Evaluation of the Emergency Shelter and Non-Food Items Cluster in the Ukraine Caroline Dewast & Vidar Glette External Evaluation November 2015 Final Report, February 2016
EvaluationoftheEmergencyShelterandNon-FoodItemsClusterintheUkraine
CarolineDewast&VidarGlette
ExternalEvaluationNovember2015FinalReport,February2016
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Executivesummary InNovember2013,theGovernmentofUkraine(GoU)decidedtoabandonanagreementthat
wouldstrengthenitstieswiththeEU,sparkinglarge-scale protests.InMarch2014,aconflicteruptedwithRussia’sunilateralannexationofCrimea,leadingtoafirstwaveofpopulationdisplacement.Asecondwaveofdisplacementfollowedshortlyafter,asaconsequenceofseparatistoffensivesintheDonbasregion.Aceasefireagreement(MinskI)wasreachedinSeptember2014.However,clasheseruptedagaininearly2015,causingathirdwaveofdisplacement.Asecondceasefireagreement(MinskII)wassignedinFebruary2015.Ongoingceasefireviolations,heavyshellingandarmedconflicthavedisplaced1.5millionpeople,creatingfluctuatingpopulationmovementsincludingsecondarydisplacement,commutingacrossthecontactline,andreturns.Theinfluxhasplacedastrainonhostcommunities,especiallyinareaswithahighratioofinternallydisplacedpeople(IDPs)comparedtothelocalpopulation.
ActivationoftheShelterCluster InJuly2014,UNHCRactivatedasheltersectorandstarteddevelopingasectoralstrategy,
anticipatingits’leadershipresponsibilityfortheShelterCluster(SC).TheRegionalFocalPoint(RFP)totheGlobalShelterCluster(GSC)wasdeployedtoUkraineinSeptember2014.AmonthlaterhiscontractwithGSCendedandhewasrecruitedbyUNHCRtoleadthesheltersector,priortotheformalactivationoftheclustersystem.HelaterbecametheShelterClusterCoordinator(CC)andhasremainedtheCCtodate.Theclustersystemwasactivatedon23rdDecember2014withUNHCRasleadagency(CLA)fortheUkraineSC,inpartnershipwiththeMinistryofRegionalDevelopmentandHousing(MoRD)andMinistryofSocialPolicy(MoSP).Asub-nationalSCwasactivatedinJuly2015,basedinSlovianskandledbyPeopleinNeed.Manyinformantsrecognisedtheadvantageofhavinganinternationalnon-governmentalorganisation(INGO)asco-chairoftheSC.
TheResponse TheshelterresponseintheGovernmental-ControlledArea(GCA),hasbeenmostlywelltargeted
andappropriate,supportedbytheSCcoordinationservices.TheSChasbeendescribedasthemosteffectiveclusterinUkraine,withahighlyvaluedinformationmanagement(IM)systemandcountry-widemappingprocesses.TheSChasalsoledtechnicalworkinggroups(TWIG),particularlyonshelterwinterisationandcashassistancewhichwereessentialforharmonisingandstandardisingtheshelterresponse.Monitoringofcashforshelteractivitieshaveshownhighlevelsofbeneficiarysatisfactionwiththeprogramme.Thehumanitarianset-uphasbeendescribedas“Kyivcentric”andsomewhatdisconnectedfromprioritiesontheground.Humanitarianactorshavestruggledtoengagewiththenationalgovernment,whilerelationswithregionalandlocalauthoritieshavebeencomparativelybetter.TheaccessrestrictionstotheNon-Governmental-ControlledArea(NGCA)hasbeenoneofthemainchallengestoprovidingrapidandadequatehumanitarianassistancetovulnerablecommunitiesinthoseareas.Anumberofactorsbasedinthefield,includingUNHCR,havebeenrunninginformalsheltermeetingstobettercoordinateshelteroperations.However,whentheSCsub-nationalhubwasactivated,anumberofmisunderstandingsoccurredamongstUNHCRstaff,highlightingalackofinternalawarenessoftheclustersystem.
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KeySCpersonnelwerefulfillingdualresponsibilitiesfortheSCandUNHCRuntilApril2015.Whilekeyinformantsgenerallyperceivedthatthisdouble-hattingwaswellmanagedbythestaffinquestion,itblurredthelinesbetweentheSCandtheCLA,andcontributedtoaperceivedconflictofinterestduringCashWorkGroup(CWG)discussions.
ActivitiesoftheShelterCluster
SCmeetings(SCM)havebeenrespondingtotheneedsofSCpartnersthroughregularmeetings
inKyivandad-hocregionalcoordinationmeetingsuntiltheactivationofthesub-nationalhubinJuly2015,basedinSloviansk.TheSCstrategy,settingoutkeyprioritiesforthesector,wasdraftedinSeptember2014andrevisedinJune2015.ThefirstStrategicAdvisoryGroup(SAG)meetingwascalledinDecember2015,anduntilthenallstrategicdecisionsandprioritiesweremadeinplenaryduringSCM.TheSCTeam(SCT)ledanumberoftechnicalworkinggroups(TWIGs)whichwereverywellreceivedbySCpartners.TheSCTalsoledearlydiscussionsoncashtransferprogramming,discussingcashforshelteraswellasMulti-Purpose-CashGrant(MPCG).InMay2015,OCHAactivatedaninter-sectoralCashWG(CWG),whichresultedin3monthsofdisagreementsandnegotiationsamongsthumanitarianagency,ontheharmonisationoftheMPCGtransfervalue,andtheHCTdecidingtomakecashaseparatesectionintheHumanitarianResponsePlan.This,unfortunately,drewattentionawayfromtheprovisionofhumanitarianassistance.TheSChaspublishedregularsituationupdatesandfactsheets,circulatedviaemailsandthroughtheirGooglegroup.Thesedocumentshaveenabledagenciestodevelopadvocacymessagestodonors,governmentandtheirhead-quarters.Apost-distributionmonitoring(PDM)template,forcashassistancedevelopedbytheSC,contributedtoconsistencyinagencyreportingandimprovedtransparencyandaccountabilityvis-à-vistheaffectedpopulation.Overall,theSChasbeenvaluedfortheinformationitproduces.However,themajorityofthematerialaimstoprovideanoverviewofthesituation,andisdirectedatstakeholdersinKyiv.Anincreaseinfield-leveltoolsandanalysisisdesiredbyimplementingagencies.WhiletheSCTareseenasresponsiveandhelpfulinrespondingtoindividualagencyrequests,itisbelievedthattimecouldbesavedbymakingdocumentsmoreeasilyaccessibleandtraceable.TheSCThasprovidedcapacitybuildingforSCpartners,includingnationalnon-governmentalorganisations(NNGOs)throughvariousforums,TWIGs,SCMandindividualad-hocmeetings.ThetranslationofmeetingsandkeydocumentsintoEnglish,RussianandUkrainianhasbeenessentialtoallowingengagementwithnationalactors.
Conclusions OveralltheSCisperceivedasoneofthestrongestandmostrelevantclustersofthisresponse.
EverykeyinformanthighlightedthestrengthoftheSCcomparedwithotherclustersinUkraine.Thegeneralperceptionshowsasatisfactoryprioritisationofactivities,butsomeinformantsexpressedtheneedtorefinethisprioritisation,stressingtheimportanceofneedsinNGCAandthelackofhumanitarianassistanceinthisarea.ThelackofbaselinedataespeciallyinNGCAremainsachallengetoprovidingaclearpictureofthecontext.SCMminutesandtheinter-clusterContingencyPlandescribedtheneedtosupportauthoritiesincarryingoutmoreeffectiveIDPtrackinginordertoimproveoverallbaselinedata.
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Inlightoftheclustertransition,authoritiesinKyivdonotcurrentlyappearreadyorwillingtotakeonfurtherrolesorresponsibilitiesinthehumanitarianresponse.ThusthemostlikelyscenariofordeactivationoftheSCisanimprovementofthehumanitariansituation,minimisingtheneedtocoordinateresponseandgaps.
Keyrecommendations
FortheShelterClusterTeam Actionpoints:
KR-1 Increaseengagementwithlocalactors,includingauthoritiesandNNGOs.
• Continueawarenessraisingontheclustersystemforlocalactors.(R.24)
• Carryoutadvocacytolocalandregionalgovernmentonaharmonisedresponse.(R.29)
KR-2 Systemiseclustermeetingsandclarifythecoordinationstructure.
• Formalisethedecentralisedcoordination:standardisingtheinformalsheltermeetings,withfocalpointsreportingbacktotheSCT.(R.8)
• Createanorganisationalmapofthecoordinationstructure,withnational,sub-nationalanddecentralisedmeetingsandfocalpoints.(R.9)
KR-3 Improvesectoraldataandsystemisethedisseminationofdocuments.
• Worktoimprovethebaselineoftheconflict-affectedpopulation.(R.12)
• Producefield-orientedtoolsandanalysis.(R.13)• Createanindexdocumentlinkingtokeymaterials.(R.17)
FortheShelterCluster ActionpointsKR-4 Increaseactiveandconscious
engagementofSCpartnersinstrategicdecisionmaking.
• EnsureSCpartnersareactivelyandconsciouslyinvolvedindecisionmaking.(R.7&12)
• UsetheSAGasaforumtodefineanddevelopstrategies,priorities,workplans,andpreparejointassessments.(R.7)
KR-5 Strengthentheworkonaccountabilitytoaffectedpopulationsandassistancetovulnerablepeople.
• Setupavulnerabilityworkinggroupforguidanceonbeneficiaryselectionandinclusion.(R.32)
• Improvecommunicationmessagestotheaffectedpopulationonthetypeofassistanceprovided,howandtowhom,withfeedbackmechanisms.(R.31)
ForGSCandUNHCR Actionpoints:KR-6 Buildastrongerinternal
awarenessoftheroleasCLA.• DevelopastandardinformationpackageforUNHCRstaff
ontheroleandresponsibilityofclustersandCLA,stressingtheimportanceofdedicatedCC.(R.1)
KR-7 IncreaseengagementwithHCTandICCG.
• RequestforHC/HCTtoincreasetransparency,andtakeleadershipinengagingnationalactors.(R.14&29)
• DemandforCCtobepresentatHCTmeetings.(R.15)• ContinuetoguideICCGdiscussions,ensuringtheyare
relevant,i.e.discusstheneedforaCCPM.(R.26)KR-8 Buildsheltersectorcapacity
ontheuseofcashmodalities.• Providededicatedcashexpertiseand/orspecificSC
guidanceoncashprogramming.(R.22)KR-9 Encourageclusterarchitecture
review,usinglessonslearnedfromUkrainetoinformfutureclusteractivation.
• AdvocateforaUkraineclusterarchitecturereview,tolearnfrommiddleincomecountriesonappropriatecoordinationstructures.(R.27)
• InitiateadiscussionwithGlobalICCGandIASCforglobalevaluationofthehumanitariancoordinationsystem,toconsiderdevelopmentofcoordinationstructuresthataremoreadaptabletodifferentcontexts,whileremainingtransparentandaccountable.(R.27)
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TableofContents
1.
1.12.
2.12.22.32.4
3.3.13.24.
4.14.24.34.44.54.6
4.74.8
Executivesummary 2Keyrecommendations 4TableofContents 5ListofTablesandFigures 6Acknowledgements 6Introduction 7PurposeandScopeoftheEvaluation 7Methodology 7Overview 7EvaluationQuestions 7DataCollectionandAnalysis 8LimitationstotheEvaluation 8Context 9Overview 10HumanitarianResponse 10FindingsandRecommendations 11ClusterActivationandLeadership 11Supportingshelterservicedelivery(Corefunction#1) 15Informingstrategicdecision-makingbytheHC/HCT(Corefunction#2) 18Strategy,planning,policyandstandards(Corefunction#3) 20Shelteradvocacyandcommunication(Corefunction#4) 24MonitoringandreportingonimplementationofShelterClusterstrategy,shelterachievementsandcorrectiveaction(Corefunction#5) 25Contingencyplanning/preparedness/capacity-building(Corefunction#6) 26Accountabilitytoaffectedpopulations(Corefunction#7) 28Annexes A. ListofRecommendations 32B. TermsofReference 36C. ListofKeyInformants 42D. FieldVisitSchedule 43E. OnlineSurveyQuestionnaire 44F. PrioritisationofICCGItems 46G. RecommendationsfromIMReviewMissiontoShelterClusterUkraine 47H. Bibliography 49I. ListofAcronyms 50
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ListofTablesandFigures
Fig.1 TimelineofkeyeventsTab.1 TitleandroleoftheSCTpersonnelFig.2 UkraineShelter/NFIClusterCoordinationteamstructureTab.2 Table:Onlinesurveyrespondersindicatingthefrequencyofuseofdifferentsourcesof
information.Tab.3 Tablesummarisingthecashtransfervalueagreed,discussedorrecommendedduringvarious
meetingsbetweenOctober2014andAugust2015 Acknowledgements Theevaluationteamwouldliketothankallthosewhohaveprovidedtheirsupportandinput
tothisevaluation.Weareparticularlygratefulfortheconstructiveguidanceandsupportfromtheevaluationmanager,GreggMcDonald,andtheconstructiveinputsandcommentsfromtheevaluationfeedbackgroupfromDavideNicolini,MiguelUrquia,andIgorChantefort.Finally,wearethankfulforthesupportoftheUkraineShelterClusterTeam:IgorChantefort,KateHolland,AndriiMazurenko,DaryaZhagina,andKaterynaCarmina.Wealsoacknowledgethewillingnessofalltheindividualswhohaveprovidetimeandinsightsthroughmeetings,interviews,telephoneandSkypeconversations;thosewhohaveorganised,facilitatedandhostedusduringsitevisits;thosewhohaveparticipatedtotheonlinesurvey;andallthosewhohavecontributedtothisevaluation.WeappreciatethetimeofUNHCRstaffinGenevaandBerlinforfacilitatingtheevaluationdeployments,andtotheGlobalShelterClusterteamfortheirtechnicalcontributionandexpertise.
Disclaimer Theviewsandrecommendationsexpressedinthisdocumentarethoseoftheevaluation
team,theydonotnecessarilyreflectthoseoftheShelterClusterteam,theGSCorUNHCR.Responsibilityforanyomissionsorerrorsoffactorinterpretationrestswiththeauthors.
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1. Introduction
1.1 PurposeandScopeoftheEvaluation Thepurposeofthisindependentevaluationistoreviewtheeffectivenessofthecoordination
servicesprovidedbytheUNHCR-ledEmergencyShelterandNFIClusterCoordinationTeamtothehumanitarianresponsetotheUkrainecrisisthatbeganin2014.
Objective Theevaluation’sobjectiveistoidentifykeylessonsfromwhathasbeenachievedsofarandto
offerrecommendationstoimproveandinformfuturecoordinationoftheongoingresponse. TheGlobalShelterClusterandUNHCRwillusetheevaluationoutcomesandrecommendations
toimprovefuturedeploymentstosimilarcrises.TheUNHCR-ledcoordinationteamwilluseittolearnfromthefindingsandimprovecurrentpractices.ThiswillbecompletedthroughaManagementResponsePlan(seetemplateinAnnexF)detailingwhichrecommendationsareacceptedandwillbeactedupon,when,andbywhom.
2. Methodology
2.1 Overview Toconductthereviewandmeasuretheeffectivenessofthecoordinationservicesprovidedto
date,theevaluatorshaveadoptedanumberofevaluationtoolsandmethods,detailedbelow.ThestructureofthereviewwasbasedontheOECD/DACcriteriaandtheevaluationquestionsalsodetailedbelow.TheevaluationwillconsidertheperspectiveoftheSCT,SCpartners,GSCsupportteam,theCLAandUNHCRUkraineoffice,theinter-clustercoordinationmembersincludingOCHA,donors,governmentalcounterpartsatnationalandregionallevelandbeneficiariestargetedbyshelterimplementingagencies.
2.2 EvaluationQuestions
ThereviewoftheUkraineSCwilladdressthequestionslistedbelow,asoutlinedinthe
evaluationTermsofReference(AnnexA).Theorderhasbeenchangedtocorrespondtotheclustercorefunctions(inparenthesisisthesectionwherethequestionandrelatedfindingsarediscussed):
Q1. DidtheShelterClusterfulfilitscorefunctionsasdefinedbytheIASC?(4)Q2. Havelessonslearntfrompreviousclusteractivationsbeenutilised?(4.1)Q3. WasthereevidenceofsupportfromtheGlobalShelterCluster?(4.1)Q4. Towhatextentdidtheclusteraddvaluetotheresponseundertakenbyshelteractors?(4.2)Q5. Wouldithavebeenpossibletoaddthesamevalueinamoreefficientway?(4.2)Q6. HastherelationshipwiththeHCTandtheclusterbeeneffective?(4.3)Q7. Hastheclustereffectivelysetitspriorities?Aretheregapsinthesepriorities?(4.4)Q8. Didtheclusterdoenoughadvocacytodonors,governmentandothers?(4.5)Q9. Istheclustersupportingthegovernmenttotakeupacoordinationroleinthefuture?(4.7)
Q10. Whatrealdifferencedidtheclustermaketothepeopleaffectedbytheconflict?(4.8)Q11. Werecross-cuttingissuesandvulnerabilitiesexploredandacteduponwithinthecluster?(4.8)
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2.3 DataCollectionandAnalysis Toconducttheassignment,theevaluatorsadoptedthefollowingmethodsofdatacollectionand
analysis: � DeskReview–athoroughandcomprehensivedeskreviewofdocumentation,filesand
reports,availableonsheltercluster.org,ontheGooglegroup,ontheinternalShelterClustershareddrive,throughdocumentsprovideddirectlytotheevaluators,andusinganyotherinformationavailableonline,includingonhumanitarianresponse.info
� 32keyinformantinterviews(refertoAnnexDforthelistofkeyinformants)� Anonlinequestionnaire,whichwasdevelopedanddistributedduringthefieldvisitinorder
toreachawideraudience� StakeholdermappingexercisewiththeSCT� SitevisitswithPINinSlovianskandNRCinSievierodonetsk
2.4 LimitationstotheEvaluation
Somekeyinformantswerenotconsultedforthisreview-theHCandtheHeadofOCHA.
Unfortunately,althoughmeetingswiththesekeyactorshadbeenscheduled,duetochangesintheirschedulethemeetingswerecancelledwithnoreschedulingpossibilitywithinthetimeframerequired.
TheauthoritieswereonlyconsultedindirectlyinthefieldandinKyiv.Inthefield,theevaluator
metwithanNNGOrepresentativewhowasalsoworkingpart-timefortheregionalauthoritiesasanadvisortothehumanitarianresponse.InKyiv,althoughameetingwasscheduledwitharepresentativeoftheMoRD,itwascancelledlastminutebecausetheevaluatorwasnotaUkrainiannationalandwasnotabletoenterthegovernmentbuilding.Thusthetranslatorwhowasaccompanyingtheevaluatorproceededwiththemeetingonbehalfoftheevaluator.Bothofthesemeetingsprovidedindirectinformationonthegovernment’sengagementanditsperceptionoftheSC,asaresultofwhichsomeinformationcanresultinspeculativeassumptions.
ThedeskreviewwasbasedonmaterialprovidedbytheGSCandtheUkraineSCT,aswellasthe
informationavailableonthesheltercluster.organdhumanitarianresponse.infowebsites,theUkraineSCGoogleGroup,andlater,theSCTinternalserver.However,asnotedfurtherinthereport,therehavebeeninconsistenciesinrecordinganduploadingofinformationtotherelevantplatforms,whichhasledtosomeinformationgapsespeciallywhenverifyingdataprovidedbykeyinformants.
Finally,theevaluationteamunderstandsthatthisreviewisnotafinancialauditofthe
coordinationservices.Asaresult,ithasnotevaluatedthespecificdetailsoftheclustercoordinationfinancesandexpenditure.Rather,ithasfocusedontheoperationalandqualitativeaspectsoftheservicesprovidedbytheUkraineSCT.
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3. Context
Fig. Timeline
Roman UkraineconflictItalics HumanitarianresponseBold Sheltersector
2013
Nov UkraineoptsoutofEUagreementDec ProtestseruptinKyiv
2014
Feb Maidanprotestsclimax,presidentYanukovychleavesMar RussiaincorporatesCrimea,firstwaveofdisplacementApr Pro-RussianseparatistoffensivesintheDonbasregion,secondwaveofdisplacementJun PoroshenkoelectedpresidentJul ReportsofincreasedRussiansupporttorebels
Aug Sheltersectoractive,coordinatedbyUNHCR UNHCRestablishapresenceinMariupol
Sep ArrivaloftheShelterClusterRegionalFocalPoint PublicationofShelter/NFISectorStrategy Ceasefiresigned(MinskI)
Oct StartofCashforWinterisation(ledbytheSC) UNHCRestablishapresenceSievierodonetsk,Dniepropetrovsk,DonetskandKharkiv
Dec FormalactivationoftheClustersystem EstablishmentoftheUkraineShelterClusterbasedinKyiv 2015
Jan LaunchoftheStrategicResponsePlan(SRP) OCHAestablishregionalcoordinationinSievierodonetsk,Kharkiv,Mariupol Renewedseparatistoffensive
Feb BattleofDebaltseve,thirdwaveofdisplacement Secondceasefiredealagreed(MinskII) Publicationofrevised2015UkraineSRP
Mar UNHCRhighstaffturn-overApr CCandShelterAssociatestopdoublehattingandbecomededicatedtotheSC
RecruitmentofUNHCRShelterOfficer FirstOCHA-ledCashWG AccessrestrictiontoNGCA
May AgreementwithPINtoco-chairtheShelterCluster,andleadasub-nationalhub. UNHCRestablishapresenceinLuhansk OCHAestablishesregionalcoordinationinLuhansk
Jun PublicationofShelter/NFIClusterStrategyJul Sub-nationalShelterClusterbecomesoperationalwiththefirstmeetinginSloviansk
StartofOCHAregionalcoordinationinKramatorskSep UkrainiantranslationofShelter/NFIClusterStrategyDec SCTcallsthefirstSAGmeeting
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3.1 Overview InNovember2013,thedecisionoftheGoUtoabandonanagreementthatwouldstrengthen
tieswiththeEUsparkedlarge-scaleprotests,andinFebruary2014violentclashesbetweendemonstratorsandauthoritiestookplaceinKyiv.InMarch2014,aconflicteruptedwithRussia’sunilateralannexationofCrimeaandareferendumonstatuswasheldintheAutonomousRepublicofCrimea,leadingtoafirstwaveofpopulationdisplacementfromCrimea.
SincetheeruptionofhostilitiesintheDonbasregioninApril2014,insecurityanddisplacement
haveincreasedacrosseasternUkraine.Ongoingceasefireviolations,heavyshellingandarmedconflicthavedisplaced1.5millionpeople.AsofAugust2015,theMoSPregistered1,459,226IDPsinGCA,withfluctuatingpopulationmovementsincludingsecondarydisplacement,commutingacrossthecontactline,andreturns.Thisinfluxofpeoplehasplacedastrainonthehostingpopulation,inparticularinareaswithahighratioofIDPscomparedtothelocalpopulation.
Thoseremaininginconflict-affectedareasofDonbasregion,particularlyindenselypopulated
urbanareas,facesecuritythreatsduetoon-goingmilitaryactivity.Basiclife-savingserviceshavebeendisrupted,accesstotheNGCAhasbeenrestricted,accesstobanksandcashservicesislimited,foodandcommoditiesareincreasinglyexpensiveanddifficulttoobtain,andanupsurgeinlawlessnesshasbeenobserved.1
AlthoughUkraineisamiddleincomecountry,thecapacityofthegovernmenthasbeenfurther
constrainedbyeconomiccrisis,tofullyprovideservicesinGCA.Itsabilitytoprovideservicesinareasnotfullyundergovernmentcontrolislimited.Inaddition,theabilityofthestatetorehabilitateinfrastructureandshelterhasbeenweakenedbythisongoingconflict.
3.2 HumanitarianResponse
BeforemovingontothereviewoftheUkraineSC,itispertinenttolookatsomeoftheexternal
factorsthathavehadimplicationsontheset-upoftheclustersystem,andthehumanitarianresponseasawhole.Firstly,theactivationoftheclustersystemwithallclustersbasedinKyivhasresultedina“Kyivcentricresponse”,removedfromdiscussionsinthefield.Consideringthesizeofthecountryandthetimerequiredtotraveltotheaffectedareas,the“Kyivcentric”set-uphasnegativelyimpactedontheentirehumanitarianresponseinUkraine.SomeorganisationshaveshiftedtheirfocusfromKyivtothefield,openingfieldofficesinSloviansk,Sievierodonetsk,Kharkiv,Donetsk,Mariupol,andDniepropetrovsk.Thislateshifttowardsthefieldhasbeenpositiveintermsoftherelevanceoftheresponse.However,thedistancebetweenthesehubsremainssuchthateachlocationappearstobeoperatingandcoordinatingindependentlyfromtheothers.
Thishasbeenexacerbatedbytherestrictionsonaccessandpermissiontooperateandprovide
assistanceintheNGCA.Manydiscussionsandmeetingshavebeenfocusingontheissueofaccess.Thisisundeniablyofgreatconcernforhumanitarianactorstryingtoprovideassistance,buttheextensivefocusononeissuehasresultedinotherchallengesbeingomittedfromdiscussions.Thishighlypoliticisedenvironmenthastoanextentdistractedthehumanitarianactors–includingclustercoordinators–fromtheircorefunctions.
1UkraineHumanitarianNeedsOverview(HNO),2015.
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4. FindingsandRecommendations
Q.1 DidtheShelterClusterfulfilitscorefunctionsasdefinedbytheIASC? OveralltheSCisperceivedasoneofthestrongestandmostrelevantclustersinthisresponse.
EverykeyinformantexplainedthestrengthoftheSCcomparedtootherclustersinUkraine.However,theyalsohighlightedanumberofchallengesandrecommendations,whichwillbepresentedanddiscussedinthischapterinrelationtothecorefunctionsofthecluster.2
Thefindingsofthisstudyhavebeencategorisedintoeightsections,throughoutwhichthe
evaluationquestionshavebeendistributed:Clusteractivationandleadership;andthe6corefunctionsdefinedbytheInter-AgencyStandingCommittee(IASC),with“Accountabilitytoaffectedpopulations”asanadditionalone.ThereviewisbasedontheOECD/DACcriteria:relevance,effectiveness,efficiency,impactandsustainability.Thisstructureprovidesasuitableframeworktoreviewandmeasuretheeffectivenessofcoordinationservicesprovidedtodate.
Asummaryofkeyrecommendationscanbefoundintheexecutivesummary.Inthischapter,the
detailedrecommendationsaredistributedundertheeightheadingsmentionedabove,andpresentedinrelationwiththefindingstowhichtheycorrespond.
4.1 ClusterActivationandLeadership
Q.2 Havelessonslearntfrompreviousclusteractivationsbeenutilised?
ClusterActivation
4.1.1 AsheltersectorwasestablishedinUkrainearoundJuly2014.AUNHCRemergencycoordinatortookresponsibilityfor,andleadershipof,runningsectoralmeetings,sharingmeetingminutesandinitiatingacommonstrategy.InitialcontactwasmadewiththeGSC,whoprovidedremotesupportanddeployedtheRFPinSeptember2014totakeovertheseresponsibilities.TheclustersystemwasofficiallyactivatedbytheEmergencyReliefCoordinatoron23rdDecember2014toenhancecoordinationbetweenactorsinvolvedintheresponse.
4.1.2 UNHCRwasappointedCLAfortheSCandhasleditinpartnershipwiththeMoRDandMoSP,and
withvariousNGOpartnerscoordinatingtoprovideanappropriateresponsetothecrisis.TheRFPbecametheCCandremainsinthispositiontoday.NationalcoordinationtookplaceinKyiv,withasub-nationalhuboperationalsinceJuly2015,basedinSlovianskandledbyPeopleinNeed(PIN).TheSChashadtheadvantageofbuildingonthepre-existingsheltersectorandstaffretainedfromsectortocluster.ThiscontinuitygreatlybenefitedthecoordinationservicesprovidedtoSCpartners,andisaresultoflessonslearntfrompreviousclusteractivations.
4.1.3 InSeptember2014,thesheltersectorfirstdraftedastrategythatwaslaterupdatedbytheSC.The
mostrecentreviewoftheSCstrategydatesfromJune2015.3GiventheprotractedcrisisinUkraine,withongoingconflictdespiteanagreedceasefire,theSCadoptedadualapproach,combininglife-savingemergencyassistance,andlonger-termsheltersolutions.
Leadership
4.1.4 UNHCRasCLAhasprovidedresources,capacity,andcompetentstaffallowingtheShelterClusterTeam(SCT)tobeabletooperateeffectivelyandtakeleadershipofthesector.Ithasanticipatedthisleadershiprolebyproactivelysettingupasectoralworkinggrouppriortotheactivationofthe
2ShelterClusterToolkit,CoreFunctions,andIASCreferencemodule,July2015.3ShelterClusterStrategy,June2015,retrievedfromhttp://sheltercluster.org/response/ukraine
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clustersystem.TheSCthusinheritedthemomentum,knowledgeandresourcesfromthesectoralworkinggroup,andbecamea“rolemodel”forotherclusters.
4.1.5 BetweenFebruaryandMarch2015,theSCTidentifiedtheneedofactivatingasub-nationalSChub.
Carefulconsiderationwasgiventothelocationofthehubtakingintoaccountneeds,locationshelteractors,activitiesandpoliticalengagement.Establishingasub-nationalhubwhenmostofthecoordinationstructurewasstillKyiv-centricsetaprecedentforotherclusters.TheSCTalsoconsideredtheimportanceofanotheragencyco-chairingtheSCandactassub-nationalclusterlead.InMay2015,PeopleinNeed(PIN)wasidentifiedandapproachedasapotentialpartner.Fundingwassecured,andthesub-nationalclusterbecameoperationalinJuly2015.PINmobilisedresourcesandcompetentstafftofulfiltheirrole,andaneffectivehandoverbetweentheNationalCCandthesub-nationalCCallowedforasuccessfultransferofresponsibilities.Asrecommendedinlessonslearntfromotherclusteractivations,havinganINGOasco-chairoftheSChasbeenessentialtoempowerotherINGOstoengageinthecoordinationstructure,andhasalsoincreasedtheSC’slegitimacy.Indeed,manyorganisationsacknowledgedtheimportanceofhavinganINGOasco-chair.
4.1.6 TheSChadalsodiscussedthepotentialofopeningotherhubs,mainlyinlocationswithUNHCRfield
offices.Thesehubswerenotactivated,probablyduetothesmallnumberofshelteractorsandthelimitedneedforcoordinationintheselocations.TheSCalsohadlimitedresources,andSlovianskwasidentifiedbytheSCasapriorityfordecentralisingthecoordination.
4.1.7 Anumberofmisunderstandingsarosefromtheactivationofthesub-nationalhub.Someofthem
resultedincorrectiveactions,butcertainissuescouldhavebeenanticipatedandprevented.• TheactivationprocesswaslikelynotcommunicatedwellenoughbytheCCtoUNHCR
management.ThiswasalsoexacerbatedbyUNHCRmanagementstaffturnover,includingcountryrepresentatives,emergencycoordinatorsandfieldstaff.
• UNHCRmanagementdidnotproperlyinformtheirfieldofficesandakeyinformantstated:“Thesub-nationalclusterwasestablishedwithzeroconsultationinternally[toUNHCR](…)Therewasabitofconfusion,andwhats/hewasgoingtodoinrelationtoUNHCR.”
• SomeUNHCRstaffhavelimitedexperienceoftheclustersystem.Asaresult,theyhavenotdistinguishedbetweenrefugeeoperationswhereUNHCRhastheleadershipincoordinatingtheresponse,andanIDPcontextwheretheclustersystemcoordinatestheresponseandwheretheclustersoperateindependentlyfromtheirleadagency.Consequently,someUNHCRfieldstaffhavebeenleadingsheltermeetingswithoutclearconsentfromtheSC,andwithoutsharingminutesofmeetingswiththeSCT.ThiswaspartlyresolvedbytheCC’sproactivecommunicationwithUNHCR’sCountryRepresentativeandUNHCRheadoffieldoffice.However,someUNHCRfield-officesstillleadsheltermeetingswithoutclearreportinglinestotheSCT.
• SomekeyinformantsfromtheUNHCRraisedquestionsaroundthemeaningofProviderofLastResort(PoLR).Iftheyweretoactonthisresponsibility,theyfelttheneedtoleadthecoordinationbetweenlocalactors,inordertobetterunderstandremaininggaps.
ThesemisunderstandingstookupthetimeandenergyoftheCC,andcouldhavebeenmitigatedwithdeeperunderstandingfromUNHCRstaffontheirroleandresponsibilityasCLA.
R.1
Priority
ForUNHCRandGSC:IncreaseinternalawarenessofUNHCRstaffontheclustersystem.DevelopandprovideastandardinformationpackageforUNHCRCountryRepresentativesandUNHCRstaffontheirroleandresponsibilitiesasCLA.ThisguidanceshouldexplainthecoordinationroleofUNHCRinrefugeeoperationsversusanIDPcontext,andshouldaddressmanagementandreportinglinesbetweenUNHCR-ledclustersandUNHCRstaffinmain-office,sub-officesandfield-offices.(KR-6)
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WithregardstotheCLAroleasPoLR,GSCguidanceexplainsthat“Whilsttheshelterclusters’roleandresponsibilitiesrangefromemergencytolonger-termshelter,theconceptofProviderofLastResort4willonlyapplytomeetingemergencyneedsandnottotheprovisionoflongertermshelterorhousingorlongertermsettlementplanning.”5
Clusterpersonnel
4.1.8 AsofNovember2015,theUkraineSCTwasmadeupofthefollowingsixstaff:
Tab.1 Title Role Deploymentdates1 NationalCluster
CoordinatorShelterClusterCoordinator GSCRFPduring09/14;UNHCR-recruitedfrom
10/14tocurrent(doublehattinguntil04/15)2 ShelterClusterCo-Chair&
Sub-NationalCoordinatorShelterClusterCoordinator 06/15to11/15
3 ShelterAssociate* InformationManager&DeputytotheNationalClusterCoordinator
Inposition07/14tocurrent;doublehattingfrom09/14to04/15
4 Sub-NationalClusterAssistant*
TranslatortotheSub-NationalCC
06/15-current
5 InformationManagerAssociate*
GISandmapping 50%SC/50%UNHCRsince12/14
6 Intern* IMAssistant 09/15to11/15*Ukrainiannational
Fig.2
HC
HCTClusterco-chair
Sub-nationalShelter/NFICC
Sub-nationalShelter/NFIassistant
NationalShelter/NFICC
UNHCR
CountryRep
Shelterassociate
DatamanagementassociateIMO
UkraineShelter/NFIClusterCoordinationteamstructure.6
4.1.9 UNHCRhasprovidedcompetentpersonneltoruntheSC,andtheCCandsub-nationalCCbothhavepriorexperienceinclustercoordination.Additionally,theGSCdrewonlessonslearntbydeployingtheirRFPandrapidlyprovidingqualifiedstafftothecountryinneed.TheRFPwasdeployedinSeptember2014(beforetheformalactivationoftheSC)andremainstheCCtodate.
4.1.10 However,theCCandtheShelterAssociatewerenotdedicatedtotheircoordinationrolefrom
October2014untilApril2015,whenUNHCRrecruitedaShelterOfficertomanagetheshelteroperations.ThisresultedinkeySCstaffbeingoverloadedwithworkandthereforeunabletodedicateappropriatetimetothetasksrequired.
4.1.11 Inthisparticularcontext,thedoublehattingwasmentionedasproblematicbyoneorganisation,withregardstotheCashWG.SinceUNHCRandtheSCTwerestronglyalignedwhileanumberofotheragencies’perspectivedifferedfromUNHCR,itwasperceivedthatUNHCRusedtheclusterasleverageduringdiscussionsintheCashWG.7
4.1.12 Thatsaid,mostotherorganisationsperceivedthedoublehattingaswellmanagedbyboththeCC
andtheShelterAssociate,andfeltthatoncethededicatedUNHCRShelterOfficerarrived,acleardistinctionbetweentheclusterandUNHCRasleadagencywasobserved.
4RefertoIASCdefinitionoftheProviderofLastResort,IASCReferenceModule,July2015.5ShelterClusterToolkit,Scopeofcountry-levelshelterclusters.6AdaptedfromUkraineShelterClusterTermsofReference(Annex3totheUkraineShelter/NFIClusterStrategy).7Refertosection4.4.14to4.4.18forfurtherinformationonCashWG.
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R.2 ForCLAandGSC:TheindependenceoftheCLAfromtheSCTisessentialinenablingtheviewsandinterestsoftheentiresectortoberepresented.ItisthereforerecommendedthatUNHCRandtheGSCdeploydedicatedteamstoruntheSC,andinparticulardeployadedicatedCC.8
4.1.13 TheCCmobilisedstaffwithinUNHCRinordertoacquireasmuchhumanresourcesaspossiblefor
thecluster.TheShelterAssociate(whomainlyfocusedonIM)wasretainedasdedicatedstaff.AnIMAssociatesupportingbothSCandUNHCRwithdevelopingmapshasrecentlybeenprovidingmoresupporttotheSC.TheCCalsorecruitedaninternforadditionalIMsupport.
4.1.14 ThepositivecollaborationandworkatmospherebetweenUNHCRSCstaffandPINSCstaffgreatly
benefitedthefunctioningoftheteam.TheSCThasbeeneffectiveatprovidingrelevantdatatoSCpartners,aswellasleadingtechnicaldiscussionsonreconstruction,repairs,andwinterisation.TWIGsprovidedaunifyingplatformforSCpartnerswhilstbeingstronglyactionoriented.
HQ/GlobalClustersupport
Q.3 WasthereevidenceofsupportfromtheGlobalShelterCluster?
4.1.15 TheGSChasprovidedsupporttotheUkraineSCfromitsinception,includingthedeploymentoftheRFP,theREACHassessment,supportinsettingupthewebsite,andremoteassistanceondevelopingstrategicdocumentsanddealingwithdiscussionsaroundtheCWGledbyOCHA.TheGSCcarriedouttwofieldvisitstoUkraine,oneforcoordinationsupportinFebruary2015,andoneforIMsupportinAugust2015.Asaresultofthesevisits,theclusterstrategywasrevisedandredrafted,TWIGTermsofReference(ToRs)wereprepared,andtheactivationofasub-nationalhubwasagreedandfundingwasidentified.TheGlobalIMalsoprovideddirectsupportwithafieldvisitandin-depthrecommendationsandactionpointstoimprovetheIMservicesprovided9.InOctober2015,theCCandtheShelterAssociateattendedtheGSCmeetinginGeneva.ThisguidanceandsupportprovidedbytheGSChasbeenvaluedbytheSCTandfurthersupportwouldbewelcomed,especiallyinregardstoimprovingsynergieswithothercountryclusters.
R.3 ForGSCandSCT:Improvecross-fertilisationbetweendifferentcountryclusters.Itwasrecognised
thatinJuly2015,theGSChassetupaGooglegroupforthatpurpose.
4.1.16 ItwasalsonotedbytheGSCthatcommunicationwiththeUkraineSCTandCCwassomewhatinconsistent,attimeslackingresponsivenessfromtheCC.ItwasalsounderstoodthattheSCTandCCwereextremelystretchedduringtheperiodofdouble-hatting,andthereforeunabletoupdatetheGSConaregularbasis.
R.4 ForGSCandSCT:Improvecommunicationbetweenglobalandcountrylevelthroughregular
scheduledupdates,onamonthlyorquarterlybasisdependingonneeds.ThiswouldallowtheGSCtoprovidemoreappropriatesupport,anticipatingcertainissuesandprovideaplatformofexchangefortheCC.
4.1.17 ThedoublehattingofthetwoSCstaffwasresolvedinMay2015oncetheUNHCRShelterOfficer
wasrecruited.Thistooklongerthanexpectedduetorecruitmentprocesses. RelationswithIASCactors
4.1.18 RelationswiththeHCandHCThavebeenminimalsincetheCCdoesnotdirectlyattendHCTmeetings,anditisattendedbytherepresentativeofCLA.Referto4.3.4formoredetails.
8RefertoIASCReferenceModule,July2015,p5andp11.9RefertoAnnexH
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4.1.19 TherelationshipbetweenOCHAandtheSChasbeensomewhatfragile,aresultofthehighnumberofrequestsfromOCHAtoCCsthatwerenotalwaysseenasapriorityfortheSCTandSCpartners,aswellastheongoingissueswiththeCWGdescribedin4.4.14to4.4.21.
R.5 ForGSC:Provideglobalguidanceonwhichinter-clustercoordinationtools,reports,andreviewsaregenerallyperceivedasapriority,whichonesarecompulsoryfortheSCtocontributeto,andwhichonesarealowerpriority.RefertoAnnexG.
4.1.20 TherelationsbetweenOCHA,theSCandSCpartnersatfieldlevelhavebeenmoreeffectivethanin
Kyiv.OCHAcallsforGeneralCoordinationmeetingsinvarioushubsintheGCAandNGCA,whichareattendedbyareamanagersandthesub-nationalSC.Akeyinformantnotedthat“OCHAhasfilledanimportantrolebuildingrelationshipsinthefieldbetweenpartners”andinsomeareaswithlocalauthorities.DespiteitbeingmentionedthatsomeoftheOCHA’sstaffwerenotexperiencedcoordinators,theyneverthelesshadagoodknowledgeofthecontext.
R.6 ForSCT:Lessonslearnthaveshowntheimportanceofstrengtheningpositiverelationships,thusit
wouldberecommendedfortheSCTtofocusontheirrelationshipwithOCHAinthefield.
4.2 Supportingshelterservicedelivery(Corefunction#1)
Q.4 Towhatextentdidtheclusteraddvaluetotheresponseundertakenbyshelteractors?Q.5 Wouldithavebeenpossibletoaddthesamevalueinamoreefficientway?
4.2.1 TheshelterresponseinUkrainehasincludedrehabilitationandwinterisationactivities,aswellas
cashassistanceandcashforrent.TheSChasbeenaddingvaluetotheresponsebyaimingtofulfilitscorefunctionsandbysupportingservicedeliverythroughcoordinationandinformationmanagement,technicalsupportandintegration(see4.8.4and4.8.5formoredetails).ThissectionwillexplainhowtheSChasaddedvalueandwhereitcouldhavedonethisinamoreefficientway.
Coordinationmanagement
4.2.2ASAGmeetingwasfirstcalledinDecember2015,althoughtheSCStrategydocumentfromJune2015listsnamesofpermanentSAGmembers.TheCCexplainedthatduetotheset-upandlimitednumberofactiveSCpartners,alldecisionsanddevelopmentofstrategicdocumentshappenedinplenaryduringSCM.Therefore,theCCdidnotconsideritaprioritytocalltheSAG.
R.7
Priority
ForCCandSCT:WhileasmallandfunctionalSCMcanbeaneffectivedecisionmakingplatformforstrategicpriorities,itisrecommendedtoestablishaSAGwithagreedToR,acommittedgroupoforganisationsincludinganactiveandconsciousparticipationofrelevantdonors.SAGmembers’responsibilityextendsbeyondregularclusterattendance,andshouldbeformalised.(KR-4)
4.2.3 TheSCMeetings(SCM)inKyivwereheldweeklyuntilMarch2015.Sincethentheyhavebeen
runningonafortnightlybasis.Atsub-nationallevel,SCMhavebeentakingplaceonanad-hocbasisuntiltheappointmentofadedicatedco-chairandsub-nationalCC.SinceJuly2015,SCMhavebeenrunningonamonthlybasisinSlovianskorKramatorsk,withsomeadditionalad-hocmeetingsinSievierodonetsk,Dniepropetrosk,Kharkiv,Zaporizhzhia,andDonetsk.SCMhavegenerallybeenrunningconsistently,althoughdataanalysisonclustermeetingsshowedthattheywerenotconsistentlytakingplaceonthesamedayoftheweekorinthesamelocation.Thiswaslikelyinordertoremainflexibleandprovidemeetingsonthedaysandinthelocationsthatsuitedmostactors,howeverconsistencyintimeandplaceofmeetingscanallowformoreregularpartnerengagementandabroaderreachtolessactiveSCpartners.
4.2.4 InMariupolandSievierodonetsk,SCpartnershaveheldinformalsectoralmeetingsonaweekly
basistobettercoordinatetheirfieldoperations.Intheselocalities,therewasnodedicatedshelter
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focalpoint,yetmeetingswereperceivedasuseful.UNHCRfieldofficeshavealsobeenrunninginformalsectoralmeetingswiththefewactorspresentintheirlocation.InKharkivandDonetsk,forinstance,theheadsofsub-officehavecalledshelterandprotectionmeetingsonaregularbasis.However,noneofthesemeetingshavebeenconsistentlyfeedingbacktotheSCT.Thead-hocandflexibledecentralisedcoordinationstructurehasallowedformeetingstotakeplaceinvariousfieldlocationswheretheSCTwasnotabletoestablisharegularpresence.However,theSCThasnothadtheopportunitytoadequatelyrespondtocertainissuesduetotheinformalnatureoftheset-up.
R.8
Priority
ForSCT:StandardisetheinformalsheltermeetingsthatarenotledbytheSCT,whilstremainingflexibleandsupportivetothoseleadingthem.FormalisingthedecentralisedhubswouldenabletheSCTtoimproveitsleadershiprole,strengtheninformationflows,andallowfortheSCTtobeproactiveratherthanreactive.ThiscouldalsoprovidetheSCwithfurtherreach,withregardstothecoordinationservicesprovidedtopartners.(KR-2)� Identifyfocalpoint(s)toreporttoSCT� AnnouncemeetingsthroughtheSCmailinglistsothatotheractorsintheareamayattend� Shareminutesofmeetingtemplatewiththoseleadingthemeetings� Requestminutesofmeetings,andsharewithSCpartnersforaccountabilityandpreparedness
measures� PromoteSCreportingtools(5W)� Sharecontactlists
4.2.5 AllSCMinSlovianskincludedrepresentativesfromlocalauthoritiesexceptone(27thAugust2015).
TherehasalsobeenasolidrepresentationofnationalNGOs,churchesandcivilsocietyorganisations(CSOs).Thefirstsub-nationalSCMinSievierodonetskwasattendedby14agencies,includingrepresentativesfromLuhansklocalauthorities(intheNGCA).ThetwonextmeetingsinSievierodonetskwasattendedby5and7stakeholdersrespectively,alloftheminternational.
4.2.6 SomeactorswereunsureoftheSC’sgeographicalcoverage,andunderstoodthattheSCwasnot
coordinatingcertaingeographicalareas:“Whenthesub-clusterinSlovianskwasestablished,theywereplanningtoincludeacitywhichwaspartofKharkivareaandthecoverageofthesub-clusterwasonlyclarifiedlater”.WhiletheSCTmightnotberunningSCMinalloperationalhubs,theSCshouldcoverallaffectedareasthroughaclearstructurethatcouldincludethedecentralisedcoordinationsystemledbyotheragencies.
R.9
Priority
ForSCT:Developanddisseminateanorganisationalmapofthecoordinationstructure,10withthesub-nationalsubanddecentralisedhubs.ThiswouldprovidetheSCTwithfurtheraccountabilityandtransparencyonthecoordinationstructurealreadyinplace.(KR-2)
4.2.7 Therehavebeen67meetingsin2015,includingTWIGs,nationalandsub-national.Meeting
minutesarepreparedandsharedregularlythroughtheGoogleGroup,while35meetingminutesoutof67fromthesameperiodarefoundontheclusterwebsite(52%).
R.10 ForSCT:Consolidateasystematiccoordinationmanagementapproachby:
- SharingdraftSCMagendapriortoSCMwithpartnersallowingthemtocontributeitems.- Consistentlydraftingandsharingofmeetingminutes:includingnameoforganisations
attendingforaccountabilityandreportingpurposes,andrecordingofkeydecisions.- UploadallmeetingminutesandrelevantdocumentsontheSCwebsite,withrelevanttags.
Whenandwherepossible,allowremoteattendanceviatelecomtoextendthereachofSCM.
4.2.8 TheSChasalsocarriedoutanumberofTWIGstodiscussanddevelopguidelinesontechnicalissuesincludingwinterisation,cash,permanentshelter,HLP,andheavyrepairs(Referto4.4).
10ForanexamplerefertoShelterClusterPhilippinesHubOverview,sheltercluster.org
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Informationmanagement
4.2.9 OveralltheSChasbeenvaluedfortheinformationitproduces,includingmapsandanalysis,butthisinformationissometimeshardtofind.TheGooglegrouphasbeenaneffectivetooltocommunicatewithSCpartnersbutitislessefficientforstoringdocuments.11KeyinformantshavebeencontactingtheSCTdirectlytoacquireinformation,sincethewebsiteoftendoesnotcontainthelatestupdates.ThisshowsthattheSCTisveryresponsivetoSCpartnersbutitisnotanefficientwayofdisseminatinginformation.ThetablebelowclearlyshowsthatSCpartnerstendtoretrievemostoftheSCinformationfromemailsandthewebsite.
Tab.2 Sourceofinformation >3/week 1-3/week 1-3/month <1/month never
Emails 4% 41% 48% 4% 4%Website 4% 15% 41% 30% 11%Googlegroup 4% 15% 19% 26% 37%Onlinesurveyrespondersindicatingthefrequencyofuseofdifferentsourcesofinformation.
R.11 ForSCT:Improvethedisseminationofinformationthroughconsistentuploadofalldocuments
sharedwithSCpartnersontheSCwebsite,essentiallyusingthewebsiteasadepositoryofdata.AmoreeffectiveuseofthewebsitecouldallowSCpartnerstofindtheinformationtheyneedindependentlyandthiswouldreducetheneedforone-to-oneintensivepartnersupport.
4.2.10 DespitetheeffortsoftheIMteaminproducingrelevantdataanalysis,thelackofbaselinedata
remainsachallengetoprovidingaclearpictureofthecontext.ThelackofinformationfromNGCAishighlightedbymostkeyinformants,andisduetolackofaccessandsecurity.Butthereisalsoalackofbaselinedataonhousingdamage,needsandgapsinGCA–despiterelativelystableaccesssinceFebruary2015.ExcludingtheREACHassessment(Referto4.2.11below),therehasbeennoinitiativetocarryoutaquantitativehouseholdleveldamageassessment,asakeyinformantexplained:“Westilldon’tknowhowmanyhouseshavebeendamagedandhowmanyhavebeenrepaired”.ThecurrentSCbaselinedataisbasedontheREACHassessment,arepresentativesampleonlyfocusedonIDPs.Thisprovidesinitialdatabutissubjecttoobviouslimitations.
4.2.11 TheREACHassessmentwascarriedoutto“facilitatetheestablishmentofabaselineofthe850,000
IDPsregisteredbyMoSP”andprovidedadditionaldatatotheexistingmulti-sectorialneedsassessment.Thisassessmentwasgenerallyverywellreceived,especiallyconsideringthegenerallackofbaselinedata.However,afewactorshadconcernsabouttheREACHprocess.DespitetheassessmentteambeingdeployedtoUkraineforabout4weeksbetweenMayandJuly2015todevelopaquestionnaireincollaborationwithSCpartners,someactorsbasedinthefieldfeltexcludedfromtheprocess.Whilethequestionnairewascirculatedforcomments,severalinformantsmentionedthattheywereonlyinformedafewdaysbeforetheassessmentwasgoingtotakeplace.ThisfeedbackreflectsthechallengeofKyivbeingdisconnectedfromthefield.TwootherinformantsalsomentionedthattheREACHassessmentonlyfocusedonIDPs,thusrepresentingonlyoneportionofthebeneficiariestargetedbytheSC.Asaconsequence,agenciesrequestedapilotassessmentofnon-IDPsinothergeographicalareas.
R.12
Priority
ForSCandSCT:Workonimprovingtheoverallbaselinedata,includingGCAandaccessiblepartsofNGCA.ThedatashouldincludehousingdamageandvulnerabilitiesofalltargetgroupsdetailedintheSCstrategy.TheSAGshouldadviseonhowtocarryoutsectoralassessments,definingthetargetpopulationandgeographicalarea.LeverageonCLAandco-chairwithaccesstoDonetskandLuhansktogatherfurtherdataonlocalitieswhereothersmightnothaveaccess.(KR-3&4)
11RefertheMissionReport,GlobalShelterClusterIMmissiontoUkraine,BoHurkmans,August2015.ThisreportprovidesdetailsrecommendationtotheUkraineShelterClusterandGSConhowtoimproveIMservices.RefertoAnnexH.
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4.2.12 ItseemsthattheIMservicesprovidedhavefocusedmoreonthe“bigpicture”,providingusefulinformationforKyiv:headsofagencies,government,anddonors.Indeed,somekeyinformantshavenotedthat“theinformationisproducedmoreforKyivthanforthefield”.Thiscouldbeexpected,astheSCofteninitiallyfocusesonprovidinganoverviewofthecontext,andthencollectsmoredetaileddataforadditionalfield-levelanalysis.Forexample,theSCTrecentlyreleasedamapontheGreyzoneforwinterisation,gapsanalysisofDecember2015,providingfieldlevelgapanalysis,perceivedasamoreusefulforimplementingstaff.
4.2.13 Additionally,itwasmentionedbyanumberofkeyinformantsthattheInternationalCommitteeof
theRedCross(ICRC),whoremainanobservertotheSC,providealargeamountofshelterassistancethatisnotalwaysrepresentedintheinformationanalysisdevelopedbytheSCT.
R.13
Priority
ForSCT:Continuetoprovideanoverviewofthecontext,whilealsoproducingmoredetailedneedsandgapsanalysis,maps,graphsandotherusefultoolsrelevantaimedatthefieldlevel.ExploreopportunitiesofimprovingtherepresentationofSCobserverswithsensitivedata(suchasICRC)intheanalysistoprovideacleareroverviewofthecoverageandgaps.(KR-3)
4.2.14 Allfurtherrecommendationoninformationmanagementshouldbereferredtothemissionreport
ofBoHurkmans,GSCIMAssociatefromAugust2015.RefertoAnnexH. Integration
4.2.15 TheSCTconsistsmainlyoflocalstaff,withtheexceptionoftheNationalCCandsub-nationalCC.TheNationalCCisfluentinRussian,whichhasbeenofgreatadvantageinengagingawiderrangeoflocalactors,authoritiesandNNGOs.Thesub-nationalCChadadedicatedtranslatortoprovidesupportduringmeetings.Althoughtheset-upofthehumanitarianresponselackslocalinvolvement,theSChasdoneitsbesttoprovideanopenplatformforintegratingnationalactorsandallowingfortheirparticipationinSCM,alsowitnessedbythetranslationofkeydocumentsintoUkrainianandRussian.Despitethis,fewNNGOsattendclustermeetings,mainlyduetoalackofawarenessoftheclustersystemandhumanitarianstructure.
4.2.16 Integrationwithauthoritieshasbeenchallengingformanyactors.Referto4.7.4-4.7.13.
4.3 Informingstrategicdecision-makingbytheHC/HCT(Corefunction#2)
Q.6 HastherelationshipwiththeHCTandtheclusterbeeneffective?
4.3.1 TheHC/HCThasbeencriticisedasaweakstrategicdecision-makingbodybymostkeyinformants
interviewedforthisreview.“TheHCTisnotveryeffective.Someactorspresenthavealotofexperience,andotherstaketoomuchspacewithnoexperience”.AlthoughtheHCTshouldbeaneffectivedecisionmakingplatforminUkraine,withahighnumberofINGOsrepresentedandMSFandICRCattendingasobservers,thismechanismhasbeenadysfunctionalplatformforreasonsdetailedbelow.
4.3.2 ItwasnotedthattheHumanitarianCoordinator(HC)isUNDPstaffhasbeendescribedashaving
limitedexperiencewithhumanitarianresponse.ThishasmeantthatOCHA,whoactsasasecretariattotheHC,hasbeenoverwhelmedandhasinherentlytakenleadershipondecisionsrelatedtohumanitarianissues.The“weakHCThasprovidedroomforOCHAtomonopolisethedebate”andOCHA“isworkingbeyonditsmandate”.ThelackofleadershiphasmadetheHCTintoareactiveratherthanproactiveplatform,“certainissuesarenotbeingputonthetableandarenotbeingdiscussed.TheonlyfocusoftheHCTisaccreditation(meaningaccess).”
4.3.3 TheHCThasbeencriticisedforlackofaccountabilityandtransparency,withnoorveryfew
minutesofmeetingsshared,andnoofficialrecordofthediscussionsanddecisionsmade.Some
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NGOshavestatedthattheyhavepushedforsomedecisionstobetakenattheHCTmainlytomoveforwardwithimplementingtheresponsebecausetheHCTdoesnotprovideaneffectiveplatformfordiscussion,debate,ornegotiation.
R.14
Priority
ForGSCandUNHCR:RequestforaccountabilityandtransparencyoftheICCGandHCT,byaskingHCT/OCHAforallmeetingminutes,reports,assessmentsandotherrelevantdocumentsproducedforICCGandHCTmeetingstobesharedandpublishedonhumanitarianresponse.info.(KR-7)
4.3.4 TheCCdoesnotattendHCTmeetingsandtheclusterisrepresentedbytheCLA.Althoughthisis
commonpractice,insomecountriestheCCjoinsHCTmeetingstoprovidetechnicalsupportandensurethattheinterestsoftheclusterarerepresented.InUkraine,thenon-attendanceofCCsinHCTmeetingshasbeenquestionedassomedecisionsmadeinHCTmeetingsrequirethetechnicalknowledgeofasectoralrepresentative,whichaCLArepresentativemightnothave.InJuly2015,followinganHCTretreat,arecommendationwasmadetoincludeCCsasobserversandadvisorsduringHCTmeetings.Thisrecommendationwasneveractionednorimplemented.
R.15
Priority
ForUNHCRandSCT:RequesttheHCTtoactonits’decisionfromtheJuly2015retreat,toinviteCCstoHCTmeetings.Untilthen,theSCTistoprovidetheCLArepresentativewithSCupdatespriortoeachHCTmeeting,andorganiseadebriefingsessionwiththeSCTafterwards.(KR-7)
4.3.5 Additionally,thereisthequestionsofhowaCLAcanrepresentitsagencyandthesector(s)itleads
inHCTmeetingswhentheopinionsofthetwodiffer.ShouldtheCLAhaveadditionalvotes:onefortheorganisationandoneforeachclusteritrepresents,orshouldtheCCbepresentduringHCTmeetings?AlthoughCLAhasaroleinsupportingtheCCinsituationswhererelationswithotherIASCactorsarefragile,thiscannotalwaysbeachievedduetoperceivedconflictsofinterest.Asaresult,thecluster’sopinionisoftennotrepresentedatHCTmeetings.
4.3.6 DonorsdonotusuallyattendHCTmeetingsinUkraine.However,insomecountries,toensurethe
donorcommunityisinvolvedindiscussionsanddecision-making,adonorrepresentativemaybeinvitedtoallHCTmeetingorquarterlyHCTanddonormeetingsareorganised.InUkrainetherehasbeenonlyonemeetingwithHCTmembersanddonors.ThissuggeststhatthereisaneedtostrengthencommunicationbetweentheHCTandthedonorcommunity.
R.16 ForUNHCRandSCT:AdvocatetheHCTtoexplorewaysofinvolvingthedonorcommunityinthis
humanitarianplatform,withtheaimofincreasingitsrelevanceandeffectiveness. Jointassessments
4.3.7 AnumberofjointassessmentshavebeencarriedoutinUkraine.TheOCHA-ledHumanitarianSituationMonitoring(HSM)wasfirstpublishedinDecember2014,andhasprovidedanongoingsourceofmulti-sectorinformation.Evenifthisinitialdatawasincomplete,itformedthebasisofthe2015SRP.However,itwasexplainedbyanumberofkeyinformantsthattheHSMprovidedaverylimitedoverviewofthecontext,thatthemethodologywasbasedonasampleof66raions12outof172mostaffectedraions,thatthecommunitylevelassessmentwasbasedonkeyinformantinterviews,andthattheinstitutionalassessmentfocusedoneducationandhealth.ForSCpartnersthisprovidedaverylimitedoverviewastheirneedforhouseholdleveldatawascrucialtostrategicallyplantheirprogrammes.
4.3.8 BetweenFebruaryandMarch2015,theUkraineNGOsForumcarriedoutaMulti-SectorNeeds
Assessment(MSNA)toacquireabetteroverviewofneedsintheDonbasregionandinformthedesignofhumanitarianresponses.Theassessmentprovidednewusefuldataandabetteroverviewofthesituation,butduetotheaccessrestrictiontothemostaffectedareas,thiscouldstillnot
12RaionsarethesecondlevelofadministrativedivisionofUkraineandareprimarythemostcommondivisionofregionsofUkraine.
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serveasabaselinefortheSC.InJuly2015ashelterREACHassessmentwascarriedoutandprovidedadditionaldatatotheexistingHSMandMSNA,seesection4.2.11.
4.3.9 TheHNOthatwascarriedoutinDecember2015fortheHRP2016,didnotprovideclusterswith
anyparticularlynewinformation.Additionally,theoutcomeofthereportwasnotofficiallysharedwiththenationalauthorities.Manyoftheassessmentsdetailedaboveweredevelopedwithoutconsistentsupportorinclusionofnationalactors,NNGOsandauthorities.
4.4 Strategy,planning,policyandstandards(Corefunction#3)
Q.7 Hastheclustereffectivelysetitspriorities?Aretheregapsinthesepriorities?
ShelterClusterStrategy
4.4.1Toestablishpriorities,theSCusuallyusestheSAGasaforumfordiscussionanddecision-making.InUkraine,thefirstSAGmeetingwasonlycalledinDecember2015,anduntilthenallstrategicdecisionsandprioritiesweredefinedinplenaryduringSCM.ForfurtherinformationontheSAGreferto4.2.2.
4.4.2 TheSCstrategydocumentthatsetsoutthesectoralprioritieswasfirstdraftedinSeptember2014
andlaterrevisedinJune201513.The2014strategyclearlydefinespriorityactivitiesandthepopulationofconcern,whichincludes“IDPs,communitiesdirectlyaffectedbytheconflict,returnees,hostcommunities”.Thedocumentalsoemphasisesonwinterisationassistanceandthe“onewarmroom”concept,NFIdistribution,cashassistance,transitionalandrecoveryshelter,aswellasreconstructionincludingofbasicinfrastructure.
4.4.3 Therevised2015SCstrategytakesadualapproach,combininglife-savingemergencyassistance,
andlonger-termsheltersolutions.14Thedocumentprovidesdetailsontargetgroupsandnewclusterobjectives.Theseobjectivesemphasisethreepoints:(1)themostvulnerablelivinginGCAandNGCA,(2)harmonisationoftechnicalstandards,and(3)decentralisationofthecoordination.Thestrategyalsoelaboratesonbeneficiaryselection,cross-cuttingissues,advocacy,contingencyplanning,andpresentskeychallenges,suchasaccess.
4.4.4 Theonlinesurveycarriedoutforthisevaluationstatesthat45%ofrespondentsconfirmhaving
beenpartofdevelopingtheSCStrategy,and59%and15%oftherespondentsperceivetheprioritiesasbeingrelevantandveryrelevant.Only3%perceivetheprioritiesasnotbeingrelevant.75%oftherespondentswhoseetheprioritiesasveryrelevantcomefromNNGOs.Additionally,52%ofrespondentconfirmhavingadaptedtheirprogrammeaccordingtotheprioritiesandgapsidentifiedbytheSC.Accordingtothemajorityofpartners,theSChaseffectivelysetoutprioritiestorespondtotheneedsoftheaffectedpopulation.
4.4.5 Yet,twokeyinformantsrepresentinglargeagenciesmentionedthatuntilJune2015,theSChad
mainlyfocusedonassistancetoIDPs(referringtotheIDP-focusedREACHassessmentasanexample)whiletheirorganisationswererepairingandreconstructinghousesofthenon-displacedpopulation.Additionally,asmentionedpreviouslytheREACHassessmentwasalsoonlyfocusedonIDPdata.Oneofthekeyinformantquestionedhowandwhenthisdecisionwasmade.AlthoughbothstrategydocumentsfromSeptember2014andJune2015clearlymentionthattheSCtargetpopulationiswiderthanjustIDPs,itseemsthatsomelargeactorswerenotwellinformedofthepriorities.Thiscouldalsobeexplainedby:
13ShelterClusterStrategy,June2015,retrievedfromhttp://sheltercluster.org/response/ukraine14idem
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� WeakdisseminationofkeydocumentsincludingtheSCstrategy(RefertoR.11&R.17).Forexample,the2014SCstrategyisnotavailableonthewebsite(possiblyreplacedbythemostrecentversion),eventhoughitwouldbeusefultoincludeitfortransparency.
� Highturnoverofstaffinagencies,whichmeansthatsomeinformationisnothandedoverandtheSCdoesnotsystematicallysharekeydocumentswithnewarrivals.
� DisconnectionbetweenthefieldandKyiv,andthechallengeincommunicatingdecisionswithfieldactors.Indeed,mostofthestrategicdiscussionsaretakingplaceinSCMinKyiv,despitetheoutcomepotentiallyhavingasignificanteffectonthefield.
R.17
Priority
ForSCT:Developastandardpackageofkeydocuments.Forexample,theSCPhilippineshaddevelopedaTechnicalIndexdocumentwithlinkstoallkeytechnicaldocuments.ThiswasausefultooltoincreasethedisseminationofkeydocumentstonewSCpartners,andtohandoverallkeySCdocumentstonewlyarrivedstaff.(KR-3)
4.4.6 Althoughthegeneralperceptionsuggestsasatisfactoryprioritisationofactivities,someindividuals
expressedtheneedtorefinetheprioritisation.Forexample,afewkeyinformantshavehighlightedtheoutstandinghumanitarianassistanceinNGCAandstressedtheimportanceofprioritisingtheseareas.DuetotherestrictedaccessofNGCAandthecurrentbroadprioritiessetoutbytheSC,manyagencieshavebeenpreventedfromprovidingassistanceinNGCAandhavere-targetedtheirassistancetoGCA,leavingvulnerablefamiliesinNGCAwithnosupport.
R.18 ForSCTandSC:RefineSCstrategicprioritieswithstrongerdataforNGCA.TheSCshouldwork
towardsidentifyingthespecificneedsandassistancerequiredinNGCAandbetterguidegeographicalprioritisation,differentiatingtheneedsofDonetskandLuhanskastwodistinctlocations.TheSChastheadvantageofbeingledbyPINandUNHCRwhobothhavebeengrantedaccesstoNGCA.
HumanitarianResponsePlan(HRP)
4.4.7 TheHRPistheinter-sectoralstrategydocumentthatsetsoutpriorities,andpresentsprojectsoractivitiespersectormatchedwithfundingfortheoverallcountrystrategytoberealised.Itisbroaderthanthesheltersector,andtheprioritiesareoftenextractedfromsectoralstrategies.
4.4.8 The2015SRP(nowcalledHRP)wasdraftedveryquicklywithminimalbaselinedata.Manykey
informantsexplainedthatitwasnotaparticularlysuccessfuldocumentduetothelimitedtimeframeprovidedtodeveloparelevantdocumentinaconsultative,accountableandtransparentmanner.EventhoughitwasrevisedinFebruary2015,mostsectorsexplainedthatthebaselinedataavailableatthattimewaslargelyinaccurate.TheOCHAHeadofOfficealsoimposedanactivity-baseddocumentratherthanaproject,whichwasnotwelcomedbyclusterpartnersnorbytheSCT.Asaresult,therelevanceofthe2015SRPhasbeenquestionedbyanumberofkeyinformants.
4.4.9 The2016HRPhasreceivedmixedfeedback.Inafirstinstance,theCCsweresuccessfulin
convincingOCHAinmakingtheHRPaproject-baseddocumentratherthananactivity-basedone.Secondly,anumberofSCpartnersexplainedthatgoingthroughtheprocessofdevelopingthedocumentwasuseful,asitforcedthemtothinkstrategicallyaheadoftimeandtoplantheiractivitiesaccordingly.TheSCTconvenedanumberofHRPmeetingstodevelopanactivitymatrixwithdetailedactivities,costs,durationandtimeframe.HarmonisingtheseactivitiesallowedSCpartnerstodeveloptheirownproposalswithmoreconfidenceanddetails,sincethemomentumoftheseHRPmeetingsprovidedusefuloperationaldiscussions.
4.4.10 EventhoughtheSCembracedtheHRPprocessallowingorganisationstostrategicallydeveloptheir
programmefollowingacommonstrategy,itwasstillverymuchperceivedasaKyivcentric,inefficientprocess,especiallysincethefocuswasonfunding.Indeed,theUkraineHRPseemedto
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bemainlyusedtoattractandjustifyfunding.However,someofthedonorsexplainedthattheyusuallyselectagenciesbasedonpreviousexperiencesworkingtogether,ratherthanontheHRP.
4.4.11 Finally,donorsalsomentionednothavingbeeninvolvedintheprocessofpreparingtheHRP.This
includestheSC.Asaresult,donorswerepresentedwithafinaldocumentanda“catalogueofprojectswhichwerenotprioritised”.ThismeansthattheHRPhasperhapsbeenamoreusefulprocessthroughwhichagenciescandevelopacommonstrategywithactivitiesandbudgets.However,fordonorsitdoesnotprovideaclearoverviewofthehumanitarianpriorities,norisitperceivedtobedevelopedinacollaborativeandconsultativemanner.
R.19 ForSCT:InvolvedonorsinthedevelopmentoftheSCsectionoftheHRP. WorkingGroups
4.4.12 TechnicalWorkingGroups(TWIGs)wereestablishedinresponsetoaneedtodiscussandresolvetechnicalissues.TheSCstrategy15identifiesthreeTWIGscurrentlyestablished:(1)PermanentSheltersolutions,(2)ShelterandNFImonetization,and(3)HousingLandandPropertyRights–thelatterinpartnershipwiththeProtectionCluster.ThedeskreviewhasidentifiedtwoadditionalactiveTWIGs:WinterisationWG,andaheavyrepairsWG.
4.4.13 MostSCpartnersmentionTWIGsamongthegreatestaddedvalueoftheSC.“ThewinterisationWG
wasthemostsuccessful,itreallyunifiedeveryone”;“theSChasbeenveryuseful,especiallythroughthetechnicalWG,andharmonisingtheresponseatdifferentlevels”;“ThedocumentthatcameoutoftheTWIGswasverygood,theydidalotofworkandtherecommendationthatcameoutisrealistic”.Itallowedshelterprogrammemanagerstodevelopbetterstrategiesandprojectproposals.ItalsoaddedweighttosubmissionstotheirHQanddonors,anditbroughtagenciestogetherfocusingonoperationalissuesratherthanpoliticalbarriers.TheseTWIGshavebeensousefulthatmostagencieshaverequestedformoretechnicaldiscussions.
R.20 ForSCT:ContinueitseffortsinidentifyingtechnicalissuesandaddressingthemthroughTWIGs.
CashWorkingGroup
4.4.14 TheSCalsoleadaCashWG(CWG),whichwaslaternamedtheSCMonetisationWG,whenOCHAtooktheleadinrunninganinter-clusterCWGinApril2015.ThisWGresultedinusefuldiscussionsbutalsoraisedanumberofissuesanddisagreementsdetailedhere.
4.4.15 AcashadvisorfromUNHCRcametosupportUNHCR’soperationsandprovidedsupporttotheSCT
leadingtheCWG.ThisresultedintheSCtakingtheleadamongstotherclusterstoharmonisetheMulti-PurposeCashGrant(MPCG)transfervalue,wheremanyagenciesincludingOCHA,donorsandtheFoodSecurityClusterandmanyotherswereinvolved.ThevalueagreedinFebruary2015wasgoingtoberevisedinMay201516,butanewvaluewasonlyagreedinAugustafteranadditionalthreemonthsoflengthilydebateanddisagreements.AkeyinformantexplainedthatUNHCRmighthaveinfluencedthepositionoftheSCT,whichwouldhavecontributedtowardsexacerbatingthenegotiations.
4.4.16 TheSCTsoughtadvicefromtheGSCteamwhenOCHA’sCWGwantedcashtobecomeaseparate
sectionintheHRP2016.SinceMPCGrespondedtomulti-sectoralneedsitwasconsideredthatthisshouldbemonitoredseparatelyfromclusteractivities.However,extractingtheseactivitiesfromeachclustermonitoringresponsibilitywasanissuefortheSCandotherclustertobeableidentifygapsandcoverageoftheirownsector.TheHCTtookthefinaldecision,agreeingtomakecasha
15ShelterClusterStrategy,June2015,retrievedfromhttp://sheltercluster.org/response/ukraine16MeetingminutesfromCWG,20April2015.
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separatesectionintheHRP.ThisconflictedwiththeGSCposition,andalthoughtheywereinformedofthedebate,theywereunabletoprovideleverageintimetosupporttheSCininfluencingthedecisionincountry.TheGSCtookthisissueseriouslyandhascommissionedfurtherresearchoncashandsheltertoinformtheirdecisionmaking.
R.21 ForGSC:Suchcountry-leveldisagreementsmayhaverepercussionsontheSCnotonlynationally,
butalsogloballyasthesedecisionscouldbeusedasprecedentsofgoodpracticeforfutureemergencies.WhentheGSChasapositionthatisnotalignedwithdecisionsmadeatcountryleveltheseneedtobeformallyexpressed,documentedandaddressedatgloballevel.
4.4.17 Thetablebelowsummarisesthecashtransfervalueagreed,discussedorrecommendedduring
variousmeetingsbetweenOctober2014andAugust2015(extractedfrommeetingminutes).
Tab.3 Oct-14 TBC Feb-15 Apr-May-Jun15 Jul-15 Aug-15Chair ECHO ECHO/SC SC OCHACWG OCHACWG OCHACWGParticipants SC,PIN,DRC,
WFPInfoextractedfrommeetingminutesOCHACWGfrom04/15
DRC,SCI,DFIDconsortium,ECHO,OFDA,OCHA,ACF,PIN,WFP,UNHCR,FSC
OCHA,DRC,SavetheChildren,WFP,SCCC,UNHCR,IOM,PIN,GOAL
OCHA,ECHO,ICRC,DRC,DFIDconsort.,WFP,UNHCR,IOM,PIN,ADRA,GOAL
OCHA,ECHO,DRC,DFIDconsort.,WFP,ACF,PIN,ADRA,GOAL
USD/Person/Month
food:45/per/monthWinter:235for3months
Winter:100/per
15/per/mfor3months
Manydiscussions,noagreement
cashtransfervaluefordiscussion34/per/monthfor6months
DFIDConsortium30/per/m
Governmentsubsidywasbasedon23USD/person/month.ICRCcashassistancewasbased16USD/person/month.
4.4.18 Thediscrepanciesbetweenthedifferentcashtransfervaluespresentedinthetableabovemaybe
explainedbytheincreasedmarketpricesthroughout2015,butalsobytheunderliningpurposeofthesegrants.ThedisagreementsonthepurposeoftheMPCGincludedwhetheritshouldcoverrent,whetheritshouldcoveraperiodof3or6months,andincluderecoveryaswellasemergencyneeds.“ICRC’sbasket(…)iscalculatedonthecostofcurrentcopingmechanisms.Notintendedtotakearecoveryobjectiveorenablehouseholdstoreducerisk.”17Thisresultedinhighlyvariablecashtransfervalues,despiteathoroughunderlyinganalysis.
4.4.19 WhenOCHAactivatedaninter-sectorialCWGinApril2015,theyinitiallydidnotinvitetheSCTwho
hadbeenleadingaTWIGonthissubject.ThisledtoimmediatequestioningoftheCWGlegitimacy,anddisagreementsbetweenagenciesandclusters.Thethreemonthsofnegotiationsbetweenorganisationsinvolvedanunnecessarypersonalandpoliticaldebate,whichsloweddowntheprocessofprovidinghumanitarianassistance.
4.4.20 Asaresult,adecision-makingstructurefortheCWGwasestablishedthroughasteeringcommittee
attendedbyCLAanddonors,separatingthetechnicaldiscussionsfromstrategicdecisions.Thisstructureseemsinappropriate,sinceitwouldhavebeendesirabletohavedecisionsendorsedbysectoralexpertsratherthanheadsofagencies.IthasalsobeenunclearwhattheICCGmembers’responsibilitiesareintermsofstrategicdecisionforanOCHA-ledWG.
R.22
PriorityForGSC:ProvidededicatedcashexpertiseandspecificSCguidanceoncashprogramming,includinghowtodefinecashtransfervalues,andhowtodealwithmulti-purposecashgrantsattheinter-clustercoordinationandHC/HCTlevel.(KR-8)
17MeetingminutesfromCWG,29July2015.
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ForSCTandGSC:Advocateallinter-clusterCWGtoprovidetechnicaladvicetothesectors(ratherthanbecomingsector,creatingseparatesectionsundertheHRP).Thereisaneedtoprovideclearguidanceonthedifferentcashmodality,MPGC,conditionalcash,restrictedcash,unconditionalcash,aswellasdefiningthecashterminologies,andprovidingrelevanttools.
4.5 Shelteradvocacyandcommunication(Corefunction#4)
Q.8 Didtheclusterdoenoughadvocacytodonors,governmentandothers?
4.5.1 TheGSCdefinesadvocacyas“atargetedcommunicationwiththegoaltochangeadecisionmaker’s
opinions,attitudes,actionsorlackofactions.Advocacyusuallyaimstoinfluencepublicpolicyorresourceallocationwithinpolitical,economicandsocialsystemsandinstitutions”.18
4.5.2 TheSCstrategymentionsthat“keyadvocacymessageswillbedevelopedandvalidatedbytheSAG
inconsultationwiththeProtectionCluster”19.ItalsostatesthattheSCTwillidentifygapsandadvocatedonorsonbehalfofclusterpartnersforfurtherfunding,aswellascross-cuttingandinter-sectorialissues.AsthefirstSAGmeetingwasheldinDecember2015,itisassumedthatallearliershelteradvocacyactivitieswerediscussedinplenaryduringSCM.
4.5.3 InthecontextofUkraine,theSCadvocacyhasfocusedonthefollowingactivities:
� Informationsharingandcommunicationofhumanitarianneedsforthepurposeoffundraising(maps,factsheet,strategicdocuments,technicalguidelines);
� Humanitarianaccess,includingaccesstovariousshelteritems,andtogeographicalareasinneedofhumanitarianassistance(especiallyNGCA);
� Raisingawarenessoftheclustersystem;� Harmonisingreconstructionstrategieswithauthorities.
4.5.4 TheSChasbeenconsistentinthepublicationofinformationwhichhasenabledagenciesto
developadvocacymessagesaimedatdonors,governmentandtheirhead-quarters.Accordingtotheonlinequestionnaire,59%ofrespondentsconfirmthattheyhaveusedSCinformationtodeveloptheirownadvocacymessages.
4.5.5 Accordingtokeyinformants,mostoftheadvocacymessageshavebeendevelopedatinter-cluster
orHCTlevel,especiallywithregardstoissuesofaccessandlackoffunding.TheSCwasinvolvedinbothplatforms,throughtheCLAandICCGadvocatingonbehalfofitsmembership.“OCHAhasbeentakingtheleadonadvocacyespeciallyonproblemsofaccess”.
4.5.6 SomementionedthatSCadvocacyshouldhavefocusedalsoonaccesstosheltermaterials(NFIs,
heaters,constructionmaterials,etc.)andothersmentionedtaxesonhumanitariangoodsimposedbytheauthorities.20SomeactorsbelievedthatOCHAspenttoomuchtimedoingadvocacyandforgotitscorefunctionofcarryingoutjointassessmentsinordertogetabetteroverviewofdamages,especiallyinNGCA21.Overall,therewastoomuchfocusonadvocatingaccess,asaresultofwhichotherimportantissueswereleftbehind,ornotdiscussedatall.
4.5.7 Accordingtotheonlinequestionnaire,37%ofrespondentsbelievetheSChasproducedandshared
ausefuladvocacymessage,onbehalfofclusterpartners,todonors.48%saidIdon’tknow.Ontheotherhand,22%thinkthattheSChasproducedandsharedusefuladvocacymessagesonbehalfofclusterpartnerstothegovernment,with59%respondingIdon’tknow.Inbothcasestherearehalformorewhodonotknowwhethertheclusterhasdoneenoughadvocacy.Thisisnotable,and
18CommunicationandAdvocacyStrategyfortheShelterCluster,March2014retrievedfromhttp://www.sheltercluster.org/19ShelterClusterStrategy,June2015,retrievedfromhttp://www.sheltercluster.org/20AccordingtotheCC,theGoUiscurrentlyworkingonhowtoexpeditethetaxexemptionprocessforhumanitarianprojects.21AssessmentintheNGCAismadedifficultbyaccess,butalsosafetyrisksassociatedwithdatacollectionandsharingwithKyiv.
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couldeitherbeperceivedasconcerning,assumingthatadvocacymessageshavenotreachedallshelteractors,oritcouldbeunderstoodthatsomeadvocacymessagesarenotofinteresttoallactors.Only22%believetheSChasexercisedsufficientadvocacywithgovernment:“therecouldhavebeenmoreadvocacywithlocalauthorities”.
R.23 ForSC:Ensurethatabroadrangeofrelevantissuesareaddressedintheadvocacymessages
developedbythecluster,notsolelyfocusingononespecificchallenge.
4.5.8 TheSChasalsodonecommunicationandadvocacytoraiseawarenessontheclustersystemandtheroleoftheSCinUkraine.Morerecently,theSChasproactivelyinitiatedcommunicationwiththeauthorities,forexamplethroughtheheavyrepairTWIGs,wheretheSCworkedtowardsharmonisingandagreeingonacommonstrategyforthepermanentreconstruction.Indeed,alotofquestionswerebeingraisedwithregardstotherepairandreconstructionoflargeinfrastructuredamagerelatedtoshelter,suchaswaterpipelinesforheating,andelectricitysystemswhichhavenotbeenmaintainedandnowrequirelargeinvestments.
R.24
PriorityForSCT:Continueeffortsoncommunicationwithlocalandregionalgovernmentontheharmonizationoftheresponse,usingthistooltoadvocatefurthercoordination.(KR-1)
4.5.9 Afurtheradvocacygapthatneedsincreasedfocusistheissueofshelterbeinganemergency
process,insteadofmerelyarecoveryprocesswhichmayprovidepermanentsheltersolutions.InNovember2015,duringaHRPpresentationtodonors,therewasadebateastowhethertheSCshouldbetalkingabout“permanentsolutions”especiallywhentherearestillemergencygaps.Somehumanitariandonorsdonotperceivepermanentreconstructionasbeingahumanitarianresponse.DonorsneedstobebetterinformedoftheSCcountrystrategy,whichincludes:“(…)provid[ing]longer-termsheltersolutionsforpopulationsseekingeitherreturnorintegrationintohost-communityforIDPs,conflictaffectedpopulation(…)”22.Furthermore,theGSCstrategyincludesrecoveryandreconstruction.
R.25 ForGSC:Advocateitspositionwithregardstodurablereconstructionandrepairsduringa
humanitarianresponse.Thereisaneedtoraisedonor’sawarenessontheGSCpositiononshelterrecoveryanddurablesolutions.Indeed,theGSC3rdstrategicobjectivestatesthatitwillthroughadvocacyandcommunication“Enhancearticulationofthelinkagesbetweenshelterriskreduction,preparedness,relief,recovery,anddevelopment,througharesilienceapproach,resultinginaseamlesstransitionfromemergencyrelieftorecoveryandreconstruction”23.
4.6 MonitoringandreportingonimplementationofShelterClusterstrategy,shelter
achievementsandcorrectiveaction(Corefunction#5)
4.6.1 ThroughtheIMsystemtheSCTmonitorstheprogressoftheactivitiescarriedoutbyitspartnerssincetheactivationofthecluster.Thishasallowedagenciestobetterunderstandthecontextinwhichtheyoperateandidentifyareaswiththehighestneeds.However,thisreviewhasalsoidentifiedlimitationstotheSCIMsystem.Refertosections4.2.9to4.2.14.
4.6.2 TheSChassetupacoordinatedPostDistributionMonitoring(PDM)systemforallcashassistance.
AgenciesusethetemplatedevelopedbytheSCandsharetheoutcomeofthePDMinareport,whichincludesrecommendationsandcorrectiveactions.Thishasbeenaneffectivetool,combinedwiththe5Wmatrix,tomonitortheprogressofthesheltersector.
4.6.3 TheSChasnotcarriedoutaClusterCoordinationPerformanceMonitoring(CCPM),whichtheIASC
recommendstobeimplementedsixmonthsaftertheonsetofanemergency.
22ShelterClusterStrategy,June2015,retrievedfromhttp://www.sheltercluster.org/23GSCStrategy2013-2017,retrievedfromhttp://www.sheltercluster.org/global
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R.26Priority
ForSCT:DiscusswithSCpartnerstheneedtocarryoutaCCPM.ThisexternalreviewcoverspartsofwhataCCPMwouldachieve,howevertheprocessandoutcomesareclearlydifferent.(KR-7)
4.6.4 Someofthekeyinformantshaverecommendedaglobalclusterarchitecturereview.Theyare
questioningthereasonsbehindtheactivationoftheclustersysteminUkraine,therelevanceoftheHC/HCT,andtheaccountabilityofOCHA,aswellastheheavycoordinationstructure,describedasself-servingratherthanasprovidingessentialhumanitariancoordinationservices.Timeandtimeagain,clustersareactivatedfollowingacrisisusingatemplateformatthatisnotadaptedtothecontext.Ukrainehasneverbeforeexperiencedasimilarcrisisandthehumanitariansystemputinplaceislackingwhenitcomestoleadershipandcoordinationwithgovernmentandcivilsociety.Whenthehumanitariancoordinationsystemfailstoaddresssuchfundamentalprinciples,onemayquestionitslegitimacy.Howcanthissystemremaineffectiveintermsofleadership,aswellasadaptabletothecontext,transparentandaccountable?
R.27
PriorityForGSCandSCT:AdvocateaUkraineclusterarchitecturereview,throughacomprehensiveandaction-orientedevaluationofthecurrenthumanitariancoordinationstructure,lookingat:(KR-9)� Coordinationstructuresadaptedtothecontext(specificallyformiddleincomecountries).� Coordinationstructuresthatenablefurtherengagementoftheauthoritiesandfurther
ownershipoflocalactors.� Coordinationsystemwithclearleadershipbyrelevanthumanitarianactors,whileremaining
transparentandaccountable.
InitiatediscussionswiththeGlobalICCGandIASCforaglobalevaluationofthehumanitariancoordinationsystem,toconsideringdevelopingcoordinationstructuresthataremoreadaptabletodifferentcontextsincludingmiddleincomecountries,andremaintransparentandaccountable.
4.7 Contingencyplanning/preparedness/capacity-building(Corefunction#6)
Q.9 Istheclustersupportingthegovernmenttotakeupacoordinationroleinthefuture?
Contingencyplanning
4.7.1 The2015SRPhadamarginalsectiononcontingencyplanningandpreparedness.ThissectionwasupdatedfollowingacontingencyplansupportmissionfromGenevainMay2015.Theoutcomeofthisexercisewasacomprehensiveinter-clusterContingencyPlan,whichincludedclusterresponsibilitiesduringthefirstthreemonthsofanescalationofviolenceresultinginincreasedvulnerabilities,displacementandpressureonhostcommunities.
4.7.2 Priortothisinter-clusterexercise,theSChadbeenleadingdiscussionssinceearlyMarch2015on
preparednessactivitiesandtrackingofwarehousecontents.AnonlinetemplateforwarehousetrackingwasadoptedbyotherclustersinMay2015,tocentralisethestockpilingofinformationandmonitoringinonedatabase.TheSCconfirmedtheywouldcontinuetomonitorwarehousestatuseswithadditionalsupportfromtheLogisticscluster24.Thishasbeenanimportantpreparednessandcontingencyplanningmeasure.
4.7.3 Atinter-clusterlevel,therehasbeenalackofpreparednessforandadequateresponsetothe
scenariooflosingaccesstoNGCA.Indeed,sinceJuly2015,mostoperationalactorshavelostaccesstoNGCA,andtheinter-clusterContingencyPlaninplaceseemstohavefailedtoaddresstheneedsofthosevulnerablecommunities.Itwasmentionedbyseveralpartnersthat:
24ShelterClusterStrategy,June2015.
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� Duetolackofaccess,fundingoriginallyallocatedforNGCAhasbeenretargetedtoGCAcommunities,leavingbehindvulnerablehouseholdsinNGCA.
� TheactorsstilloperationalinNGCAareconcernedaboutthelackofresponsetovulnerableandinaccessiblecommunities;marketsareineffective,makingcashinterventionsirrelevant.
� ManyorganisationswhohavelostaccesstoNGCAareworkingremotelythroughimplementingpartners,mainlyNNGOs,whoarethemselvesoverstretchedandoverworked.Thereisaneedforcapacitybuildingandmonitoringtoensureanadequateresponseandreducetheriskofcorruption,butlittlecanbeachievedduetoaccessrestrictions.
R.28 ForSCT:IncludeintheSCcontingencyplanasectiononsettinguparemotecoordinationsystem
forNGCAtosupportactorsoperatingonbehalfofothers.Developanagreedmechanismwithfocalpointsandinformationsharingsystem,toallowforasystematicapproachofremoteassistance,limitingduplicationofassistance,reducinggapsandallowingformonitoringofprogrammesandaccountabilitytoaffectedpopulation.
Capacitybuilding
4.7.4 CivicactivismhasbeenhighthroughoutthecrisisinUkraine,andtherewasanexistingenergyandwillingnessfromlocalactorstoengage.However,NNGOsandCSOshaveexpressedalackoffamiliaritywiththeinternationalhumanitariansystem,andrequestedcapacitybuildingandcross-fertilisationbetweenlocalandinternationalactorsinvolvedintheresponse.
4.7.5 UNHCRorganisedaCivilSocietyForuminKharkivinDecember2015whereNNGOscouldshowcase
theirorganisationandprojects.Despitesuchefforts,someNNGOshaveconveyedalackofwillingnessfromsomeinternationalorganisationstoengage.
4.7.6 SCMminutesandtheinter-clusterContingencyPlandescribedtheneedtosupportauthoritiesto
carryoutmoreeffectiveIDPtracking.SinceOctober2014,MoSPisresponsiblefortrackingIDPs,althoughduringanacutecrisistheymaynothavetheresourcesandcapacitytodeliverinatimelyandeffectivemanner.
4.7.7 TheSChasprovidedcapacitybuildingforSCpartners,includingNNGOsthroughvariousforums,
TWIGs,SCMandindividualad-hocmeetings.ThetranslationofmeetingsandkeydocumentsintoEnglish,RussianandUkrainianhasbeenessentialtoallowengagementwithnationalactors.ThishighlightstheeffortsfromtheSCTtoreachouttocivilsocietyandauthorities,howeveritwasacknowledgedbytheCCthatfurtherengagementisstillrequired.
R.29
PriorityForSCT:Increaseawarenessraisingactivitiesofclustersystemforlocalactors,includingauthoritiesandNNGOs.Bybuildingontherelationshipsestablishedandthedocumentationstranslated,thereisanopportunitytoincreasethereachoftheSC.(KR-1)AdvocatetheHCTtotaketheleadinengagingwithlocalactors,civilsocietiesandauthorities.Provideauthoritieswiththeappropriatesupport,capacitybuildingandresources.(KR-7)
Transition,de-activationandexitstrategy
Q.9 Istheclustersupportingthegovernmenttotakeupacoordinationroleinthefuture?
4.7.8 “GoodpracticesuggeststhattheHC/HCT,clustersandnationalauthoritiesshoulddeveloptransitionandde-activationstrategiesatthestartofaresponse”25
25IASCReferencemodule,July2015.
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4.7.9 Inreality,thisisdifficultinaconflictresponsewherethesituationremainsvolatile,unpredictableandcanregressrapidly.However,despiteviolationsoftheceasefireagreement,thesituationinUkrainehasimprovedduring2015.Oneyearhaspassedsincetheformalactivationoftheclustersystem,andatransitionplanshouldbediscussedandprepared.IASCguidancerecommendsanannualreviewoftheclusterandcoordinationarchitecturetobecarriedoutbytheHC/HCT,withaviewtocontinuing,deactivating,scalingdownand/orhandingoverclustersasappropriate.
4.7.10 “Theconditionfordeactivationofformallyactivatedclustersmaybeconsideredwhenatleastone
oftheconditionsthatledtoitsactivationisnolongerpresent(1)thehumanitariansituationimproves(…)(2)Nationalstructuresacquiresufficientcapacitytocoordinateandmeetresidualhumanitarianneeds”.26
4.7.11 Ukraineisamiddle-incomecountrywithsomenationalandlocalcapacitytorespondto
emergencies.Severalgovernmententitieshaveengagedintheresponse,butconsideringthedeterioratingeconomiccontextandpressureonsocialservices,thequestionremainsofhowmuchleft-overcapacityauthoritiesretainwithwhichtocoordinatetheresidualhumanitarianneeds.Theinternalgovernmentcoordinationstructure–STAB–waspartlyeffectiveintheearlystagesoftheresponse,buthasbeenlesseffectiverecently.VariousinformantsmentionedthatthehumanitariancrisisinEasternUkrainedoesnotseemtobeakeypriorityforthegovernmentinKyiv.Atregionallevel,thereareweeklymeetings,whichtheUNHCRCountryRepresentativehasattendedonce,whileOCHAseemtobeattendingoccasionally(notverified).AuthoritiesatregionallevelappearmoreopentoengagingwiththeSCandtheyhave,onseveraloccasions,hostedandopenedSCmeetingsinSloviansk.
4.7.12 Asmentionedinsection2.3,theevaluatorwasnotabletomeetwiththeauthoritiesdirectlydueto
bureaucraticrestrictions.TheissuesfacedattemptingtomeetwiththeauthoritiesinKyivillustratessomeofthechallengestheSChasfacedtryingtoengagewithauthorities.
4.7.13 AuthoritiesinKyivarefornownotreadynorwillingtotakeonfurtherrolesorresponsibilitiesinthe
humanitarianresponse.ThusthemostlikelyscenariofordeactivationoftheSCisanimprovementofthehumanitariansituation,minimisingtheneedtocoordinateresponseandgaps.Theunderlyingassumptionwouldbethattheshelterresponseisharmonised,implementingactorsknowwheretheyareworking,shelterstandardsacrossthesectorshavebeenagreed,andthatgapsareminimalandaddressedthrougheffectivecoordinationbetweenimplementingorganisationsandwiththelocal/regionalauthoritiesandcivilsociety.Inthiscase,theneedforafulltimededicatedSCcoordinationteammaynotberequired.
R.30 ForSC:InitiatediscussionsaroundtransitioninternallywithSCpartners.Developatransitionplan
involving,asmuchaspossible,nationalcounterpartsanddevelopmentactors,linkinghumanitarianandlongertermrecovery,andaligningwithnationaldevelopmentobjectives.FortheGSC:Providefurtherguidanceastohowandwhentostartthetransition.EspeciallyinacontextsuchasUkraine,wherethenatureoftheconflictismovingtowardsaprotractedcrisis,thegovernmenthascapacitybutcurrentlydoesnotseemwillingtoengagefurther.
4.8 Accountabilitytoaffectedpopulations(Corefunction#7)
4.8.1 TheGSCprovidesguidanceonAccountabilitytoAffectedPopulations(AAP)throughinformation
producedbytheGSCAccountabilityWG.Itstatesthat“Accountabilityfortheimplementationofshelterprogramslieswithclustermembers,nottheclusterteammembersthemselves(…)However,thecoordinationteamshouldbeaccountabletoclustermembers,promotingtransparencyandpositivecoordination.Shelterclustersshouldadvocatefor:
26IASCReferencemodule,July2015.
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� Inter-sectoralmessagingwithaffectedpopulations� Clustermembersseeingaccountabilityasbeingtoallaffectedpopulations,notjustthose
narrowlydefinedwithinspecificprojects� Areacoverage:ensuringthatgapsarenotinfluencedbypressuresotherthanneed.27”
4.8.2 TheSCinUkrainehasprovidedaplatformtoencouragetransparencyandaccountabilityto
affectedpopulationsthroughdiscussionsoncashassistanceandPostDistributionMonitoring(PDM).TheSC–throughtheCashWG28–developedaPDMtemplatetogeneratereportssharedwithotherclusterpartners.Thisprovidedorganisationswithatooltobetterunderstandtheimpactoftheirinterventionsandforthesectortomeasuretheeffectofshelteractivities,butonlyfocusedononetypeofassistance:cash.Hopefully,thePDMalsoencouragesorganisationstousesimilarsystemsforothershelterassistance.ThePDMprovidedfeedbackonbeneficiarysatisfaction,andhowwasthecashutilised.Acomplaintsmechanismismentioned,butnodetailedinformationisavailableonthismechanismoutsidethePDMquestionnaire.
4.8.3 AlthoughthePDMhasprovidedaplatformforaccountabilityandcommunicationwithaffected
populationswhoreceivecashassistance,thereisnoevidencethatthiswasappliedtoothershelterassistance,suchasNFIdistributions,repairsandreconstruction.Additionally,thereisnoevidenceavailableonlineofinter-clusteraccountabilitymessagestoaffectedpopulationsinUkraine.“Partoftheissuearoundofacceptanceofcashgrants/complaintsinthecommunities(i.e.thosethatgetanddon’tget)islackofbeneficiarycommunicationbymanyagencies.Packagesneedtobeclearlycommunicatedtobeneficiaries,i.e.vulnerabilitycriteriaandjustificationfortransferamounts,wheredifferent.OCHAwilltakeforwardbeneficiarycommunicationasatechnicalareatosupportintheCWG.”29Whilebeneficiarycommunicationhasbeendiscussedatclusterandinter-clusterlevel,thereisnoevidenceofafollow-up.
R.31
PriorityForSCT:Encouragetheuseofvarioustools–amongSCpartners–toincreaseaccountabilitytoaffectedpopulationsbeyondthecashPDM.Thismayincludeinter-sectoralcommunicationmessagestoaffectedpopulation;feedbackandcomplaintsmechanisms;diagnosistoolsforcommunicationwithaffectedpopulations;orbeneficiary-ledcommunityevaluation30.(KR-5)
Q10. Whatrealdifferencedidtheclustermaketothepeopleaffectedbytheconflict?
4.8.4 TheSChasindirectlymadeadifferencetothepeopleaffectedbytheconflict,byproviding
coordinationservicesthatallowimplementingagenciestoworkeffectivelyandprovidetargetedandrelevantassistance.Insomeareas,theseserviceshavehadarealaddedvalue,inotherslessso.Examplesofpositiveimpactinclude:� OutreachoftheshelterassistancethroughtheIMsystemandmapping(althoughithasbeen
notedthatgapsremain,especiallyintheNGCA).� Targetedandappropriateshelterresponse,aimingtoprovidethepeopleaffectedbythe
conflictwithnecessaryitemsandappropriateshelterassistance.� HarmonisationoftheassistancethroughTWIGs,aimingtoprovidethepopulationinneedwith
equalandfairshelterassistancefromonefamilytoanother,andacrossagencies.� Emergencyreferralsystemduringwinterisation(26outof26referralsaddressedin2015)� Providingafeedbackandcomplaintsmechanismforcashassistance,asdescribedabove.
4.8.5 ReportscomingoutofthePDMframeworkdescribedaboveshowageneralsatisfactionof
beneficiariestowardsthecashassistanceprovided.IOMstatesthatoutof644households,89%of 27AccountabilitytoAffectedPopulations,November2013,GSCAccountabilityWorkingGroup,retrievedfromhttps://www.sheltercluster.org/sites/default/files/docs/ACCOUNTABILITY-%20two%20page%20summary-2013-11-11.pdf28Priortotheactivationoftheinter-clusterCashWG29Meetingminutes,CWG21May201530AccountabilitytoAffectedPopulations,November2013,GSCAccountabilityWorkingGroup,retrievedfromhttps://www.sheltercluster.org/sites/default/files/docs/ACCOUNTABILITY-%20two%20page%20summary-2013-11-11.pdf
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respondentsaresatisfiedortotallysatisfiedwiththeprogram,and73%aresatisfiedwiththeamountofcashprovided.31ADRAreportsthatoutof820households,91%ofrespondentsaresatisfiedortotallysatisfiedwiththeprogram,and96%aresatisfiedwiththecashamount32.
4.8.6 Twofieldvisits(toSlovianskandSievierodonetsk)highlightedtheextentoftheneeds,andthe
limitedhumanitarianfundingavailabletorespond.Insomecases,organisationshavebeenunabletocomplywithminimumstandardsestablishedbytheSC,suchasthe“onewarmroom”concept,butotheragencieshavesteppedinto“topup”theassistanceforextremelyvulnerablefamilies.Aninformalreferralsystemandgoodcoordinationbetweenagencieshasfilledcertaingaps,whileothersremain.Forexample,onehousevisitedhadreceivedassistancefromtwoorganisationsbutwasstillnotcomplyingwiththe“onewarmroom”standard.Thefamilyhadbeenobligedtorentasmallsummershedwhilegatheringenoughfundstofinalisetherepairs.
Cross-cuttingissues
Q11. Werecross-cuttingissuesandvulnerabilitiesexploredandacteduponwithinthecluster?
4.8.7 TheSCStrategymentionsthattheSC“willensureattentiontoandmainstreamingofcross-cuttingissuesinallactivities,incooperationwithotherclustersasappropriate,inparticularwiththeProtectionandWASHClusters”.Thelistofcross-cuttingissuesfromtheSCStrategyare:
� Age� Disabilities� Environment� Gender� Housing,LandandProperty(HLP)� HumanRightsconsiderations,e.g.freedomofmovement� MinesandUXOs� Registration&Populationtracking� Stockpiling&contingency(refertocontingencyplanningsection)� Incomegeneration� Ownervs.rental� Humanitarianaccesstodisputedareas&conflict-affectedpopulation� Humanitarianaccesstogoods
4.8.8 Thereisevidenceofsomeoftheissuesabovebeingaddressedanddiscussed,whileothershave
beenomitted.The2015HRPidentified“protectionastheoverarchingconcernandcentraltothehumanitarianplanningandresponseofeachclusteractiveinUkraine”33.Mostcross-cuttingissueswereviewedthroughaprotectionlens,ausefulapproachfortheSCinUkraineconsideringthattheProtectionClusterisalsoledbyUNHCR,andtheproximityofCCofficesallowsforeffectivepartnershipandcross-fertilisation.Forexample,theSC’svulnerabilitycriteriaforcashassistance34wasdevelopedwithsupportfromtheProtectionCluster.Thedocumentprovidedguidanceoncashassistancemodalitiesinrelationtothefollowingcriteria:age,disability,health,gender,familysize,income,financialresilienceandsocialnetwork,housingdamage,andhousingsituation.TheSCalsoholdsacomprehensivedatacollectionofpopulationfiguresanddisplacementdata,whichisanalysedbytheSCTonamonthlybasis,andpresentedanddisseminatedthroughmapsandtables.
4.8.9 Whilethevulnerabilitycriteriadocumentwasperceivedasausefultool,itswiderdissemination
andusewashinderedbythefactthatitonlyappearedontheclusterwebsiteinAugust2015,andwascategorisedunder“cashassistance”.Manyofthecriteriaarealsohighlyrelevantforother
31“PreliminaryResultsofPDM,CashAssistancetoIDPsin10Regions”,IOM,October2015.32PDMreportprovidebyADRA,CashAssistancetoIDPs,October2015.33HRP2015,retrievedfromhttps://www.humanitarianresponse.info/34VulnerabilityCriteriaforCashAssistance,retrievedfromhttp://www.sheltercluster.org/response/ukraine
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shelterassistance,especiallywhenconsideringthatthisistheonlydocumentonbeneficiaryselectionandvulnerabilityavailableonthewebsite.
4.8.10 MinutesfromanumberofSCMshowdiscussionsandcontributionsfromclusterpartnersoncross-
cuttingissues.HelpAgeprovidedinputstothevulnerabilitycriteriadocumentmentionedabove.HandicapInternationalgaveapresentationondisabilityinclusionatnationalandsub-nationallevel.Butdespiteinitiativestoexploreanddiscusscross-cuttingissuessuchasage,disability,gender,andenvironment,specificandsystematicguidancefromtheSCislacking.
R.32
PriorityForSC:ActivateavulnerabilityWGoridentifyafocalpointwiththefollowingtasks:� Developcluster-wideguidanceonvulnerabilityandbeneficiaryselection,developingacluster-
specificscoringsystemtosupportagenciesintheirprioritisation35.� Createamatrixwhichprovidesguidanceonvulnerabilitiesmatchedwithshelterassistance
type,allowingagenciestoprioritisetheirassistancewhileminimumstandardsaremet.(KR-5)
4.8.11 Asprotectionwasconsideredacross-cuttingissuetotheresponseintheHRP2015,somespecificaspectssuchasage,genderanddisabilitywouldbeinterestingtodiscussattheinter-clusterlevel.Forexample,inthePhilippinesandPakistan,anactive“AgeandDisabilityTaskForce”providedsupportandguidancetotheclusters.WhilethisisnotadirectresponsibilityoftheSC,thisrepresentsanopportunityforSCpartners.
R.33 ForSCT:RequesttheICCGtoactivateanAccountabilitytoAffectedPopulationWGoran
AccountabilityTaskForce,toaddressconcernsrelatedtobeneficiarycommunication,transparencyandaccountability.ExamplescanbefoundinothercountriesanditisbelievedtobeparticularlyrelevantinUkraine,especiallyconsideringthestrengthofcivilsociety.ThiscouldbeanopportunityforSCpartnerwithaspecificexpertiseinageanddisabilityinclusion,oranyothercross-cuttingissues,totakethelead,developinter-clusterguidanceandcontributetobettermainstreaming.
35RefertoSCPhilippines,Beneficiaryselectionandrecommendationsontargetingandprioritisationasanexample,availableathttps://www.sheltercluster.org/sites/default/files/docs/prioritisation_final_v1_2.pdfandhttps://www.sheltercluster.org/sites/default/files/docs/Beneficiary%20Selection%20Criteria%20-%20Background%20Document%201.pdf
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Annex A. ListofRecommendations
Clusterleadership
R.1Priority
ForUNHCRandGSC:IncreaseinternalawarenessofUNHCRstaffontheclustersystem.DevelopandprovideastandardinformationpackageforUNHCRCountryRepresentativesandUNHCRstaffontheirroleandresponsibilitiesasCLA.ThisguidanceshouldexplainthecoordinationroleofUNHCRinrefugeeoperationsversusanIDPcontext,andshouldaddressmanagementandreportinglinesbetweenUNHCR-ledclustersandUNHCRstaffinmain-office,sub-officesandfield-offices.(KR-6)
Clusterpersonnel
R.2 ForCLAandGSC:TheindependenceoftheCLAfromtheSCTisessentialinenablingtheviewsandinterestsoftheentiresectortoberepresented.ItisthereforerecommendedthatUNHCRandtheGSCdeploydedicatedteamstoruntheSC,andinparticulardeployadedicatedCC.36
GlobalShelterCluster/HQSupport
R.3 ForGSCandSCT:Improvecross-fertilisationbetweendifferentcountryclusters.ItwasrecognisedthatinJuly2015,theGSChassetupaGooglegroupforthatpurpose.
R.4 ForGSCandSCT:Improvecommunicationbetweenglobalandcountrylevelthroughregularscheduledupdates,onamonthlyorquarterlybasisdependingonneeds.ThiswouldallowtheGSCtoprovidemoreappropriatesupport,anticipatingcertainissuesandprovideaplatformofexchangefortheCC.
RelationswithIASCactors
R.5 ForGSC:Provideglobalguidanceonwhichinter-clustercoordinationtools,reports,andreviewsaregenerallyperceivedasapriority,whichonesarecompulsoryfortheSCtocontributeto,andwhichonesarealowerpriority.RefertoAnnexG.
R.6 FortheSCT:Lessonslearnthaveshowntheimportanceofstrengtheningpositiverelationships,thusitwouldberecommendedfortheSCTtofocusontheirrelationshipwithOCHAinthefield.
Coordinationmanagement
R.7Priority
ForCCandSCT:WhileasmallandfunctionalSCMcanbeaneffectivedecisionmakingplatformforstrategicpriorities,itisrecommendedtoestablishaSAGwithagreedToR,acommittedgroupoforganisationsincludinganactiveparticipationofrelevantdonors.SAGmembers’responsibilityextendsbeyondregularclusterattendance,andshouldbeformalised.(KR-4)
R.8Priority
ForSCT:StandardisetheinformalsheltermeetingsthatarenotledbytheSCT,whilstremainingflexibleandsupportivetothoseleadingthem.FormalisingthedecentralisedhubswouldenabletheSCTtoimproveitsleadershiprole,strengtheninformationflows,andallowfortheSCTtobeproactiveratherthanreactive.ThiscouldalsoprovidetheSCwithfurtherreach,withregardstothecoordinationservicesprovidedtopartners.(KR-2)� Identifyfocalpoint(s)toreporttoSCT� AnnouncemeetingsthroughtheSCmailinglistsothatotheractorsintheareamayattend� Shareminutesofmeetingtemplatewiththoseleadingthemeetings� Requestminutesofmeetings,andsharewithSCpartnersforaccountabilityand
preparednessmeasures� PromoteSCreportingtools(5W)� Sharecontactlists
36RefertoIASCReferenceModule,July2015,p5andp11.
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R.9Priority
ForSCT:Developanddisseminateanorganisationalmapofthecoordinationstructure,37withthesub-nationalsubanddecentralisedhubs.ThiswouldprovidetheSCTwithfurtheraccountabilityandtransparencyonthecoordinationstructurealreadyinplace.(KR-2)
R.10 ForSCT:Consolidateasystematiccoordinationmanagementapproachby:� SharingdraftSCMagendapriortoSCMwithpartnersallowingthemtocontributeitems.� Consistentlydraftingandsharingofmeetingminutes:includingnameoforganisations
attendingforaccountabilityandreportingpurposes,andrecordingofkeydecisions.� UploadallmeetingminutesandrelevantdocumentsontheSCwebsite,withrelevanttags.Whenandwherepossible,allowremoteattendanceviatelecomtoextendthereachofSCM.
Informationmanagement
R.11 ForSCT:ImprovethedisseminationofinformationthroughconsistentuploadofalldocumentssharedwithSCpartnersontheSCwebsite,essentiallyusingthewebsiteasadepositoryofdata.AmoreeffectiveuseofthewebsitecouldallowSCpartnerstofindtheinformationtheyneedindependentlyandthiswouldreducetheneedforone-to-oneintensivepartnersupport.
R.12Priority
ForSCandSCT:Workonimprovingtheoverallbaselinedata,includingGCAandaccessiblepartsofNGCA.ThedatashouldincludehousingdamageandvulnerabilitiesofalltargetgroupsdetailedintheSCstrategy.TheSAGshouldadviseonhowtocarryoutsectoralassessments,definingthetargetpopulationandgeographicalarea.LeverageonCLAandco-chairwithaccesstoDonetskandLuhansktogatherfurtherdataonlocalitieswhereothersmightnothaveaccess.(KR-3&4)
R.13Priority
ForSCT:Continuetoprovideanoverviewofthecontext,whilealsoproducingmoredetailedneedsandgapsanalysis,maps,graphsandotherusefultoolsrelevantaimedatthefieldlevel.ExploreopportunitiesofimprovingtherepresentationofSCobserverswithsensitivedata(suchasICRC)intheanalysistoprovideacleareroverviewofthecoverageandgaps.(KR-3)
InformingHC/HCTstrategicdecision-making
R.14Priority
ForGSCandUNHCR:RequestforaccountabilityandtransparencyoftheICCGandHCT,byaskingHCT/OCHAforallmeetingminutes,reports,assessmentsandotherrelevantdocumentsproducedforICCGandHCTmeetingstobesharedandpublishedonhumanitarianresponse.info.
R.15Priority
ForUNHCRandSCT:RequesttheHCTtoactonits’decisionfromtheJuly2015retreat,toinviteCCstoHCTmeetings.Untilthen,theSCTistoprovidetheCLArepresentativewithSCupdatespriortoeachHCTmeeting,andorganiseadebriefingsessionwiththeSCTafterwards.(KR-7)
R.16 ForUNHCRandSCT:AdvocatetheHCTtoexplorewaysofinvolvingthedonorcommunityinthishumanitarianplatform,withtheaimofincreasingitsrelevanceandeffectiveness.
Shelterclusterstrategy
R.17Priority
ForSCT:Developastandardpackageofkeydocuments.Forexample,theSCPhilippineshaddevelopedaTechnicalIndexdocumentwithlinkstoallkeytechnicaldocuments.ThiswasausefultooltoincreasethedisseminationofkeydocumentstonewSCpartners,andtohandoverallkeySCdocumentstonewlyarrivedstaff.(KR-3)
R.18 ForSCTandSC:RefineSCstrategicprioritieswithstrongerdataforNGCA.TheSCshouldworktowardsidentifyingthespecificneedsandassistancerequiredinNGCAandbetterguidegeographicalprioritisation,differentiatingtheneedsofDonetskandLuhanskastwodistinctlocations.TheSChastheadvantageofbeingledbyPINandUNHCR,bothwithaccesstoNGCA.
37ForanexamplerefertoSCPhilippinesHubOverviewonsheltercluster.org
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R.19 ForSCT:InvolveddonorsinthedevelopmentoftheSCsectionoftheHRP.
Workinggroups
R.20 ForSCT:ContinueitseffortsinidentifyingtechnicalissuesandaddressingthemthroughTWIGs.
CashWorkingGroup
R.21 ForGSC:Suchcountry-leveldisagreementsmayhaverepercussionsontheSCnotonlynationally,butalsogloballyasthesedecisionscouldbeusedasprecedentsofgoodpracticeforfutureemergencies.WhentheGSChasapositionthatisnotalignedwithdecisionsmadeatcountryleveltheseneedtobeformallyexpressed,documentedandaddressedatgloballevel.
R.22Priority
ForGSC:Providededicatedcashexpertiseand/orspecificSCguidanceoncashprogramming,includinghowtodefinecashtransfervalues,andhowtodealwithmulti-purposecashgrantsattheinter-clustercoordinationandHC/HCTlevel.(KR-8)
ForSCTandGSC:Advocateallinter-clusterCWGtoprovidetechnicaladvicetothesectors(ratherthanbecomingsector,creatingseparatesectionsundertheHRP).Thereisaneedtoprovideclearguidanceonthedifferentcashmodality,MPGC,conditionalcash,restrictedcash,unconditionalcash,aswellasdefiningthecashterminologies,andprovidingrelevanttools.
Shelteradvocacyandcommunication
R.23 ForSC:Ensurethatabroadrangeofrelevantissuesareaddressedintheadvocacymessagesdevelopedbythecluster,notsolelyfocusingononespecificchallenge.
R.24Priority
ForSCT:Continueeffortsoncommunicationwithlocalandregionalgovernmentontheharmonizationoftheresponse,usingthistooltoadvocatefurthercoordination.(KR-1)
R.25 ForGSC:Advocateitspositionwithregardstodurablereconstructionandrepairsduringahumanitarianresponse.Thereisaneedtoraisedonor’sawarenessontheGSCpositiononshelterrecoveryanddurablesolutions.
Monitoring
R.26Priority
ForSCT:DiscusswithSCpartnerstheneedtocarryoutaCCPM.ThisexternalreviewcoverspartsofwhataCCPMwouldachieve,howevertheprocessandoutcomesareclearlydifferent.(KR-7)
R.27Priority
ForGSCandSCT:ForGSCandSCT:AdvocateaUkraineclusterarchitecturereview,throughacomprehensiveandaction-orientedevaluationofthecurrenthumanitariancoordinationstructure,lookingat:(KR-9)� Coordinationstructuresadaptedtothecontext(specificallyformiddleincomecountries).� Coordinationstructuresthatenablefurtherengagementoftheauthoritiesandfurther
ownershipoflocalactors.� Coordinationsystemwithclearleadershipbyrelevanthumanitarianactors,whileremaining
transparentandaccountable.
InitiatediscussionswiththeGlobalICCGandIASCforaglobalevaluationofthehumanitariancoordinationsystem,toconsideringdevelopingcoordinationstructuresthataremoreadaptabletodifferentcontextsincludingmiddleincomecountries,remaintransparentandaccountable.
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Contingencyplanning
R.28 ForSCT:IncludeintheSCcontingencyplanasectiononsettinguparemotecoordinationsystemforNGCAtosupportactorsoperatingonbehalfofothers.Developanagreedmechanismwithfocalpointsandinformationsharingsystem,toallowforasystematicapproachofremoteassistance,limitingduplicationofassistance,reducinggapsandallowingformonitoringofprogrammesandaccountabilitytoaffectedpopulation.
Capacitybuilding
R.29Priority
ForSCT:Increaseawarenessraisingactivitiesofclustersystemforlocalactors,includingauthoritiesandNNGOs.Bybuildingontherelationshipsestablishedandthedocumentationstranslated,thereisanopportunitytoincreasethereachoftheSC.(KR-1)AdvocatetheHCTtotaketheleadinengagingwithlocalactors,civilsocietiesandauthorities.Provideauthoritieswiththeappropriatesupport,capacitybuildingandresources.(KR-7)
Transition,de-activationandexitstrategy
R.30 ForSC:InitiatediscussionsaroundtransitioninternallywithSCpartners.Developatransitionplaninvolving,asmuchaspossible,nationalcounterpartsanddevelopmentactors,linkinghumanitarianandlongertermrecovery,andaligningwithnationaldevelopmentobjectives.
FortheGSC:Providefurtherguidanceastohowandwhentostartthetransition.EspeciallyinacontextsuchasUkraine,wherethenatureoftheconflictismovingtowardsaprotractedcrisis,thegovernmenthascapacitybutcurrentlydoesnotseemwillingtoengagefurther.
Accountabilitytoaffectedpopulation
R.31Priority
ForSCT:Encouragetheuseofvarioustools–amongSCpartners–toincreaseaccountabilitytoaffectedpopulationsbeyondthecashPDM.Thismayincludeinter-sectoralcommunicationmessagestoaffectedpopulation;feedbackandcomplaintsmechanisms;diagnosistoolsforcommunicationwithaffectedpopulations;orbeneficiary-ledcommunityevaluation.38(KR-5)
Cross-cuttingissues
R.32Priority
ForSC:ActivateavulnerabilityWGoridentifyafocalpointwiththefollowingtasks:� Developcluster-wideguidanceonvulnerabilityandbeneficiaryselection,developinga
cluster-specificscoringsystemtosupportagenciesintheirprioritisation.39� Createamatrixwhichprovidesguidanceonvulnerabilitiesmatchedwithshelterassistance
type,allowingagenciestoprioritisetheirassistancewhileminimumstandardsaremet.(KR-5)
R.33 ForSCT:RequesttheICCGtoactivateanAccountabilitytoAffectedPopulationWGoranAccountabilityTaskForce,toaddressconcernsrelatedtobeneficiarycommunication,transparencyandaccountability.ExamplescanbefoundinothercountriesanditisbelievedtobeparticularlyrelevantinUkraine,especiallyconsideringthestrengthofcivilsociety.ThiscouldbeanopportunityforSCpartnerwithaspecificexpertiseinageanddisabilityinclusion,oranyothercross-cuttingissues,totakethelead,developinter-clusterguidanceandcontributetobettermainstreaming.
38AccountabilitytoAffectedPopulations,November2013,GSCAccountabilityWorkingGroup,retrievedfromhttps://www.sheltercluster.org/sites/default/files/docs/ACCOUNTABILITY-%20two%20page%20summary-2013-11-11.pdf39RefertoSCPhilippines,Beneficiaryselectionandrecommendationsontargetingandprioritisationasanexample,availableathttps://www.sheltercluster.org/sites/default/files/docs/prioritisation_final_v1_2.pdfandhttps://www.sheltercluster.org/sites/default/files/docs/Beneficiary%20Selection%20Criteria%20-%20Background%20Document%201.pdf
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Annex B. TermsofReference
EvaluationoftheEmergencyShelterandNonFoodItemsClusterintheUkraine1. BackgroundInNovember2013,thedecisionoftheGovernmentofUkrainetoabandonanagreementthatwouldstrengthentieswiththeEUsparkedlargescaleprotests,andinFebruary2014violentclashesbetweendemonstratorsandlawenforcementtookplaceinKiev.InMarch2014,areferendumonstatuswasheldintheAutonomousRepublicofCrimea,leadingtoafirstwaveofdisplacementofpersonsfromCrimea.ViolenceintheDonbasregionineasternUkrainehasintensifiedsinceMay2014,withasecondwaveofdisplacementoccurringinJulyandmajorhumanitarianneedsemerging.Followingeventsinnon-governmentcontrolledareasofDonbasfromautumn2014,changeinconflicttrendshaveledpeopletoreturnhomeandthenforcedthemintodisplacementagain.InOctober2014,theGovernmentofUkraineannouncedadedicatednewIDPregistrationsystem(Resolution#509)alongwitharesolutiononstateprovisionofcashassistancetocoverutilitybillsforallregisteredIDPsfor6months(Resolution#505).ALawonIDPswasadoptedbytheGovernmentofUkraineinOctober2014,includingprovisionsforthenewregistrationsystemandoutliningofestablishmentofrightsofIDPstofreeaccommodationandemployment.Initially,withmoderatelylownumbersofdisplacedpersons,hostingcommunitiesandvolunteergroupstackledthecrisiswell.However,withfurtherincreaseofIDPscomingperdaytheneedsexceededthecapacityofexistingsocietalmechanismstorespond.InDecember23,2014theClustersystemwasofficiallyactivatedbytheEmergencyReliefCoordinatortoenhancecoordinationamongmembersofthehumanitariancommunity.UNHCRwasappointedastheleadagencyfortheEmergencyShelterandNFIscluster.InJanuaryandFebruary2015athirdwaveofmassdisplacementoccurredfromareasundershelling(Debaltsevocrisis).Asof1stJune2015thereare1.3millionpersonsregisteredasdisplacedbytheMinistryofSocialPolicy,withfluctuatingpopulationmovementsincludingsecondarydisplacement,commutingacrossthecontactline,andreturns.TheEmergencyShelterandNonFoodItemsClusterispartneredwiththeMinistryofRegionalDevelopment&MinistryofSocialPolicyandledbyUNHCRwithvariousNGOpartnerscoordinatingtoprovideanappropriateresponsetothecrises.NationalcoordinationisconductedinKievwithsub-nationalcoordinationoccurringinvariousareasasillustratedbelow.Office/location ClusterMechanism Regularityof
meetingsHostingorganization
Status
National NationalCluster Weekly UNHCR ActivatedNorthernDonbasSeverodonetsk,Sloviansk,Iziumtobediscussed
Sub-national fortnightly PIN Activated
SouthernDonetsk,(mariupol,berdiansk,Nikopol,zaparojihie)
Sub-national(inproject)
Fortnightly
Tobedetermined
Inprojectinregardofthegrowingnumbersofpartners.PreviousUNHCRdecentralizedmeetinginMariupolnotworking.Possibilitytoidentifyasub-nationalclusterforthisarea
Dniepropetrovsk Decentralizedcoordinationmeeting
FortnightlyOnhold
UNHCR Activated,onholdfromMay2015
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Kharkiv Decentralizedcoordinationmeeting
FortnightlytillMay2015,actuallymonthly
UNHCR Activated
Kiev Decentralizedcoordinationmeeting
FortnightlytillMay2015,actuallymonthly
UNHCR Activated
Donetsk DecentralizedcoordinationmeetingorSub-nationalcluster(tobediscussedifassociatedwithLuhansk)
Fortnightlyoraccordingtofeasibility
UNHCR(compulsory)
Activatedbutirregularduetoregistrationissues
Luhansk DecentralizedcoordinationmeetingorSub-nationalcluster
Fortnightly
UNHCR(compulsory)
Inproject
2. EvaluationpurposeUNHCRShelterandSettlementsSectionseekstoreviewtheeffectivenessofthecoordinationservicesprovidedbytheUNHCR-ledEmergencyShelterandNFICoordinationTeamtothehumanitarianresponsetotheUkrainecrisisthatbeganin2014.Theevaluationistoidentifykeylessonsfromwhathasbeenachievedthusfarandrecommendationstoimproveandinformfuturecoordinationoftheongoingresponse.UNHCRwillusetheevaluationoutcomesandrecommendationstoimprovefuturedeploymentsintosimilarcrises.TheUNHCR-ledcoordinationteammemberswilluseittolearnfromthefindingsandimprovecurrentpractices.ThiswillbecompletedthroughaManagementResponsePlanthatwillbecompleteddetailingwhichrecommendationsareaccepted,whichwillbeactedupon,bywhom,andwhenandthatprogressontheimplementationofthiswillbemade.Thereportwillbepublicandavailableatsheltercluster.orgallowingtheHumanitarianCountryTeamtouseittoinformthecurrentcoordinationarrangementsfortheshelterresponseintheUkraineandClusterpartnersmayuseitasreferenceforimprovingtheirshelterresponseasrelevant.Assuchthemainpurposeoftheevaluationisasfollows:
1. AppraisetheserviceprovidedbytheUNHCRcoordinationteamtotheparticipatingclusteragenciesincludingGovernment,UNagencies,RedCrossRedCrescentMovement,NGOsbothnationalandinternational,andotherrelevantactors.
2. Understandthemembersengagementandthebenefitsoftheirparticipationintheclusters3. ReviewandanalysetheexperienceofUNHCRwithrespecttotheestablishmentandoperationofthe
EmergencyShelterandNFICluster,withaparticularemphasisonlessonstobelearntforfutureoperationsanddeployments.
4. Appraisetheapproachandmanagementoftheclusteractivitiesundertakenatasub-nationallevelandtheireffectiveness.
5. ExaminetheactivitiesundertakenbytheEmergencyShelterandNFIClusterandtheirrelevancetothesectorwithafocusoncashprogramming.
6. Reviewandevaluatetherelationswithothersectors,theIASCcoordinationactors,theGovernment/INGOandothercoordinationmechanismsincludinginter-clustercoordinationasapplicable
7. ExamineanyworkinggroupscurrentlywithintheEmergencyShelterandNFIClusterfortheirrelevanceandiftheseshouldcontinuewitharecommendationontheresourcesrequiredtosupportsuchworkinggroups.
8. ProviderecommendationswithregardtoUNHCRsleadershipoffutureemergencyshelterclustercoordinationactivities.
9. EvaluatetherelationsbetweentheclusterandUNHCRatCountry,RegionalandGloballevels.
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3. EvaluationscopeTheevaluationistocovertheperiodfromthetimeofclusteractivationtothepresentdaycoveringthedifferentcoordinationdeploymentsundertakenandthegeographicareasofbothcoordinationandshelteractivities.ParticularfocusistobeonthenationalcoordinationactivitiesundertakeninKyiv,sub-nationalcoordinationactivitiesundertakeninNothernDonbass(DonetskaandLuhanskaGovernmentalcontrolled)andtoacertainextentinDonetskaNonGovernmentalControlledArea,Dnipropetrovska,Kharkivska,andZaporizka.Theevaluationisalsotoappraisetheeffectoftheclustercoordinationactivitiesonthetypeofshelterresponse,thedeliveryofsheltermaterialsandimpactonbeneficiaries.4. EvaluationcriteriaTheevaluationistofollowtheOECD/DACcriteriaasperbelow:Relevance.Theextenttowhichtheaidactivityissuitedtotheprioritiesandpoliciesofthetargetgroup,recipientanddonor.EffectivenessAmeasureoftheextenttowhichanaidactivityattainsitsobjectives.EfficiencyEfficiencymeasurestheoutputs--qualitativeandquantitative--inrelationtotheinputs.ImpactThepositiveandnegativechangesproducedbyahumanitarianintervention,directlyorindirectly,intendedorunintended.SustainabilitySustainabilityisconcernedwithmeasuringwhetherthebenefitsofanactivityarelikelytocontinueafterdonorfundinghasbeenwithdrawn.Projectsneedtobeenvironmentallyaswellasfinanciallysustainable.InadditiontotheOECD/DACcriteriaabovethefollowingcriteriawillbefollowed:ClusterCorefunctionsandsupportingfunctions:
- Clusterleadership- Clusterpersonnel- Strategy,planning,policyandstandards- Informingstrategicdecision-makingbytheHC/HCT- Contingencyplanning/preparedness/capacity-building- Clusterresourcesandpartnerships- Supportingshelterservicedelivery- Shelteradvocacyandcommunication- MonitoringandreportingonimplementationofShelterClusterstrategy,shelterachievementsand
correctiveactionOtheradditionalcriteria,
- Lessonslearnedfromotherclusterdeployments- Clustercontributiontoshelterresponse- Accountabilitytoaffectedpopulations- Attentiontocross-cuttingissues,i.e.
• age• disability,• environment• gender,• HIVandAIDS• humanrights
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• mentalhealth• minesandotherexplosivedevices
- Spherestandardsandindicators- ShelterClusterstandardsandindicators
5. MainevaluationquestionsTheevaluationistoensurethatthefollowingquestionsareaddressedthroughvariousmethodsofinformationcollectionandarerelatedtothecriteriaabove.Anyadditionorreductioninthelistofquestionsbelowistobearticulatedintheinceptionreportandagreedwiththeinternalevaluationmanager.
- DidtheShelterClusterfulfilitscorefunctionsasdefinedbytheIASC?- Towhatextentdidtheclusteraddvaluetotheresponseundertakenbyshelteractors?
- Whatrealdifferencedidtheclustermaketothepeopleaffectedbytheconflict?- Wouldithavebeenpossibletoaddthesamevalueinamoreefficientway?
- Istheclustersupportingthegovernmenttotakeupacoordinationroleinthefuture?- Hastheclustereffectivelysetitspriorities?Arethereanygapsintheprioritiestheclusterhasset?
- HastherelationshipwiththeHCTandtheclusterbeeneffective?- Havelessonslearntfrompreviousclusteractivationsbeenutilised?- Didtheclusterdoenoughadvocacytodonors,governmentandothers?
- Werecross-cuttingissuesandvulnerabilitiesexploredandacteduponwithinthecluster?- WasthereevidenceofsupportfromtheGlobalShelterCluster?
6. MethodologyThemethodologywillbedevelopedbasedontheShelterClusterEvaluationGuidelinesandshouldinclude;
a. DeskReview- Reviewofavailabledocumentedmaterialsrelatingtothestart-up,planning,implementation,andimpactof
theEmergencyShelterandNFICluster.Allrelevantdocumentationisavailableathttps://www.sheltercluster.org/response/ukraine
b. DataCollectionandStakeholdersAnalysis- InterviewswithShelterClustermemberagencies(NGOsandINGOs)- InterviewswithotherUNagenciesparticipatinginShelterCluster.- Interviewswithregionalshelterclusterleadagenciesandco-chairs.- InterviewswithotherclusterleadlikeProtection,WASH,CCCMclustersandOCHAtoanalysetheinter-
clustercoordinationmechanism.- InterviewswithkeyNGO/INGOstaffthathavehadakeyrole(SAG,TWIG,sub-nationalcoordination)in
theshelterclustercoordination.- Informalinterviewswithbeneficiariesduringsitevisitswherepossible- Observationsoftheimpactandacceptanceofshelterinterventionsonthelivesofbeneficiaries
*Asuggestedlistofintervieweeswillbeprovidedtotheevaluatorc. ThistermsofreferenceistobesharedwiththeSAGinUkraineallowingsomeaugmentationtobestsuitthe
requirementsofthecontext.d. DraftreporttobesharedwiththeUNHCRCountryRepresentative,theCoordinator,theUkraineSAGandthe
SSSinGenevae. Thefinalreportandmanagementresponseplanwillbepubliclyavailable.
7. Risks,constraintsandassumptionsTheongoingtensionsintheaffectedareasmaynecessitatechangesintheoperationalsituationandpossiblypreventaccesstotheaffectedregionwithlittlenotice.
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Humanitarianassistancecontinuestobehinderedinnon-governmentcontrolledareasduetotheregistrationprocessbydefactoauthorities.FurthertothepotentiallackofaccesstoaffectedareasthereisalackofreliablebaselinedataandfurthermoreIDPpopulationbaselineisrelyingonMinistryofSocialPoliciesdatawhichisunderrevision.Furthermore,duetosecurityconstraintalongthecontactlineandalsowithintheNonGovernmentalControlledArea,datacollectionremainsexceedinglydifficult.ThemovementofpopulationandsecondarydisplacementareverydifficulttoestimateduetothelargegeographicalterritoryofUkraineandthefluidityofthepoliticalsituationmaytriggerrapidchangesintermsofPopulationofConcern(returnornewdisplacement).TheaffectedpopulationandmanyofthepartnersworkmainlyinRussian/Ukranian.InKievatranslatorcouldbeprovided,butforfieldvisittheconsultantshouldsecuretranslationcapacityifrequired,thisiscommonlyavailableforapproximately$100-150USDperday.Theconsultantshallforeseealimitedrequestintermoftranslationsupportandbeabletopartiallybeabletocopewiththelanguagebarrier(30%ofthemission).AssistancefortransportationtoandaroundfieldsitesislimitedduetooperationalprioritieshoweverUkrainehasafunctioningrailnetworkandtaxisarereadilyavailableinallareas.Thecluster’smembercompositionchangeswithainfluxofinternationalNGOfirstandsecondquarterof2015.Furthermore,thesemissionsopeninginduceahighturnoveroftheirstaffandonlyrecentlyclustermemberstaffingstabilisedwithanabilitytocapitaliseinstitutionalmemory.ItisassumedthatClusterpartnersandotheragenciesarewillingtoshareinformationaboutactivities,achievementsandchallenges(includinginternalorganisationalchallenges).Atboththenationalandsub-nationallevelUNHCRandClusterpartnerswillattempttofacilitatethemissiontoensuretheconsultantisabletofulfiltheircommitments.8. ScheduleTheevaluationwillbeimplementedduringapproximately30-40daysoveratwo-monthperiodbetweenNovemberandDecember2015.Atotalof15-20daysofthisperiodwillbespentinthefield.Thereportmusthavebeensubmitted,reviewedandacceptedbytheShelterandSettlementSectionandallfinancialtransactionsmusthavetakenplacebeforetheendofthisperiod.Amoredetailedtimelinewithdeadlinesanddeliverableswillbeincludedintheinceptionnotementionedbelow.Approximatetimingofthemissioncouldpotentiallycover:
- 5to7daysatnationallevel(Kyiv)focusingongeneralclusteraspects- 5to7daysatsubnationallevel(Sloviansk,Severodonetsk)focusingonfieldaspectonpriorityzonenearthe
contactline.- 2to4daysinKharkivorDniepropetrovskreviewingclusterinvolvementonfieldlevelinareadistanttothe
contactline.9. Mainoutputs
1. Inceptionreport(asampleformatwillbeprovided)inEnglish2. DraftEvaluationreportinEnglishwithexecutivesummary,keyrecommendationsandsupporting
information.Thisdocumentwillbereviewedbytheevaluationmanager,theUkraineShelterClusterCoordinator,theUNHCRrepresentative,andtheUkraineClusterSAG.Thesestakeholderswillprovidecommentsandclarificationstothereportofwhichtheexternalconsultantshouldtakeintoaccount.Alterationstothefinalreportasaresultofcommentsshouldbeevidencebased,restrictedtoclarificationsandforoperationalsecurityissues.
3. FinalEvaluationreportnotexceeding40pagesinEnglishwithexecutivesummary,keyrecommendationsandsupportinginformation.Thisdocumentwillbecompletedbyaddressingtheclarificationsmadetothedraftdocument.ThisdocumentwillbethebasisfortheManagementResponsePlan.
4. Recommendationsrelatingtotheclusterstructureandsystemstosupportfutureactivationand/orclosureinUkraine.Asannexes:
5. Additionalnotes,summariesofinterviewsetc.asappropriateorsupportingdocumentation.
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6. Summaryofreviewactivitiesundertakenincludinginterviews,visits,documentsreviewedetc.7. Commentsonuseandapplicabilityofshelterclusterevaluationguidelines
Expectedtimelinefortheevaluation:- Selectionofevaluator/sandsigningofcontractbyendOctober- InceptionReportfirstweekofNovember- DesktopreviewcompletedbyendsecondweekNovember- UkrainefieldworkcompletebyendsecondweekDecember- DraftreportsubmissionpriortoendDecember- FinalreportsubmittedendJanuary2016
10. Evaluator(s)TheevaluationwillbecarriedoutbyanexternalindependentconsultantwithsupportofaninternalevaluationmanagerfromUNHCRinGenevaandthecoordinationteamintheUkraine.
- ExternalIndependentConsultant:leadstheevaluationprocess,carryoutthedeskreview,dotheinterviews(skypeorphone),planthetriptotheUkraineincoordinationwiththeevaluationmanagerandthecoordinationteamontheground,leadthefieldvisit,leadtheinterviews,writethedraftevaluation/review,finalizetheevaluation/reviewaccordingtothecommentsreceived.
- InternalEvaluationManager:Adviseonthepreparationofthetrip,givefeedbackandorientationonthepeopletobeinterviewed,givebackgroundtotheissuesraisedbytheintervieweesasrequired.Givecommentstothedraftevaluation/reviewandanyotheractionsthattheyandtheexternalconsultantmightfindusefulfortheevaluation/review.
TheevaluatorwillhaveathoroughunderstandingofHumanitarianReformandtheTransformativeAgenda,oftheIASCandUNHCRguidancerelatedtotheShelterCluster,andofthecontextinUkraine,preferablywithpreviousexperienceinthecountrybutnotdirectlylinkedtothecurrentESNFIclusteroperationsinUkraine,oranyotherconflictofinterestthatwouldinterferewiththeindependenceoftheevaluation.11. Management
UNHCRwillprovideacomprehensivesecuritybriefing,theconsultantwillberequiredtoabidebythesecurityprotocolsofUNHCRatalltimes.Theconsultantwill,priortoacceptanceofanycontracthavecompletedboththebasicandadvancedonlinesecuritytrainingthroughtheUNHCRwebsiteandagreetorelevantcodeofconductrequirements.UNHCRwillarrangetravelbookingstoKyivandprovidereasonableassistanceinobtaininganyrequiredvisaforworkbeingundertakeninUkraineandGenevaifrequired.Accommodation,interpretation,workspace,otherlogisticswhileinUkrainewillbefacilitatedbyUNHCRinKyiv.AccommodationandworkspaceifrequiredwillbeprovidedwhileinGenevabyUNHCRShelterandSettlementsSection.Thescheduleoffeesonceagreedisasfollows: 30%afteracceptanceoftheinceptionreport 30%afterdraftreportreceived 40%afterfinalreportapproved
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Annex C. ListofKeyInformants
Organization/title # Name(s) Location20/11 GSC,GFPforUkraineuntilAugust2015 1 DavideNicolini Geneva*23/11 UNHCR,ShelterOfficer,Dniepropetrosk 2 Andreaparisi Kyiv
ProtectionClusterCoordinator 3 ChristineGoyer Kyiv24/11 PIN,SitevisitofhouserepairsinSemenovka,Sloviansk 4 ViktorGladchenko Sloviansk
PIN,ShelterProgrammeManager 5 AndrewMeyer Sloviansk ShelterCluster,Co-chairandsub-nationalCC 6 KateHolland Sloviansk
25/11 ICRC,Delegate,WatHabEngineer 7 AleksanderMailyan Sloviansk ADRA,ProjectDirector 8 MariaSliacka Sloviansk UNHCRHeadofsub-office,Kharkiv 9 AslakGimseSolumsmoen Sloviansk
26/11 SOS-Kramotorsk/RegionalGovtAdvisor 10 AleksanderVoroshkov Kramotov SavetheChildren/AreaManager 11 EvaSztacho Sloviansk
27/11 UNHCRHeadofsub-office,Sievierodonetsk 12 JeffWilkinsonKonstaninDmitrenko
Sievierodonetsk
NRC,Shelterfieldvisit–ShelterPM 13 KobaTsiramua Sievierodonetsk30/11 UNHCR,DeputyCountryRep(actingCountryRep) 14 VannoNoupech Kyiv
ShelterCluster,NationalCC 15 IgorChantefort Kyiv GSC,EvaluationManager 16 GreggMcdonald Skype ShelterCluster,ShelterAssociate,IM 17 AndriiMazurenko Kyiv OCHAfieldoffice,HumanitarianAdvisor 18 TaguiMelkumyan Sievierodonetsk* PIN,DeputyCountryDirector 19 VanessaMerlet Kyiv
1/12 MercyCorp,CountryDirector 20 StuartWillcuts Sievierodonetsk* UNHCRheadofoffice,LuhanskNGCA 21 DimitarJelev Luhansk* CRS,ProgrammeManager 22 ErikHeinonen Sievierodonetsk*
2/12 NRC,ShelterProgrammeAdvisor 23 AntoineBarbier Kyiv FourthSociety 24 RuslanViksich Kyiv DRC,DFIDconsortiumCoordinator 25 JorengStahlhut Kyiv USAID,SupervisoryProjectdevelopmentofficer 26 GregoryOlson Kyiv
3/12 WashCC 27 CarmenParadiso Kyiv DRC,EmergencyResponseTeam 28 IslaFraser Kyiv ECHO,HumanitarianAidExpert,HeadofOffice 29 SamuelMarie-Fanon
MamarMerzoukKyiv
OCHA,HumanitarianOfficer 30 IvaneBochorishvili Kyiv MinistryofRegionaldevelopmentandhousing,Head
ofpriorityconstructionprojectsimplementation31 NadiyaLeonidivna Indirectly,
translator
4/12 OCHA,CashWGCoordinator 32 RuthAggiss Kyiv *Carriedoutoverphone/Skype
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Annex D. FieldVisitSchedule
Monday23 Tuesday24 Wednesday25 Thursday26 Friday27
Place Kyiv Sloviansk Sloviansk Sloviansk Sievierodonetsk
09:00Introductions
TraveltoSloviansk
UNHCRHeadofsub-officeforSievierodonetsk
10:00
NationalShelterClustermeeting
StructuralrepairWG
11:00 ICRCWatHabDelegate Sub-National
ShelterClustermeeting
fieldvisitNRC
12:00 UNHCRShelterOfficer
StructuralrepairWG
13:00 ADRA
ProjectDirector
14:00 Planningofevaluation
fieldvisitPINStructuralrepair
WG
SOS-Kramotorsk&Reptolocalauthorities
TraveltoKyiv
15:00 discussionwithSCT
PINShelterManager
16:00 ProtectionClusterCoord SCCo-chair
Sub-nationalCC
UNHCRHeadofsub-officefor
Kharkiv
SavetheChildrenAreaManager
17:00 Planningofevaluation
Monday30 Tuesday1 Wednesday2 Thursday3 Friday4
Place Kyiv Kyiv Kyiv Kyiv Kyiv
09:00
MercyCorpsCountryDirector
NRCShelterAdvisor
WASHClusterCoord
OCHACashWGCoord
10:00
11:00 UNHCRCountryrep UNHCRheadof
sub-officeLuhansk
FourthWaveSociety
DRCEmergencyCoord
presentationoninitialfindingsof
thereview
12:00
SCNationalCC
13:00
14:00
SCIM
DFID MoRD finaldiscussionwithSCUkraine
15:00
OCHAsub-office DRCDFIDconsortium OCHA
Humanitarianofficer
16:00
PINdept.countrydirector
ErikCRS USAID17:00
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Annex E. OnlineSurveyQuestionnaire
1. Doyouworkfor?
◯InternationalNGO◯UNorganisation◯NationalNGO◯Nationalauthority◯RedCrossMovement◯Donor◯Other(specify)
2. Theorganizationyouworkforisa:
◯Shelter/NFIClustermember◯Shelter/NFIClusterobserver*◯Other◯Don’tknow◯ShelterClusterCoordinationteam◯Inter-ClusterCoordinationGroup(OCHA,ClusterLeadAgency,orotherClusterCoordinator)*Observersarenotfullmembersofaclusterbutmayshareinformationwithitandparticipateinitsmeetings
3. AtwhatleveldoyouparticipateintheShelterCluster?
◯National-Kiev◯Other(specify)◯Sub-national-NorthernDonbas◯Bothnationalandsub-national
4. HowoftendoyouparticipateintheShelterClustermeeting?
◯Always(everymeeting)◯Mostly(mostmeetings)◯Sometimes(fromtimetotime)◯Rarely(onlyattendedmeetingonceortwice)◯Never
5. HowusefuldoyoufindShelterClustermeetings?
◯Veryuseful◯Mostlyuseful◯Somewhatuseful◯Notuseful◯Idon’tknow
6. WhereandhowdoaccessShelterClusterinformation?(multiplechoicequestion)
◯ShelterClusterwebsite◯GoogleGroup◯Emails◯Printout◯Wordofmouth◯Other
7. HowoftendoyouvisittheShelterClusterwebsite?
◯Morethan3timesperweek◯1-3timesperweek◯1-3timespermonth◯Lessthanoncepermonth◯Never
8. HowoftendoyouusetheShelterClusterGooglegroup?
◯Morethan3timesperweek◯1-3timesperweek◯1-3timespermonth◯Lessthanoncepermonth◯Never
9. HowoftendoyoureadanduseinformationfromShelterClusterteamemails?
◯Morethan3timesperweek◯1-3timesperweek◯1-3timespermonth◯Lessthanoncepermonth◯Never
10. HowusefuldoyoufindtheinformationontheShelterClusterwebsite,Googlegroupand/oremails?
◯Veryuseful◯Mostlyuseful◯Somewhatuseful◯Notuseful◯Idon’tknow
11. HasyourorganisationparticipatedinTechnicalWorkingGroups?
◯Always(everytime)◯Mostly(mosttimes)◯Sometimes(fromtimetotime)◯Rarely(onlyonceortwice)◯Never
12. HaveyoureceivedusefultechnicalguidancefromtheShelterCluster?
◯Veryuseful◯Mostlyuseful◯Somewhatuseful◯Notuseful◯Idon’tknow
13. Hasyourprogrammemet/usedthetechnicalstandards/guidancefromtheShelterCluster?
◯Yes◯Partially◯No◯Don’tknow
14. HowdoyouperceivetheShelterCluster’sguidanceonaddressingcross-cuttingissues(gender,age,disabilities,environment,health,humanrights)?
◯Completelysufficient◯Mostlysufficient◯Somewhatsufficient◯Notsufficient◯Idon’tknow15. HasyourorganisationhelpeddeveloptheShelterClusterStrategy?*
◯Yes◯No◯Wasnothere◯Don’tknow
16. DoyouthinktheprioritiessetoutbytheShelterClusterstrategyasthemostrelevant?
◯Veryrelevant◯Mostlyrelevant◯Somewhatrelevant◯Notrelevant◯Idon’tknow
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17. HasyourorganisationcontributedtoShelterClustermonthlyreporting:Who/What/Where/When/Forwhom(5W)?
◯Yes◯No◯Idon’tknow
18. HaveyouadaptedyourcoveragebasedongapsidentifiedbytheShelterCluster?
◯Yes,completelyadapted◯Someadaptation◯Alittleadaption◯Noadaptation◯Idon’tknow
19. HasyourorganisationusedinformationproducedbytheShelterCluster(maps,factsheet,advocacy)forinternalpurposesand/orprogrammedevelopment?
◯Yes◯No◯Idon’tknow20. HasyourorganisationusedShelterClusterinformation(strategy,maps,factsheetsetc)todevelop
advocacymessages?
◯Yes◯No◯Idon’tknow
21. HastheShelterClusterproducedandsharedusefuladvocacymessagesonbehalfoftheShelterClustermembersfordonors?
◯Yes◯No◯Idon’tknow
22. HastheShelterClusterproducedandsharedusefuladvocacymessagesonbehalfoftheshelterclustermembersforgovernment?
◯Yes◯No◯Idon’tknow
23. HowdoyouperceivetheShelterCluster’sinvolvementwithNationalauthoritiesinKiev?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
24. HowdoyouperceivetheShelterCluster’sinvolvementwithauthoritiesatsub-nationallevel?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
25. HowdoyouperceivetheShelterCluster’sinvolvementwithNationalNGOs?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
26. Doyouorstaffinyourorganisationattendotherclustermeetings?
◯No◯Idon’tknow◯Yes(WASH)◯Yes(Protection)◯Yes(Livelihoods/EarlyRecovery)◯Yes(Food)◯Yes(Health/Nutrition)◯Yes(Education)◯Yes(Logistics)
27. HowdoyouperceivethecoordinationbetweentheShelterClusterandInternationalNGOs?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
28. HowdoyouperceivethecoordinationbetweentheShelterClusterandUNagencies?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
29. HowdoyouperceivethecoordinationbetweentheShelterClusterandtheRedCrossMovement?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
30. HowdoyouperceivethecoordinationbetweentheShelterClusterandthedonorcommunity?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
31. HoweffectiveisthecoordinationbetweenShelterClusterandotherclusters(e.g.Wash,Protection)?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
32. Howeffectiveisthecoordinationatinter-clusterlevelwithOCHA?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
33. HoweffectiveisthecoordinationattheHCTlevel?
◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow
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Annex F. PrioritisationofICCGItems Inlightofthehighnumberofreports,strategydocuments,assessments,monitoring,andworking
groups,ledbyOCHAandtheICCG,itwouldbeusefultoprovidealistofitemsfrequentlyencounteredduringanemergencyandwhichoftheseshouldbeconsideredhighpriorityandcompulsoryfortheCCtocontributeto,andwhichitemsarerecommendedand/oradvisedbutnotessential.ThistablecouldbeincludedinthepackageprovidedtoUNHCRstaff(referKR:7)
Thetablebelowprovidesanon-exhaustivelistofitems,meetingsandreporttypesfrequently
usedduringemergencies.ItwouldbeusefulfortheGSCtoelaboratethislistandprovideapriorityscoringtofacilitatethetaskofCC:
Description
Priority
Est.workload
(hou
rs/w
eek)
NotesMandatory
Impo
rtant
Advised
Meetin
gs
ICCG/Inter-clustermeeting X 4 OCHAIMWG X 3 OCHACashWG X 3 OCHAAAPWG X - OCHACWCWG X - HumanitarianCountryTeam X 2 Mandatorytobrief,CLArepresents.
Weeklyworkload,externalmeetings 12 Reportifactualtimeexceedsby50%
Repo
rts/Jo
int
Assessmen
t
Mid-yearPMR X - QuarterlyPMR X - MIRA/MSNA X - Othermulti-clusterassessment X - OCHASitRep X 2 HumanitarianBulletin X 0.5
Weeklyworkload,externalreports 3 Reportifactualtimeexceedsby50%
Other
CentralEmergencyResponseFund
X -
HumanitarianNeedsOverview X - HumanitarianResponsePlan X - Adhocworkshop(preparationofHRP,contingencyplanning)
X -
Weeklyworkload,othercommitments - Reportifactualtimeexceedsby50%
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Annex G. RecommendationsfromIMReviewMissiontoShelterClusterUkraine BelowisalistofrecommendationsfromthemissionreportfromBoHurkmanfollowingthe
InformationManagementreviewmissiontoShelterClusterUkraineon24-29August2015:
1.
1.
1.
2.
3.
4.
1.2.
1.
2.
3.
4.
1.2.
Useofe-mailRecommendationsforGlobalShelterClusterSet-upShelterClustere-mailaccountsperfunctionintheclustercoordinationteamandforwardincominge-mailtoexistingorganisationalaccountstoensureeaseofusefortheclustercoordinationteamandpredictabilityforclusterpartners.RecommendationsforShelterClusterUkraineExplaintopartnersthattheycanusetheGoogleGroupse-mailaccounttowritetoallpartnersifneeded.UseofthewebsiteRecommendationsforGlobalShelterClusterTraintheclustercoordinationteamontheuseofTableauandinstallTableauPublicsothatinteractivetablescanbekeptup-to-date.ProvidebasicguidanceontheuseoftheDrupalcontentmanagementsystemtoensurethatcontentisuploadedproperlyandthatinteractivedashboardscanbeembedded.ExplorepossibilitiesofconnectingtheShelterClusterwebsitewithHR.infotoavoidhavingtomaintaintwowebsites.Needtobeabletoclearlydistinguishbetweenlatestofficialversionanddraftversionsofuploadeddocuments.RecommendationsforShelterClusterUkraineOnceagreedupon,makerecommendedNFIkitcontentavailablepersituationandregion.Trytoupdatethewebsiteregularly(forinstanceweeklyonFridaymornings).DatastorageandsharingRecommendationsforGlobalShelterClusterLookattheoptionofexpandingonthepaidDropboxplanfromFICSStoavoidtheuseofpersonalaccountsthatrunoutofspaceratherquickly.GoogleAppscanbeconsideredforwiderimplementationaswellgiventhewideuseofGoogleSheetsandForms.SupportfromFICSSinGIStrainingandsettingupArcGISsoftwarewithtemplatesshouldbemadeavailabletootherclustersasneeded.Itisgoodpracticetorecordrequestsfrompartnersformapstotracktheirusage.RecommendationsforShelterClusterUkraineSmallerworkinggroupsforoperationalcoordinationareneededintheeast.BeneficiaryduplicationshouldbeavoidedthroughsharingnationalIDnumber(iflegallypossibleandconsenthasbeengivenbythebeneficiaries),however,thisrequiresanationalhumanitarianregistrationdatabasethatcurrentlydoesnotexist.
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1.
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ContactlistRecommendationsforGlobalShelterClusterConsiderusingGmailasthee-mailproviderforShelterClustere-mailaccountstoavoidtheneedtoregisternewe-mailaccountsforthepurposeofaccessingGoogleApps.RecommendationsforShelterClusterUkraineAddadditionalfields(suchasorganisationcategoryandparticipationinnational/sub-nationalclustermeetingsand/orTWIGs/SAG)tothecontactlisttoavoidhavingtoaddthisinformationmanuallyafterwards.MapsRecommendationsforGlobalShelterClusterEnsurethattheGISOfficerisenrolledintheupcomingGISandDataVizWorkshopinGeneva,followedbyadebrieftotheclustercoordinationteamandIMWG.ExploreoptionsforpublishingstaticmapstoArcGISOnline.NeedtodefinestandardiconsandgraphicsforuseonmapsbytheShelterCluster.RecommendationsforShelterClusterUkraineIncludemoretrendanalysisinthemapswherepossibleandresourceallowing.WhoisdoingWhat,WhereandWhen(4W)RecommendationsforGlobalShelterClusterAgreeonwhetherornotthevalueofinterventionsshouldbecapturedinthe4W.RecommendationsforShelterClusterUkraineExpandthecoverageofthe4Wwherepossiblebygatheringinformationoninterventionsbyotheractors(suchasforinstancetheICRC)atlocallevelandsharecluster4Wwiththemfortheiruse.Someinformationmighthavetobekeptinternalbutcanstillservetogetamorecomprehensiveideaabouttheneedsmetbyotheractors.Inmostcases,thisinformationcanbegatheredthroughthesub-nationalcluster.Exploreoptionsofmakingthe4Wavailableonlinesothatpartnerscanaccessthemostup-to-dateversionatanytime.Regularlycheckwithpartnerstoseeifadditionaltrainingisneededinusingthe4Wtools.AssessmentsRecommendationsforGlobalShelterClusterandShelterClusterUkraineMakemobiledatacollectionmethodologyandtoolsavailabletoclusterpartners,theGSCandShelterClusterUkrainecouldsupportotherclusterswiththis.Alibraryofassessmentformscanbecreatedaswell.GeneralrecommendationsAlwaysmakerawdataavailabletopartners.Needtokeeptheassessmentmethodologysimpleandtrainenumeratorsofpartners.
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Annex H. Bibliography DavidsonS.,AReviewoftheIFRC-ledShelterClusterHaiti2010,April2011. GlobalShelterCluster,AccountabilityWorkingGroup,ShelterClusterIndicatorGuidelines,Version
2–Draft,October2013 GlobalShelterClusterToolkit,Scopeofcountry-levelshelterclusters,retrievedfrom
https://www.sheltercluster.org/working-group/coordination-toolkit GlobalShelterClusterStrategy2013-2017,retrievedfromhttp://www.sheltercluster.org/global GlobalShelterCluster,Missionreport-IMmissiontoUkraine,BoHurkmans,August2015.
RetrievedfromUkraineShelterClusterinternaldrive. GlobalShelterCluster,CommunicationandAdvocacyStrategyfortheShelterCluster,March2014
retrievedfromhttp://www.sheltercluster.org/ GlobalShelterCluster,AccountabilityWorkingGroup,AccountabilitytoAffectedPopulations,
retrievedfromhttps://www.sheltercluster.org/ GlobalShelterCluster,Evaluationguidelines-OverviewTools,February2015. HedlundK.,ShelterandNFIClusterEvaluationCycloneGiriResponse,MyanmanOctober2010to
January2011,IFRC,July2011. HighLevelPanelonHumanitarianCashTransfer,DoingCashdifferently,ALNAPStudy,London:
ALNAP/ODI. InterAgencyStandingCommittee,ReferenceModuleforClusterCoordinationatCountrylevel,
Revised,July2015. KellettJ.,AReviewoftheEmergencyShelterClusterKoshiFloodsEmergencyResponse,Nepal,
fromAugust2008,IFRC,March2009. KnoxClarke,P.andCampbell,L.(2015)Exploringcoordinationinhumanitarianclusters,ALNAP
Study.London:ALNAP/ODI. OCHA,UkraineHumanitarianNeedsOverview(HNO),2015 OCHA,UkraineHumanitarianResponsePlan2015,retrievedfrom
https://www.humanitarianresponse.info/ OCHA,UkraineContingencyPlanning,May2015. OCHA,UkraineHumanitarianSituationMonitoring,December2014. RantanenJ.,ShelterClusterReview2009IndonesiaEarthquake,IFRC,January2011. REACH,Shelter&NFINeedsAssessmentReport,Ukraine,August2015. ShelterClusterUkraineStrategy,September2014,retrievedfromUkraineShelterClusterinternal
drive. ShelterClusterUkraineStrategy,June2015,retrievedfrom
http://sheltercluster.org/response/ukraine ShelterClusterUkraine,Factsheet,August2015 ShelterClusterUkraine,Factsheet,September2015 ShelterClusterUkraine,Factsheet,November2015 ShelterClusterUkraine,ToR,May2015. ShelterClusterUkraine,Ukraine:CashAssistancePostDistributionMonitoringReport(2014-2015),
Summaryreport,June2015 ShelterClusterUkraineTechnicalGuidelines. ShelterClusterUkraine,VulnerabilityCriteriaforCashAssistance,retrievedfrom
http://www.sheltercluster.org/response/ukraine ShelterClusterPhilippines,Beneficiaryselectionandrecommendationsontargetingand
prioritisation,retrievedfrom:https://www.sheltercluster.org/ UkraineNGOForum,UkraineMulti-SectorNeedsAssessment(MNSA)report,March2015,
retrievedfromhttp://acaps.org/
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Annex I. ListofAcronyms
AAP AccountabilitytoAffectedPopulationCC ClusterCoordinatorCLA ClusterLeadAgencyGCA Government-controlledareaGSC GlobalShelterClusterHC HumanitarianCoordinatorHCT HumanitarianCountryTeamHRP HumanitarianResponsePlanIASC Inter-agencyStandingCommitteeHH Household
ICCG Inter-ClusterCoordinationGroupIDP InternallydisplacedpersonIM InformationManagement
INGO Internationalnon-governmentalorganisationMoRD MinistryofRegionalDevelopmentandHousingMoSP MinistryofSocialPolicyMSNA Multi-SectoralNeedsAssessmentMPCG Multi-PurposeCashGrant
NFI Non-foodItemsNGCA Non-governmentcontrolledareasNGO Non-governmentalorganisation
NNGO Nationalnon-governmentalorganisationOCHA UnitedNationsOfficefortheCoordinationofHumanitarianAffairsPoLR ProviderofLastResortPDM PostDistributionMonitoringPIN PeopleinNeedRC ResidentCoordinatorRFP RegionalFocalPointtotheShelterClusterSC ShelterCluster
SCM ShelterClusterMeetingSCT ShelterClusterTeamSES State’sEmergencyServicesSRP StrategicResponsePlanTOR TermsofReference
TWIG TechnicalWorkingGroupUNDP UnitedNationsDevelopmentProgramme
UNHCR UnitedNationsHighCommissionerforRefugeesWG WorkingGroup