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INTER-AGENCY STANDING COMMITTEE (IASC)

GUIDANCE NOTE ON USING THE CLUSTER APPROACH TO

STRENGTHEN HUMANITARIAN RESPONSE

24 November 2006

1. Introduction

In international responses to humanitarian crises, some sectors have in the past benefited
from having clearly mandated lead agencies, while others have not. This has repeatedly led
to ad hoc, unpredictable humanitarian responses, with inevitable capacity and response
gaps in some areas. Recognizing this, in September 2005 the Inter-Agency Standing
Committee (IASC) agreed to designate global “cluster leads” – specifically for
humanitarian emergencies – in nine sectors or areas of activity. The IASC Principals also
agreed that the cluster approach should be applied, with some flexibility, at the country
level.

In December 2005 the IASC Principals generally welcomed the “cluster approach” as a
mechanism that can help to address identified gaps in response and enhance the quality of
humanitarian action. It is part of a wider reform process aimed at improving the
effectiveness of humanitarian response by ensuring greater predictability and
accountability, while at the same time strengthening partnerships between NGOs,
international organizations, the International Red Cross and Red Crescent Movement

and

UN agencies.

In June 2006 the IASC issued a Preliminary Guidance Note on implementation of the new
approach. Emphasizing that the humanitarian reform process must be an inclusive one, the
Emergency Relief Coordinator and IASC Principals invited all relevant stakeholders,
particularly in the field, to comment on this document. It is on the basis of the comments
received that the present Guidance Note has been put together. The Guidance Note will
continue to be reviewed periodically and revised as necessary, taking into account the
conclusions of further “lessons learnt” exercises and evaluations of implementation of the
cluster approach at both the global and country level.

The International Committee of the Red Cross (ICRC) has stated that its position on the cluster approach is the

following: "Among the components of the Movement, the ICRC is not taking part in the cluster approach.
Nevertheless, coordination between the ICRC and the UN will continue to the extent necessary to achieve efficient
operational complementarity and a strengthened response for people affected by armed conflict and other situations of
violence."

2. Aim and scope of the cluster approach

At the global level, the aim of the cluster approach is to strengthen system-wide
preparedness and technical capacity to respond to humanitarian emergencies by ensuring
that there is predictable leadership and accountability in all the main sectors or areas of
humanitarian response.

Similarly, at the country level the aim is to strengthen humanitarian response by demanding
high standards of predictability, accountability and partnership in all sectors or areas of
activity. It is about achieving more strategic responses and better prioritization of available
resources by clarifying the division of labour among organizations, better defining the roles
and responsibilities of humanitarian organizations within the sectors, and providing the
Humanitarian Coordinator with both a first point of call and a provider of last resort in all
the key sectors or areas of activity. The success of the cluster approach will be judged in
terms of the impact it has on improving the humanitarian response to those affected by
crises.

The cluster approach should eventually be applied in all countries with Humanitarian
Coordinators. By definition, these are countries with humanitarian crises which are beyond
the scope of any one agency’s mandate and where the needs are of sufficient scale and
complexity to justify a multi-sectoral response with the engagement of a wide range of
humanitarian actors. The cluster approach can be used in both conflict-related humanitarian
emergencies and in disaster situations. It should significantly improve the quality of
international responses to major new emergencies. Also, although not limited to situations
of internal displacement, it should make a significant improvement in the quality, level and
predictability of the response to crises of internal displacement and represents a substantial
strengthening of the ‘collaborative response’.

3. Cluster leadership at the global level

Sectors and categories of population where leadership and accountability amongst
international humanitarian actors are already clear are not included among the nine clusters
at global level. These include, for example, agriculture, led by FAO; food, led by WFP;
refugees, led by UNHCR; and education, led by UNICEF. (In the case of education, there
may be some further modification to this, as consultations are underway to clarify the lead
at the global level.) In addition to these, as indicated in the table below, cluster leads at the
global level have now been designated by the IASC for nine sectors or areas of activity
which in the past either lacked predictable leadership in situations of humanitarian
emergency, or where there was considered to be a need to strengthen leadership and
partnership with other humanitarian actors.

The establishment of clusters at the global level in areas where there are clearly identified
gaps in capacity is an important addition that will enhance technical capacity and better
ensure the immediate availability of critical material and expertise.

To help build capacity at the global level in areas where this was previously lacking, a
Global Cluster Appeal for US$ 39 million was launched in March 2006. A second Global
Cluster Appeal will be launched in 2007, after which any costs associated with cluster
leadership at the global level will be incorporated into agencies’ normal fundraising
mechanisms.

Global “cluster leads”

(As agreed by the IASC Principals in December 2005)

Sector

Global

Cluster

Lead

Area of Activity

Technical areas:
1.

Nutrition UNICEF

2. Health

WHO

Water/Sanitation

UNICEF

4. Emergency

Shelter:

IDPs (from conflict)

UNHCR

Disaster situations IFRC

(Convener)*

Cross-cutting areas:
5. Camp

Coord/Management:

IDPs (from conflict)

UNHCR

Disaster situations IOM

6. Protection:

IDPs (from conflict)

UNHCR

Disasters/civilians affected by
conflict (other than IDPs)**

UNHCR/OHCHR/UNICEF

Early

Recovery

UNDP

Common service areas:
8.

Logistics WFP

Emerg.

Telecommunications

OCHA/UNICEF/WFP

* IFRC has made a commitment to provide leadership to the broader humanitarian community in
Emergency Shelter in disaster situations, to consolidate best practice, map capacity and gaps, and lead
coordinated response. IFRC has committed to being a ‘convener’ rather than a ‘cluster lead’. In an
MOU between IFRC and OCHA it was agreed that IFRC would not accept accountability obligations
beyond those defined in its Constitutions and own policies and that its responsibilities would leave no
room for open-ended or unlimited obligations. It has therefore not committed to being ‘provider of last
resort’ nor is it accountable to any part of the UN system.

** UNHCR is the lead of the global Protection Cluster.

However, at the country level in disaster

situations or in complex emergencies without significant displacement, the three core protection-
mandated agencies (UNHCR, UNICEF and OHCHR) will consult closely and, under the overall
leadership of the HC/RC, agree which of the three will assume the role of Lead for protection.

Concerning the emergency shelter cluster, it should be noted that IFRC does not
participate in Consolidated Appeals launched by the UN and will appeal separately for
support in providing leadership and strengthening capacity for the provision of
emergency shelter in disasters resulting from natural hazards.

4. Responsibilities of global cluster leads

Complementing arrangements already in place for some sectors or areas of activity,
global cluster leads have agreed to be accountable to the Emergency Relief Coordinator
for ensuring system-wide preparedness and technical capacity to respond to humanitarian
emergencies, and for ensuring greater predictability and more effective inter-agency
responses in their particular sectors or areas of activity. More specifically, they are
responsible for establishing broad partnership bases (i.e. “clusters”) that engage in
activities in three main areas, as follows:

Standards and policy-setting

Consolidation and dissemination of standards; where necessary, development of

standards and policies; identification of ‘best practice’

Building response capacity

Training and system development at the local, national, regional and international

levels

Establishing and maintaining surge capacity and standby rosters
Establishing and maintaining material stockpiles

Operational support

Assessment of needs for human, financial and institutional capacity
Emergency preparedness and long term planning
Securing access to appropriate technical expertise
Advocacy and resource mobilization
Pooling resources and ensuring complementarity of efforts through enhanced

partnerships

5. Sector/cluster leadership at the country level

At the country level, sectors and sectoral groups have always existed and they will
continue to exist. In the past, however, it was usually the case that only a limited number
of sectors had clearly designated lead agencies accountable to the Humanitarian
Coordinator. The cluster approach aims to rectify this by ensuring that within the
international humanitarian response, there is a clear system of leadership and
accountability for all the key sectors or areas of humanitarian activity. The cluster
approach is intended, therefore, to strengthen rather than to replace sectoral coordination
under the overall leadership of the Humanitarian Coordinator, with a view to improving
humanitarian response in emergency situations.

Concerning terminology, some Humanitarian Country Teams prefer to speak of
“clusters” and “cluster leads”, while others prefer to stick to the more traditional
terminology of “sectors”, “sectoral groups” and “sector leads” (or in some cases,
“working groups”, “thematic groups” or “task forces”). It should be left to Humanitarian
Country Teams to decide on a case-by-case basis on appropriate terminology for the
country in question, depending on the working language and agency preferences. To
ensure coherence, standard terminology should be used within each country and similar
standards should be applied to all the key sectors or areas of humanitarian activity. A
“cluster” is essentially a “sectoral group” and there should be no differentiation between
the two in terms of their objectives and activities; the aim of filling gaps and ensuring
adequate preparedness and response should be the same.

The cluster approach represents a raising of standards in humanitarian response. At the
country level, it involves having clearly identified leads (within the international
humanitarian community) for all the key sectors or areas of activity, with clearly defined
responsibilities for these agencies in their capacities as sector leads.

The Humanitarian Coordinator, in close consultation with the Humanitarian Country
Team, is responsible for securing agreement on the establishment of appropriate sectors
and sectoral groups, and for the designation of sector leads. This should be based on a
clear assessment of needs and gaps, as well as on a mapping of response capacities,
including those of the host Government, local authorities, local civil society, international
humanitarian organizations and other actors, as appropriate.

To enhance predictability, where possible sector lead arrangements at the country level
should be in line with the lead agency arrangements at the global level. This principle
should, however, be applied flexibly, taking into consideration the capacities and
strengths of humanitarian organizations already operating in the country or region
concerned. This may mean that in some cases sector lead arrangements at the country
level do not replicate those at the global level. Also, in some cases, it may be appropriate
for NGOs or other humanitarian partners to act as sector focal points in parts of the
country where they have a comparative advantage or where the cluster lead has no
presence.

There may be cases where particular sectoral groups are not needed, or where particular
sectors are merged (e.g. Health & Nutrition, or Food & Agriculture). In the case of Early
Recovery, the global level cluster is not encouraging Humanitarian Country Teams to
establish Early Recovery sectoral groups at the country level, but rather to ensure that
early recovery planning is integrated into the work of all sectoral groups. Where there are
early recovery gaps not covered by other sectoral groups, ad hoc groups could be set up
to address these where necessary. Likewise, in the case of Emergency
Telecommunications and Logistics, it may not be necessary to establish special sectoral
groups with sector leads in every country, though they may be much needed in some
cases – particularly in the early stages of major new emergencies. In establishing sectoral

groups at the country level, the principle should always be to prioritize the main issues
and ensure that there are no major gaps in the humanitarian response.

Sectoral groups at the country level should ensure adherence to norms, policies and
standards agreed at the global level and should treat the global level clusters as a resource
that can be called upon for advice on global standards, policies and ‘best practice’, as
well as for operational support, general guidance and training programmes. There is no
direct reporting line, however, between sectoral groups at the country level and global
level clusters.

Sector leads are expected to report to the Humanitarian Coordinator on issues related to
the functioning of the sector as a whole, while at the same time retaining their normal
reporting lines insofar as their own agencies’ activities are concerned. In some cases,
particularly at the height of a humanitarian crisis, there may be a need to appoint staff to
work as dedicated, full-time sector leads.

Common Humanitarian Action Plans and Consolidated Appeal documents should clearly
reflect the agreed sectoral structure, indicating which agencies are the designated sector
leads.

6. Contingency planning and application of the cluster approach in major new

emergencies

The cluster approach should be used in all contingency planning exercises for major new
emergencies which involve multi-sectoral responses with the participation of a wide
range of international humanitarian actors. Those responsible for doing the contingency
planning, whether at the country, regional or headquarters level, should consult closely
with national/local authorities as appropriate, building on local capacities. They should
also ensure that they consult closely with relevant international actors at the country and
regional level, as well as with global cluster leads and other lead agencies at the global
level.

In the event of a sudden major new emergency requiring a multi-sectoral response with
the participation of a wide range of international humanitarian actors, the cluster
approach should be used from the start in planning and organizing the international
response. The Humanitarian Coordinator (or the Resident Coordinator in countries where
a Humanitarian Coordinator has not yet been appointed at the beginning of the
emergency) should consult all relevant partners at the country level and make proposals
regarding the designation of any new cluster/sector leads, if possible within the first 24
hours. Following consultation with the Humanitarian Coordinator, the Emergency Relief
Coordinator should consult global cluster leads and other lead agencies at the global level
on the designation of country-level cluster/sector leads for the emergency in question.
The Emergency Relief Coordinator is responsible for ensuring that agreement is reached
on appropriate country-level cluster/sector leads, and that this decision is communicated
without delay to all relevant humanitarian partners, as well as donors and other

stakeholders. The Humanitarian Coordinator should in turn inform the host government
and humanitarian partners at the country level of the agreed arrangements.

7. Responsibilities of sector/cluster leads at the country level

The role of sector leads at the country level is to facilitate a process aimed at ensuring
well-coordinated and effective humanitarian responses in the sector or area of activity
concerned. Sector leads themselves are not expected to carry out all the necessary
activities within the sector or area of activity concerned. They are required, however, to
commit to being the ‘provider of last resort’ where this is necessary and where access,
security and availability of resources make this possible.

As spelt out in the Terms of Reference for Sector Leads at the Country Level (see Annex
1), specific responsibilities of sector leads at the country level include ensuring the
following:

• Inclusion of key humanitarian partners

• Establishment and maintenance of appropriate humanitarian coordination

mechanisms

• Coordination with national/local authorities, State institutions, local civil society

and other relevant actors

• Participatory and community-based approaches

• Attention to priority cross-cutting issues (e.g. age, diversity, environment, gender,

HIV/AIDS and human rights)

• Needs assessment and analysis

• Emergency preparedness

• Planning and strategy development

• Application of standards

• Monitoring and reporting

• Advocacy and resource mobilization

• Training and capacity building

• Provision of assistance or services as a last resort

Sector leads have a particular responsibility for ensuring that humanitarian actors
working in their sectors remain actively engaged in addressing cross cutting concerns
such as age, diversity, environment, gender, HIV/AIDS and human rights. Experience of
recent crises suggests that these important dimensions to ensuring appropriate responses
have too frequently been ignored.

Sector leads are responsible for ensuring the necessary shift in programming as priorities
move from emergency relief to longer-term recovery and development. All sectoral
groups should include early recovery strategies and procedures for phasing out or
handing over activities. In addition, networks of early recovery focal points should be
established at the country level to ensure joint planning and integrated response. Sector
Leads should ensure that sectoral groups promote strategies that support the government

and other local partners from the outset of the response and enable strong linkages
between humanitarian and development actions, as appropriate.

Sector/cluster lead agencies are accountable to the Humanitarian Coordinator for
ensuring that the tasks mentioned above are carried out effectively.

8. Strengthening partnerships and complementarity amongst humanitarian

actors

A central element of the humanitarian reform process is the need to strengthen strategic
partnerships between NGOs, international organizations, the International Red Cross and
Red Crescent Movement and UN agencies. Indeed, successful application of the cluster
approach will depend on all humanitarian actors working as equal partners in all aspects
of the humanitarian response: from assessment, analysis and planning to implementation,
resource mobilization and evaluation. As such, the establishment of a Humanitarian
Country Team at the country level is an essential pre-requisite for effective application of
the cluster approach.

Humanitarian partnerships may take different forms, from close coordination and joint
programming to looser associations based on the need to avoid duplication and enhance
complementarity. To be successful, therefore, sectoral groups must function in ways that
respect the roles, responsibilities and mandates of different humanitarian organizations.
There must be recognition of the diversity of approaches and methodologies that exist
amongst the different actors. It is essential that sectoral groups find non-bureaucratic
ways of involving all humanitarian actors in a collaborative and inclusive process focused
on areas of common interest.

Some humanitarian actors may not be prepared or able to formally commit themselves to
structures which involve reporting to sector leads. Sector leads should ensure, however,
that all humanitarian actors are given the opportunity to fully and equally participate in
setting the direction, strategies, and activities of the sectoral group. Sector leads are
responsible for ensuring – to the extent possible – appropriate complementarity amongst
different humanitarian actors operating in their sectors or areas of activity.

9. Ensuring appropriate links with Government/local authorities, State

institutions, local civil society and other stakeholders

A key responsibility of sector leads at the country level is to ensure that humanitarian
actors build on local capacities and that they develop and maintain appropriate links with
Government and local authorities, State institutions, local civil society and other
stakeholders. The nature of these links will depend on the situation in each country and

In the case of emergency shelter, IFRC’s commitments are described in an MOU between IFRC and OCHA. IFRC

has not committed to being ‘provider of last resort’ nor is it accountable to any part of the UN system.

on the willingness and capacity of each of these actors to lead or participate in
humanitarian activities.

In some cases, Government and local authorities may be in a strong position to lead the
overall humanitarian response and the role of the Humanitarian Coordinator may be to
organize an international humanitarian response in support of the host Government’s
efforts. This would typically be the case in disasters. In other cases, particularly in
situations of ongoing conflict, the willingness or capacity of a Government or State
institutions to lead or contribute to humanitarian activities may be compromised, and this
will clearly influence the nature of the relationships which it establishes with
international humanitarian actors.

Similarly, the nature of the relationships established between international humanitarian
actors and local civil society, as well as other stakeholders, will depend on the political
and security situation and on their capacities and willingness to lead or engage in
humanitarian activities.

Application of the cluster approach does not imply that the agency designated as sector
lead in a particular country is responsible for leading the overall humanitarian response
within that sector, as this may be the responsibility of a Government department or a
local authority. It does mean, however, that the agency designated as sector lead is
responsible for promoting close cooperation amongst international humanitarian actors
working in that sector, and for ensuring appropriate linkages with Government and local
authorities, State institutions, local civil society and other stakeholders. Where
appropriate, sectors leads should promote training and capacity-building initiatives,
particularly in terms of strengthening the capacity of local authorities to provide
leadership.

10. Accountability of sector/cluster leads to the Humanitarian Coordinator

The intention of the cluster approach is to strengthen overall levels of accountability for
humanitarian response and to ensure that gaps in response do not remain un-addressed
because there are no clearly assigned responsibilities. At the global level, in line with the
IASC agreement on the allocation of responsibilities, cluster leads are accountable to the
Emergency Relief Coordinator for ensuring system-wide preparedness and technical
capacity to respond to humanitarian emergencies, and for ensuring greater predictability
and more effective inter-agency responses in their particular sectors or areas of activity.

At the country level, the Humanitarian Coordinator – with the support of OCHA – retains
overall responsibility for ensuring the effectiveness of the humanitarian response and is
accountable to the Emergency Relief Coordinator. While sector/cluster lead agencies at

In the case of emergency shelter, in agreeing to convene the emergency shelter sector in disasters resulting from

natural hazards the IFRC has made clear that it cannot accept accountability obligations beyond those defined in its
Constitution and policies. It will, however, do its utmost to ensure an adequate and appropriate response as far as
the network’s capacities, resources, as well as the access and security situation allow.

the country level cannot be held accountable for the performance of all humanitarian
partners operational in that sector, they are accountable to the Humanitarian Coordinator
for ensuring, to the extent possible, the establishment of adequate coordination
mechanisms for the sector or area of activity concerned, adequate preparedness, as well
as adequate strategic planning for an effective operational response.

In cases where stakeholders consider that a sector lead at the country level is not
adequately carrying out its responsibilities, it is the responsibility of the Humanitarian
Coordinator to consult the sector lead concerned and, where necessary, also the
Humanitarian Country Team. If necessary, based on these consultations the Humanitarian
Coordinator may propose alternative arrangements. If needed, the Humanitarian
Coordinator may also ask the Emergency Relief Coordinator to consult the relevant IASC
Principals at the global level before proposing alternative arrangements.

While the cluster approach encourages strong partnerships and joint planning amongst
humanitarian actors, it is up to individual agencies to determine levels of participation in
the work of the different sectoral groups. The cluster approach itself does not require that
humanitarian actors be held accountable to sector leads. Likewise, it does not demand
accountability of non-UN actors to UN agencies. Individual humanitarian organizations
can only be held accountable to sector leads in cases where they have made specific
commitments to this effect.

11. What is meant by ‘provider of last resort’?

The ‘provider of last resort’ concept is critical to the cluster approach, and without it the
element of predictability is lost. It represents a commitment of sector leads to do their
utmost to ensure an adequate and appropriate response. It is necessarily circumscribed by
some basic preconditions that affect any framework for humanitarian action, namely
unimpeded access, security, and availability of funding.

Where there are critical gaps in humanitarian response, it is the responsibility of sector
leads to call on all relevant humanitarian partners to address these. If this fails, then
depending on the urgency, the sector lead as ‘provider of last resort’ may need to commit
itself to filling the gap. If, however, funds are not forthcoming for these activities, the
Cluster Lead cannot be expected to implement these activities, but should continue to
work with the Humanitarian Coordinator and donors to mobilize the necessary resources.
Likewise, where the efforts of the sector lead, the Humanitarian Country Team as a
whole, and the Humanitarian Coordinator as the leader of that team are unsuccessful in
gaining access to a particular location, or where security constraints limit the activities of
humanitarian actors, the provider of last resort will still be expected to continue advocacy
efforts and to explain the constraints to stakeholders.

For cross-cutting areas such as Protection, Early Recovery and Camp Coordination, the
concept of ‘provider of last resort’ will need to be applied in a differentiated manner. In
all cases, however, sector leads are responsible for ensuring that wherever there are

significant gaps in the humanitarian response they continue advocacy efforts and explain
the constraints to stakeholders.

12. Rationalizing meetings

Sector leads are responsible for determining, together with those participating in the
relevant sectoral groups, the frequency and types meetings needed. Sector leads should
ensure that they do not make excessive demands for meetings, particularly where this
concerns small organizations which have limited capacities to attend large numbers of
individual sectoral meetings. Sector leads are responsible for ensuring that sectoral
meetings are well managed and productive. In some cases, different sectoral groups may
decide to meet collectively.

Sectoral meetings should supplement rather than replace or undermine the Humanitarian
Country Team meeting (at the country level) and to its equivalent at the district or
provincial level. Establishing individual sectoral meetings at the district level should be
determined by need rather than by a concern for creating a uniform structure.

13. The role of the Humanitarian Coordinator and OCHA at the country level

The role of the Humanitarian Coordinator at the country level is described in the IASC
Terms of Reference for the Humanitarian Coordinator. In line with the Terms of
Reference, the Humanitarian Coordinator – with OCHA support – is responsible for
establishing and maintaining comprehensive coordination mechanisms based on
facilitation and consensus building. These mechanisms should be inclusive of all the
actors involved at the country level in the provision of humanitarian assistance and
protection. Concerning the sectors, the Humanitarian Coordinator should ensure that:

• Sector leads, together with other members of the Humanitarian Country Team, are

consulted closely in developing the overall strategic direction of the humanitarian
operation;

• Effective coordination and information-sharing amongst the different sectoral

groups takes place, and the work of the different sectoral groups is integrated into
a coherent overall response;

• Unnecessary duplication and overlap among sectors is avoided;

• Cross-cutting issues such as age, diversity, environment, gender, HIV/AIDS and

human rights are effectively addressed in all sectors;

• Strategic planning is coherent throughout the country, i.e. at the national (capital)

level, between capital and the regions, and among the regions;

• Sectors are provided with the necessary common services and tools for effective

cross-sector collaboration, particularly in the areas of information management,
inter-agency needs assessments, development of the Common Humanitarian
Action Plan (CHAP), preparation of the Consolidated Appeal, Flash Appeal and
contingency planning;

• Sectoral meetings supplement rather than replace general inter-agency

coordination meetings, to prevent a fragmentation of the humanitarian response;

• Sectoral meetings at the capital level and in the regions are streamlined;

• Support is provided to sectors in advocacy and resource-mobilization efforts to

ensure a balanced, comprehensive and well-prioritized humanitarian response;

• Early recovery planning is integrated into all sectors or areas of activity.

Application of the cluster approach along with the other elements of the humanitarian
reform process will require strong coordination among a wide range of partners. There
will continue to be significant demand for common systems and services, such as
information management tools, advocacy and resource mobilization. At the country level,
OCHA will need to continue to provide support to the Humanitarian Coordinator in four
main areas: coordination; information management; advocacy and resource mobilization;
and policy development.

The Humanitarian Coordinator, in consultation with the Humanitarian Country Team, is
responsible for adapting coordination structures over time to reflect the capacities of
government structures and the engagement of development partners.

Annex 1

Generic Terms of Reference for Sector/Cluster Leads at the Country Level

The Cluster Approach operates at two levels. At the global level, the aim is to strengthen
system-wide preparedness and technical capacity to respond to humanitarian emergencies
by designating global Cluster Leads and ensuring that there is predictable leadership and
accountability in all the main sectors or areas of activity. At the country level, the aim is
to ensure a more coherent and effective response by mobilizing groups of agencies,
organizations and NGOs to respond in a strategic manner across all key sectors or areas
of activity, each sector having a clearly designated lead, as agreed by the Humanitarian
Coordinator and the Humanitarian Country Team. (To enhance predictability, where
possible this should be in line with the lead agency arrangements at the global level.)

The Humanitarian Coordinator – with the support of OCHA – retains responsibility for
ensuring the adequacy, coherence and effectiveness of the overall humanitarian response
and is accountable to the Emergency Relief Coordinator.

Sector/cluster leads at the country level are accountable to the Humanitarian Coordinator
for facilitating a process at the sectoral level aimed at ensuring the following:

Inclusion of key humanitarian partners

• Ensure inclusion of key humanitarian partners for the sector, respecting their

respective mandates and programme priorities

Establishment and maintenance of appropriate humanitarian coordination
mechanisms

• Ensure appropriate coordination with all humanitarian partners (including national

and international NGOs, the International Red Cross/Red Crescent Movement,
IOM and other international organizations), through establishment/maintenance of
appropriate sectoral coordination mechanisms, including working groups at the
national and, if necessary, local level;

• Secure commitments from humanitarian partners in responding to needs and

filling gaps, ensuring an appropriate distribution of responsibilities within the
sectoral group, with clearly defined focal points for specific issues where
necessary;

• Ensure the complementarity of different humanitarian actors’ actions;

• Promote emergency response actions while at the same time considering the need

for early recovery planning as well as prevention and risk reduction concerns;

• Ensure effective links with other sectoral groups;

• Ensure that sectoral coordination mechanisms are adapted over time to reflect the

capacities of local actors and the engagement of development partners;

• Represent the interests of the sectoral group in discussions with the Humanitarian

Coordinator and other stakeholders on prioritization, resource mobilization and
advocacy;

Coordination with national/local authorities, State institutions, local civil society and
other relevant actors

• Ensure that humanitarian responses build on local capacities;

• Ensure appropriate links with national and local authorities, State institutions,

local civil society and other relevant actors (e.g. peacekeeping forces) and ensure
appropriate coordination and information exchange with them.

Participatory and community-based approaches

• Ensure utilization of participatory and community based approaches in sectoral

needs assessment, analysis, planning, monitoring and response.

Attention to priority cross-cutting issues

• Ensure integration of agreed priority cross-cutting issues in sectoral needs

assessment, analysis, planning, monitoring and response (e.g. age, diversity,
environment, gender, HIV/AIDS and human rights); contribute to the
development of appropriate strategies to address these issues; ensure gender-
sensitive programming and promote gender equality; ensure that the needs,
contributions and capacities of women and girls as well as men and boys are
addressed;

Needs assessment and analysis

• Ensure effective and coherent sectoral needs assessment and analysis, involving

all relevant partners

Emergency preparedness

• Ensure adequate contingency planning and preparedness for new emergencies;

Planning and strategy development

Ensure predictable action within the sectoral group for the following:
• Identification of gaps;

• Developing/updating agreed response strategies and action plans for the sector

and ensuring that these are adequately reflected in overall country strategies, such
as the Common Humanitarian Action Plan (CHAP);

• Drawing lessons learned from past activities and revising strategies accordingly;

• Developing an exit, or transition, strategy for the sectoral group.

Application of standards

• Ensure that sectoral group participants are aware of relevant policy guidelines,

technical standards and relevant commitments that the Government has
undertaken under international human rights law;

• Ensure that responses are in line with existing policy guidance, technical

standards, and relevant Government human rights legal obligations.

Monitoring and reporting

• Ensure adequate monitoring mechanisms are in place to review impact of the

sectoral working group and progress against implementation plans;

• Ensure adequate reporting and effective information sharing (with OCHA

support), with due regard for age and sex disaggregation.

Advocacy and resource mobilization

• Identify core advocacy concerns, including resource requirements, and contribute

key messages to broader advocacy initiatives of the HC and other actors;

• Advocate for donors to fund humanitarian actors to carry out priority activities in

the sector concerned, while at the same time encouraging sectoral group
participants to mobilize resources for their activities through their usual channels.

Training and capacity building

• Promote/support training of staff and capacity building of humanitarian partners;

• Support efforts to strengthen the capacity of the national authorities and civil

society.

Provision of assistance or services as a last resort

• As agreed by the IASC Principals, sector leads are responsible for acting as the

provider of last resort (subject to access, security and availability of funding) to
meet agreed priority needs and will be supported by the HC and the ERC in their
resource mobilization efforts in this regard.

• This concept is to be applied in an appropriate and realistic manner for cross-

cutting issues such as protection, early recovery and camp coordination.

Humanitarian actors who participate in the development of common humanitarian action
plans are expected to be proactive partners in assessing needs, developing strategies and
plans for the sector, and implementing agreed priority activities. Provisions should also
be made in sectoral groups for those humanitarian actors who may wish to participate as
observers, mainly for information-sharing purposes.