Humanitarian Coordination System Overview

Types of Coordination Mechanism

Internal Displacement

The IASC cluster system is designed to ensure that international responses to humanitarian emergencies involving internal displacement are predictable, accountable, and have clear leadership when government-led coordination is overwhelmed or constrained. It has specific characteristics and accountabilities, and applies in non-refugee humanitarian emergencies, whether resulting from conflict or disaster. Where clusters are not activated, coordination in these crises is government-led, sometimes through a sectoral coordination mechanism. In some cases where a cluster is not formally activated, there may be ‘cluster-like' mechanisms such as Sectors or Working Groups where some cluster guidance can still be applied. “Government-led emergency or crisis sectoral coordination mechanisms report to designated Government bodies. For these, international humanitarian support can augment national capacity, underpinned by the principles of the cluster approach.” [1]

Refugee Response

In situations involving refugees, UNHCR leads and coordinates the refugee response, under its mandated responsibility for refugee protection. The Refugee Coordination Model provides the framework for refugee response leadership and coordination. The IASC cluster system is not applied in refugee crises. 

IDP & Refugee Situations

For ‘mixed situations’ where a Humanitarian Coordinator (HC) has been appointed (and, where Clusters are activated) and a UNHCR-led refugee operation is underway, the Joint UNHCR-OCHA Note on Mixed Situations: Coordination in Practice sets out leadership and coordination arrangements. This includes the respective roles and responsibilities of the UNHCR Representative and the HC, and the interaction of IASC coordination (clusters) and UNHCR’s refugee coordination mechanisms. 

Migrant Response Coordination

Where migrants are affected by conflicts and disasters, the global guidance is to mainstream their needs into existing humanitarian coordination frameworks before considering alternative coordination arrangements, based on needs not on status. In mixed settings involving migrants, refugees and potential asylum seekers, IOM alongside UNHCR coordinate with other UN agencies and stakeholders to ensure that assistance is complementary with broader humanitarian response operations. [2]

The Cluster Approach

The Cluster Approach was established in 2005 as part of the UN’s Humanitarian Reform Agenda. Its aim is to strengthen system-wide preparedness and technical capacity to respond to humanitarian emergencies and provide clear leadership and accountability in the main areas of international humanitarian response. [3]

[1] IASC (2015) IASC Reference Module for Cluster Coordination at the Country Level
[2] IASC (2021) Leadership in Humanitarian Action – Handbook for the UN Resident and Humanitarian Coordinator

[3] See https://reliefweb.int/topics/cluster-coordination and Global Education Cluster, Save the Children, Translators Without Borders (2020) Quick Guide on humanitarian coordination & the cluster approach

Clusters are groups of humanitarian organizations in each of the main sectors of humanitarian action (e.g., health, logistics, CCCM) and are designated by the Inter-Agency Standing Committee (IASC) [4]. The cluster approach may be used both in humanitarian emergencies caused by conflicts and in humanitarian emergencies caused by disasters. There are 11 clusters at global level, plus four Areas of Responsibility (AoRs)[5] within protection. Each cluster has a designated Cluster Lead Agency (or, Agencies) (CLA), with specific responsibilities and accountability for cluster leadership at global and country level.

[4] The Inter-Agency Standing Committee (IASC) is the highest-level humanitarian coordination forum of the UN system, consisting of the heads of organizations and consortiums, chaired by the Emergency Relief Coordinator (ERC). The IASC is responsible for formulating policy, setting strategic priorities, and mobilizing resources in response to humanitarian crises.
[5] The four AoRs and their focal point agencies are: Gender-Based Violence (UNFPA), Child Protection (UNICEF), Mine Action (UNMAS), and Housing, Land and Property (NRC & UN-Habitat)

At the country level, a cluster is formally activated by the IASC upon agreement with the government and the UN’s Resident Coordinator / Humanitarian Coordinator (RC/HC) when existing coordination mechanisms are overwhelmed or constrained in their ability to coordinate and respond to identified needs in line with humanitarian principles. When a cluster response is activated, the HC has overall leadership for it. Each cluster is accountable to the HC through its CLA, as well as to national authorities and people affected by the crisis. A Cluster Coordination team is appointed, to facilitate the core functions of the cluster.  

In some cases, the cluster system may coexist with other forms of national or international coordination, and its application must consider the specific needs of a country and the context. 

Cluster Activation

Clusters are temporary coordination mechanisms, activated where needed when a government’s capacity to coordinate is limited or constrained. The criteria for cluster activation are met when: 

1. “Response and coordination gaps exist due to a sharp deterioration or significant change in the humanitarian situation. 
2. Existing national response or coordination capacity is unable to meet needs in a manner that respects humanitarian principles, due to the scale of need, the number of actors involved, the need for a more complex multi-sectoral approach, or other constraints.” [6]

There is a defined process of activation of the IASC clusters:  

At country level, the process is led by the UN’s RC/HC, in consultation with the UNCT/HCT (UN Country Team / Humanitarian Country Team) and supported by OCHA. The initial step is consultation with the national authorities to establish which humanitarian coordination mechanisms already exist and their respective capacities. If potential need to activate the clusters is identified, the RC/RC in consultation with the UNCT/HCT determines which clusters should be recommended for activation and selects CLAs. Once this is agreed at country level, the RC/HC sends their proposal in writing to the IASC Emergency Directors’ Group (EDG) Chair who transfers it on to the EDG members for consideration [7]. Endorsement of activation (or, feedback) is then sent by the EDG Chair writing to the RC/HC.  

More detail on the activation process can be found in the IASC Reference Module for Cluster Coordination at Country Level. For information on cluster deactivation for CCCM, see Toolkit Section 4.3 Cluster Transition & Deactivation. 

[6] IASC (2015) IASC Reference Module for Cluster Coordination at Country Level, Section 2 Cluster Activation p.9-11
[7] This part of cluster activation used to be the responsibility of the Emergency Relief Coordinator and IASC Principals, but in December 2021 was delegated to the EDG. The IASC EDG is composed of representatives from about 20 IASC member organizations and partners/observers, advising on strategic and operational issues for humanitarian response.

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