The Cluster Approach
1
Disaster Management
Actors at the country
level
Host
Government
Bi-lateral don
UN system Target
and other population
Agencies
NGOs, Red Cross & other civil
A U S T R A L I A
society members
The initial problem
What
organisation Is anyone
s are Who needs already doing
already assistance? X?
here?
Where can I Where do
Who is
get people need
doing Y in X-
information? assistance?
town?
Why is the
Who is in
government
charge? How can
(not) doing
I get
X?
funds?
3
The Cluster Approach
WHAT IS IT?
• Activation more strategic, less automatic and time limited
• A dynamic approach that facilitates joint efforts, one voice
representing all humanitarian actors serving the host
government
• It supports
. the strategy and leadership of the national
authority, strengthening existing national-led coordination
mechanisms to the extent possible
• Cluster partners sharing responsibility for effective and timely
humanitarian response
• Professional, predictable response to agreed standards
• Streamlining of cluster functions with more focus on results
rather than processes
• Enhanced accountability to affected populations 4
The Cluster Approach
WHAT IT IS NOT?
• It is not an attempt to undermine the government
response, but strives to help strengthen government or
existing coordination
• It is not UN-centric; it depends on the active
participation of all humanitarian members, e.g. NGOs,
the Red Cross/Crescent Movement, UN agencies and of
course….. the Government
• It is not a “one size fits all” approach; in each emergency
it is up to humanitarian actors on the ground, in
consultation with relevant government counterparts, to
determine the priority sectors for the response
5
The Cluster System
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.
7
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.
8
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.
A detailed presentation on the Transformative
Agenda can be found on ShelterCluster.org
9
10
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)
More info: IASC Principals Transformative Agenda
11
IASC, the Clusters and the UN
• 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
12
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
13
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
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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
15
Coordination
≠
Implementation
Cluster coordinators should not directly
implement programmes but support Cluster
partners in providing assistance in a
coordinated way.
16
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.
17
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.”
Source: IASC Transformative Agenda, Chapeau and
Compendium of Actions 19 January 2012
18
Limitations to the concept of “provider
of last resort”
“… 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.”
Source: IASC Guidance Note on Using the Cluster Approach
to Strengthen Humanitarian Response (November 2006)
19
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.
20
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
21
Coordination
Services
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.
23
Coordination
≠
Tasking
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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)
25
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
26
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.
28
Cluster products
Needs assessments and
strategic framework
30
Factsheets
31
Accountability through agreed,
transparent processes and clear
technical guidelines
32
Cluster structures
in the field
33
Photo: OCHA/P Pe
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
34
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)
35
Ideal Country Cluster structure
SAG
Main
Cluster
Meeting
TWIGs TWIGs
SAG = Strategic Advisory Group; TWIG = Technical Working Group
36
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.
37
The Cluster cannot
live up to its full
potential if the
coordinator
is all alone.
Cluster Core
Coordination Team
Remote
support
Technical Coordinator Information
coordinator manager
39
Cluster Coordination Team (large
disaster)
Remote support
Land rights
Environment Mapping/GIS
Contingency
planning
Dept./Hub
coordinators
Tech Coord IM
Debris
Media
Logistics Gov. liaison
Urban settlement Community liaison
40
Challenges
Photo: OCHA/D DeLoroenzo
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/INGOs
• 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.
42
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FALSE Cluster coordination is part of the on-going job
• Need programme staff 100%
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FALSE Cluster approach is a IASC concept
• Cluster approach is only a UN approach
Partnership is key Participating All partners are
to have an to the cluster equaly important
effective cluster is a win win among the cluster
coordination activity coordination
mechanism group
Knowledge: Participants know the minimum commitments for
participation in the cluster approach as well as the seven core cluster
functions and the deliverables associated with these
Skills: Participants are able to enhance participation in the cluster and
guide improvements to core cluster functions within their own
country contexts → Development of a workplan
Attitude: Participants are aware of the responsibilities and benefits of
working within the cluster approach, for IMC as an organisation but
also for the humanitarian response a whole
Time: total 1h30
9 octobre 2020 45
TRAINING ON CLUSTER
APPROACH
~
Maximising
International Medical Corps’s
Engagement at Country Level
From Relief to Self-Reliance
9 octobre 2020 47
From Relief to Self-Reliance
What type of involvement do you
have with cluster or sector
coordination in your country?
9 octobre 2020 48
Knowledge: Participants know the minimum commitments for
participation in the cluster approach as well as the seven core
cluster functions and the deliverables associated with these
Skills: Participants are able to enhance participation in the cluster
and guide improvements to core cluster functions within their
own country contexts → Development of a workplan to follow
Attitude: Participants are aware of the responsibilities and
benefits of working within the cluster approach, for International
Medical Corps as an organisation but also for the humanitarian
response a whole
Time: total 1h30 (1 hour presentation + 30min questions and answers)
9 octobre 2020 49
9 octobre 2020 50
From Relief to Self-Reliance
Brief history
Humanitarian reform in 2005
to improve the effectiveness of the humanitarian response
Pakistan Floods
Haiti Earthquake
2010
►Then the humanitarian community learnt some new
lessons… there were still some weaknesses and
inefficiencies
Transformative Agenda - 2010
UN Photo/Evan Schneider UN Photo/Logan Abassi
2011 – IASC Principals Agree to Set of Transformative
Actions
• Roster of Emergency • Strategic use of Clusters • Common Humanitarian
Coordinators for Level • Simplified Cluster Programme Cycle to achieve
3 Emergencies management collective results
• Empowered • Minimum Commitments • Assessment, strategic statement,
Leadership for participation in Clusters resource allocation,
• Inter-Agency Rapid • Strengthening NGO implementation, monitoring,
Response Mechanism representation in the reporting and evaluation
• Leadership Training Humanitarian Country • Common Performance and
Team Reporting Framework
• Accountability to Affected People
Question
TRUE or FALSE
• The Nutrition Cluster (NC) is a physical structure
• The NC has a legal status
• The NC has programme funding
• The NC is a coordination mechanism
• The NC has only funding for the coordination team
• The NCC represents all members
• This man has nothing to do with the Cluster:
9 octobre 2020 54
From Relief to Self-Reliance
How are we accountable within the cluster system?
(Formal and informal)
Humanitarian
Coordinator CLA
UNICEF
Government global
office
CLA
UNICEF
Country Rep
TWGs
Information Cluster
Manager
Coordinator TWGs
SAG
Cluster
Participating Agencies:
NGOs, civil society,
UNICEF Section chief, etc…
Key roles and responsibilities within a cluster
Cluster Lead Agency Cluster Coordinator Cluster Partners
• Defining the nutrition • NCC need to act as • Endorse the overall aim
cluster coordination neutral representative of and objectives of
structure the Nutrition Cluster NCCoordination
• NCC, IM and required • coordination of sector • Agreeing to and sharing
staff are hired and • strategic planning responsibilities
oriented. Define • prioritization – • Maintaining coordination
expectations and TORs interventions and • Be proactive in
• Ensure that security, resources exchanging information
administrative and • Advocacy • Identifying advocacy
operational support • application of standards concerns
procedures are clear • Provider of last resort • Respect and adhere to
• Advocacy agreed principles,
• resource mobilization policies, priorities and
• preparedness standards
Nutrition Cluster:
Cluster Lead Agency
• Global Level
• Country Level
• CLA (UNICEF)
• Government with CLA as co-lead e.g.
Philippines, Mali
• NGO lead
• Government with NGO as co-lead
• Government with CLA and NGO as co-
lead e.g. South Sudan
• CLA with NGO as co-lead e.g. more on
sub-national level
57
The 7 core functions of a cluster
Supporting Informing strategic
Service Delivery decision-making of the
HC/HCT for the
humanitarian response
Be accountable
Planning and to affected
strategy population
development
Contingency
planning/preparedness
Advocacy /capacity-building
Monitoring and
reporting
9 octobre 2020 58
9 octobre 2020 59
From Relief to Self-Reliance
60
Partner Commitments as per the Transformative Agenda…
They should be regarded as an absolute
minimum and a starting point:
• Commitment to Humanitarian Principles and
Principles of Partnership
• Willingness to take on leadership (in working
groups, sub-national level, etc.)
• Active participation
• Capacity to contribute
to Cluster’s Strategic
Response Plan (SRP)
61
…Partner Commitments as per the Transformative Agenda
• Readiness to participate in actions that specifically
improve accountability to affected people
• A demonstrated understanding of the duties and
responsibilities associated with membership of the
cluster, as defined by IASC
• Commitment to mainstream cross-cutting issues
(age, gender, etc)
• Committed staff member
• Commitment to work cooperatively
with other cluster partners
• Undertake Advocacy
62
A Statement of Commitment
Build on comparative advantage Communication
Complementarity Transparency
PRINCIPLES Results-
Equality OF PARTNERSHIP
oriented
Mutual respect
Coordinate
capability &
Responsibility capacity
Commit only what can deliver
9 octobre 2020 64
From Relief to Self-Reliance
IMC can expect from the Nutrition Cluster…
• Coordination activities that support service delivery (tackling
bottlenecks)
• Strategic direction
• Situation analysis/Trend analysis
• Identification of needs, gaps and priorities in the response
and adequate representation of these at higher levels
• Mapping of activities, gaps and duplications
• Monitoring and analysis of the response as a whole
• Impartial discussion around humanitarian space
• Joint advocacy
• Common preparedness and contingency planning
• Transparent resource allocation
9 octobre 2020 65
… IMC responsibilities within the Nutrition Cluster…
• Endorse and adhere to cluster coordination aims, objectives and principles
of partnership (ToR) along with priorities and standards
• Incorporate cluster objectives and support into agency workplans/ strategic
planning
• Sharing responsibilities :
– Leadership role in co-lead of national/sub-national clusters (to be
reflected in job descriptions 30%-100% of time depending on cluster)
– Active member of strategic advisory group, technical working groups,
collaborative assessments, project reviews
• Contributing and guiding strategic debate and planning of nutrition cluster
• Identifying advocacy concerns
• Supporting preparedness activities
• Providing technical expertise, opinion, debate and feedback on cluster
activities and documents
• Pro-active information-sharing and dissemination of IMC’s cutting edge
innovative technical and programming experiences
9 octobre 2020 66
…IMC’s participation in the Nutrition Cluster can improve
• Cooperation and coordination with other partners (vital strong NGO
“voice”, balance group dynamics)
• Increased participation and capacity of local NGOs (coaching and
mentoring of local partners to participate in cluster)
• Information sharing and management given IMC’s strong M&E capacity
key role to play in strengthening standardized cluster M&E systems
• Participatory approaches
• Use of relevant standards
• Integration of cross-cutting issues and integration with other sectors
Improve effectiveness of nutrition programming as a collective
Increase impact of nutrition sector as a whole, not just IMC response,
on affected populations
• Based on what you have learned you will need to
TASK develop a workplan to scale up IMC participation
in the Nutrition Cluster of your country
9 octobre 2020 67
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From Relief to Self-Reliance
Resources
• http://www.buildingabetterresponse.org/
• Global Nutrition Cluster Website: http://nutritioncluster.net/
• Inter-Agency Standing Committee (IASC – interagency coordination for
humanitarian assistance): http://www.humanitarianinfo.org/iasc/
• Transformative Agenda Protocols:
http://www.humanitarianinfo.org/iasc/pageloader.aspx?page=content-
template-default&bd=87
• Reference Module for Cluster Coordination:
file:///C:/Users/agrant/Downloads/4.%20Reference%20module%20for%2
0Cluster%20Coordination.pdf
• Humanitarian Programme Cycle Reference Module:
http://www.humanitarianinfo.org/iasc/downloadDoc.aspx?docID=6732
• Nutrition Cluster Handbook: http://nutritioncluster.net/wp-
content/uploads/sites/4/2013/09/GNC_Handbook_v1_FINAL_no_links1.p
df
• IASC Transformative Agenda – Operational Implications for NGOs:
http://www.interaction.org/sites/default/files/IASC%20Transformative%2
0Agenda%20-%20Operational%20Implications%20for%20NGOs.pdf 69
