Estructuras de coordinación

Los gobiernos y las autoridades locales tienen estructuras de coordinación de la respuesta a las crisis establecidas en sus leyes y procedimientos. Estos instrumentos definen las funciones y responsabilidades de los ministerios competentes y las correspondientes autoridades nacionales y locales. En muchos países, esas responsabilidades y estructuras se concentran predominantemente en la respuesta a desastres u otros sucesos similares.

Los encargados de la respuesta de primera línea se encuentran principalmente a nivel local. Sin embargo, si la respuesta requerida supera lo que se puede hacer con la capacidad local, intervienen los actores a nivel nacional. En este plano, la coordinación de la respuesta puede recaer en la oficina del primer ministro, bajo la dirección de un ministerio competente, o estar descentralizada y distribuida entre diferentes ministerios u otras entidades. Cuando se produce un desastre, se activa una entidad nacional, por ejemplo, un centro de operaciones de emergencia o algún tipo de órgano nacional de gestión de desastres facultado para coordinar la respuesta (véase más información al respecto en la sección Preparación para casos de desastre).

En el caso de los migrantes atrapados en situaciones de crisis, los gobiernos extranjeros pueden contribuir mediante la prestación de asistencia u otra forma de ayuda, por ejemplo servicios consulares o visados humanitarios (véase más información sobre la gestión de fronteras en crisis humanitarias).

Independientemente de cómo organice el gobierno su respuesta a las crisis, las autoridades a cargo deberían coordinar la acción de todos los ministerios y organismos, entendiendo las repercusiones del desplazamiento en lo inmediato y a más largo plazo. Para una buena coordinación es necesario normalmente realizar evaluaciones adecuadas de la situación y determinar las necesidades; promover las prioridades comunes; movilizar y gestionar el flujo de los recursos financieros y otros recursos necesarios hacia los lugares donde más se precisen; establecer una comunicación clara, exacta y regular; seguir de cerca los progresos; promover la participación de la población afectada en la respuesta; y coordinarse con los actores externos que participen en ella.

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Fuente

IOM/Bannon, 2015

Ideally, contingency plans prepared prior to a crisis, by the authorities in charge, outline the arrangements for coordinating the response of the various actors. And the ability of those actors to carry out their functions will also depend on how well the preparedness preparations have been managed: the capacity-building, the stocking of resources in advance, and so on (see Prevention, preparedness and reducing risk). National contingency plans and response structures typically focus on disaster management, and rarely consider scenarios such as conflict, epidemics, or other complex situations (because of their low probability or because of their political nature).

The impacts of a crisis may overwhelm a State’s own capacity to respond effectively. In some situations, the State may be unable or unwilling to provide support for other reasons. The State may thus require and request the support of the international community. Regional-level bodies such as regional-level disaster reduction platforms or regional organizations can be called upon by States in such situations.

In addition, humanitarian agencies can assist governments, upon request. The international humanitarian agencies (United Nations and non-United Nations) have agreed upon a coordination structure through which they organize themselves to provide life-saving assistance. Such structures are adapted to local contexts and are designed to ensure coordination with appropriate government authorities. It is important for government authorities to factor in how the humanitarian community coordinates itself to ensure the compatibility and complementarity of the international support provided. Moreover, it might be useful for governments to identify—before crises occur—a focal point to liaise with international actors, particularly in large-scale emergencies.

The Humanitarian Country Team (HCT) is responsible for strategic and operational decision-making related to humanitarian action at the country level. It is established and led by the Humanitarian Coordinator (HC) and includes representatives from the United Nations, international NGOs, the Red Cross/Red Crescent Movement, and from the organisations that lead each of the “clusters” (for more on clusters, see the next heading) .

Mecanismos mundiales de coordinación humanitaria

El Comité Permanente entre Organismos (sitio web en inglés) es el principal foro que reúne a los actores humanitarios clave pertenecientes y ajenos al sistema de las Naciones Unidas para la coordinación, la elaboración de políticas y la adopción de decisiones sobre la prestación de asistencia. Su atención se centra en mejorar la eficacia de la respuesta operacional, y en asegurar la rendición de cuentas y la inclusión, una mayor labor de promoción colectiva, una mejor colaboración entre los organismos humanitarios y de desarrollo y la consecución de más recursos para la asistencia humanitaria.

En 2005, el Comité Permanente entre Organismos adoptó el “enfoque de los grupos temáticos”. Cada grupo temático se ocupa de un sector clave de la acción humanitaria (agua, salud, logística, educación, protección, albergue, etc.) y está integrado por organismos humanitarios tanto del sistema de las Naciones Unidas como ajenos a este. Los grupos temáticos están concebidos para evitar la superposición y duplicación entre los diferentes actores humanitarios que intervienen en una respuesta. Refuerzan la coordinación dentro de la comunidad humanitaria y permiten una mayor previsibilidad, rendición de cuentas y colaboración en una respuesta humanitaria conforme a los principios establecidos.

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Figure 1. The cluster system

Fuente

IASC, 2015.

Clusters exist at two levels. Global clusters are a constant part of the humanitarian architecture. They are responsible for strengthening system-wide preparedness and for providing technical capacity to respond to humanitarian emergencies within their respective sectors. The IASC Principals designate the lead (or co-lead) agencies as well as the participating members for each global cluster based on their operational relevance to that sector. Each cluster lead/co-lead is given clear responsibilities for coordination. Under the cluster leadership, the partners establish strategic response plans and work towards common outcomes for that sector.

At a country level, clusters are a temporary coordination solution that may be formed when existing coordination structures cannot respond to the complexity of a given crisis. The HC in close coordination with the HCT, and with government approval, may request that the United Nations Under-Secretary-General for Humanitarian Affairs [who is also the Emergency Relief Coordinator (ERC)] activates the cluster on the country level(s).

Country-level clusters are commonly co-chaired by government representatives. The clusters are accountable to the HC, through the cluster lead agencies, and to national authorities and to people affected by the crisis. The clusters may or may not continue after the initial phases of response based on in-country assessments of continued need (IOM, 2019b). Efforts should be made as soon as possible to hand over coordination to relevant national authorities.

To Go Further
  • Inter-Agency Standing Committee (IASC), Guidance for Humanitarian Country Teams, 2009.
  • IASC, Humanitarian Response. Provides more information on the Humanitarian Coordinator (HC) and the Humanitarian Country Team (HCT) (for instance, HC and HCT might not be present or established yet, while a Resident Coordinator and a United Nations country team are usually in place).

Other coordination structures

  • In some cases, the cluster approach may coexist with other forms of national or international coordination, such as United Nations peacekeeping missions, government- or United Nations-led working groups on sectoral issues (IASC, 2015).
  • Sometimes formal activation of clusters is not feasible. Even so, the cluster-based model of work is still useful.
  • In refugee crises where government does not have sufficient capacity, the protection of and assistance to refugees is coordinated and delivered through the Refugee Coordination Model (RCM) led by UNHCR.
  • Regarding situations where a UNHCR-led refugee operation is underway but where there is also a complex humanitarian emergency or disaster and a HC has been appointed, mutual roles and responsibilities have been laid out by UNHCR and OCHA in a joint note on coordination in mixed settings, outlining respective leadership and coordination functions.
 
Evaluaciones de las necesidades

Cuando se produce una situación de crisis, una de las prioridades inmediatas es determinar las necesidades de las poblaciones afectadas. Esta evaluación es necesaria para fundamentar la adopción de decisiones y la asignación de recursos. Si hay cambios importantes en la situación –por ejemplo en los movimientos o las necesidades de la población, o a lo largo de periodos de tiempo predeterminados– las evaluaciones de las necesidades y las respuestas deben actualizarse en consecuencia. Hay muchos métodos posibles para recabar, procesar y analizar la información. La vasta experiencia de la OIM en el terreno ha demostrado que el alcance de las evaluaciones de las necesidades depende del tipo de crisis y de la escala de su impacto (local, regional o nacional).

Table
Table 1. Six steps to implement needs assessments
STEPS ACTION POINTS
(1) PREPARATION
  • Review secondary data and evaluate whether there is a need to deploy data collectors on the ground.
  • If so, a review of past data-collection tools and methodologies is useful to select the most efficient and appropriate method to collect necessary data.
  • Coordinate among the institutions and/or individuals in charge of carrying out the assessment. As well, build strong links with relevant external partners who might have a stake in the process. Such stakeholders should be identified early on.
  • Conduct a risk–benefit assessment to verify the risks in relation to data collection.
(2) DESIGN
  • Draft an assessment plan providing details on the objectives, methods of data collection and tools, timeline, different responsibilities of partners and the resources to be allocated to the exercise.
  • Consider the resources available (transportation, for instance), as well as the security of the data collectors and affected populations.
  • Factor in how often, or under what conditions, updates to the assessment findings should take place.
  • Agree on the protocol on data protection (see Step 5 below on data sharing).
(3) DATA COLLECTION
  • Collect data in the affected areas. The objective of the exercise should be clearly communicated to the affected population to manage expectations.
  • All members of the community, including vulnerable individuals, should be involved to ensure that the data collected reflect the needs on the ground.
  • No personal data should be collected without a specified legitimate purpose and prior consent of the data subject. If personal data are being collected, a consent form informing data subjects of their rights should be used during the data collection process.
(4) ANALYSIS
  • Analyse collected data in the field by, when feasible, cross-checking and comparing with other sources of data (triangulated) to ensure their accuracy.
  • The type of analysis will vary; however, at a minimum, data should be disaggregated by age and by sex, as well as on multisector needs (WASH, food and the like). As well, there should be a mapping exercise to identify partners providing assistance on the ground.
(5) DATA SHARING
  • Share findings among relevant partners as soon as possible to ensure there is a coherent understanding across all responders of the situation and needs.
  • Personal data must only be shared, if needed, to fulfil a specific purpose and with prior consent of the data subjects.
  • Personal data must only be securely shared in accordance with data protection standards to avoid causing harm to affected populations using, at a minimum, encrypted tools and password protected files.
(6) DECISION-TAKING
  • The information shared should allow partners to quickly decide on how to respond to the crisis and where to allocate resources.
  • Update the assessment’s findings on a regular basis or conduct new assessments (as needed) given that the situation after the initial onset of an emergency can rapidly change.

 

Fuente

ACAPS, 2014; IASC, 2012.

Particular attention should be paid to data protection to ensure respect for people’s privacy, dignity, and safety, to prevent discrimination, to protect confidentiality and to prevent unauthorized disclosure and inappropriate use of personal data. Data collectors have to make sure that data are obtained by lawful and fair means with the consent of the data subject and that the data serve a specified and legitimate purpose, amongst other principles (IOM, 2010) (see Data, research, and analysis for policymaking).

Policy Approaches
Assessing the needs of affected populations
  • Needs assessments ideally involve all the government entities concerned, in coordination with all relevant stakeholders, including thematic experts and humanitarian partners. They can be led by governments, humanitarian agencies, or both.
  • Assessments should be updated when there are significant changes in the situation. Needs assessments should be inclusive by taking into account the various affected populations, as well as their sex, age, gender, ethnicity, gender identity, sexual orientation, disability and indigenous background (IOM, field experience).
  • Needs assessments should rely on existing data collection mechanisms and networks, if deemed appropriate.
  • When possible, it is advisable to use data collectors and partners who are already operating on the field
  • Appropriate data protection safeguards should be in place.
Fuente

Source: DTM field experience, 2019. 

Mensajes clave
  • La principal entidad responsable de la respuesta a una emergencia es el Estado.
  • Es esencial que los gobiernos coordinen las respuestas de los distintos ministerios y organismos a la situación de emergencia.
  • Los organismos humanitarios pueden ayudar a los gobiernos que así lo soliciten a responder a las situaciones de emergencia.
  • Cuando se produce una crisis, una de las prioridades inmediatas es determinar las necesidades de las poblaciones afectadas para fundamentar la adopción de decisiones y la asignación de recursos. Las evaluaciones de las necesidades deberán actualizarse cuando haya cambios importantes en la emergencia.
  • Las evaluaciones de las necesidades deberían realizarse con la participación de todas las partes interesadas.
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