Cluster coordination at national level

Cluster coordinator capacity

In 2023, the global average for dedicated cluster coordinator capacity rose to 71 per cent, reflecting a significant increase from 64 per cent in 2022. This improvement suggests a positive shift away from double-hatting arrangements towards more dedicated cluster coordinator roles: when combined, dedicated and double-hatting cluster coordinator capacity remained stable at 85 per cent for both 2022 and 2023.

National cluster coordinator capacity (leads and co-leads) – 2021 to 2023

However, dedicated cluster coordination capacity varied significantly across IASC operations:

  • Six operations had 90 per cent or above dedicated cluster coordination capacity, of which two operations had 100 per cent (Ukraine and Myanmar) and four (Yemen, Syria (Gaziantep), the Democratic Republic of the Congo (DRC) and Venezuela) had between 90 and 92 per cent.
  • In contrast, six operations had dedicated capacity of 50 per cent or below, with Haiti and Madagascar at only 25 per cent and Cameroon, Niger, Colombia and Honduras all between 40 and 50 per cent.
  • Among the eight IASC System-Wide Scale-Ups that were active in 2023, dedicated cluster capacity showed increases or remained stable in Afghanistan, DRC, Ethiopia, and Syria (Gaziantep). However, there was a notable difference in the Syria operation between Gaziantep (92 per cent) and Damascus (50 per cent). Haiti had just 25 per cent dedicated capacity and Somalia 69 per cent.

Cluster dedicated coordinator capacity by location (leads and co-leads) – 2022 and 2023

Dedicated capacity also varied significantly across clusters. Food Security, Shelter, and Education clusters demonstrated robust dedicated coordination capacity. In contrast, Areas of Responsibility (AoRs) such as Mine Action and Housing, Land and Property often relied on double-hatting or partial coverage. Seven clusters and two AoRs saw increases in dedicated capacity in 2023, whilst six saw decreases, including three that decreased by over 10 per cent (Logistics, WASH and Early Recovery). These findings highlight persistent issues in achieving consistent dedicated coordination capacity across all clusters and operational contexts.

National cluster dedicated coordinator capacity by cluster (leads and co-leads) – 2022 and 2023

Cluster capacity in information management

In 2023, the global average for dedicated information management capacity rose to 52 per cent, up from 45 per cent in 2022, marking a substantial improvement. This increase indicates a shift from double-hatting arrangements toward dedicated information management capacity within clusters: when combined, dedicated and double-hatting capacity in information management increased modestly, from 69 per cent in 2022 to 72 per cent in 2023.

National cluster information management capacity (leads and co-leads) – 2021 to 2023

Despite these improvements, 16 per cent of clusters still reported having no information management capacity, highlighting ongoing gaps. Operations with the highest dedicated information management capacity included Syria (Gaziantep), Ukraine, Somalia, Ethiopia, and Yemen. In contrast, Chad, Niger, Cameroon, Syria (Damascus), and Haiti had the lowest levels of dedicated information management capacity. Among the IASC Scale-Up operations, dedicated information management capacity rose by at least 5 per cent in Syria (Gaziantep), Ukraine, Somalia, Ethiopia, the Democratic Republic of the Congo, and Haiti. Afghanistan maintained stable information management capacity, while Syria (Damascus) experienced a notable decline, reflecting the variability in resource allocation across the same operation.

Cluster dedicated information management capacity by location (leads and co-leads) – 2022 and 2023

In 2023, dedicated information management capacity varied significantly across clusters, with Food Security (80 per cent), Logistics (74 per cent), and WASH (68 per cent) showing the highest levels of dedicated information management capacity. Moderate capacity was observed in Health and Shelter (67 per cent each) and Emergency Telecommunications (61 per cent), while the Gender-Based Violence area of responsibility (46 per cent), Education (43 per cent), and the Child Protection area of responsibility (42 per cent) had lower coverage, indicating potential gaps. Two AoR—Housing, Land and Property, as well as Mine Action—remained at 0 per cent.

National cluster dedicated information management capacity by cluster (leads and co-leads) – 2022 and 2023

Cluster leadership

There were modest adjustments in cluster leadership, including lead, co-lead, and co-chair positions in 2023. In addition to leads or co-leads, 55 per cent of clusters and AoR had a co-chair, up from 51 per cent in 2022. In 2023, United Nations entities accounted for 54 per cent of leadership roles, followed by international NGOs (25 per cent), government authorities (15 per cent), national NGOs (5 per cent), and the Red Cross/Red Crescent movement (1 per cent). This distribution shows minor shifts over the years: the cluster leadership role of UN entities has slightly decreased from 57 per cent in 2021 to 54 per cent in 2023, while international and national NGOs have gradually increased their participation in cluster leadership roles.

At the national level, cluster leadership roles aligned with the global Cluster Lead Agency (CLA) arrangements established by the IASC in 95 per cent of operations. In the other 5 per cent of operations, tailored leadership arrangements were in place.

National leadership roles by organisation type (leads, co-leads and co-chairs) – 2021 to 2023

Cluster membership

In 2023, clusters coordinated over 20,000 humanitarian partner organizations globally, more than 76 per cent of which were NGOs (both national and international). National NGOs represented the largest group of humanitarian partners engaging in cluster coordination, at 45 per cent, while international NGOs held 32 per cent of seats. Other groups, including the UN (7 per cent), national authorities (5 per cent), Red Cross/Red Crescent societies (3 per cent), donors (5 per cent), and others (3 per cent), maintained consistent shares within overall cluster composition.

Cluster membership by organisation type – 2022 and 2023

Cluster responsibilities

In 2023, the adoption of strategies by clusters returned to 79 per cent, showing an increase from 71 per cent in 2022 and aligning with levels observed in 2021. The proportion of clusters with terms of reference increased to 88 per cent, up from 83 per cent in 2022, while terms of reference updated within the last three years decreased slightly to 74 per cent from 80 per cent in 2022. Cluster coordination performance monitoring (CCPM) coverage continued to rise, reaching 64 per cent compared to 58 per cent in 2022, indicating improved monitoring practices. The presence of transition plans, however, remained very low at just 16 per cent, down slightly from 19 per cent in 2022, reflecting ongoing challenges in transition planning.

Overview of cluster responsibilities – 2021 to 2023

Cluster subgroups

Strategic Advisory Groups

In 2023, 60 per cent of clusters had Strategic Advisory Groups (SAGs), key bodies that provide strategic direction, set priorities, and shape the operational focus of the clusters. International NGOs constituted 32 percent of SAG members, maintaining their share from 2022. National NGOs represented 24 percent of SAG members, showing a slight decrease from 26 percent in 2022. There was also a decrease in the percentage of SAGs that included national NGOs from 95 per cent in 2022 to 85 per cent in 2023. UN entities, meanwhile, comprised 27 percent of SAG membership, while government entities made up 9 per cent. The Red Cross/Red Crescent movement and donors each represented 2 per cent, while the other entities made up 3 per cent of the SAG composition. The SAGs have among the most diverse proportional representation of any coordination structure in the humanitarian system, as highlighted by the high proportion of NGO SAG seats (46 per cent for SAGs as compared to 34 per cent for HCTs). This underscores the collaborative, multi-stakeholder approach to driving effective, context-responsive humanitarian action that SAGs can enable.

Composition of Strategic advisory groups – 2023

Technical working groups

In 2023, 70 per cent of clusters maintained technical working groups (TWGs), up from 65 per cent in 2022. The total number of TWGs decreased slightly from 509 in 2022 to 486 in 2023, with the highest numbers found in Health (65), Nutrition (63), WASH (62), and Education (50) clusters. These groups support specific thematic or operational areas within or across clusters, with assessment and analysis, mental health and psychosocial support (MHPSS), case management, CVA and humanitarian-development collaboration accounting for the majority of these groups.

UN entities accounted for the majority (51 per cent) of TWG chairs and co-chairs in 2023, a slight decrease from 52 per cent in 2022. INGOs represented 26 per cent in 2023, a minor increase from 25 per cent in 2022, indicating steady international NGO engagement in TWG leadership. NNGOs accounted for 8 per cent, down from 9 per cent in 2022, while government entities made up 12 per cent.

Chairs of cluster technical working groups – 2023

References

  1. National cluster leadership arrangements were considered to be ‘aligned’ with global Cluster Lead Agency arrangements in instances where at least one of the global Cluster Lead Agencies led the cluster (e.g. UNICEF and/or Save the Children for Education, UNHCR and/ or OHCHR for Protection, and FAO and/or WFP for Food Security).