Yemen
Senior Transformative Agenda Implementation Team Mission Report
24 November 2014 November November 2014 November2014
Contents
Background
1 Background
A Senior Transformative Agenda Implementation Team (STAIT) mission to Yemen took place from 4 – 13 November 2014, led by Panos Moumtzis (STAIT Core Team) with the participation of Gareth Price-Jones (Oxfam) Andrew Wyllie (OCHA), and Jean McCluskey (STAIT Core Team). The mission’s focus was shaped by the recommendations of the Yemen Humanitarian Country Team’s (HCT) 2013 retreat and the Emergency Directors Group (EDG) mission in June 2014. Following an invitation from the Humanitarian Coordinator (HC), the STAIT planned a country support mission to Yemen to focus on the three core components of the Transformative Agenda (TA): leadership, coordination and accountability. In addition, the HC and HCT identified the following as key issues to be addressed by the HCT: 1. Humanitarian access within the context of the evolving political situation; 2. Accountability: both to affected people, and of HCT and Clusters: need for a more ‘joined-up’ or integrated approach; 3. Resource mobilization and the impact of underfunding; 4. The centrality of protection and the need for a comprehensive protection framework; 5. Timeliness of the response, including rapid assessment and rapid response; 6. Advocacy and the need for a comprehensive strategy.
1 Methodology 2 Context 2 Key findings and recommendations 4 Implementation and follow-up 5 Annex I. Yemen Action Plan 15 Annex II. STAIT Mission Agenda 16 Annex III. Yemen HCT Retreat Agenda 17 Annex IV. STAIT Yemen Mission Terms of Reference 21 Annex V. List of Organisations met by STAIT
The overall purpose of the mission was to facilitate reflections of the humanitarian community on the effectiveness of humanitarian response in Yemen within the framework of the TA and to agree priorities to strengthen collective action. The outcome of the mission was an Action Plan developed by the HCT with the support of the STAIT (see annex I).
Methodology The STAIT mission methodology was forward-looking with the aim of facilitating expanded HCT decisions on how to strengthen collective leadership, coordination, and accountability to enhance aid delivery and effectiveness. The methodology was also designed to improve understanding of the TA at field level, and to strengthen the practical, “tailor-made” application of the TA protocols in Yemen, through a series of self-assessment exercises and facilitated discussions with different groups. During the 8-day mission, the team met with over 100 people in Sana’a and the field. The STAIT conducted individual interviews with HCT members and donors in Sana’a. The team also participated in a two-day mission to Aden, and met with members of the Area-HCT (A-HCT). Selfassessment exercises were conducted with the HCT, A-HCT in Aden, national Inter-Cluster Coordination Mechanism (ICCM), national NGOs (NNGOs) and international NGOs (INGOs). The methodology enabled the team to engage with a wide range of humanitarian actors to assist in identifying issues and together making recommendations to improve humanitarian effectiveness and accountability. These findings shaped the agenda of the two-day HCT retreat at the end of the mission.
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The STAIT mission was carried out concurrently with a technical support mission by OCHA’s Inter-Cluster Coordination Support Section, coordinated to be mutually reinforcing. The two missions came together to run joint sessions for the ICCM selfassessment and the HCT retreat. The second day of the retreat was expanded to include ICCM members and senior humanitarian representatives from the three sub-national coordination hubs (Aden, Haradh and Sa’ada), with the aim of strengthening the links between these groups as well as field-capital coordination. The retreat focused on the priorities identified by the different groups during the self-assessments and resulted in the development of an Action Plan formulated by this expanded HCT to enhance the collective response.
Context The humanitarian situation in Yemen is characterized by a chronic emergency with frequent and sudden flare-ups, due to recurrent conflict. Yemen’s political transition since 2011 is precarious and has yet to translate into improvements in the humanitarian situation. Recent political tensions and negotiations to form a new Government following the capture of the capital by Houthi rebels in September 2014 have crippled the country and aggravated widespread insecurity. The unstable situation constrains humanitarian action, and access to many of the most vulnerable groups remains a challenge. Decades of under-development and poverty intensify humanitarian needs and challenge a clear demarcation between humanitarian and development issues. Migration – including refugee flows, economic migrants and Yemeni labourers forcibly returned from Saudi Arabia – poses a growing humanitarian concern. An estimated 320,000 people are verified as internally displaced in Yemen. Over half of Yemen’s population (around 14.7 million people) needs some form of humanitarian aid in 2014. The country faces one of the world’s largest food and nutrition crises, with food insecurity affecting about 10.5 million Yemenis, and an estimated 47 per cent of children under 5 stunted as a result of chronic malnutrition in 2014. Despite the scale of humanitarian needs, the Yemen Humanitarian Response Plan (HRP) is only 50% funded.
Above: HCT retreat in Sana'a. Below: priority actions resulting from selfassessment exercise with NNGOs.
Key Issues to Increase Effectiveness of Yemen Humanitarian Response The interviews, self-assessment exercises and group discussions demonstrated the need for immediate action in the following areas: Effectiveness Issue
Description of Key Actions
1.
Collective responsibility, collective leadership – a change of mindset
There is a need for a renewed spirit of working together and unity of purpose through a collective leadership by members of the HCT and A-HCT. There is a need for a mindset shift in joining hands and building trust, leveraging the strength of the collective in order to better meet current challenges. There has been progress in bringing the humanitarian community around a collective response plan and expansion of co-leadership approaches has strengthened a partnership approach within sectors. The expanded HCT retreat agreed that there is need for a mind-shift to move from ‘single’ leader approach, to ‘collective’ leadership – committed and consistent engagement by senior leadership in the HCT, ensuring that agency mandates are set aside in the interests of common interests and priorities of affected people and that the collective needs of clusters and their partners are comprehensively represented at the HCT through Cluster Lead Agency representatives.
2.
Speed of delivery
Highlighted by all sections of the humanitarian community, the HCT needs to strengthen its ability to respond and deliver faster to people in need. This is particularly important in view of the evolving situation in Yemen. Actions include: i. ii.
Collective rapid assessment and response mechanisms Review of contingency plans to enable clear operationalization and implementation of the plan. Clearer triggers from early warning, to rapid response
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iii. Streamlining and speeding up of UN agency and ERF funding mechanisms, setting up standards and timeframes for engagement iv. Operationalisation of the Periodic Monitoring Report (PMR) and other collective monitoring products to enable the HCT to regularly monitor progress and adapt the response to respond to evolving needs.
3. Accountability to affected people
4. Improving access to affected people and security analysis
5. Coordination architecture
6. Humanitarian and development linkages
The Yemen humanitarian response needs to be more systematically and consistently guided by consultations and feedback from affected communities. Whilst significant improvements have been made in the last year on an individual organizational basis, the lack of a coherent and collective AAP plan in the Yemen context also affects access and relations with communities and authorities as well as the ability to target the most vulnerable. The HCT and ICCM need to ensure a collective approach to engagement with communities throughout the programme cycle to better inform, guide and adjust the response. A practical AAP plan needs to be adopted in view of the on-going development of the Yemen Humanitarian Response Plan (YHRP) in the evolving humanitarian situation. A collective and consistent approach to humanitarian access is needed to improve the ability to support affected people. Improvements need to be made particularly by UNDSS in the analysis of security and risk through better communication with state and non-state actors to provide a more enabling security environment for response. More consistent approaches by individual actors have directly shown that this is possible. The lack of the right skill set, limited capacity and reach of UNDSS particularly at the field level means that they are unable to provide a comprehensive analysis outside of Sana’a necessitates a risk-averse approach which has an indirect impact for many non-UN operational actors. Linkages and clarity of roles and responsibilities between the key coordination structures in Yemen, namely HCT, ICCM and A-HCT need to be strengthened in order to better support strategic decision making and operational support to better serve affected people. To the credit of the HCT/Clusters, many gains have been made over the last year to involve the centres of field response in the development of the SRP, although this capital field linkage still needs to be strengthened. i. Cluster Lead Agency (CLAs) representatives in particular need to strengthen their responsibility through clearer roles and responsibilities and communication in their internal structures (CLA Rep, national cluster coordinator, Head of SubOffice, sub-national cluster coordinators). ii. Transparent accountability mechanisms need to be put in place to be able to test accountabilities throughout the system. iii. Innovative changes in the coordination architecture introduced in 2013 to bring in Area Humanitarian Country Teams (A-HCTs) and eliminating Area ICCMs needs to be better supported, sequenced and connected to other parts of the coordination architecture - in particular with sub-national cluster coordinators, other A-HCTs and the HCT. iv. Opportunities to increase the effectiveness of response through more integrated and less siloed approaches by clusters to meet strategic objectives. The Yemen humanitarian response needs to strengthen the linkages between humanitarian and development work and at the same time set clear parameters for its humanitarian response. Given that the root causes of many humanitarian needs are directly related to the symptoms and impacts of chronic poverty, actions include: i. Maximizing the impacts of humanitarian response in terms of sustainable and resilience based approaches ii. Make a clear business case to illustrate the critical linkages and complementarity between the two sides of support to government and communities, and highlight the consequences of not following humanitarian work with longer-term development support
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iii. Taking an ‘investment protection’ approach on humanitarian response gains and capitalize with longer term follow-on work of development programmes. iv. Ensure a comprehensive coordination structure for development action which includes key actors such as NGOs. v. Advocacy to donors to continue to (and increase) support to longer term work in Yemen despite difficult conditions; potentially putting in place ‘Risk Monitoring Units’ to provide enhanced evidence of how funds are being spent. vi. HCT to re-energise and give clarity of structure and leadership of the Resilience Working Group ensuring the needs and priorities of communities are place above those of individual agencies. 7. Comprehensive Protection Framework
8. Advocacy
Given the wide range of protection needs of different vulnerable groups in Yemen - migrants, refugees, IDPs, returning Yemeni nationals from Saudi Arabia, there is a need for a comprehensive protection framework that will underline the centrality of the protection and ensure it is well mainstreamed across all sectors in a practical, operational manner. With the support of the Protection Cluster, ProCap deployment of a senior Protection Advisor and the Global Protection Cluster, it is recommended that the HCT develop an overall protection framework which outlines how protection of these groups can be done more effectively, illustrating very practically what the added value will be and what will be done differently as a collective as a result of investment in an overall protection framework. Collective advocacy strategies are needed to address (a) funding (b) humanitarian access and (c) community acceptance, to enable a more effective response. Collective advocacy measures and the forming of an inter-agency Humanitarian Communications Network would give an overall stronger voice and impact of the humanitarian community i. The ‘human story’ of Yemen’s affected communities needs to have greater profile to inform donor funding decisions. ii. Re-evaluating advocacy for greater participation of Gulf actors in coordinating humanitarian action is also needed. iii. Collective support visits by regional and global agency representatives are seen as positive advocacy mechanisms.
Below: some results of the self-assessment exercises with the HCT, ICCM, INGOs, NNGOs and Aden A-HCT.
Implementation and follow-up The HCT has committed itself to implement the Action Plan and report to the STAIT in 90 days from receiving this report i.e. by 28 February 2015 on actions taken. The STAIT team remains ready to continue providing remote support and mobilizing additional technical assistance as needed in order to advance the implementation of the recommendations.
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Annex I. Yemen HCT Action Plan 1. DELIVERY Issue
Action
Slow speed of delivery/response
i.
ii. iii. iv.
v.
vi.
Objective/Purpose of Action
Establish a time bound technical group to study the impediments to rapid response and identify possible solutions. Adopt a collective Rapid Response Mechanism Ensure contingency plans are operationalised Expedite pooled and UN Agency funding mechanisms and decision-making processes for faster allocation of funds, agree standards (especially admin requirements, timeframe, etc for all sides) and monitor them. Undertake mapping of national actors to identify national organisations for capacity building to enable rapid humanitarian response, drawing upon existing UNDP database. Develop capacity building programme informed by existing work.
Challenges identifying most vulnerable
vii.
viii. Access to affected people is restricted
Establish a needs assessment task force to: a. coordinate standardisation b. training of assessments and c. ensure rapid implementation in an emergency.
Improve sharing of situational and actor analysis between INGO Safety Advisory Office (ISAO)/DSS/ICRC to inform how best to enable rapid response and general humanitarian programming. ix. Restore links with ICRC to support regular information sharing. x. Develop and agree on an access monitoring strategy. xi. Create awareness of tools for monitoring access
Give the HCT a clear understanding of what is preventing the collective from responding in a more timely fashion, and review the feasibility of introducing a rapid response mechanism for Yemen, drawing from best practice in other operations. Ensure the contingency plan has clear actions - who, where and costings - to ensure the plan is clear and practical; to allow the plan to be incorporated into the HRP and facilitate funding of preparedness activities. Ensure and monitor streamlined and more timely release of ERF and UN agency funds to partners for humanitarian response. To increase timeliness of response through capacity building of national actors.
Responsible Entity HCT lead ICCM
All agencies working on capacity building
Ensure a coordinated approach to assessments, data consolidation and analysis, and rapid assessment.
ICCM lead reporting to HCT
To improve rapid response through better information and analysis. To restore previous regular (weekly) meetings to share analysis and agree on actions. To have an overarching approach to monitoring access to improve
DSS lead (if capacity) with ISAO, ICRC, OCHA
(i) (ii) Dec 2014 (iii-vi) Q1 2015
CLAs and UN Agencies
Target Date
Q1 2015
ASAP – urgent given situation Q1 2015
OCHA lead (jointly with DSS if capacity) with HCT,
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Action xii. xiii.
Objective/Purpose of Action
Carry out joint monitoring & reporting on access. Undertake mapping of hot spots & areas of restricted access.
Responsible Entity
Target Date
the ability to reach affected people.
A-HCTs
Ensuring AAP is a collective accountability promoting a consistent approach with communities. Consolidate and analyse feedback to inform decisions regarding the collective response and share responsibility for ensuring compliance with the minimum accountability standards. Learn lessons from existing AAP shared services in other contexts to apply rapidly in Yemen.
ICCM lead with AHCTs, reporting to HCT
Q1 2015
To gauge if existing monitoring framework and report (as well as specific data and information gathered) is useful and assists in making operational decisions; set the framework for what needs to be collected, monitored, how frequently and by whom. Regular monitoring by HCT to monitor and act on progress, priorities and need is a key responsibility of HCT members and critical to the response. To engage HCT members (not delegated) in core and critical HCT responsibilities promoting active engagement. To ensure right information products that support analysis by humanitarian partners and reduce the burden on monitoring and reporting for operational
HC/HCT lead with ICCM and OCHA
Q1 2015
2. ACCOUNTABILITY TO AFFECTED PEOPLE Low levels of consultation with affected people and few feedback mechanisms
i.
ii.
Develop a practical action plan with specific collective steps towards: a. minimum accountability standards and guidance drawing on the IASC Framework for AAP b. introducing an adapted community feedback mechanism including a collective ‘hotline’ for feedback, including peer to peer. Review learning from shared accountability services in Iraq and Philippines.
3. HUMANITARIAN PROGRAMME CYCLE Absence of an HCT monitoring framework (and demand for one), to monitor progress of HRP, changing needs and determine and agree priorities
i.
ii.
iii.
iv.
Review and revise the current Periodic Monitoring Report (PMR) to be a management tool for the HCT to regularly monitor progress and make decisions on priorities and adjustments to the response. Examine the current PMR’s usefulness for the HCT to demonstrate (a) progress (b) priorities and (c) adjustments with changing needs, in a timely manner (PMR for Jan-July released in Nov). Based on the review of the current PMR, provide a realistic and useful monitoring framework from the HRP for the HCT to analyse on a regular basis Review usefulness of collective information products and ensure these align with and support monitoring requirements. Ensure HCT support for timely sharing of data for those information products which are deemed most useful.
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Action
Objective/Purpose of Action
Responsible Entity
Target Date
organisations.
Heavy Humanitarian Programme Cycle processes
v. vi.
vii.
Carry out a light review of HRP processes to: clarify how activity costing and projects will or will not be incorporated in OPS and how funding will be tracked; identify where simplification and savings in time can be made e.g reducing overall time period of the HRP process, reduce narrative description, reduce indicators.
Current monitoring in OPS is confusing as there is a mix of projects and lump sum funding without being attributed to specific outputs. Tracking of funding of action is important for gaps and prioritization To reduce time engagement burden for humanitarian partners to get broader involvement in the plan and broader contribution to monitoring of overall plan.
HCT lead, with ICCM and support from OCHA
OPS Dec 2014 Q1 2015
4. LEADERSHIP (INCLUDING LEADERSHIP AROUND COORDINATION) Humanitarian architecture does not work optimally to best serve affected people; structures are not empowered to rapidly support operational decision making
i.
Review coordination architecture to: a. verify current structure is ‘fit for purpose’ in the changing operational environment, including a review of relevance of coordination structures at national and subnational level and the role and capacity of government. b. review (a) linkages, (b) clarity in roles, responsibilities, (c) decision making abilities, (d) membership and participation and (e) mechanisms for communication between the HCT, A-HCTs, CLAs, cluster coordinators and sub-national cluster coordinators, and (f) operationalise ToRs, clarifying responsibility for products and processes. c. hold retreats for A-HCT representatives and sub-national cluster coordinators to clarify and strengthen linkages, working arrangements, ownership of mechanisms and ToRs of A-HCTs at sub-national level. d. develop ‘roles and decision making’ framework to effectively communicate and monitor adherence to agreed roles, protocols and timeliness of communications e. strengthen participation and responsibility of sub-national structures in HPC process (all stages), ensuring a bottom-up analysis of
To ensure humanitarian coordination structures operate clearly and optimally in order to achieve the best results for affected people To improve clarity of roles and communications between levels and structures to improve usefulness of coordination mechanisms, timeliness, communication and action on key humanitarian issues Clear roles, decision making and communication between national and sub-national levels to empower sub-national structures to take rapid operational decisions and effectively feed upwards to inform overall humanitarian decision making and common approaches. Reduce transaction time of coordination structures to improve participation and usefulness of coordination. To allow HoSOs to engage proactively with organisations at
HCT lead, CLAs, ICCM, National and subnational cluster coordinators, OCHA and supported by OCHA ICCS Geneva
January 2015 and every 6 Months
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Action
ii.
Insufficient connectivity and strategic sequencing between HCT, ICCM and A-HCT
iii. iv.
v. vi. vii.
viii.
needs CLAs to issue memos where necessary to clarify internal relations and reporting lines.
Objective/Purpose of Action
Responsible Entity
Target Date
field level.
To improve communication and collaboration between national and sub-national cluster coordinators who have no formal reporting line making adhering to responsibilities difficult. Improve information flow from sub-national to national, including up to CLA rep.
HCT meeting agenda to include as standing item strategic issues raised by ICCM and A-HCTs Set time standards for sharing of minutes and ensure finalised minutes of HCT are sent out in a timely manner and disseminated to the field. Monthly updates to the HCT from each A-HCT highlighting operational issues including access. HC regular (monthly) communication with A-HCT HC to meet with ICCM coordinator prior to HCT meetings. Joint field visits by HC/Cluster Lead Agency/ INGO
Better connectivity between HCT, ICCM and A-HCT with a view to ensuring the humanitarian response is better informed and guided.
HC, HCT, ICCM, AHCT and OCHA
Immediate
Limited mandate and capacity to lead A-HCT and sub-national Clusters
ix.
Provide orientation for Area Coordinator of A-HCT on coordination mechanisms & formalise link between national & sub-national levels.
To strengthen Area Coordinator’s capacity to facilitate effective coordination at the sub-national level
OCHA, CCs, CLA
Immediate
Lack of engagement by AHCT members
x.
National cluster coordinators to provide orientation to sub-national cluster coordinators on roles and responsibilities and linkages between the various coordination structures and entities.
To ensure sub-national cluster coordinators are fully informed of their core functions, deliverables expected, support they can expect from the national level, and the reporting lines and linkages
National CCs
Q1 2015
Increase effectiveness of humanitarian programming through more integrated approaches
xi.
Better integrated planning between HC/HCT, ICCM and OCHA on key humanitarian thematic issues for HCT meetings Inter-cluster and cluster coordinators to brief HCT (and donors as needed) on core multi-disciplinary thematic issues Cluster Coordinators (national and sub-national) invited to attend A-HCT on key themes.
Ensure key humanitarian operational issues are incorporated into HCT agenda. Ensure HCT is leading on core issues which are directing the humanitarian response. To ensure comprehensive representation of cluster/inter-
HC/HCT HoOCHA
Immediate, then min quarterly reviews
xii.
xiii.
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Action xiv.
xv.
Objective/Purpose of Action
Joint ICCM visits to field in support of operational themes, encouraging two or more clusters working together Cluster coordinators to proactively inform other cluster coordinators on cross cutting issues or invite them to their meetings if relevant.
cluster issues and support reps on HCT.
Responsible Entity
Target Date
Agencies pursuing agency issues and not sufficiently common interests
xvi.
Hold regular meetings between: a. head of agency and cluster coordinator; also cluster coordinator together with CLA and HC b. national-level clusters & A-HCT (on a quarterly basis) c. HC to attend ICCM for key discussions
To ensure a better response on priority issues from a collective point of view.
No formal mechanisms exist for holding CLAs accountable for CLA and cluster coordinator performance
xvii.
Ensure implementation of Cluster Lead Agencies (CLA) responsibilities, by: a. Clarifying in the HCT the roles and responsibilities of CLAs; b. Supporting and monitoring that CLAs are ensuring quality and experience of cluster coordinators c. Holding CLAs accountable (including for rapid response of clusters) d. Organising regular/standardised briefings for new cluster coordinators and HCT members HoSO briefed by CC before A-HCT meetings and CLA Reps to meet with CC before HCT meetings Include cluster issues as standing item on HCT agenda and CCs to be briefed by CLA Rep/HoSO post A-HCT meetings.
Better functioning / support HC lead with CLAs Q1 2015 provided to the cluster by the CLA; and HCT better understanding and respect for collective objectives. OCHA to contribute To exercise the formal to standard materials accountability line which exists between the HC and CLAs. To ensure rapid response is reviewed against criteria defining ‘rapid’ and ‘adequate’ response and to take action. To ensure that understanding is sustained despite turnover. Suggestion for staff from HCT to do this rather than OCHA to demonstrate shared ownership; CLAs would produce the materials for cluster coordinators.
Request the establishment of a humanitarian donor group, and schedule regular HC/donor group meetings to discuss requirements, rapid response and funding Once agreement on core set of indicators for HRP monitoring framework (PMR), work with donors to accept these indicators and where possible, reduce other indicators to minimise burden on monitoring and reporting.
To ensure well- coordinated and HC/HCT/OCHA more timely humanitarian funding for response To improve and streamline monitoring and reduce monitoring and reporting burden on operational organisations.
xviii. xix.
Need for improved xx. coordination of xxi. funding, funding mechanisms and xxii. reporting
National clusters & OCHA (national) & A-HCT, CLA Reps
Monthly
Q1 2015
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Action
Objective/Purpose of Action
Responsible Entity
Target Date
xxiii. Limited analysis, understanding of security to provide an enabling environment for access to affected xxiv.
Set up a HCT+UNDSS+DO meeting to: a. review UNDSS capacity for better security analysis with a more enabling approach b. determine and agree mechanisms for coordination of analysis with other key actors eg ISO, ICRC UNDSS to further expand its presence in the field and establish closer network / working relations with tribes (ICRC model)
Agree and implement a security HC to raise issue structure to deliver high quality and with DO rapid access and security analysis to provide an enabling environment for humanitarians to access and respond to the needs of affected people
Immediate
HC/UNHCR Representative – double hatting
xxv.
UNHCR to review capacity with a view to better supporting the UNHCR Rep to perform both functions
HC/UNHCR Rep is sufficiently UNHCR/Rep supported to be able to carry both functions
Immediate
Gaps in OCHA capacity
xxvi.
OCHA to expedite recruitment / appointments to vacant posts OCHA to communicate staffing gaps to agencies for them to provide support as part of the collective leadership, where possible.
Ensure critical coordination functions are filled to support the overall humanitarian community in a rapid, effective and accountable response
Immediate
xxvii.
OCHA, Agencies to review gaps and offer potential support
5. CENTRALITY OF PROTECTION Lack of a comprehensive protection framework
i.
HCT to establish Protection Working Group (WG) and agree ToRs to ensure the centrality of protection.
ii.
Protection WG to define protection action in Yemen
WG shall lead on developing a WG to include key practical and operational Protection NGOs & UN reps in framework and ensuring a more protection; comprehensive response in relation representation from to vulnerable groups, IDPs, the Yemen National refugees, Housing Land and NGO Forum. Property rights (HLP), GBV, Protection of Civilians (PoC), migrants, Yemenis expelled from KSA. Need to ensure that rationale for an additional framework is needed and that this adds value to existing work and illustrates what operationally will be done differently
Q4 2014
Examine different protection Protection Working definitions, WG on protection to Group reach a common definition of protection in the context of Yemen.
Q1 2015
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Action
Objective/Purpose of Action
iii.
Request HQ protection deployment support
iv.
Expanded Protection WG meeting with external support
v.
Articulate roles and responsibilities of different actors and coordination groups in development, agreement, implementation and monitoring of the protection framework
vi.
No common approach to advocacy on protection issues
Responsible Entity
To provide additional support in the ProCap; OCHA development of the Yemen Policy Branch; Protection Framework OHCHR GVA
Target Date January 2015
Global protection cluster (GPC) to HC, HCT, Protection provide technical support and shareWG case studies/experience. GPC Ensure clarity of roles to reduce transaction time on development and implementation of the protection framework
Protection WG
Present Protection Framework to HCT for adoption and operationalization by humanitarian community.
Ensure finalisation and operationalization of protection framework
Protection WG
vii.
Undertake advocacy on violations within the framework agreed
To ensure common agreement on when and how to speak out on violations - access issues and Government blockages and mapping NSA roles.
Protection training for non-protection actors from clusters and operational partners
viii.
Protection mainstreaming training to be rolled out in Yemen; cluster coordinators, inter-cluster coordinators to attend regional Protection mainstreaming training of trainers and ensure dissemination of relevant materials to all partners.
To train operational partners and clusters on how to mainstream protection in their programme work and ensure better integration of POC in all aspects of coordination (assessment, planning, implementation, monitoring)
Pooling of data on protection is not consistent
ix.
Define and agree mechanisms for recording protection information to enable aggregation, sharing and action where possible.
Need to improve consistency of protection mainstreaming throughout humanitarian response
x.
Set up a system for reviewing how humanitarian projects adhere to protection mainstreaming.
March 2015
OHCHR
Protection cluster coordinator, GPC Protection Mainstreaming Task Team, OHCHR
To be able to better record, analyse and use protection data to improve protection of affected community
HC with OCHA support
Could be used to advise operational partners on how to mainstream protection in their work
Protection WG with OCHA
Q1 2015
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Action
Objective/Purpose of Action
Responsible Entity
Target Date
Craft a more compelling narrative on the humanitarian situation (protracted vs emergencies), unpacking overall figure of humanitarian caseload into targeted vulnerable groups Present a common set of achievements as well as the human impact of underfunded programmes. Provide the HCT with a mechanism to implement the advocacy strategy and monitor impact. To highlight the humanitarian needs in Yemen. To capitalize on increased involvement of Gulf countries in funding major humanitarian crises (Syria and Iraq).
HC Lead supported by OCHA Humanitarian Comms Network (HCN) OCHA and HCN
Dec 2014
HC/OCHA/ HCT
Q1 2015
Improve understanding of areas and communities that require targeted advocacy and leverage individual organization acceptance for the broader benefit of all humanitarian organizations. Improve acceptance by central authorities in order to ease existing bureaucratic impediments.
ICCM
Q1 2015
Access negotiation is consistent from organization to organization. Organizations negotiate access for their programmes individually but advocate for common principles and communities receive consistent message.
HCT OCHA
6. ADVOCACY YHRP is not sufficiently funded
i. ii. iii.
iv.
v.
Develop an HCT advocacy strategy Develop HCT key messages based on revised HNO and SRP priorities. Formalize Humanitarian Communications Network (TORs) as main inter-agency mechanism to implement advocacy strategy. HCN to report to HCT. Draft human interest stories by cluster (coupled with more data journalism to highlight emergency needs). Distribution through social and new media. Joint HC + select HCT members roadshow to donor capitals (no donor representation in country), including GCC.
Lack of community acceptance limits our ability to deliver
vi. vii.
Undertake a mapping of black spots where community acceptance is insufficient. Greater engagement by INGOs with national and local authorities to gain endorsement for programmes.
Lack of humanitarian access
viii. ix.
Develop guidance on agreed access conditionality. Develop joint printed material on humanitarian principles.
Jan 2015 Dec 2014
Monthly
HC/INGO Forum
Q1 2015
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Issue Gulf Actors do not participate in HCT (Humanitarian Coordination)/ HRP
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Action x.
Responsible Entity
Target Date
Linkages with Gulf donors have potential for greater humanitarian access to specific areas Potential funding opportunities for humanitarian response Bringing Gulf actors into planning process will enable a greater understanding of their own workplans and potential for influencing these in alignment with HRP
HC/HCT
Q1 2015
Undertake mapping of actors and funding in humanitarian and development sectors to assist in identifying linkages and opportunities Bring cluster coordinators into ‘sectoral’ Partner Group coordination Strengthen participation of NGOs in existing development coordination using leverage of UN agencies Compile learning: clusters to document case studies of existing good practice of linkages between humanitarian and development and how humanitarian action can be made more sustainable (early recovery approaches) to share with other clusters and adopt key approaches across clusters
Understanding linkages to exploit potential opportunities Building trust and gaining greater acceptance of humanitarian community by government and communities through greater engagement Quick wins to share across clusters and sectors and accelerated learning in how to link humanitarian and development and assist in setting parameters
OCHA, UNDP
Q1 2015
Develop explicit business case to make clear to donors the critical linkages between humanitarian and development, incorporating concepts of ‘investment protection’ of gains made in the humanitarian sector and the risks associated with development programming not following from humanitarian response in the Yemen context Appropriate ‘packaging’ of humanitarian programmes to fit with donor funding Advocacy to donors for flexibility of funding Examine how CHF for 2015 can support humanitarian and development linkages
To be able to convince donors as well as aspects of the humanitarian and development communities of importance of linkages and need for flexible funding
Delegate to specific HCT members to: a. understand rationale for not participating and advocate with Gulf actors to participate in planning and share information on activities. b. review existing action plan on engagement with Gulf donors, take stock and review where efforts can realistically lead.
Objective/Purpose of Action
7. HUMANITARIAN AND DEVELOPMENT LINKAGES Lack of sufficient linkages between humanitarian and development programming
i.
ii. iii.
iv.
Advocacy to explain critical need for linkages between humanitarian and development to donors
v.
vi. vii.
viii.
CLAs and their cluster coordinators UN Agencies in sector Partner Groups
All Clusters TBC - Resilience
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Issue
Action
Lack of clarity of humanitarian priorities
ix.
Resilience Task Force stuck in agency mandates limiting ability to take concept forward
x.
xi.
Set clear parameters to allow prioritisation of humanitarian activities.
HCT to agree structure (with potential rotating leads), ToR and concrete action plan with timetable to move forward Define and contextualise resilience in Yemen
Objective/Purpose of Action
Responsible Entity
Target Date
Enable prioritisation of actions to be supported through humanitarian funding.
ICCM Lead with OCHA
Q1 2015
Break deadlock of structure and leadership and move resilience agenda forward and how this bridges humanitarian and development
HC, HCT
Q1 2015
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Annex II. Summary STAIT Mission Agenda An outline of the mission agenda is as follows:
STAIT component 2 November 3 November 4 November 5 November
6 November
7 November
8 November
9 November
10 November
11 November
12 November 13 November 14 November
Arrival in Sana’a Meeting with HC ai and OCHA HoO Meetings with UNICEF, UNDSS and UNHCR Self-assessment with ICCM Bilateral meetings with UNFPA, WHO, UNDP, FAO, OHCHR, and WFP Meeting with RC Bilateral meetings with ICRC, MSF-F, Gulf Organisations, ADRA, IOM, and NRC Meeting with donors (ECHO, Japan, Netherlands) Bilateral meetings with Care and Save the Children Self-assessment with INGOs Dinner with INGOs Meeting with HC Self-assessment with HCT Self-assessment with NNGOs Travel to Aden Travel to Hodeida Self-assessment Travel to Haradh with AHCT Self-assessment Meeting with local with AHCT authorities Meeting with affected people Return to Sana’a Return to Sana’a Preparation for HCT retreat Meeting with OCHA office Meeting with HC HCT retreat Extended HCT retreat with ICCG Debrief with HC Depart Sana’a
ICCS component Arrival in Sana’a Meeting with OCHA office Travel to Aden, preparation for Aden workshop Aden ICC workshop Aden ICC workshop Return to Sana’a
Meetings with cluster coordinators in Sana’a Preparation for Haradh workshop
Travel to Haradh
Haradh ICC workshop
Haradh ICC workshop Self-assessment with AHCT
Return to Sana’a Preparation for ICCG workshop ICCG workshop
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Annex III. Yemen HCT Retreat Agenda Expanded Humanitarian Country Team Retreat Transforming Humanitarian Action in Yemen
Day 1 09.00 to 17.00 (lunch 12.30) 1. 2. 3. 4. 5.
6. 7. 8. 9.
Overview, Workshop Objectives Review of EDG Action Plan Self-Assessment Results Themes a. Humanitarian Programme Cycle b. Leadership c. Coordination d. AAP Action Planning 12.30 Lunch Action Planning and Decision Making Wrap-Up
Day 2 09.00 to 16.30 (lunch 13.00) 1. Review Decisions Day 1 2. Expanding from Action Planning to Action a. taking forward decisions 3. Lunch 4. Cluster and Field Coordination: Shared Leadership in Practice 5. Dissemination Strategies 6. Wrap-Up
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Annex IV. STAIT Yemen Mission Terms of Reference BACKGROUND The Emergency Directors Group established the Senior Transformative Agenda Implementation Team (STAIT) to support them in more broadly rolling-out the Transformative Agenda (TA) to the field. Through the preparation and dissemination of communications materials, remote support to Humanitarian Country Teams (HCT) and a number of country missions, the STAIT seeks to impart the “spirit” of the TA to foster more collaborative, transparent and accountable ways of working together amongst all humanitarian actors. Working to strengthen the understanding and application of the TA Protocols in humanitarian operations, the STAIT’s ultimate aim is a more effective response to people in need. In consultation with the Emergency Directors and some Humanitarian Coordinators (HCs), the STAIT identified five countries for support missions in 2014, of which one was Yemen The humanitarian situation in Yemen is characterized by a chronic emergency with frequent and sudden flare-ups, due to recurrent conflict. Yemen’s political transition since 2011 is precarious. Recent political tensions and negotiations to form a new Government following the capture of the capital by Houthi rebels have crippled the country. Widespread insecurity constrains humanitarian action and access to many of the most vulnerable groups remains a challenge. Over half of Yemen’s population (around 14.7 million people) needs some form of humanitarian aid in 2014. The country faces one of the world’s largest food and nutrition crises, with food insecurity affecting about 10.5 million Yemenis, and an estimated 47 per cent of children under 5 stunted as a result of chronic malnutrition in 2014. Despite the scale of humanitarian needs, the Yemen Humanitarian Response Plan (HRP) is only 50% funded. With the aim of ensuring a more effective collective response, the Yemen HCT held a retreat in July 2013 which resulted in reforms to strengthen the strategic focus of the HCT and to streamline the coordination architecture. Subsequently, an Emergency Directors mission to Yemen in June 2014 worked with the HC and HCT to identify key challenges in the humanitarian situation and response in Yemen. Following an invitation from the Humanitarian Coordinator and consultations with the Emergency Directors, the STAIT began planning a country support mission to Yemen.
OBJECTIVE The overall purpose of the mission is to facilitate reflections of the humanitarian community on the effectiveness of humanitarian response in Yemen within the framework of the Transformative Agenda and to agree priorities of how to improve this. The STAIT will focus on supporting the HC and HCT to improve the effectiveness of the humanitarian response through tools outlined in the TA Protocols. A STAIT mission is a support mission and not a formal review process. The overall objectives of the mission are: 1. to contribute to a ‘culture shift’ in the way humanitarian actors work together by improving understanding and knowledge of the Transformative Agenda at field level; 2. to strengthen the practical, “tailor-made” application of the TA protocols in Yemen for a more effective, accountable and timely response; 3. to facilitate HCT decisions on how to strengthen collective leadership, coordination, and accountability, resulting in an HCT-owned action plan to address any gaps/issues. The STAIT’s primary areas of focus are the three core components of the TA: leadership, coordination and accountability. The STAIT mission builds on the EDG mission that took place in July 2014 and the HCT retreat in July 2013.
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Within these key areas, the HC and HCT, has identified the following issues for STAIT to be aware of as key issues for the HCT:-
1. Humanitarian access within the context of the evolving political situation; balancing the humanitarian imperative with the security context and strengthening working modalities with UNDSS. 2. Accountability: both to affected people, and of HCT and Clusters: need for a more ‘joined-up’ or integrated approach across clusters; the need for clearer guidance on how to take forward commitments on Accountability to Affected Populations (AAP). 3. Fundraising, being aware that the Yemen strategic response plan is funded to 50% - the need to better ‘tell the story’ of what has been achieved with the funding received and what is the impact of underfunding. 4. The centrality of protection – the need to develop a comprehensive protection framework which includes IDPs, civilians, migrants and issues such as access to land and social services. 5. Timeliness of the response with respect to rapid assessment and rapid response 6. Advocacy - need for a comprehensive advocacy strategy for key humanitarian issues During the mission, the team will also seek to learn from the application of the TA Protocols in the field, and collect examples of good practice to feed into a compilation and sharing of global learning.
PREPARATION In preparing for the mission, the STAIT consulted with the HC and selected HCT members including the INGO Forum Coordinator, the OCHA Head of Office and WFP to clarify expectations and dates, methodology/approach, possible focus areas of the mission, and the planning of the itinerary. Having HCT focal points as part of the process ensures that the review team’s identification of the current practices in country is correct and that the proposed actions are appropriate, relevant and realistic. In addition, this approach aims to create ownership of the mission’s findings among members of the HCT.
APPROACH The Team’s methodology is flexible and based on a facilitative approach. During the mission, the team will facilitate a series of self-assessments with the HCT, the inter-cluster group, national and international NGOs and Area HCTs at sub-national level to stimulate discussion and self-reflection on the effectiveness of the response around the core components of the TA. Linked to this, the STAIT will work with these groups to demystify the TA Protocols, clarifying their usefulness and relevance for the particular country context, and provide briefings on specific TA questions as necessary. Field visits are an important part of the mission methodology as they enable the team to gain a field perspective on the effectiveness of the response, and help ensure that STAIT support and recommendations are well grounded in field realities. The mission culminates in an HCT retreat with the ICCM joining on the second day, during which the STAIT will present the findings of self-assessment exercises and consultations and propose recommendations for strengthening the effectiveness of the humanitarian response in Yemen. The HCT will have the opportunity to discuss and validate the findings, and agree on a way forward. The outcome of the HCT retreat will be an action plan developed by the HC/HCT to take forward their key priorities and address any gaps/issues in the implementation of the TA, with the overall objective of improving the delivery of humanitarian assistance. The STAIT will provide suggestions on training, technical support and additional resources that may be available to support the HCT in achieving its objectives.
PARTICIPATION The mission will be undertaken by Panos Moumtzis (STAIT Team Leader), Jean McCluskey (STAIT Core Team), Gareth Price-Jones (Oxfam), and Andrew Wylie (OCHA) 1 who are part of a core group of senior members of IASC organizations and are experienced, external ‘peers’ of the HC and HCT. The team 1
See Annex I for bios of the mission participants
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members do not represent their respective agency but the IASC, and their participation is based on their familiarity with the TA and issues to be considered in Yemen. The Team is supported by the STAIT Core Team and the OCHA office in country, including on logistical and travel arrangements.
TENTATIVE PROGRAMME The STAIT mission will be conducted from 4- 14 November and will include meetings with the HCT and HC, the inter-cluster coordination group, operational humanitarian partners and donors. Field visits will be undertaken to Aden and Haradh. An outline of the mission schedule is as follows:
STAIT component 2 November 3 November 4 November 5 November
6 November
7 November 8 November 9 November
10 November
11 November 12 November 13 November 14 November
Arrival in Sana’a Meeting with HC ai and OCHA HoO Bilateral meetings with key UN Agencies and NGO Country Directors Self-assessment with ICCG Bilateral meetings Meeting with donors Bilateral meetings Self-assessment with INGOs Self-assessment with HCT Self-assessment with NNGOs Travel to Aden Travel to Hodeida Self-assessment with Travel to Haradh AHCT Self-assessment with Meeting with local AHCT authorities Meeting with affected people Return to Sana’a Return to Sana’a Preparation for HCT retreat Meeting with HC HCT retreat Extended HCT retreat with ICCG Debrief with HC Depart Sana’a
REPORTING AND FOLLOW-UP
ICCG component Arrival in Sana’a Meeting with OCHA office Travel to Aden, preparation for Aden workshop Aden ICC workshop Aden ICC workshop Return to Sana’a Meetings with cluster coordinators in Sana’a
Preparation for Haradh workshop Travel to Haradh Haradh ICC workshop
Haradh ICC workshop Self-assessment with AHCT
Return to Sana’a Preparation for ICCG workshop ICCG workshop
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Within a week following the mission, the STAIT will produce a brief draft report, accompanying the countryowned action plan prepared during the HCT retreat, and it will propose additional technical capacity to support the HC/HCT in implementing the action plan. The draft report will be shared with the HC and HCT, who have five working days to comment. Once finalized, and within three weeks following the mission, the report will be shared with the HC, HCT, the Emergency Directors Group and regional offices, with a view to outlining any action required by the Emergency Directors or other additional global or technical support to the country as necessary. The STAIT secretariat will request a status report against the action plan 60 days following its submission to the HC/HCT, for submission to the Emergency Directors Group. The HC/HCT will need to complete the last column of the action plan with a status update on each action (see Annex II).
STAIT Mission Yemen
Annex V. List of Organisations met by STAIT 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25. 26. 27. 28. 29. 30.
ADRA Care Counterpart International Danish Refugee Council (DRC) EU Humanitarian Aid and Civil Protection department (ECHO) Food and Agriculture Organisation (FAO) International Committee of the Red Cross (ICRC) International Organisation for Migrations (IOM) International Rescue Committee (IRC) Islamic Help UK Islamic Relief Worldwide Japan diplomatic mission Medecins Sans Frontieres (MSF)-France Mercy Corp Netherlands diplomatic mission Norwegian Refugee Council (NRC) Office for the Coordination of Humanitarian Affairs (OCHA) Office of the High Commissioner for Human Rights (OHCHR) Office of the United Nations High Commissioner for Refugees (UNHCR) Oxfam Progressio Save the Children Turkey diplomatic mission United Nations Children's Fund (UNICEF) United Nations Department of Safety and Security (UNDSS) United Nations Development Programme (UNDP) United Nations Population Fund (UNFPA) World Food Programme (WFP) World Health Organisation (WHO) Yemen INGO Forum
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