Shelter Cluster

Underlying rationale / objective of the approach or system

The objective of a shelter cluster is to meet the shelter needs of affected populations more effectively by strengthening leadership, coordination, and accountability in the humanitarian shelter sector.

At the global level, the Global Shelter Cluster provides field support through surge capacity and remote support, develops capacity through training and e-learning, develops tools, and coordinates policy development to guide country-level Shelter Clusters. The Global Shelter Cluster also participates in all OCHA and IASC inter-agency coordination initiatives to guarantee that shelter issues are appropriately represented and considered. UNHCR and IFRC work in close partnership to develop common approaches for shelter responses while developing more specific tools and methodologies for Natural Disasters and Conflict. The global cluster also works in close cooperation with OCHA, other global clusters and supports cross-cutting IASC initiatives.

At the national level, the Shelter cluster develops an overarching strategy to provide a harmonized, efficient and effective humanitarian shelter response. Central to this is a strong information management and monitoring system that ensures up-to-date information is gathered, analysed, shared to inform strategic decision-making by the Humanitarian Country Team, cluster partners and other senior decision-makers, to identify gaps in the response and to prevent duplications in coverage. Given the expensive nature and long-term impact of shelter interventions, it is essential to ensure that appropriate approaches and technical solutions are defined based on good practices, needs, and capacities. Advocacy with donors and government is key to a shelter cluster in order to get funding for cluster partners and support for issues such as land allocation. National Shelter Clusters should provide inputs and coordinate the shelter sector sections of the Humanitarian Programme Cycle (HPC) and its outputs; the Humanitarian Needs Overview (HNO) and the Humanitarian Response Plan (HRP).

Policy, strategy and/or guidance

The IASC's Reference Module for Cluster Coordination at Country Level is the principal reference document on clusters, and describes their activation, de-activation, functions, and other features.
UNHCR should recommend the activation of shelter clusters when there are shelter needs and should normally lead country-level shelter clusters in conflict situations. Contact the UNHCR Shelter and Settlement Section as soon as there is an indication that cluster activation will be discussed.

For more information on shelter cluster coordination, contact UNHCR's Shelter and Settlement Section, or consult the Global Shelter Cluster Coordination Toolkit .

The following checklists provide guidance on specific steps to be taken within the initial months by an activated (or soon to be activated) National Shelter Cluster:

A. Preparedness/ Pre-Crisis

• Understand Shelter and the Shelter Cluster – The shelter sector is very broad covering household or shelter-related NFIs, emergency shelter, transitional and longer-term shelter, and settlement planning. The Shelter Cluster has developed tools and guidance for shelter operations.
• Familiarize your team with Shelter and the Shelter Cluster – Educate your team on the importance of Shelter as a way to achieve protection, improve health and a basis for livelihoods. Explain the important responsibility that UNHCR has as Global Shelter Cluster lead for conflict which includes being the first port of call for the activation of the cluster at country-level. Several helpful tips from the Guidance Package on UNHCR's Engagement in Situations of Internal Displacement include the following:
• Raise awareness of humanitarian partners and Government on Shelter and the Shelter Cluster – The Shelter Cluster is often not well understood in its whole breadth by humanitarian actors. Often it is understood as just the delivery of NFIs and tents not thinking of other forms of shelter response. Shelter includes responses such as support to host families, rental support, support to emergency shelter needs through cash or material distribution, support to mid-term or transitional shelter needs with a variety of assistance methods, and support to longer-term shelter needs through housing. Settlement planning is often disregarded or its importance not understood.
• Seek Guidance from the Shelter and Settlement Section at HQ early – Contact the Shelter and Settlement Section at the first signs of an IDP emergency to seek guidance. Seek advice on whether a member of its surge capacity is available to deploy pre-emergency.

• Advocate for Activation and leadership by UNHCR Analyse the country context and the possible forthcoming emergency situations. Identify existing coordination mechanisms and whether they will be able to cope. Based on this analysis, if and when appropriate for the context, advocate for cluster activation in the HCT. According to IASC guidance, cluster leadership at country-level should ideally mirror that at the global level. Conflict-related shelter clusters should be led by UNHCR as a default option. UNHCR has built an important surge capacity at global and regional levels, and has significant shelter expertise. Only in exceptional cases and after consultation with the Shelter and Settlement Section should UNHCR decline to lead this cluster at country level.

• Pre-identify Shelter Cluster Partners, particularly the Government – Start getting in contact with shelter actors present in country. Identify which of the different government bodies will be best placed to be the counterpart of the Shelter Cluster.
• Get in contact with donors - Resources and donor support will be needed early on. Donors will not only be able to provide funding, they have also very useful expertise, insights and leverage with the government and cluster partners that can be of enormous support to the cluster.

B. Formal activation of the Shelter cluster (as per IASC "reference module for cluster activation at country level")

Cluster activation means the establishment of clusters as part of an international emergency response, based on the HCT's analysis of humanitarian need and coordination capacity on the ground, in consultation with national partners. The IASC Principals agreed that the activation of clusters must be more strategic, less automatic and time limited.

The HC should only recommend the activation of clusters when there is an identified need which is not being addressed. The ideal approach is to support national mechanisms for sectoral coordination. To the extent possible, any new clusters which are established should complement existing coordination mechanisms.

Criteria for cluster activation:

• Trigger event in the form of a new large-scale emergency or sharp deterioration and/or significant change in an existing humanitarian situation leading to coordination gaps.
• Evaluation of existing national response and coordination capacity and/or national response shows inability to appropriately meet needs.
• Humanitarian needs justify a multi-sectoral approach that the existing coordination and response mechanisms can no longer adequately address.
• The size of the operational presence (the number of actors and complexity of response) requires a sector-specific coordination mechanism, if this does not already exist.

Procedure for activating one or more clusters is as follows
1. The RC / HC agrees with the HCT which clusters should be activated, based on the contingency plan and with a clear rationale for each case that takes into account national capacity and needs.
2. Global clusters are alerted in advance of the proposed HCT meeting to discuss activation so that they ensure appropriate and informed representation at country level in this discussion.
3. The RC/HC selects Cluster Lead Agencies in consultation with the HCT based on the agencies' coordination and response capacity, as well as the location and level of its operational presence and/or ability to increase this. The selection of Cluster Lead Agency ideally mirrors the global-level arrangements, but this is not always possible, and in some cases other organisations may be better placed to take the lead. Shared leadership, including using non-governmental organizations, should be considered.
4. Upon agreement within the HCT, the RC/HC sends a letter to the Emergency Relief Coordinator (ERC) outlining the recommended cluster arrangements, suggested cluster lead agencies, and the rationale for the clusters selected for activation. If other coordination solutions outside of the cluster have been agreed, these should also be outlined in the letter.
5. The ERC transmits the proposal to IASC Principals and global cluster lead and co-lead agencies for approval within 24 hours and informs the RC/HC accordingly.
6. Once approved, the RC/HC informs relevant partners of the agreed clusters and lead agencies.

C. Once formally decided – activation of the Shelter cluster at country level

• Establish a cluster coordination team: When UNHCR takes the leadership of a shelter cluster, a dedicated Shelter Cluster Coordinator should be appointed. Information management capacity should also be in place. Other personnel, including sub-national cluster coordinators, or technical coordinators may also need to be appointed. Shelter cluster coordinators report to the Representative and should work closely with other country-level cluster coordinators, particularly of the Protection Cluster, WASH Cluster, CCCM Cluster, and Logistics Cluster. Shelter cluster coordinators should coordinate closely with the Global Shelter Cluster Coordinator and Support Team in UNHCR's Shelter and Settlement Section, who can provide guidance and support.
  o Work with UNHCR Shelter and Settlements section to develop a terms of reference for Shelter Cluster Coordinator
  o Ensure appropriate staffing levels per the level of crisis for information management, technical coordination, subnational coordination, or other positions

• Cluster formation workshop – Invite interested actors to a session highlighting what the cluster is, what it can do and what partners can bring to the table. Establish capacities among stakeholders and where critical gaps need to be filled.

• Define national Shelter cluster ToR – Establish a clear ToR clarifying the role of the cluster in this specific context, scope, regulations for membership and national structure including subnational structures. Membership of national Shelter Clusters can vary considerably, but it is advisable to have a representative from all the major operational shelter actors (WASH, Protection etc.) to ensure cross-cutting representation (Footnote with examples.)
• Create a strategic advisory group (SAG) – which can take decisions on the cluster's behalf. SAGs should represent the different types of cluster partners (International NGOs, national NGOs, UN, Red Cross Red Crescent Movement) but should not have more than about ten members (Footnote with examples.)
• Outline a Shelter strategy – Aim initially for a quickly produced one page document that outlines what the cluster would like to do, why, by who, how and by when. Do not aim for perfection initially but rather create something that gives direction and elaborate details with time. Revise it soon and add more to it. It is better to start small and build on it than try to aim for a perfect strategy that takes too long to be produced. Partners make their plans very early in the emergency, the strategy will guide them. If the strategy is produced late it will not be very relevant as partners will already have their plans. (Footnote with examples.)
• Create Technical Working Groups when needed – Ad-hoc Technical Working Groups (TWiGs) may also be created: these are expert groups formed to address particular problems on behalf of the cluster. They do not need to be inclusive of all members of the cluster but rather bring the experts, those that know most about the issue being addressed by the TWiG. TWiGs might be asked to determine the content of NFI packages or shelter kits, for example, or to prepare information materials on fire safety in camps. Once the issue is addressed, the TWiG is deactivated.

• Continue information sessions – Given that new emergencies often entail a high degree of staff turnover, continued information should be provided. A briefing kit with the key documents could be prepared for newcomers.
• Information management products – Establish a regular and predictable dissemination of Information Management Products. Initially this should include activity planning, 3/4Ws (Who does What, Where, and with Whom), and basic information on population, key indicators and mapping. The onset of an emergency is a critical moment to harmonize systems among partners as this becomes increasingly challenging as the response get more established.
• Maintain a dialogue with the Shelter and Settlement Section at HQ – Weekly or biweekly calls with an HQ Shelter focal point allow for remote support in strategy development, funding mechanism applications (including Country Based Pool Funds, CERF strategic products such as the HNO or the HRP as well as best practice and comparison with other operations.

The structure and responsibilities of a Shelter cluster at country level

A Shelter cluster coordination team should be formed in a manner that ensures leadership of the cluster is effective. Ideally, it should have a minimum of three members: a cluster coordinator, an information management officer, and a technical coordinator. Sub-national coordination mechanisms may also be necessary in some geographical or operational settings.

Cluster coordinator
UNHCR should have a dedicated national shelter cluster coordinator, who is responsible for providing overall cluster coordination, and reports to the UNHCR's Representative. S/he works closely with other country-level cluster coordinators, particularly protection, WASH, Logistics, and CCCM. For guidance and support, s/he also keeps closely in touch with UNHCR's Global Shelter Cluster coordinator and support team.

Cluster partners are welcome to support the cluster by seconding members to the cluster team, such as information management officers, technical coordinators and sub-national cluster coordinators among others. The appointment of an NGO co-facilitator (or co-chair) has important implications and should be assessed in consultation with the UNHCR Global Shelter Cluster coordinator at HQ. In any case, if appointed, the NGO co-facilitator should be part of the cluster organogram and report to the Cluster Coordinator.

Shelter Information Management Officer
An Information Management Officer (IMO) reports to the Cluster Coordinator and is responsible for identifying and meeting data/analysis/information requirements at a range of levels: in support of cluster priorities, to inform HC/HCT decision-making, to respond to HPC requirements such as the HNO and HRP, to strengthen data collection and processing systems, to establish information dissemination mechanisms, and to facilitate information exchange between key stakeholders. This is a very time-consuming and important job which makes it very difficult for an IMO to cover more than one cluster or other UNHCR tasks except in very modest operations.

Shelter Technical Coordinator
In principle, a Technical Coordinator should be deployed alongside the Cluster Coordinator and IMO. There are many shelter technical issues which need to be decided early on in the response. The Cluster Coordinator will not have time to get into the technical details of the response but the cluster needs to provide an impartial broker that manages the different technical opinions of cluster partners. The Government will also require technical advice on shelter response from an expert in this field.

Sub-national/field level coordination mechanism
Complex emergencies or geographically spread responses may require additional coordination at sub-national or field level. Sub-national coordinators and resources to support sub-national coordination may be mobilized externally but also internally, using standby partner arrangements or Shelter cluster members (if they are willing and have the capacity).

An example of a minimum Shelter cluster coordination structure for a Scale-Up emergency

Role of partners involved

Internally Displaced Persons (IDPs) and Affected Populations
IDPs and affected population provide key information - on their capacities, needs and intentions, as well as feedback on the operation. They should play an important role in the cluster. It is important to put in place systems that allow frequent and fluid two-way communication channels with these stakeholders. This can be achieved in different ways depending on the context. Some shelter clusters, in particular at sub-national level, have one or several representatives of the IDPs and affected population participating in cluster meetings or cluster structures to strengthen their involvement in the response. In others, a focal point has been appointed for liaison with affected populations.

National Authorities
Their contribution is vital to the definition of reconstruction policies, and they are key sources of information about building regulations and codes, customs, housing, land and property rights, and many other issues. Ideally national authorities should co-lead the cluster when they have capacity. When this is not possible, a way should be found for them to participate. Typical counterparts for the shelter cluster are the Ministry of Housing and/or the Ministry of Social Welfare.

Humanitarian Coordinator, Humanitarian Country Team, OCHA
The HC and HCT determine the shape and functions of inter-cluster coordination, with OCHA's support.

National NGOs and National Red Cross/Crescent Society
Civil society institutions should be involved because they can be essential sources of information on a wide range of matters, including the context, local building practices, local materials, affected populations, and other actors. National NGOs may feel out of place in international fora: help them to participate by providing translation, ensuring they can get to meeting venues, and listening to their concerns. They should be represented on the Strategic Advisory Group.

IFRC
As the lead agency for the Global Shelter Cluster on natural disasters, in principle the IFRC should lead the shelter cluster in a natural disaster. It is usually an important shelter actor in natural disasters or mixed situations but does not often engage in conflict situations.

IOM
IOM is often interested in leading the shelter cluster at country level, usually when UNHCR or IFRC do not do so. IOM is typically an important shelter actor. It regularly provides NFIs and other shelter solutions.

ICRC
The ICRC is usually an important shelter actor. It is involved in clusters as an observer and should be invited by the cluster coordinator to share its plans and (to the extent it can) information. Regular bilateral meetings with ICRC can facilitate ICRC's coordination with other Shelter Cluster partners.

International NGOs
A balanced number of INGOs should participate in the Strategic Advisory Group. INGOs who are typically active in shelter clusters include but are not limited to ACTED, CARE, CRS, DRC, Global Communities, Habitat for Humanity, Medair, NRC, and Save the Children. The operational presence of these International NGOs vary according to country context.

National NGOs
In many conflict situations, national NGOs are often on the front lines of response due to their access. Nevertheless, national NGOs may struggle to get access to traditional humanitarian funding and may require some reinforcement in their familiarity with international shelter standards and programming. With the agenda on localization, the Global Shelter Cluster supports country-level clusters with localisation strategies in order to better promote the involvement of national NGOs into the Shelter Cluster. National NGOs should be encouraged to participate in the cluster events and the SAG should include a balanced number of national NGOs. A good way to build their capacity may be through partnership with International NGOs.

Donors.
Donors are providing critical support to the emergency response, including shelter, and could be involved in the cluster and may be invited to the Strategic Advisory Group. ECHO, USAID/OFDA, DFID, and Germany are typically very interested in shelter; JICA, AUSAID, and DFATD (CIDA) regularly show interest as well. Shelter Clusters should set up regular meetings with donors to brief them about the shelter situation and advocate for funding to cover identified gaps or specific plans and/or responses.

Development Actors
Due to the many protracted crises in UNHCR leads the Shelter Cluster it may also be worthwhile to liaise regularly with Development donors and stakeholders, so that they can include support to the government for shelter coordination should the needs continue to be that significant and to ensure that the shelter solutions are adequate beyond the emergency phase. In addition, in certain responses, development actors have large scale shelter activities and funding. While development actors do not necessarily participate in humanitarian response, clusters should be aware of development activities and responses that may be also responding to the shelter needs identified by the shelter cluster. Ideally development activities should complement and not duplicate humanitarian shelter response.

Media.
Media representatives should not participate in cluster meetings but arrangements should be made to engage with them. Given the high visibility of shelter at the peak of large emergencies with very important media attention, it has proved good practice to appoint a media and communications adviser. Shelter is highly visible and media are often interested in this sector in certain emergencies where shelter destruction is important. Having a specialist that can attend to media requests can free up time of the cluster coordinator and allow relaying important advocacy messages. This could be a resource that could be efficiently shared among the three clusters led by UNHCR since media attention tends to cover various sectors.

National institutions.
National associations of architects, civil engineers, and other professional bodies, as well as universities and other national institutions, can make valuable contributions to shelter clusters, notably on longer-term shelter and settlement issues. Many contribute their expertise or make other contributions pro bono.

Private Sector
The private sector is still considered to be a non-traditional actor in humanitarian shelter responses. Nevertheless, the Shelter Cluster encourages Shelter Cluster Coordinators to involve them as much as possible into coordination mechanisms. The private sector has a lot of skills and capacities that can enhance the overall shelter response.

UNHCR's role and accountabilities

Under the Cluster Approach, UNHCR has specific Shelter roles and accountabilities at the National Level linked to dual responsibility of being both an A. cluster lead, and B. an operational agency.

A. As Shelter cluster lead
At national level, the UNHCR Representative as head of the Shelter Cluster lead agency is accountable to the Humanitarian Coordinator (HC) and is responsible to:

• Ensure that coordination mechanisms are established and properly supported.
• Serve as first point of call for the Government and the Humanitarian Coordinator.
• Represent at the HCT cluster-specific concerns and challenges that the cluster cannot solve.
• Act as provider of last resort.

The Shelter Cluster Coordinator is responsible and accountable for ensuring that the Shelter Cluster performs the following six core functions:

• To support service delivery by providing a forum in which approaches can be agreed and duplication eliminated.
• To inform the strategic decision-making of the Humanitarian Coordinator and Humanitarian Country Team by coordinating needs assessments, gap analysis, and prioritization.
• To plan and develop strategy (including cluster plans, adherence to standards, funding needs, HPC processes, CERF and Pool Fund processes, etc).
• To advocate for identified concerns on behalf of affected populations and cluster partners.
• To monitor and report on the cluster strategy and its results, and recommend corrective action where necessary.
• To conduct contingency planning, preparedness, and capacity building where needed.

The Shelter Cluster Coordinator is ultimately responsible to ensure that the shelter needs of affected populations are met according to agreed standards and good practices.

A Shelter Cluster Coordinator should promote community participation and accountability to affected populations (AAP). The following five commitments to AAP are essential to any shelter cluster and shelter programme:

• Leadership and governance: integrate accountability and feedback in all aspects of the work
• Transparency: share information with all stakeholders
• Feedback and complaints: a feedback and complaints system is in place
• Participation: affected populations take a lead in making decisions, with support from organizational experts.
• Design, monitoring and evaluation: accountability is integrated throughout the project cycle.

B. As an Operational Organization
As indicated in guidance on UNHCR's Engagement in Situations of Internal Displacement, assuming cluster leadership not only implies readiness to coordinate, but also readiness to be operationally relevant, predictable and accountable. The following eight principles guide UNHCR's engagement in IDP operations and highlight higher accountabilities the agency is committed to support. Shelter specific roles in strengthening each of these principles are illustrated as follows:
1. Promoting State responsibility

• Shelter interventions should complement, not supplement, existing government interventions lending expertise and building capacity as necessary. Ultimately this suggests that shelter coordination and shelter interventions need to be designed with a handover/exit in mind, especially where internal displacement is likely to remain protracted.

2. Upholding and maximizing synergies with refugee protection and right to asylum

• In situations where IDP and refugee populations are present in the same geographic area, the shelter response should find synergies with refugee operations and use similar approaches and standards where possible.

3. Promoting human rights

• Shelter interventions should empower the affected population and ‘Do No Harm'. These interventions should look at the longer term effects of any solution being applied. Particularly housing land and property rights should be carefully addressed.

4. Applying a community-based approach responsive to age gender and diversity

• Ensuring community-based approaches and allowing for participation of all is an essential component of any shelter intervention. Mechanisms should be put in place to allow participation of people of different age, gender and diversity such as ensuring diversity in the staff itself, establishing for participation of groups that are less likely to participate in general meetings, organising home visits to seek the bilateral participation of those that need it.

5. Responding in partnership

• Designing a response that collaborates with other actors and other sectors such as WASH, CCCM, and protection.

6. Infusing protection principles across clusters in and interagency response

• Shelter responses should ensure protection mainstreaming, and, working together closely with the Protection Cluster, prioritizing safety and dignity, promoting access, accountability, participation and empowerment.

7. Promoting comprehensive solutions

• Shelter interventions are more meaningful when holistic interventions at a neighbourhood or settlement level are considered. All shelter interventions should have adequate access to water and sanitation, all settlements should have drainage, health and education facilities, garbage collection and waste disposal facilities. Engagement with the WASH, Health, Education, CCCM, and Protection clusters will be important. It is also essential to include the host community and find ways to ensure that the intervention will also benefit them. Disaster risk reduction should be considered in every shelter and settlement intervention.

8. Disengaging responsibility

• Shelter interventions should be sustainable and as easy to maintain as possible. Local building practices and local materials should be prioritised so that shelters can be maintained and repaired with the existing know-how. Building capacity of local population and local builders such as masons and carpenters should also be considered.

With these principles in mind, it is essential to note, that to be effective in leading a national Shelter cluster, UNHCR needs to advocate for the necessary financial resources to carry out these specific functions.

Example of a cluster output: study on local construction techniques using local materials