UN coordination structures in Somalia

Transcription

1 SOMALIA CO-ORDINATION STRUCTURES This document provides an overview of coordination structures in Somalia as relevant to NGOs. Please see the Somalia NGO Consortium s website for more details This document does not claim to be conclusive, recognising that the environment changes constantly and that the coordination structures linked to the mission and around the New Deal are currently under development. This document provides information on coordination mechanisms and not project-led structures with a coordination element or multilateral political, economic or security structures. It focuses on the following main areas: UN coordination structures - UN humanitarian coordination structures - Other UN coordination structures relevant to NGOs. NGO coordination structures Donor coordination Other coordination structures New Deal structures. Introduction: A brief history of NGO coordination Coordination in Somalia has been undermined by significant operational challenges, including, serious security constraints, limited access with the majority of agencies being headquartered outside Somalia, weak and fragmented governance structures, a politicized and militarized working environment, a resulting high staff turnover, the presence of myriad diverse organisations, a politicized aid environment and repeated external shocks, among other challneges. Given the complexity and insecurity of working in Somalia, coordination structures have at times been polarized., In particular humanitarian agencies strove to distance themselves from agencies aligned to political or security objectives. The history of coordination characterised with severe challenges and clear contradictions in organisational objectives (and organisations analysis of Somalia), remote management and chronic underfunding continue to challenge coordination. The January 2014 UN structural integration threatens to further polarize humanitarian coordination structures, at least in the short and medium term. UN coordination structures in Somalia General structure: UN coordination structures depend on the type and structure of the UN Mission. UN Missions are typically made up of three elements: Political Mission, Development Mission and Humanitarian Mission.

2 Political Missions are run from a UN Political Office and are headed by the Special Representative of the Secretary-General (SRSG) who reports directly to the Secretary-General, currently Ban Ki-moon. In the case of Somalia, the SRSG, Nicholas Kay, heads the UN mission UNSOM. Once fully structurally integrated, he is deputised by two DSRSGs, one of who is the Humanitarian/Resident Coordinator (HC/RC), presently Philippe Lazzarini. This document does not discuss thematic coordination mechanisms under the UNSOM. Development Missions are usually coordinated by a Resident Coordinator (RC) who heads the UN Development Program (UNDP) and leads the UN Country Team (UNCT), bringing together all UN agencies with operations in a given country. The UN Country Team excludes non-un agencies; it is the primary, top level UN coordination structure. In countries where the UN has a Humanitarian Mission, as in Somalia, a Humanitarian Country Team (HCT) is set up. The HCT is responsible for coordinating the humanitarian response across the whole country, working with both UN agencies and non-un organisations. The HCT is headed by the Humanitarian Co-ordinator (HC). In Somalia, the HC reports directly to the UN s Emergency Relief Coordinator (ERC) presently Valerie Amos. The ERC is a high profile individual based at the UN s Headquarters in New York. In Somalia, like many other UN missions, the roles of Humanitarian Coordinator and Resident Coordinator have been combined and the two posts are held by the same person (double-hatted), often referred to using the abbreviation HC/RC. The HC/RC currently also holds the function of the UN Designated Official (DO), as the most senior UN official responsible for security issues (ideally, this function lies in the responsibility of the UN official most responsible for UN programming in country). Once fully structurally integrated in 2014, the HC/RC will be triple headed by also assuming the role of DSRSG for humanitarian affairs. In Somalia, the HCT, an inclusive mechanism, is complimented by a meeting of the UN Heads of (humanitarian) agencies, a non-inclusive mechanism. The HCT and the UN Country Team work in parallel. Until October 2012, Mark Bowden held the post of HC/RC, based in Nairobi. Following the departure of Mark Bowden and a series of interim measures, Philippe Lazzarini assumed the role of HC/RC. In 2012, the HC was supported by a Deputy HC for Mogadishu, Kilian Kleinschmidt. This post has been discontinued. Since June 2013, the UN mission in Somalia has been fully integrated and is officially located in Mogadishu (since the June with limited international staff presence). Full structural integration is anticipated for January 2014, when all UN agencies will report to the SRSG. This will impact on coordination structures, in particular in regard to humanitarian structures.

3 Humanitarian actors, including many NGOs, have advocated for a continuation of the separation of the Political Mission from the Humanitarian and Development Missions and have strongly argued against integrating all UN Missions under a single political leadership. Many humanitarians and development workers felt this was necessary to ensure the impartiality of humanitarian and development operations and to secure access, especially in light of the majority of vulnerable populations living in areas outside the influence of the Federal Government. The coming months will show the impact any structural change has on existing coordination structures. UN Humanitarian Structures in Somalia The Humanitarian Country Team for Somalia (HCT) The stated objective of the HCT is to ensure that the activities of humanitarian organisations are coordinated, and that humanitarian action in Somalia is principled, timely, effective and efficient, and contributes to longer-term recovery. The HCT advises the HC and is responsible for agreeing on common strategic issues, advising on priorities for humanitarian action, agreeing on policy advice for humanitarian actors, promoting adherence to humanitarian principles (as set out in the IASC guidelines) and overseeing cluster coordination. The HCT is meant to be a collaborative body that makes decisions based on consensus amongst its members. Where there is no consensus the HC has the final decision, but should take the views of the majority into account. The HCT is made up of 17 members and two standing invitees. The 17 members are made up of the seven UN agencies with humanitarian activities, six NGO representatives selected from within the NGO community (with at least one national and international NGO), the Director of the Somalia NGO Consortium and two standing invitees (one of whom should be the from the International Red Cross and Red Crescent Movement). The UN Office for the Coordination of Humanitarian Affairs - Somalia (UNOCHA) is one of the member UN agencies but also provides secretariat support to the HCT and the HC. Since October 2013, three donors (Sweden, ECHO and DFID) have joined the HCT as full members. The OIC has been invited as an observer. Any standing invitee can invite other institutions or individuals to participate in HCT meetings, giving prior notice to UN OCHA. The UN is currently seeking permission to add an additional member to the HCT. NGO members of the HCT are elected for one calendar year (currently the NGO Consortium facilitates this election in cooperation with OCHA). At the end of each year new members are selected from within their constituencies. They must have the capacity to attend meeting and must have shown themselves committed to coordination. The NGO election process also strives to ensure diversity of regions and sectors members work in, as well as of nationality. An HCT election was completed in October HCT meetings take place approximately once a month and are chaired by the HC and the Head of UNOCHA Somalia. The HCT also meets with the Nairobi-based Inter-Cluster Working Group when relevant. Every three months the HCT should hold a meeting with the wider humanitarian community,

4 referred to as a general co-ordination meeting, or a full humanitarian meeting (or humanitarian forum). This meeting allows the HCT to brief the wider community on its activities and provide a forum for HCT members to hear views and concerns from the wider community. Over the recent six months this forum has met inconsistently. An extraordinary meeting of the HCT may be requested at the initiative of any member or standing invitee. The request should be made to UNOCHA. The head of OCHA or the HC might also call for other ad hoc coordination meetings. In its capacity as the HCT Secretariat UNOCHA Somalia should consult with members and standing invitees and circulate a draft agenda and all background material for HCT meetings seven working days before the meeting. Minutes should be distributed within three days of the meeting. The NGO Consortium and NGO standing invitees strive to facilitate input into the HCT agenda from the wider NGO community. The HCT is meant to be a decision making forum, while the Humanitarian Forum serves as an information sharing forum. At present, the HCT meets in Mogadishu and Nairobi via VCT. However, there is an expectation that increasingly meetings take place inside Somalia, if security permits. The role of UNOCHA The UNOCHA Somalia s remit is to mobilise and coordinate humanitarian action in partnership with national and international actors. UNOCHA supports co-ordination through the Cluster system and through other mechanisms, including sectoral systems run by the government of Somaliland, Puntland and theoretically the Federal Government, and co-ordination bodies set up by non-un actors such as the World Bank, the Organisation for Islamic Co-operation and the International Federation of the Red Cross and the Red Crescent. OCHA is made up of five different units: coordination, information management, public information, funding coordination and administration/finance. The current head of OCHA for Somalia, Justin Brady, is based in Mogadishu with majority of other OCHA staff members being based at the support office in Nairobi. UNOCHA Somalia has a support office based in Nairobi with sub offices in Mogadishu, Puntland (Garowe) and Somaliland (Hargeisa). OCHA has also opened Sub Offices across all Somalia Regions. They are in Dollow, Gaalkacyo, Garowe, Bossaso and Hargeisa. The Dollow office also serves Gedo. The Mogadishu office will initially serve Banadir and the Shabelles. The Galkacyo office serves southern Mudug, Galmudug and Hiraan, and UNOCHA is planning to extend the region it serves into parts of South Central. UNOCHA is also working to improve coordination in the Jubas. At present staff serving the Jubas rotate between Dadaab and Liboi (please see the annexes for further details). Each OCHA sub office is headed by a Humanitarian Affairs Officer (HAO) who also acts as Head of Office. The HAO is an international staff member. The HAO is supported by at least one Humanitarian

5 Affairs Analyst (HAA). The Beled Weyne Office is under the Galkayo office and it has an HAO who depends on Garowe HoO. OCHA has committed to formalising regular meetings with the Organisation for Islamic Cooperation (OIC), the International Red Cross and Red Crescent (ICRC) and others at Mogadishu level. At present this arrangement remains ad hoc. There are semi-regular meeting with all humanitarian actors at Mogadishu level; run by UN OCHA and also run by the NGO Consortium. Many NGOs and the NGO Consortium seek to strengthen field based coordination. The Cluster System Along with other elements of the humanitarian reform structures, clusters were introduced at the global level in 2005 to improve coordination between groups of humanitarian organisations both UN and non-un working in the same thematic area of humanitarian intervention. Later, country level clusters were introduced for countries where the UN had a Humanitarian Mission. Clusters are groups of humanitarian organisations (both UN and non-un) working in the main sectors of humanitarian activity (e.g. shelter, nutrition, health etc.). They are created by the UN when; (a) a clear humanitarian need exists within a given sector, (b) there are numerous different organisations working in the same sector, and (c) national authorities need coordination support. For Somalia, eight country level clusters have been created: education, food security, nutrition, protection, water/sanitation/hygiene (WASH), shelter, logistics and health. It is the role of the clusters to provide a clear point of contact and coordinate appropriate humanitarian assistance. Clusters are designed to create partnerships between international humanitarian actors, national and local authorities, and civil society and are led by cluster chairs. They work on behalf of the cluster as a whole, facilitating all cluster activities and developing and maintaining a strategic vision and operational response plan. They are employed by the organisation from which they were drawn (normally a UN agency). Clusters meet regularly (monthly in most cases). In Somalia, clusters are strongest at the Nairobi-level, where each one is chaired by two people, known as co-chairs. Many of the Somalia Clusters are jointly chaired by a UN agency and an NGO. In addition to the Nairobi-based clusters, each of the eight clusters should, in theory, also be represented within Somalia itself. Most Nairobi-based clusters have field representatives (Focal Points) who are likely to be staff of NGO or UN living and working within the given area. The degree of participation in cluster co-ordination often depends on the personality of the field cluster focal points. At present field based cluster representation and coordination remains weak. However, recently the cluster capacity in Mogadishu and some other field locations has been strengthened, and it will likely continue to increase in the future. A system of Inter-Cluster Working Groups at field level is currently being established and many clusters with a strong presence on the ground, such as WASH, are recruiting dedicated staff to work in Mogadishu and the regions of South Central Somalia.

6 In Somaliland and Puntland, regional cluster structures are in place, but still with a strong reliance on the cluster coordinators based in Nairobi. Cluster coordination should support national responsibilities and leadership in the respective sectors. Subsequently, in areas where there is more effective governance (e.g. Puntland and Somaliland) the clusters work with designated government agencies and if relevant merge or cooperate with sectors. There are plans to discontinue the clusters in Somaliland and Puntland in A central Inter-Cluster Working Group (ICWG) meets once every two weeks in Nairobi, and a Mogadishu-based ICWG is meant to meet once every two weeks (this is currently not yet the case). ICWGs also operate in Somaliland and Puntland. The Inter-Cluster co-ordinator, Gemma Sanmartin, is based in Mogadishu. Inter-Cluster Working Groups are meant to be the foundation of co-ordination at field level. The UNOCHA sub office in any given region, such as Gedo, for example, will be in touch with the focal points for each cluster working in that region. Once there are a certain number of clusters operating in a given region then the UNOCHA cluster co-ordinator will call for the establishment of an Inter-Cluster Working Group from of the cluster focal points for Gedo region, which will be supported by the Humanitarian Affairs Officer at the UNOCHA Gedo Sub Office. Inter-Cluster Working Groups will be established across all the regions of Somalia where members of Clusters have access and are working. The Cluster System in Puntland In 2010 in Puntland the Minister of Planning was appointed the key focal minister for humanitarian coordination. Agencies are also asked to coordinate with line ministries of the sectors they work in. In 2011, the Puntland authorities and the humanitarian community agreed to coordinate the humanitarian response through six clusters: (1) Protection & Shelter, (2) Agriculture & Livelihoods / Food Assistance, (3) Education, (4) WASH, (5) Health and (6) Nutrition. In Puntland, authorities co-chair cluster meetings with Cluster Coordinators or focal points. The Cluster System in Somaliland In Somaliland the UN Hargeisa Team (UNHT) is based in the Somaliland Sub Office. The UNHT is a sub-body of the UN Country Team based in Nairobi. Although the UNHT is focused on development activities in Somaliland, the team s meetings include humanitarian updates. The Somaliland Inter-cluster Working Group meets regularly with seven out of the eight clusters functioning in the area. They operate in parallel to the sectors, which were defined by the Somaliland Government. In general, within Somaliland, if the ministry responsible for working in a given sector (such as shelter or protection) is calling sector meetings, then cluster members will attend these and not call separate cluster meetings. Attempts to merge clusters and sectors have so far not succeeded and there are plans to phase out the clusters in Somaliland in 2014 if the Somaliland government provides adequate sector coordination. All international assistance in Somaliland is accountable to the Ministry of Planning and National Development. All NGOs are compelled to register and also to share information with the line ministries

7 of the sectors they work in and to report to the Development Assistance Database (DAD). Other Humanitarian Coordination Bodies The UN and NGOs are not the only humanitarians working in Somalia. As a result, a number of overlapping coordination bodies exist in parallel to the HCT and the cluster system. These other humanitarian actors include the Organisation for Islamic Co-operation (OIC), sectors used by government ministries in Somaliland and Puntland, the International Federation of the Red Cross and the Red Crescent, the World Bank and donor coordination bodies. They operate parallel systems for coordinating aid and can include humanitarian action. Some of these will be discussed further below. Other UN coordination structures Coordination of International Support to Somalis (CISS) no longer functional Until the end of 2012, the main coordination forum of the international aid community apart from humanitarian programs was the Coordination of International Support to Somalia (CISS). The CISS was managed through the CISS Executive Committee (ExCom). CISS (ExCom) membership included at an equal level the three constituencies donors (represented by the co-chairs of the Somalia Donor Group), the UN Country Team (represented by the HC and the head of the World Bank) and NGOs (represented through the NGO Consortium). The Committee was co-chaired by the HC/RC and the Representative of the World Bank. The CISS headed a number of sectoral committees such as the health sector committee. These are bodies which the Somali Government and donors can be members of, unlike the Clusters, which are for humanitarian implementing agencies. Few sectors are presently strong. The CISS was the primary forum linking to national and regional development structures. For example in Somaliland, the Somaliland High Level Aid Coordination Forum, linked to the CISS ExCOM, was and theoretically still is the primary coordination mechanism for all international assistance in Somaliland. The HLACF will serve as the Somaliland New Deal Steering Committee. Another Somaliland forum, the NGO Consultative Committee was created by the Somaliland Government to address all technical issues related to NGOs and to ensure implementation of the Somaliland NGO Act and assistance alignment with the Somaliland National Development Plan. NGOs are represented on this body, which is yet to finalise its terms of reference. It is loosely linked to the HLACF. Most donors and many other members of the international community felt that as a coordination structure, the CISS/CISS ExCOM was ineffective and that it had become at best an information-sharing mechanism. Donors are keen to ensure improved linkage with political actors. Towards the end of 2012, both donors and UNPOS presented new coordination models. The CISS has since been disbanded and the ExCom has been replaced by the Somali Partnership Forum/Development Partnership Forum.

8 The Somali Partnership Forum/Development Partnership Forum The SPF is the only non-humanitarian coordination mechanism in which all constituencies are represented and is also open to the Somali Federal Government. It was set up as a follow up to the CISS. Majority of the donors attend the SPFas well as UN heads of agencies. NGOs are invited with two participants, one of which is the Consortium Director. Up to now the SPF has almost exclusively discussed issues around the New Deal. Given its size and focus, it is not conducive for decision making. Their primary focus is the development of a new aid framework, informed by the New Deal. It is currently too early, to conclusively describe the function and effectiveness of the SPF, as the New Deal and its structures are still being developed and might well replace this forum. New Deal Coordination Structures The New Deal process was endorsed in November 2011 by a wide range of International partners (including the g7+ association of conflict affected states) at the 4th High Level Forum on Aid Effectiveness in Busan, South Korea. It is meant to be a country-led and country-owned process that is meant to strengthen capacities, ownership and mutual accountability, supported by the international community. Somalia self-elected as a New Deal pilot country. The Somalia New Deal Compact and the Somaliland Special Arrangement were endorsed by the international community on September 16, 2013 in Brussels. The New Deal in Somalia focuses on five Peace building and State building goals (PSGs) that are aligned with the six pillar programme of the Federal Government and which together form the new aid framework for Somalia: The PSGs are: Inclusive Politics; Security and Rule of Law; Justice; Economic Foundations; Revenue and Services. The New Deal Compact foresees several new coordination mechanisms, all of which are currently being set up. This includes: 1. The Somalia Development and Reconstruction (SDRF) Steering Committee that will provide oversight and guidance on implementation of the New Deal compact 2), the High Level Partnership Forum, the main fairly inclusive platform for dialogue and policy discussion on the compact; and 3) the Development Partners Group that will provide a technical secretariat for sectoral policy formulation/planning and coordination. The role for civil society within these structures is still unclear, as is the way by which a civil society representative should be chosen. The New Deal process itself ensures a role for civil society throughout the process. The SDRF is the overarching governance structure; a technocratic vehicle that is meant to provide a platform for policy discussion on technical issues around the country systems performance, transparency, etc. The structures are still under discussion, but something along the following lines may emerge:

9 Aid Coordination Unit (incl. Secretariat) Operational Level - Smaller composition - Day-to-day oversight of SDRF Windows - Project approval authority - Meets monthly Window Administrator Level - SDRF windows are discrete fund, operating a WB MPF UN MPTF SFF AfDB Secretariat - Aid management & - Enable SDRF oversigh NGO Coordination Structures: Somalia provides a challenging and unpredictable work environment. A plethora of diverse NGOs, national and international, work in all regions of Somalia. Over the years, quite a few NGO coordination mechanism, umbrella groups, platforms, forums, etc. have sprung up; many have since been discontinued or have failed to integrate a significant number of agencies. Many are thematically or project or geographically focused and are not discussed within this paper. This document only mentions the Somalia NGO Consortium. Somalia NGO Consortium The most formalised long-term NGO coordination structure encompassing both national and international NGOs is the Somalia NGO Consortium. It was first established in 1999 to improve international aid coordination through sharing of information and raising the presence and profile of NGOs within the aid coordination structure for Somalia. The Consortium s primary objectives are to share information and analysis on key issues, facilitate closer coordination and joint advocacy and improve representation with local authorities, the UN system and donors. It also hosts the NGO Safety Program (NSP). The Consortium has approximately 90 members (requiring an annual registration) of both local and international NGOs. The Consortium is currently headquartered in Nairobi and represented by a Director, currently Tanja Schumer, who is supported by two Deputy Focal Points at national level and three Regional Focal Points in Somaliland, Puntland and Mogadishu. The Director is advised by an annually elected Steering Committee consisting of eith member NGOs, and supported by a small team of staff. The Consortium is represented at the primary coordination fora and has become a recognised voice

10 within the international aid community. Members set the agenda and focus of its activities and have formed several thematic working groups. Multilateral/Regional NGO coordination structures Several global NGO coordination fora are of relevance for Somalia; most are project or issue focused. These include the Inter-Agency Working Group (IAWG), which regularly meets in Nairobi, and, more remotely, InterAction (US based) and its Horn of Africa Working Group, and the International Council of Voluntary Agencies (ICVA) (European focused). The letter two platforms in particular support Somalia relevant NGO advocacy at international level. Donor Coordination Structures The Somalia Donor Group (SDG) is the primary, most inclusive donor coordination mechanism for Somalia. It includes the vast majority of bilateral donors and meets regularly at Nairobi level. The new donors referring to Turkey and the OIC are not yet part of the SDG but have been invited. NGOs can be invited to this forum, which is otherwise closed. The primary humanitarian donor coordination mechanism is the Humanitarian Donor Group. It has become a key partner for NGO humanitarian advocacy. The previously mentioned Somali Partnership Forum and the SDRF are primarily governmental (donor) structures. The Organisation for Islamic Co-operation (OIC) The OIC is an inter-governmental organisation established in 1969 which consists of 57 member states from four continents. Its headquarters are in Jeddah, Saudi Arabia and it is the second largest international organisation after the UN. OIC has a permanent delegation to the UN in New York. The OIC is an inter-governmental organisation and as such also works in partnership with all authorities in Somalia. The OIC works to promote disasters risk reduction and emergency response in OIC member states. Somalia is a founding member. The OICs Somalia office in Mogadishu was established in March The OIC Coalition for Somalia was formed in July 2011 and consists of 38 local and international NGOs (17 of which are Somali). The OIC Coalition s stated objectives include: enhancing sectoral and geographical co-ordination; balancing aid delivery to needy areas; strengthening inter-organisational co-operation; building capacity of local NGOs; sharing information and experiences; addressing gaps and defining priorities; and, encouraging co-operation and joint implementation. The OIC Coalition work through sectors. Its Food Sector is led by the Qatar Red Crescent, the Health Sector by the Arab Medical Union, the Camp Management Sector by the Turkish Red Crescent, the Information and Communication Sector by Islamic Relief Worldwide, the Water and Sanitation Sector by Zamzam Foundation and the Education and Training Sector by Kismuukmo. These Sectors are distinct from the UN Clusters, but efforts have been made by the OIC and the UN to coordinate activities where both organisations are working on the ground.