Mitigation Partnership (NDMP) and United Nations Natural Disasters and Emergencies Programme Coordination Group (PCG 10) undertook a study to assess the necessity, interest and appropriateness of applying the cluster leadership approach in the event of a major disaster in Viet Nam. The study reviewed existing international regulations and disaster management frameworks and analyzed the Vietnamese context in light of a range of different disaster scenarios. Stakeholder consultation meetings were carried out with representatives from the Government of Viet Nam and key humanitarian actors to gain detailed input and feedback into the applicability of the cluster leadership approach. A short questionnaire was also circulated through the DMWG email network to allow all stakeholders an opportunity to voice their opinions.
CLUSTER LEADERSHIP APPROACH APPLICABILITY STUDY: VIET NAM FINAL REPORT November 2008 Prepared on behalf of the Disaster Management Working Group (DMWG) By Natural Disaster Mitigation Partnership (NDMP), and United Nations Natural Disasters and Emergencies Programme Coordination Group (UN PCG 10) “Successful application of the cluster approach will depend on all humanitarian actors working as equal partners in all aspects of humanitarian response” Cluster Leadership Approach Applicability Study Executive summary On behalf of the Disaster Management Working Group (DMWG), the Natural Disaster Mitigation Partnership (NDMP) and United Nations Natural Disasters and Emergencies Programme Coordination Group (PCG 10) undertook a study to assess the necessity, interest and appropriateness of applying the cluster leadership approach in the event of a major disaster in Viet Nam The study reviewed existing international regulations and disaster management frameworks and analyzed the Vietnamese context in light of a range of different disaster scenarios Stakeholder consultation meetings were carried out with representatives from the Government of Viet Nam and key humanitarian actors to gain detailed input and feedback into the applicability of the cluster leadership approach A short questionnaire was also circulated through the DMWG email network to allow all stakeholders an opportunity to voice their opinions Internationally, the cluster leadership approach has become the standard for coordination in major disasters and has been utilized in other Asian countries including Indonesia, Pakistan and most recently Myanmar It has been endorsed and institutionalized by the Inter-Agency Standing Committee (IASC), a global inter- agency forum made up of UN and non-UN humanitarian actors Viet Nam has a long history of natural disasters and as a result the Government, the population and international organizations are experienced and capable of dealing with recurrent small to medium scale disasters using existing mechanisms The cluster leadership approach is not considered necessary or appropriate for events of this scale in Viet Nam While major disasters are extremely rare in Viet Nam, events in China and Myanmar in 2008 have shown the absolute necessity to be fully prepared for such a scenario, however unlikely In the event of such a large scale disaster, existing coordination mechanisms would be completely overwhelmed and no longer appropriate Under these circumstances, the cluster leadership approach is considered both appropriate and necessary Representatives of the Central Committee for Flood and Storm Control (CCFSC) expressed a great deal of interest in the application of the cluster leadership approach in Viet Nam While the cluster leadership approach only concerns the response of the international community, they saw great value in potential benefits of the clear similarities and links with the Government’s disaster response arrangements The representatives from the CCFSC supported the idea and stressed the need for further discussion and preparations to take place Representatives from the People’s Aid Coordination Committee (PACCOM) also supported the application of the cluster leadership approach but stressed that feedback from NGOs and the DMWG must be taken into account i Feedback from key NGOs and humanitarian actors was largely positive Nearly all those who provided feedback were in favour of the cluster leadership approach Some concerns were raised, including questions over whether Viet Nam will experience any major disasters and about coordination between the clusters Conclusions and Recommendations The study found that application of the cluster leadership approach in Viet Nam will be both necessary and appropriate in the event of a major disaster, and that there is a great deal of interest among key stakeholders in adopting this approach It would not however, be appropriate or necessary to apply this approach in response to small to medium scale recurrent disasters It is essential that the cluster leadership approach be customized to suit the Vietnamese context Based on strong Government capacity and interest, cluster leads should be Government ministries or agencies with international organizations taking on the roles of co-leads Planning for the application of the cluster leadership approach must also take into account possible issues such as coordination between clusters and seek to eliminate potential problems Successful application of the cluster leadership approach will require detailed preparation and commitment from all humanitarian actors Government and DMWG members should work closely together to complete and continually review and update preparations for major disasters including the application of the cluster leadership approach ii Table of Contents Executive summary .i Table of Contents .iii A: INTRODUCTION 1 1 Background 1 2 Goals .1 3 Methods used .1 3.1 Document review .1 3.2 Interviews 1 3.3 Survey 2 4 Caveats 2 B: GLOBAL APPLICATION OF THE CLUSTER LEADERSHIP APPROACH 3 1 Background on the cluster approach within broader humanitarian reform .3 2 Cluster approach conceptualization and initiation 3 2.1 Aim and scope of the cluster approach 3 2.2 Geographic scope of cluster application .4 2.3 Cluster leadership at the global level 4 2.4 Responsibilities of global cluster leads 5 2.5 Sector/cluster leadership at the country level 6 2.6 Contingency planning and application of the cluster approach in major new emergencies 7 2.7 Responsibilities of sector/cluster leads at the country level 7 2.8 Strengthening partnerships and complementarity amongst humanitarian actors .8 2.9 Ensuring appropriate links with Government/local authorities, State institutions, local civil society and other stakeholders 9 C: VIET NAM 10 1 Disaster management context in Viet Nam 10 1.1 Legal/policy basis .10 1.2 Government institutional structures 10 1.3 International agreements and relationships 10 1.4 Main stakeholders: 11 2 Application of the cluster leadership approach .12 2.1 Estimated international support in case of major disaster in Viet Nam 12 2.2 Scenarios in which cluster approach can be useful .12 2.3 Possible challenges for Cluster Approach application in Viet Nam 13 3 Stakeholder Consultation and Feedback 13 3.1 Central Committee for Flood and Storm Control (CCFSC) 13 3.2 People’s Aid Coordination Committee (PACCOM) 14 3.3 NGO Sample Group 14 3.4 Stakeholder Questionnaire .14 4 Draft framework for application of the cluster leadership approach in Viet Nam 15 4.1 Cluster leadership .15 4.2 Clusters .15 4.3 Proposed Workplan 16 D: CONCLUSIONS & RECOMMENDATIONS 17 iii iv A: INTRODUCTION 1 Background Viet Nam is a disaster prone country recurrently affected by floods, storms and other natural hazards every year The intensity and impact of these events varies ranging normally from small to medium impact Geographically, disasters affect most parts of the country, including the highlands in the north, central provinces and the Mekong River Delta In line with national efforts to improve disaster response mechanisms in the country, and in parallel with ongoing international support to apply international guidelines for disaster management, the Natural Disasters Mitigation Partnership (NDMP), and United Nations Natural Disasters and Emergencies Programme Coordination Group (PCG 10), on behalf of the Disaster Management Working Group (DMWG) and with the support of PACCOM and (I)NGOs as individual organizations, are interested in assessing the applicability, benefits and challenges of articulating the Cluster Leadership Approach in Viet Nam in case of major disaster With this purpose, Terms of Reference for the applicability study were approved by DMWG (7th October 2008) and the study was subsequently carried out by NDMP and PCG 10 2 Goals The goals of the study were: 1 Assess the necessity, interest and appropriateness of applying a cluster approach in Viet Nam; 2 Develop draft framework for the possible application of a cluster approach in Viet Nam; 3 Present main findings to DMWG for consideration of approval of the initiative 3 Methods used 3.1 Document review The team gathered primary information from main players in disaster field in Viet Nam, including Government (GoV) representatives from different ministries involved in disaster response, (I)NGOs active in the country as well as UN agencies that may be active in the aftermath of a disaster The research also encompassed a large number of secondary sources, including past evaluations and reviews 3.2 Interviews The team consulted representatives from GoV, INGOs and UN agencies selected for their involvement in disaster management in Viet Nam It should be noted that, due to the technical focus of the study, interviews did not include beneficiaries of assistance, which would be crucial to a long term evaluation of impacts Page 1 of 18 3.3 Survey To collect additional information not covered in the interview process, the team designed a questionnaire circulated to (I)NGOs, GoV partners, donor agencies and other organizations and individuals involved in disaster management in Vit Nam This was widely disseminated with the assistance of the DMWG and NDMP 4 Caveats Study’s scope and level of detail have been adapted to the objectives, expected results and human resources available for the task It should be kept in mind that the purpose of this exercise was not preparing exhaustive theoretical research but to serve as a trigger for setting up cluster arrangements in preparation for a major disaster Since the main focus of the study was analyzing the applicability of the cluster approach in Viet Nam, for parts referring to background information and basic principles, existing documents prepared by prestigious research institutes and international organizations have been used Complete key documents are available from the study team upon request Page 2 of 18 B: GLOBAL APPLICATION OF THE CLUSTER LEADERSHIP APPROACH 1 Background on the cluster approach within broader humanitarian reform The cluster approach comprises one key component of a wider humanitarian reform agenda The two other pillars of the Inter-Agency Standing Committee (IASC) led reform package concern predictable and timely financing and strategic leadership (strengthening the Humanitarian Coordinator function) A complementary initiative, the Global Humanitarian Platform, aims to improve partnerships between the three main families of the humanitarian community: NGOs, the International Red Cross and Red Crescent Movement and the UN and relate international organisations In international responses to humanitarian crises, some sectors have in the past benefited from having clearly mandated lead agencies, while others have not This has repeatedly led to ad hoc, unpredictable humanitarian responses, with inevitable capacity and response gaps in some areas Recognizing this, in September 2005 the IASC agreed to designate global “cluster leads” – specifically for humanitarian emergencies – in nine sectors or areas of activity The IASC Principals also agreed that the cluster approach should be applied, with some flexibility, at the country level In December 2005 the IASC Principals generally welcomed the “cluster approach” as a mechanism that can help to address identified gaps in response and enhance the quality of humanitarian action It is part of a wider reform process aimed at improving the effectiveness of humanitarian response by ensuring greater predictability and accountability, while at the same time strengthening partnerships between NGOs, international organizations, the International Red Cross and Red Crescent Movement and UN agencies As it is in all aspects of development and humanitarian assistance, strong links with governments is a crucial factor In June 2006 the IASC issued a Preliminary Guidance Note on implementation of the new approach (available at www.unhcr.org/refworld/docid/460a8ccc2.html) Concerning terminology, some Humanitarian Country Teams prefer to speak of “clusters” and “cluster leads”, while others prefer to stick to the more traditional terminology of “sectors”, “sectoral groups” and “sector leads” (or in some cases, “working groups”, “thematic groups” or “task forces”) 2 Cluster approach conceptualization and initiation 2.1 Aim and scope of the cluster approach At the global level, the aim of the cluster approach is to strengthen system-wide preparedness and technical capacity to respond to humanitarian emergencies by ensuring that there is predictable leadership and accountability in all the main sectors or areas of humanitarian response Similarly, at the country level the aim is to strengthen humanitarian response by demanding high standards of predictability, accountability and partnership in all sectors or areas of activity It is about: Page 3 of 18 achieving more strategic responses and better prioritization of available resources by clarifying the division of labour among organizations, better defining the roles and responsibilities of humanitarian organizations within the sectors, and providing the Humanitarian Coordinator with both a first point of call and a provider of last resort in all the key sectors or areas of activity The success of the cluster approach will be judged in terms of the impact it has on improving the humanitarian response to those affected by crises 2.2 Geographic scope of cluster application The cluster approach should eventually be applied in all countries with Humanitarian Coordinators By definition, these are countries with humanitarian crises which are beyond the scope of any one agency’s mandate and where the needs are of sufficient scale and complexity to justify a multi-sectoral response with the engagement of a wide range of humanitarian actors The cluster approach can be used in both conflict related humanitarian emergencies and in disaster situations It should significantly improve the quality of international responses to major new emergencies Also, although not limited to situations of internal displacement, it should make a significant improvement in the quality, level and predictability of the response to crises of internal displacement and represents a substantial strengthening of the ‘collaborative response’ 2.3 Cluster leadership at the global level The IASC guidance states that “any IASC member can be a sector/cluster lead; it does not have to be a UN agency” In reality, however, UN agencies and IOM lead all clusters at the global and national levels (with the partial exception of education, for which Save the Children is co-lead, and shelter in natural disasters, where IFRC is a ‘convener’), and only in a few cases have NGOs officially assumed a lead role in the field As the cluster approach evaluation final report (OCHA Evaluation and Studies Section) revealed, there are a number of positive experience with national authorities acting as chairs or co-chairs of cluster meetings at the national level Sectors and categories of population where leadership and accountability amongst international humanitarian actors are already clear are not included among the nine clusters at global level These include, for example, agriculture, led by FAO; food, led by WFP; refugees, led by UNHCR; and education, led by UNICEF (In the case of education, there may be some further modification to this, as consultations are underway to clarify the lead at the global level.) In addition to these, as indicated in the table below, cluster leads at the global level have now been designated by the IASC for nine sectors or areas of activity Page 4 of 18 Global Cluster Leads Sector or Area of Activity Global Cluster Lead Agriculture FAO Camp Coordination/Management: IDPs (from UNHCR conflict) IOM Disaster situations Early Recovery UNDP Education UNICEF Save The Children - United Kingdom Emergency Shelter: IDPs (from conflict) UNHCR Disaster situations IFRC (Convener)* Emergency Telecommunications OCHA/UNICEF/WFP Health WHO Logistics WFP Nutrition UNICEF Protection: IDPs (from conflict) UNHCR Disasters/civilians affected by conflict (other UNHCR/OHCHR/UNICEF than IDPs)** Water, Sanitation and Hygiene UNICEF The establishment of clusters at the global level in areas where there are clearly identified gaps in capacity is an important addition that will enhance technical capacity and better ensure the immediate availability of critical material and expertise Concerning the emergency shelter cluster, it should be noted that IFRC does not participate in Consolidated Appeals launched by the UN and will appeal separately for support in providing leadership and strengthening capacity for the provision of emergency shelter in disasters resulting from natural hazards 2.4 Responsibilities of global cluster leads Complementing arrangements already in place for some sectors or areas of activity, global cluster leads have agreed to be accountable to the Emergency Relief Coordinator for ensuring system-wide preparedness and technical capacity to respond to humanitarian emergencies, and for ensuring greater predictability and more effective inter-agency responses in their particular sectors or areas of activity More specifically, they are responsible for establishing broad partnership bases (i.e “clusters”) that engage in activities in three main areas, as follows: Standards and policy-setting Consolidation and dissemination of standards; where necessary, development of standards and policies; identification of ‘best practice’ Building response capacity o Training and system development at the local, national, regional and international levels o Establishing and maintaining surge capacity and standby rosters o Establishing and maintaining material stockpiles Page 5 of 18 Operational support o Assessment of needs for human, financial and institutional capacity o Emergency preparedness and long term planning o Securing access to appropriate technical expertise o Advocacy and resource mobilization o Pooling resources and ensuring complementarity of efforts through enhanced Partnerships 2.5 Sector/cluster leadership at the country level As stated in the IASC guidance note, the cluster approach is intended to strengthen rather than to replace sectoral coordination under the overall leadership of the Humanitarian Coordinator, with a view to improving humanitarian response in emergency situations The cluster approach represents a raising of standards in humanitarian response At the country level, it involves having clearly identified leads (within the international humanitarian community) for all the key sectors or areas of activity, with clearly defined responsibilities for these agencies in their capacities as sector leads The Humanitarian Coordinator, in close consultation with the Humanitarian Country Team, is responsible for securing agreement on the establishment of appropriate sectors and sectoral groups, and for the designation of sector leads This should be based on a clear assessment of needs and gaps, as well as on a mapping of response capacities, including those of the host Government, local authorities, local civil society, international humanitarian organizations and other actors, as appropriate To enhance predictability, where possible, sector lead arrangements at the country level should be in line with the lead agency arrangements at the global level This principle should, however, be applied flexibly, taking into consideration the capacities and strengths of humanitarian organizations already operating in the country concerned This may mean that in some cases sector lead arrangements at the country level do not replicate those at the global level Also, in some cases, it may be appropriate for NGOs or other humanitarian partners to act as sector focal points in parts of the country where they have a comparative advantage or where the cluster lead has no presence There may be cases where particular sectoral groups are not needed, or where particular sectors are merged (e.g Health & Nutrition, or Food & Agriculture) In the case of Early Recovery, the global level cluster is not encouraging Humanitarian Country Teams to establish Early Recovery sectoral groups at the country level, but rather to ensure that early recovery planning is integrated into the work of all sectoral groups Where there are early recovery gaps not covered by other sectoral groups, ad hoc groups could be set up to address these where necessary Likewise, in the case of Emergency Telecommunications and Logistics, it may not be necessary to establish special sectoral groups with sector leads in every country, though they may be much needed in some cases – particularly in the early stages of major new emergencies In establishing sectoral groups at the country level, the principle should always be to prioritize the main issues and ensure that there are no major gaps in the humanitarian response Sectoral groups at the country level should ensure Page 6 of 18 adherence to norms, policies and standards agreed at the global level and should treat the global level clusters as a resource that can be called upon for advice on global standards, policies and ‘best practice’, as well as for operational support, general guidance and training programmes There is no direct reporting line, however, between sectoral groups at the country level and global level clusters Sector leads are expected to report to the Humanitarian Coordinator on issues related to the functioning of the sector as a whole, while at the same time retaining their normal reporting lines insofar as their own agencies’ activities are concerned In some cases, particularly at the height of a humanitarian crisis, there may be a need to appoint staff to work as dedicated, full-time sector leads Common Humanitarian Action Plans and Consolidated Appeal documents should clearly reflect the agreed sectoral structure, indicating which agencies are the designated sector leads 2.6 Contingency planning and application of the cluster approach in major new emergencies The cluster approach should be used in all contingency planning exercises for major new emergencies which involve multi-sectoral responses with the participation of a wide range of international humanitarian actors Those responsible for doing the contingency planning, whether at the country, regional or headquarters level should consult closely with national/local authorities as appropriate, building on local capacities They should also ensure that they consult closely with relevant international actors at the country and regional level, as well as with global cluster leads and other lead agencies at the global level In the event of a sudden major new emergency requiring a multi-sectoral response with the participation of a wide range of international humanitarian actors, the cluster approach should be used from the start in planning and organizing the international response The Humanitarian Coordinator (or the Resident Coordinator in countries where a Humanitarian Coordinator has not yet been appointed at the beginning of the emergency) should consult all relevant partners at the country level and make proposals regarding the designation of any new cluster/sector leads, if possible within the first 24 hours Following consultation with the Humanitarian Coordinator, the Emergency Relief Coordinator should consult global cluster leads and other lead agencies at the global level on the designation of country-level cluster/sector leads for the emergency in question The Emergency Relief Coordinator is responsible for ensuring that agreement is reached on appropriate country-level cluster/sector leads, and that this decision is communicated without delay to all relevant humanitarian partners, as well as donors and other stakeholders The Humanitarian Coordinator should in turn inform the host government and humanitarian partners at the country level of the agreed arrangements 2.7 Responsibilities of sector/cluster leads at the country level The role of sector leads at the country level is to facilitate a process aimed at ensuring well-coordinated and effective humanitarian responses in the sector or area of activity concerned Sector leads themselves are not expected to carry out all the necessary activities within the sector or area of activity concerned They are required, however, to commit to being the ‘provider of last resort’ where this is Page 7 of 18 necessary and where access, security and availability of resources make this possible As spelt out in the Terms of Reference for Sector Leads at the Country Level, specific responsibilities of sector leads at the country level include ensuring the following: Inclusion of key humanitarian partners Establishment and maintenance of appropriate humanitarian coordination mechanisms Coordination with national/local authorities, State institutions, local civil society and other relevant actors Participatory and community-based approaches Attention to priority cross-cutting issues (e.g age, diversity, environment, gender, HIV/AIDS and human rights) Needs assessment and analysis Emergency preparedness Planning and strategy development Application of standards Monitoring and reporting Advocacy and resource mobilization Training and capacity building Provision of assistance or services as a last resort Sector leads have a particular responsibility for ensuring that humanitarian actors working in their sectors remain actively engaged in addressing cross cutting concerns such as age, diversity, environment, gender, HIV/AIDS and human rights Experience of recent crises suggests that these important dimensions to ensuring appropriate responses have too frequently been ignored Sector leads are responsible for ensuring the necessary shift in programming as priorities move from emergency relief to longer-term recovery and development All sectoral groups should include early recovery strategies and procedures for phasing out or handing over activities In addition, networks of early recovery focal points should be established at the country level to ensure joint planning and integrated response Sector Leads should ensure that sectoral groups promote strategies that support the government and other local partners from the outset of the response and enable strong linkages between humanitarian and development actions, as appropriate Sector/cluster lead agencies are accountable to the Humanitarian Coordinator for ensuring that the tasks mentioned above are carried out effectively 2.8 Strengthening partnerships and complementarity amongst humanitarian actors A central element of the humanitarian reform process is the need to strengthen strategic partnerships between NGOs, international organizations, the International Red Cross and Red Crescent Movement and UN agencies Indeed, successful application of the cluster approach will depend on all humanitarian actors working as equal partners in all aspects of the humanitarian response: from Page 8 of 18 assessment, analysis and planning to implementation, resource mobilization and evaluation As such, the establishment of a Humanitarian Country Team at the country level is an essential pre-requisite for effective application of the cluster approach Humanitarian partnerships may take different forms, from close coordination and joint programming to looser associations based on the need to avoid duplication and enhance complementarity To be successful, therefore, sectoral groups must function in ways that respect the roles, responsibilities and mandates of different humanitarian organizations There must be recognition of the diversity of approaches and methodologies that exist amongst the different actors It is essential that sectoral groups find non-bureaucratic ways of involving all humanitarian actors in a collaborative and inclusive process focused on areas of common interest Some humanitarian actors may not be prepared or able to formally commit themselves to structures which involve reporting to sector leads Sector leads should ensure, however, that all humanitarian actors are given the opportunity to fully and equally participate insetting the direction, strategies, and activities of the sectoral group Sector leads are responsible for ensuring – to the extent possible – appropriate complementarity amongst different humanitarian actors operating in their sectors or areas of activity 2.9 Ensuring appropriate links with Government/local authorities, State institutions, local civil society and other stakeholders A key responsibility of sector leads at the country level is to ensure that humanitarian actors build on local capacities and that they develop and maintain appropriate links with Government and local authorities, State institutions, local civil society and other stakeholders The nature of these links will depend on the situation in each country and on the willingness and capacity of each of these actors to lead or participate in humanitarian activities In some cases, Government and local authorities may be in a strong position to lead the overall humanitarian response and the role of the Humanitarian Coordinator may be to organize an international humanitarian response in support of the host Government’s efforts This would typically be the case in disasters In other cases, particularly in situations of ongoing conflict, the willingness or capacity of a Government or State institutions to lead or contribute to humanitarian activities may be compromised, and this will clearly influence the nature of the relationships which it establishes with international humanitarian actors Similarly, the nature of the relationships established between international humanitarian actors and local civil society, as well as other stakeholders, will depend on the political and security situation and on their capacities and willingness to lead or engage in humanitarian activities Application of the cluster approach does not imply that the agency designated as sector lead in a particular country is responsible for leading the overall humanitarian response within that sector, as this may be the responsibility of a Government department or a local authority It does mean, however, that the agency designated as sector lead is responsible for promoting close cooperation amongst international humanitarian actors working in that sector, and for ensuring appropriate linkages with Government and local authorities, State institutions, local civil society and other stakeholders Where appropriate, sectors leads should Page 9 of 18 promote training and capacity-building initiatives, particularly in terms of strengthening the capacity of local authorities to provide leadership Page 10 of 18 C: VIET NAM 1 Disaster management context in Viet Nam 1.1 Legal/policy basis The Government of Viet Nam has developed a number of laws and policies related directly or indirectly to disaster risk management These documents set out strategic directions and priorities for Viet Nam and include the following: The National Strategy for Disaster Prevention, Response and Mitigation to 2020 The Ordinance on Prevention and Control of Floods and Storms and Implementation Provisions The Law on Dyke management The National Target Programme on Climate Change The ODA Master Plan for 2006-2010 that gives priority to “reduce losses and damages caused by natural disasters” 1.2 Government institutional structures The Government’s approach to disaster management is primarily organised around specific hazards Ministries, departments and agencies have responsibilities for controlling hazards that are related to their sectoral mandates Cooperation is realised through committees, in particular the Central Committee for Flood and Storm Control (CCFSC), the National Committee for Search and Rescue (NCSAR), the National Steering Committee for Forest Fire Prevention and Control, the National Steering Committee for Avian Influenza (NSCAI), and others These committees have branches at ministerial, provincial and lower levels The CCFSC has traditionally been the main body in disaster management in Viet Nam This institutional set up facilitates response and information sharing activities, but focuses on response by Government agencies 1.3 International agreements and relationships The Government of Viet Nam is actively engaged with a number of important international frameworks on disaster risk management These include the the UN International Strategy for Disaster Reduction (UN ISDR), which aims at building disaster resilient communities by promoting increased awareness of the importance of disaster risk management as an integral component of sustainable development Viet Nam also plays an active role in regional and sub-regional networks relating to disaster risk management such as the ASEAN Committee for Disaster Reduction and the Asian Disaster Reduction Centre (ADRC) based in Japan Furthermore, Viet Nam is committed to the Hyogo Framework for Action, which has five priority areas that were agreed in at the World Conference on Disaster Risk Management (Kobe, 2005): (i) Ensure that Disaster Risk Management is a national and a local priority with a strong institutional basis for implementation; (ii) Identify, assess and monitor disaster risks and enhance early warning; (iii) Use knowledge, innovation and education to build a culture of safety and resilience at all levels; (iv) Reduce the underlying risk factors; and (v) Strengthen disaster preparedness for effective response at all levels Page 11 of 18 1.4 Main stakeholders: Central Committee for Flood and Storm Control (CCFSC) is the lead body for coordination of disaster response activities The CCFSC is chaired by the Ministry of Agriculture and Rural Development (MARD) and the Department of Dyke Management, Flood and Storm Control (DDMFSC) acts as its standing office Within the DDMFSC, the Disaster Management Centre (DMC) plays a key role in disaster response Line ministries including the Ministry of Defence, the Ministry of Health, the Ministry of Labour, Invalids and Social Affairs, the Ministry of Natural Resources and the Environment and many others all play important roles in disaster response Each of these ministries is also represented on the CCFSC The National Committee for Search and Rescue (NCSAR) is commonly very active in the immediate national response to save lives Chaired by the Ministry of Defence, the NCSAR can mobilize large amounts of resources (including human resources) to assist in disaster response The Natural Disasters Mitigation Partnership (NDMP) is the national institution that liaises between the CCFSC, MARD and other ministries, and the international community Its role in disaster management primarily relates to information sharing and support to resource coordination The Fatherland Front plays a key role in calling for support and launching appeals following disasters, and in coordinating the distribution of financial support to affected people The Vietnam Red Cross and the International Federation of Red Cross and Red Crescent Societies are the primary providers of humanitarian assistance in a disaster and area also involved in calls for assistance in disaster response The People's Aid Coordinating Committee (PACCOM), under the Viet Nam Union of Friendship Organisations (VUFO), is the Vietnamese organization in charge of (I)NGOs coordination in disaster response A large number of National and International Non-Government Organizations (NGOs and INGOs) are actively involved in disaster response in Viet Nam In the even of a major disaster they would play a crucial role The Disaster Management Working Group (DMWG) gathers a large number of organizations involved in disaster preparedness, response and reconstruction including (I)NGOs, UN agencies, donors and Government, through NDMP and PACCOM United Nations, organized in a UN Natural Disasters and Emergencies Programme Coordination Group (known as PCG 10) with the participation of UNDP, UNICEF, UNIFEM, FAO, IOM, UNFPA, UN HABITAT and WHO Donor community, mostly active in the aftermath of a disaster and disaster preparedness projects Page 12 of 18 2 Application of the cluster leadership approach 2.1 Estimated international support in case of major disaster in Viet Nam Currently there are 367 INGOs (NGO Resource Centre data) and 16 UN agencies active in the country (8 of them already working in disaster management) Bilateral donors and other financial institutions such as the World Bank and Asian Development Bank are also very active In this context, strong international support could be expected in response to a major catastrophe Information management systems and coordination mechanisms could play a key role in a disaster response Although some of these stakeholders might have limited number of human and financial resources in country -small (I)NGOs- there is trend that they may increase their portfolio in the aftermath of a disaster since donors are usually inclined to channel disaster response funds through national organizations already present in the country and/or affected areas Therefore, conservative estimations could anticipate that some 100 (i)NGOs -25% of the organizations already working in Vietnam- and around 10 UN agencies – PCG 10 plus OCHA, UNHCR and WFP- could energetically participate in a disaster response in Vietnam in case of major calamity Bilateral donors, who usually require reliable communication flows and strong coordination mechanisms to mobilize funds, would also activate their response mechanisms (donors meetings) and participate in the response operation 2.2 Scenarios in which cluster approach can be useful National and international response would be proportional to the damages and needs caused by the natural disaster and media coverage Obviously, the cluster approach will have a different impact depending on the number of actors involved and the scope of their activities In the light of this fact, it seems sensible that the cluster approach will bring more benefits in a context of numerous actors involved in different thematic sectors when the coordinating capacity of DMWG is exceeded Normally the cluster leadership approach is automatically activated in an International Appeal scenario, since this official request will act as trigger to mobilize substantial amounts of human and financial resources into the affected area(s) In other sort of context where international support is not required, DMWG coordination mechanisms might be sufficient to ensure that international support to national response is adequate, effective and coordinated In a situation where international assistance is welcomed but not officially requested, coordination mechanisms of cluster leadership approach may bring important benefits but its activation is subject to the number of players engaged in the response, needs and gaps identified and, ultimately, declared needs for putting in place a strengthened coordination system Page 13 of 18 2.3 Possible challenges for Cluster Approach application in Viet Nam As with any innovation and change, new initiatives may find resistance for its application among those stakeholders comfortable with the ongoing system However, this reluctance can be overcome with (i) awareness raising regarding the need for Viet Nam to be ready to properly respond in the best possible manner in case of major disaster, (ii) information about humanitarian reform and new international regulations and (iii) strong commitment and leadership from main partners Actors with limited resources (either financial, human resources, or both) may prefer a more geographical coordination setting (i.e working only in one province or district) or even a looser coordination system It is important that these players understand the benefit of cluster approach and that it gives them the opportunity to fully and equally participate in setting the direction, strategies and activities of sectoral groups It is important to keep in mind that cluster approach is mainly focused in complex emergencies and major disaster which implies some intense preparedness work Since fortunately Viet Nam has not experienced any major disaster in recent times, some stakeholders may not see the need for such effort In this sense, it is important to analyze the altering context due to global warming and climate change and the fact that Viet Nam is one of the most affected countries by climate change (UNDP Human Development Report 2007) Nevertheless, recent catastrophes hitting neighbouring countries such Myanmar and China may have raised the alert levels The lack of a Vietnamese inter-ministerial Disaster Management Office, that could include representatives from all related institutions, may be an obstacle to identify national cluster leads and reach a long term commitment and partnership with cluster members In this regard, the role of CCFSC and NDMP will be crucial for the success of the initiative 3 Stakeholder Consultation and Feedback 3.1 Central Committee for Flood and Storm Control (CCFSC) A meeting was held with representatives from the Standing Office for the CCFSC, DDMFSC and DMC at MARD During the meeting members of the study team presented information about the cluster leadership approach and lengthy and detailed discussion took place about the advantages and disadvantages of applying such an approach in the Vietnamese context CCFSC representatives expressed a great deal of interest in the concept and voiced their support for its application in Viet Nam Discussion took place regarding possible benefits of the similarities between the cluster leadership approach, which would be used to coordinate international support, and the CCFSC’s own systems used to coordinate the Government’s disaster response activities It was also stated that CCFSC supported the idea of Government agencies assuming the roles of cluster leads It was requested by the CCFSC representatives that more information be provided on the cluster leadership approach and that further discussions and preparations involving the Government should take place Page 14 of 18 3.2 People’s Aid Coordination Committee (PACCOM) A meeting was held with PACCOM representatives where information on the cluster leadership approach was again presented Discussions took place regarding the current level of NGO activity in Viet Nam and what might be expected following a major disaster The possibility of establishing links between clusters making preparations for response to major disasters, and NGO Resource Centre supported working groups operating in similar fields was also discussed PACCOM voiced their support for the application of the cluster leadership approach and considered it to be a necessary and appropriate approach to the coordination of international response in the event of a major disaster PACCOM also stressed the need to discuss and work closely with the NGO community 3.3 NGO Sample Group A final consultation meeting for the study was also held with a sample group of NGOs that have previously been actively involved in disaster response in Viet Nam Representatives from NGOs such as Oxfam, CARE International in Vietnam, World Vision, the Save the Children Alliance, Plan International and the IFRC were invited to the meeting, though some were unable to attend Information on the cluster leadership approach was presented and discussions focused on the advantages and disadvantages of the cluster leadership approach and its applicability to the Viet Nam context International experiences in applying the cluster leadership approach were shared as well as previous experiences of NGOs and Government working together in previous response efforts in Viet Nam Support from the NGOs was very strong and the need to continue to move forward with preparations was stressed In particular, the need to identify and document available regional and international resources that clusters may call upon in a major disaster Some concerns were raised, including how application of the cluster leadership approach might affect internal communication within individual NGOs It was concluded that the cluster leadership approach was appropriate and necessary for Viet Nam and that detailed preparations should be made Through proper preparation and execution, possible problems could be eliminated or minimized 3.4 Stakeholder Questionnaire Further to the stakeholder consultation meetings mentioned above, a questionnaire on the cluster leadership approach and its applicability in Viet Nam was widely circulated through the DMWG email network Responses were largely positive with nearly all respondents indicating support for the cluster leadership approach and a willingness to participate in one or more clusters The questionnaire gave an insight into the level of existing knowledge about the cluster leadership approach with most respondents indicating they were familiar “to some extent” with the concept Most respondents considered the strengths of the approach to be in clear accountability and information sharing, along with strong leadership and better planning Page 15 of 18