160302 Final Report Evaluation of the Ukraine Shelter Cluster · the Ukraine SC, in partnership with the Ministry of Regional Development and Housing (MoRD) ... The shelter response

EvaluationoftheEmergencyShelterandNon-FoodItemsClusterintheUkraine

CarolineDewast&VidarGlette

ExternalEvaluationNovember2015FinalReport,February2016

EVALUATIONOFTHEEMERGENCYSHELTERANDNON-FOODITEMSCLUSTERINTHEUKRAINE| 2015-2016

FINALREPORT|FEBRUARY2016 PAGE2OF50

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.



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.



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)



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



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.



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)



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.



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



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.



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



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)



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.



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



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



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



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.



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



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.



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



� 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



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.



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.



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.



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



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.



� 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.



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.



� 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



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



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



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.



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



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.



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



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



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.



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



• 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.



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.



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



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



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



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?


9. HowoftendoyoureadanduseinformationfromShelterClusterteamemails?


10. HowusefuldoyoufindtheinformationontheShelterClusterwebsite,Googlegroupand/oremails?


11. HasyourorganisationparticipatedinTechnicalWorkingGroups?

◯Always(everytime)◯Mostly(mosttimes)◯Sometimes(fromtimetotime)◯Rarely(onlyonceortwice)◯Never

12. HaveyoureceivedusefultechnicalguidancefromtheShelterCluster?


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



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?


21. HastheShelterClusterproducedandsharedusefuladvocacymessagesonbehalfoftheShelterClustermembersfordonors?


22. HastheShelterClusterproducedandsharedusefuladvocacymessagesonbehalfoftheshelterclustermembersforgovernment?


23. HowdoyouperceivetheShelterCluster’sinvolvementwithNationalauthoritiesinKiev?

◯VeryEffective◯Effective◯Somewhateffective◯Noteffective◯Idon’tknow

24. HowdoyouperceivetheShelterCluster’sinvolvementwithauthoritiesatsub-nationallevel?


25. HowdoyouperceivetheShelterCluster’sinvolvementwithNationalNGOs?


26. Doyouorstaffinyourorganisationattendotherclustermeetings?

◯No◯Idon’tknow◯Yes(WASH)◯Yes(Protection)◯Yes(Livelihoods/EarlyRecovery)◯Yes(Food)◯Yes(Health/Nutrition)◯Yes(Education)◯Yes(Logistics)

27. HowdoyouperceivethecoordinationbetweentheShelterClusterandInternationalNGOs?


28. HowdoyouperceivethecoordinationbetweentheShelterClusterandUNagencies?


29. HowdoyouperceivethecoordinationbetweentheShelterClusterandtheRedCrossMovement?


30. HowdoyouperceivethecoordinationbetweentheShelterClusterandthedonorcommunity?


31. HoweffectiveisthecoordinationbetweenShelterClusterandotherclusters(e.g.Wash,Protection)?


32. Howeffectiveisthecoordinationatinter-clusterlevelwithOCHA?


33. HoweffectiveisthecoordinationattheHCTlevel?




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%



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.



1.

1.

1.

2.3.

1.

1.

1.

2.

3.

1.

1.2.

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.



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/



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

160302 Final Report Evaluation of the Ukraine Shelter Cluster · the Ukraine SC, in partnership with the Ministry of Regional Development and Housing (MoRD) ... The shelter response

Documents

160302 Final Report Evaluation of the Ukraine Shelter Cluster · the Ukraine SC, in partnership with the Ministry of Regional Development and Housing (MoRD) ... The shelter response