisis?

In what is a transition different

from an acute crisis? Transition is a fragile period, still a crisis, with high risk of return to conflict

Humanitarian assistance is often state-averse, reconstruction aid is state-"engaging"

Especially in countries emergency from a CE, politics is important and understanding the political economy of the conflict is paramount

Countries in transition require support in many areas: security, governance, justice, administration and management, social services, productive sectors, etc.

The recovery of the health sector cannot be isolated from that of all the above areas

New actors (military, peace-keepers, IFIs, private sector) crowd the arena

Using a common languageUsing a common language

Transition: "transition refers to the period in a crisis when external assistance is most crucial in supporting or underpinning still fragile cease-fires or peace processes by helping to create the conditions for political stability, security, justice and social equity" (UNDG/ECHA, 2004)

Recovery: “…focuses on how best to restore the capacity of the government and communities to rebuild and recover from crisis and to prevent relapses. In so doing, recovery seeks not only to catalyze sustainable development activities but also to build upon earlier humanitarian programs to ensure that their inputs become assets for development” (UNDP, 2001)

Using a common language (2):Using a common language (2):

Early Recovery is a multidimensional process of recovery that begins in a humanitarian setting.

It is guided by development principles that seek to build on humanitarian programmes and catalyze sustainable development opportunities.

It aims to generate self-sustaining, nationally owned, resilient processes for post crisis recovery.

It encompasses the restoration of basic services, livelihoods, shelter, governance, security and rule of law, environment and social dimensions, including the reintegration of displaced populations.

(CWGER, Guidance note on Early Recovery, April 2008)

ODI, ERODI, ER

ReconstructionReconstruction

DevelopmentDevelopment

EMERGENCYEMERGENCY NEEDSNEEDS

NEEDSNEEDSNEEDSNEEDS

BeforeBefore AfterAfter

DataData

PlansPlansandandProgrammesProgrammes Emergency ResponseEmergency Response

Post Disaster RecoveryPost Disaster Recovery

Needs AssessmentNeeds Assessment

Quick and dirtyQuick and dirty(Flash appeal)(Flash appeal)

3-7 days3-7 days

Local levelLocal levelArea basedArea basedCommunityCommunity

DrivenDriven

2 weeks2 weeks

RecoveryRecoveryFrameworkFramework

(Donors(DonorsConference)Conference)

1 month1 month

ReconstructionReconstructionStrategyStrategy

(IFIs working(IFIs workingGroup)Group)

2-3 months2-3 months

Recovery needs (fill the gap from immediate response Recovery needs (fill the gap from immediate response to reconstruction in order to reduce losses)to reconstruction in order to reduce losses)

Minimum Framework for the Provision of Humanitarian Assistance in Gaza

Minimum Framework for the Provision of Humanitarian Assistance in Gaza

Case study

Minimum Framework for the Provision of Humanitarian Assistance in Gaza

Minimum Framework for the Provision of Humanitarian Assistance in Gaza

sets out principles and a modus operandi for the provision of humanitarian assistance to the Gaza Strip

4 core principles of humanity, neutrality, impartiality and operational independence

Practical application of the principles on humanitarian assistance– Access– Non-interference– Monitoring and Accountability

Access – key pointsAccess – key points

Unimpeded access into and movement within the Gaza Strip including to population living in restricted areas near the border.

Access procedures for both staff and supplies should be simple and efficient.

The timely import of sufficient quantities of goods into the Gaza Strip for humanitarian activities

Crossings between Israel and Gaza (Karni, Kerem Shalom, Sufa, Nahal Oz and Erez) need to operate continuously.

The GoI and the PA

Ensure that sufficient cash available to restore the cash economy and private sector.

All patients requiring medical referrals in and out of Gaza must be guaranteed timely and unhindered access to adequate treatment.

The security of crossing points is crucial to the flow of people and goods into and out of Gaza, and should not be considered as military targets.

Non-interference – key pointsNon-interference – key points

Assistance will be delivered in a neutral and impartial manner

Needs assessments will be carried out by humanitarian agencies and will be transparent.

Supplies and materials must be distributed by the humanitarian agencies and their partners without interference.

Humanitarian staff should be allowed to work in an environment where they are not subject to political, social, military or financial pressures.

Where humanitarian assistance is inadequate to meet the needs of all, priority is to be given to the most vulnerable.

Those providing humanitarian aid have a duty to take all reasonable measures to ensure its appropriate use

Assets purchased or rented in support of humanitarian activities remain the property of the relevant agency unless and until specific arrangements have been made.

Humanitarian actors are committed to coordinate with and maintain open and clear communication channels with all parties but will not disclose information that would compromise their neutrality, impartiality or independence.

Humanitarian actors must ensure that the principles of impartiality, neutrality and independence guide all their activities, including advocacy and public statements.

Monitoring and Accountability – key pointsMonitoring and Accountability – key points

The Humanitarian Country Team (HCT), has the responsibility to monitor adherence to the Framework and ensure that any gap between principle and reality be overcome.

All humanitarian agencies, under the coordination of the Humanitarian Coordinator, will continue to manage, monitor and control projects and activities to meet humanitarian needs, ensuring that humanitarian commodities are used as planned. Regular consolidated reports will continue to be made publicly available on progress on the implementation of humanitarian projects.

On request, the Humanitarian Coordinator will represent humanitarian agencies facing constraints on their ability to operate in a principled manner, communicate these constraints to the relevant authorities and negotiate on their behalf as necessary.

Leadership of the Cluster within the humanitarian reform

Leadership of the Cluster within the humanitarian reform

1. Leadership of overall international response to a Humanitarian Crisis is responsibility of the Humanitarian Coordinator/Resident Coordinator, who interact/ coordinate/ negotiate with Government as well non-state actors on the basis of the Humanitarian Principles

2. Leading role assigned by the Humanitarian Country Team to Sector/Cluster Lead Agencies

3. Clusters have the aim and mandate to support National / Local Governments in delivering humanitarian assistance

4. The Heads/Representatives of the selected Cluster Lead Agencies are accountable to the HC/RC for the functioning of the respective sector/cluster

5. Co-chairing of sector meetings is recommendable in order to have full collaboration with the government sectoral lead ministries in the delivering of humanitarian assistance

Main functions of the Sector/Cluster, by level, in Darfur, October 2009

Main functions of the Sector/Cluster, by level, in Darfur, October 2009

Federal Level (Khartoum):

1. health policy & strategy development for the delivering of health services in the humanitarian operation in Darfur

2. Overall strategic coordination within health sector/cluster and with other sectors/clusters

3. Support analysis of data /indicators, trend analysis, production of knowledge to inform strategy development and planning

4. adaptation of federal norms & standards to Darfur context,

5. technical assistance

6. Advocacy and resource mobilization

7. Provision of last resort

State Level

1. Need assessments and monitoring of the health status of the populations affected by the crisis

2. gap analysis and priority setting

3. Strategy development for local health service delivery

4. planning & implementation of health interventions and gap filling

5. Intra & inter sector/cluster coordination & planning for interventions calling for multisectoral responses

6. monitoring of health interventions and reporting