Clusters in Emergencies, Their Roles and Functions
by Yuniarti Wahyuningtiyas
I am interesting to write this article, since i realize that i might be one of the lucky humanitarian worker who has the opportunity working in different and various clusters in emergencies, these include WASH, Health, and Education. The clusters that i mention hereinafter are set based on General Assembly Resolution 46/182 on December 1991. it is aimed to ensure good coordination and accountability for adequate and appropriate humanitarian assistance. In Indonesia,among 11 clusters that are set by UN, only 10 that are exist, exclude Emergency Shelter. Yet, since i only have experiences in 3 out 10 clusters, so let me begin to give you their descriptions.
The WASH cluster is led by UNICEF, this cluster is in close partnership with Ministry of Health (MoH), under the Environmental Health and Disease Control Directorate. The WASH cluster does not only activate during emergency, in pre-disaster or normal situation, it supports the MoH Program, through CLTS or Community Led Total Sanitation. In which this progra, comprises of 5 components, including: stop open defecation, waste management, provision clean water, hygiene promotion, and sanitation. This cluster also support other MoH's Program, such as: global handwashing day, EASAN, etc. The WASH Cluster is also well known for its good coordination through regular meeting that they conduct in order to update each of this cluster's members activities and any other business agenda related to WASH. During emergency situation, this cluster coordinates other agencies that are working in WASH and develop its work plan and joint action in ensuring the accessibility and provision of adequate clean WASH facilities.
The Health cluster is led by WHO, this cluster is working closely with Centre for Health Cluster Management of MoH or PPKK. The Health cluster also has a regular coordination within its cluster members, it also bridges them with the MoH. Several activities that they have pre-disaster, including health cluster preparedness meeting and development of 4W Mapping on Health program that is running in 9 Regionals, as based on CHC Regional Center. During emergencies, the Health Cluster conduct joint Rapid Health Assessment (RHA) and in coordination with MoH, delivering the health services based on standard that has been agreed.
As for the Education cluster is led by Sae the Children and UNICEF. This cluster is working closely with the Ministry of Education and Cultural (MoEC). The challenge for this cluster is that the MoEC doesnt have specific focal point for the cluster. In each of its Directorate General, from early education, basic education, secondary education and higher education, each have their own particularly units that are dealing with disaster management, they can be either the Special Education and Special Education Services (PKLK) or Infrastructure and Facilities (SarPras) Unit. The good news is that the MoEC has published Regulation number 72/2013 that incorparates Emergencies School as part of special education and special education service that it's being focused on. As for the Education Cluster in Indonesia, its main focuses are on improving the capacity for better preparedness on education, communication, information system and also advocacy.
In overall, based on my point of view and experience, there are 3 major and crucial issues that become great challenges for the clusters, which are: 1) buying in of ownership of the clusters from the government, 2) active involvement and participation of the cluster members, and 3) also communication and cooperation intern and cross clusters.
In regards to point 1, as the cluster is led by international NGO and UN Agencies, it might be difficult for government to understand the overall concept of the roles and means of cluster, since most of them understanding it as a global concept which might not suit with the national and local context, in this case is related to souvereignity and code of conduct and ethic of government agencies. In regards to souverignity, in most disaster and crisis situations that happen in this country, many INGOs and UNs respond quickly to the situation, most of the time, they are insisting in proving assistance and aid which eventually in some cases lead to the point where they intend to drive the goernment policies and actions. This might left the government to have few room to move with their own way and if we see to the context of a nation, in some way there is a violation against the souvereignity. i didnt say that the existing of clusters might threaten the souverignity, yet the international agencies should take precaution and act carefully for the implementation of the programs that are conducted, which by means not working seperately and act alone. Instead, work in line with the existing government program and proving their supports and assistance continously with respect to local culture. For instance, through proving assistance and support for training the MoEC staffs on emergency school as referring to the international codes and guidelines, such as INEE MS (Interagency Network for Education in Emergencies Minimum Standard).
For point 2 on the active involvement and participation of cluster members, based on fact, it is rarely to involve the members, beside invite them to a meeting or have a joint actions during response. Having realize that not all agencies can be the members of clusters, there should be a clear view on the rights and obligation for the cluster members. For instance, what benefits that they receive after accepting as cluster members and what obligations that they should give for the cluster? Through interactions and as based on the inputs from the cluster members during my previous assignment in several organizations where i was working in, the members expect that there are opportunity is given to them in improving their capacity to perform well as cluster, this can be done through training, workshop or reguler discussion. Other expectations are information sharing, joint work plan and sharing resources, such as develop e-bulletin or cluster board, sharing warehouse, exhange staffs, etc.
As for the point 3 or communication and cooperation intern and cross clusters, i would definately say that it is very rare to have 2 or 3 clusters working togather, beside during response. Although i would say that it is a reasonable thing to do. Taking into example for 3 clusters; WASH, Health and Education, by using entry point on school we can promote hygiene and conduct disease surveillance and nutrition watch for children in flood prone area or through Posyandu in volcano eruption prone area, we can actually promote medical referral, clean water and storage and child friendly space or through community led total sanitation, we can promote hygiene and sanitation in school that is located in the community.
Despite the fact that it might sounds easy to implement all expecattion and facing the challenges, yet the cluster leads must improve their own capacity and build the government and members thrust first, before they can move ahead with all of these ideal view of role and function of clusters. Furthermore UN OCHA (United Nations for Office Coordination on Humanitarian Affairs) has important role in bridging these clusters with the government, which include BNPB and related ministries as what it is trying to be improved at time being. In overall, Indonesia as a country that seems never quit having many disasters on its plate, the government should taking maximum advantage in adapting the international code and knowledge to be applicable in managing in country catastrophe and improving local capacity and respect the local culture and indigenous which i believe that 10 years from now, Indonesia can stand alone with its own feet in managing the crisis and disaster situation and even providing its expertises to other nations.
As for the Education cluster is led by Sae the Children and UNICEF. This cluster is working closely with the Ministry of Education and Cultural (MoEC). The challenge for this cluster is that the MoEC doesnt have specific focal point for the cluster. In each of its Directorate General, from early education, basic education, secondary education and higher education, each have their own particularly units that are dealing with disaster management, they can be either the Special Education and Special Education Services (PKLK) or Infrastructure and Facilities (SarPras) Unit. The good news is that the MoEC has published Regulation number 72/2013 that incorparates Emergencies School as part of special education and special education service that it's being focused on. As for the Education Cluster in Indonesia, its main focuses are on improving the capacity for better preparedness on education, communication, information system and also advocacy.
In overall, based on my point of view and experience, there are 3 major and crucial issues that become great challenges for the clusters, which are: 1) buying in of ownership of the clusters from the government, 2) active involvement and participation of the cluster members, and 3) also communication and cooperation intern and cross clusters.
In regards to point 1, as the cluster is led by international NGO and UN Agencies, it might be difficult for government to understand the overall concept of the roles and means of cluster, since most of them understanding it as a global concept which might not suit with the national and local context, in this case is related to souvereignity and code of conduct and ethic of government agencies. In regards to souverignity, in most disaster and crisis situations that happen in this country, many INGOs and UNs respond quickly to the situation, most of the time, they are insisting in proving assistance and aid which eventually in some cases lead to the point where they intend to drive the goernment policies and actions. This might left the government to have few room to move with their own way and if we see to the context of a nation, in some way there is a violation against the souvereignity. i didnt say that the existing of clusters might threaten the souverignity, yet the international agencies should take precaution and act carefully for the implementation of the programs that are conducted, which by means not working seperately and act alone. Instead, work in line with the existing government program and proving their supports and assistance continously with respect to local culture. For instance, through proving assistance and support for training the MoEC staffs on emergency school as referring to the international codes and guidelines, such as INEE MS (Interagency Network for Education in Emergencies Minimum Standard).
For point 2 on the active involvement and participation of cluster members, based on fact, it is rarely to involve the members, beside invite them to a meeting or have a joint actions during response. Having realize that not all agencies can be the members of clusters, there should be a clear view on the rights and obligation for the cluster members. For instance, what benefits that they receive after accepting as cluster members and what obligations that they should give for the cluster? Through interactions and as based on the inputs from the cluster members during my previous assignment in several organizations where i was working in, the members expect that there are opportunity is given to them in improving their capacity to perform well as cluster, this can be done through training, workshop or reguler discussion. Other expectations are information sharing, joint work plan and sharing resources, such as develop e-bulletin or cluster board, sharing warehouse, exhange staffs, etc.
As for the point 3 or communication and cooperation intern and cross clusters, i would definately say that it is very rare to have 2 or 3 clusters working togather, beside during response. Although i would say that it is a reasonable thing to do. Taking into example for 3 clusters; WASH, Health and Education, by using entry point on school we can promote hygiene and conduct disease surveillance and nutrition watch for children in flood prone area or through Posyandu in volcano eruption prone area, we can actually promote medical referral, clean water and storage and child friendly space or through community led total sanitation, we can promote hygiene and sanitation in school that is located in the community.
Despite the fact that it might sounds easy to implement all expecattion and facing the challenges, yet the cluster leads must improve their own capacity and build the government and members thrust first, before they can move ahead with all of these ideal view of role and function of clusters. Furthermore UN OCHA (United Nations for Office Coordination on Humanitarian Affairs) has important role in bridging these clusters with the government, which include BNPB and related ministries as what it is trying to be improved at time being. In overall, Indonesia as a country that seems never quit having many disasters on its plate, the government should taking maximum advantage in adapting the international code and knowledge to be applicable in managing in country catastrophe and improving local capacity and respect the local culture and indigenous which i believe that 10 years from now, Indonesia can stand alone with its own feet in managing the crisis and disaster situation and even providing its expertises to other nations.
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