Overview
The Global Shelter Cluster was established in 2005 and it is co-led by UNHCR (conflict situations) and IFRC (disaster situations) at the global level. The Shelter Cluster is an inter-agency mechanism that coordinates shelter, settlement, and shelter-related non-food items (NFIs) during a humanitarian response for internal displacement (IDP) situations. When activated at country level, it is responsible for coordinating the emergency shelter and NFI response with Shelter Cluster partners, other clusters and government authorities to support affected populations (through the provision of plastic sheeting, shelter kits, tents, cash, NFIs or other support) and longer-term needs (through transitional shelter, building or reconstruction of houses, capacity building, and related matters).
The Shelter Cluster promotes the inclusion of disaster risk reduction measures in the design and construction of shelters and settlements. Protection mainstreaming and risk analysis, particularly for housing, land and property (HLP), have important implications for shelter interventions. Close coordination with the Protection Cluster but also other clusters is therefore very important.
Relevance for emergency operations
The objective of a Shelter Cluster is to ensure there is a coordinated approach for meeting the shelter needs of affected populations more effectively by strengthening leadership, coordination, and accountability in the humanitarian shelter sector. UNHCR should recommend the activation of shelter clusters when there are shelter needs and the government requires additional capacity for coordination of shelter-related responses. According to the Policy on UNHCR's Engagement in Situations of Internal Displacement, in situations of conflict UNHCR should lead the Shelter Cluster.
The UNHCR Global Shelter Cluster Section should be contacted as soon as there is an indication that the activation of clusters will be discussed.
Please note that the cluster coordination approach is applicable in situations of internal displacement and natural disasters. In refugee situations the IASC does not apply, and the response is coordinated within the framework of the (RCM). In mixed settings, the "Joint UNHCR – OCHA Note on Mixed Situations: Coordination in Practice" (2014) applies.
Main guidance
The Shelter Cluster has developed tools and guidance for shelter operations which can be found on the GSC website. The Global Shelter Cluster Coordinator and the GSC support team at HQ stand ready for any advice needed.
Preparedness/ Pre-Crisis |
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Once the activation of the Shelter Cluster at country level has been activated: |
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 put in place. |
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. Where appropriate and possible, co-leadership with Government bodies and NGO partners is strongly encouraged. |
Create a Strategic Advisory Group (SAG): Chaired by the Cluster Coordinator, the SAG is responsible for developing and adjusting the strategic framework, priorities and work plan for the cluster. SAGs must represent the overall cluster partnerships, including the different types of cluster partners (International NGOs, national NGOs, UN, Red Cross/Red Crescent Movement) but also government representatives. A SAG should not have more than about ten members. |
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. Examples and templates can be found in the GSC Coordination Toolkit. |
Establish a regular and predictable dissemination of Information Management Products. The GSC has a toolkit and a companion available to support this. Initially this should include activity planning, 3/4Ws (Who, 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 becomes more established. The Shelter Severity Classification (SSC) System can improve IM activities to support evidence-based decision-making. |
Checklist on UNHCR’s roles and accountabilities in countries where UNHCR leads the Shelter Cluster |
As Shelter cluster lead agency, the UNHCR Representative as head of the Shelter Cluster lead agency is accountable to the Humanitarian Coordinator (HC) and is responsible to:
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The Shelter Cluster Coordinator is responsible and accountable for ensuring that the Shelter Cluster performs the following six core functions:
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As an Operational Organization and as indicated in the 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.
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The Shelter Cluster performance can be measured against the 6 core functions of the Clusters and accountability to affected population. The CCPM Process is a tool provided to country Clusters to carry out a yearly self-assessment. Standard indicators will follow the following headings:
1. Supporting service delivery
2. Informing HC/HCT strategic decision-making
3. Planning and implementing cluster strategies
4. Monitoring and evaluating performance
5. Building national capacity in preparedness and contingency planning
6. Supporting robust advocacy
7. Promoting accountability to affected populationsPost emergency phase
UNHCR and IFRC, as Shelter Cluster co-lead agencies at global level, work in close partnership with shelter actors to develop common approaches for shelter responses while developing more specific tools and methodologies for Disasters and Conflict contexts, which might include longer-term considerations. The Shelter Cluster develops an overarching strategy to provide a harmonized, efficient and effective humanitarian shelter response and support resource mobilization efforts.
Given the often 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 a key activity of a Shelter Cluster in order to get funding for cluster partners and support for issues such as land allocation or other HLP issues. The Shelter Cluster Coordinator also plays a crucial role in advancing coordination and cooperation between different sectors’ intervention (e.g. WASH, Protection, Early Recovery (where existing), etc.). Country Shelter Clusters should coordinate and provide inputs to the shelter sector sections of the Humanitarian Programme Cycle (HPC) and its outputs including the Humanitarian Needs Overview (HNO) and the Humanitarian Response Plan (HRP).
Links
Main contacts
Functional mailbox: Global Shelter Cluster <[email protected]>
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