R E S P O N D I N G T O H E A LT H E M E R G E N C I E S

Transition and Deactivation of

Clusters

Global Overview – All Clusters

Activated

De-Activated

Countries

2013

23

18

A= Myanmar, Philippines, Colombia D= Afghanistan, CDI, Sierra Leone

2014

31

18

A= Ukraine, Iraq, Ebola D= Haiti, Philippines, Zimbabwe

2015

23

14

A=Nepal, Syria crisis D= Ebola, Nepal, Merger – Ukraine (H&N)

Cluster Deactivation The closure of a formally activated cluster

•Transfer of core functions (such as Provider of Last Resort) from clusters that have international leadership and accountability to other structures, including those that are led nationally or development focused.

•Functions may be transferred to existing or pre-crisis coordination and response structures, or new ones.

Cluster Transition The process (and potentially the activities) by which the transfer of leadership and accountabilities is planned and implemented, leading to de-activation.

A plan is required to map:

o phases of the transition

o set transition or de-activation benchmarks for each

phase

o schedule activities to meet these benchmarks

When to de-activate?

When at least one of the conditions that led to its activation is no longer present:

1.The humanitarian situation improves, significantly reducing humanitarian needs and consequently reducing associated response and coordination gaps.

2.National structures acquire sufficient capacity to coordinate and meet residual humanitarian needs in line with humanitarian principles.

• De-activation of a cluster does not mean

that humanitarian funding is no longer

required.

• Lack of funding is not a reason to de-

activate a cluster.

Four guiding principles

1. They are initiated and led by the HC, in consultation with the

HCT, wherever possible in close collaboration with national

authorities and supported by OCHA [including cluster

partners and national counterparts ]

2. They are based on assessment of national capacity

3. They take account of the context.

4. They are guided by early recovery and resilience-building

objectives.

Early Recovery

UNDP Policy on Early Recovery defines early recovery as

“… the application of development principles to humanitarian

situations in order to stabilize local and national capacities from

further deterioration so that they can provide the foundation for

full recovery and stimulate spontaneous recovery activities

within the affected population.”

Nine steps to smooth deactivation of health clusters

1. Map preparedness arrangements, and response and

coordination needs (based on the six cluster functions).

2. Identify Government and other coordination-and-

response mechanisms that are competent to assume

leadership and accountability for the cluster’s functions

(not all need to be transferred at the same time).

3. Assess the capacity of these mechanisms to assume

responsibility.

4. Determine what must be done over what period to build

capacity, during the transition or to enable de-activation.

Nine steps to smooth deactivation of health clusters

5. Assess whether the criteria are met for creating new

clusters.

6. Define how CLAs and national counterparts are

accountable for cluster functions during transition and

de-activation, and take steps to ensure accountability is

preserved. Set benchmarks

7. Propose a timetable for transition or de-activation.

8. Propose a timetable for additional cluster reviews as

appropriate.

9. Decide how preparedness will be maintained or

strengthened after de-activation and define any

continued role for the CLA

Role of the HCCT in capacity building

• In coordination: – Ensuring coordination structures are in place in

governments or other agreed agencies (as appropriate)

– Trainings on coordination

• In technical areas: – Trainings of relevant personnel on specific technical

areas with relevant technical units and agencies,

– Mobilizing additional resources to provide trainings and technical support in relevant area

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Remember… • Transition can be as much a political exercise as a

technical one.

• The shift from humanitarian to early recovery coordination mechanisms should be part of the mind-set of humanitarian actors from the onset of the crisis.

• Keep the focus on the essential.

• Manage expectations of all partners

What benchmarks can be used for each of the functions to assess whether conditions for transition and de-activation are realized?

•Benchmarks need to be easily measured, with clear targets and specific milestone.

•It is important to include in the discussion an agreement on measurement method and the entity responsible for such measurements.

Benchmarks

Moving forward….Country Cluster Action.

• All clusters should have transition plan in place

• Prioritise transition plan from onset of activation

– Transition plan within first 90 days??

• Develop plans with national counterparts

• Clusters should consider merging, if feasible in the transition period.

Moving Forward……Global Cluster Action

• Prioritise transition planning

• Undertake inter-cluster support missions (2 per Q) to provide support & capture good practice

• Advocate for architecture reviews with CLA & country missions to improve quality, coherence & national participation.

• Include transition & deactivation in cluster trainings.

Reluctance to de-activate /transition – why?

• A lack of clarity on what cluster coordinators are transitioning – all the core functions or the basics such as chairing a meeting and maintaining the platform.

• In protracted crises transition plans are not a priority for clusters.

• Weak national counter-parts in many contexts are a disincentive to plan for transition.

• Lack of clarity over where responsibility lies for building the capacity of national counter-parts. Is it the role of the cluster lead agency or the cluster as a whole; of humanitarian or development actors? If a combination of responsibilities, what is the extent of each?

Reluctance to de-activate /transition – why?

• The CDM identified a lack of dedicated coordinators in place in

Early Recovery clusters specifically, which may have an impact on the low percentage of transition plans created – early recovery expertise being a facilitative aspect for transition planning.

• Based on the number of requests for advice and guidance, coordinators may require more specific training or guidance on developing benchmarks for transition and setting up transition plans.

• Issues of self-interest – cluster transition should ultimately lead to the de-activation of the cluster and the cutting of posts.