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Shelter and NFI Cluster Evaluation Cyclone Giri Response, Myanmar October 2010 to January 2011 July 2011 Kerren Hedlund

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Shelter and NFI Cluster Evaluation Cyclone Giri Response, Myanmar October 2010 to January 2011 July 2011 Kerren Hedlund The Rakhine Coast One month after Giri. Photo courtesy of Solidarities International and National Compassionate Volunteers. Shelter and NFI Cluster Evaluation Cyclone Giri Response, Myanmar October 2010 to January 2011 July 2011 Kerren Hedlund This evaluation has been managed by IFRC’s Shelter and Settlements Department in cooperation with the Planning and Evaluation Department. IFRC is committed to upholding its Framework for Evaluation. The framework is designed to promote reliable, useful, ethical evaluations that contribute to organizational learning, accountability, and our mission to best serve those in need. It demonstrates the IFRC’s commitment to transparency, providing a publicly accessible document to all stakeholders so that they may better understand and participate in the evaluation function. International Federation of Red Cross and Red Crescent Societies (IFRC) Case postale 372 1211 Genève 19 Suisse Tel: +41 22 730 4222 Fax: +41 22 733 0395 www.ifrc.org Disclaimer The opinions expressed are those of the author(s), and do not necessarily reflect those of the International Federation of Red Cross and Red Crescent Societies. Responsibility for the opinions expressed in this report rests solely with the author(s). Publication of this document does not imply endorsement by the IFRC of the opinions expressed. 2 CONTENT ACRONYMS.......................................................................................................................................................................... 4 EXECUTIVE SUMMARY ......................................................................................................................................................... 5 METHODOLOGY ........................................................................................................................................................................... 7 LIMITATIONS ............................................................................................................................................................................... 8 I. BACKGROUND ............................................................................................................................................................. 8 A. PREPAREDNESS ................................................................................................................................................................. 10 B. THE FIRST WEEK AFTER GIRI ................................................................................................................................................. 11 C. THE EMERGENCY SHELTER CLUSTER - THE CRISIS STAGE ............................................................................................................. 12 D. ACTIVATION OF THE FORMAL EMERGENCY SHELTER CLUSTER ..................................................................................................... 13 II. THE TERMS OF REFERENCE FOR THE SHELTER AND NFI CLUSTER ............................................................................... 14 A. MORE EFFICIENT AND EFFECTIVE EMERGENCY RESPONSE ............................................................................................................ 14 B. STANDARDS SETTING .......................................................................................................................................................... 16 C. PARTICIPATION .................................................................................................................................................................. 17 D. COORDINATION WITH OTHER COORDINATORS ......................................................................................................................... 18 1. INTER-CLUSTER COORDINATION ............................................................................................................................................ 18 2. FIELD AND CENTRAL COORDINATION ..................................................................................................................................... 18 3. PARALLEL COORDINATION SYSTEMS WITH LOCAL AND INTERNATIONAL NGOS ............................................................................... 19 4. COORDINATION AND RELATIONSHIP WITH MRCS ..................................................................................................................... 20 E. INFORMATION MANAGEMENT ............................................................................................................................................. 21 F. STRATEGY DEVELOPMENT ................................................................................................................................................... 23 G. NEEDS ASSESSMENTS ......................................................................................................................................................... 23 H. RESOURCE MOBILIZATION FOR ESC INTERVENTIONS ................................................................................................................. 24 I. RESOURCE MOBILISATION FOR THE COSTS OF COORDINATING THE THE ESC ................................................................................... 25 J. INVOLVEMENT OF LOCAL ACTORS ......................................................................................................................................... 26 III. MANAGEMENT STRUCTURE AND STAFFING OF THE ESC ........................................................................................... 26 IV. HOLDING THE CLUSTER SYSTEM TO ACCOUNT ...................................................................................................... 30 V. HANDOVER AND THE ROLE OF UN HABITAT .............................................................................................................. 30 VI. LESSONS LEARNED FROM PREVIOUS ESC DEPLOYMENTS ...................................................................................... 31 VII. THE NECESSITY OF COORDINATION TEAM DEPLOYMENT IN SMALL AND MEDIUM EMERGENCIES ....................... 32 VIII. RECOMMENDATIONS ............................................................................................................................................ 33 IX. ANNEXES ................................................................................................................................................................... 37 3 Acronyms ACF Action Contre le Faim CERF Central Emergency Response Fund ENA Emergency Needs Assessment ER Early recovery ERC Emergency Relief Coordinator ES/NFI Emergency Shelter and Non Food Times ESC Emergency Shelter Cluster ESCT Emergency Shelter Coordination Team (Coordinator and Information Manager) GoUM Government of the Union of Myanmar HoD Head of Delegation (IFRC) HCT Humanitarian Country Team IFRC International Federation of the Red Cross IM Information Management IOM International Organisation for Migration IRA Initial Raid Assessment MIMU Myanmar Information Management Unit MNGO CPWG Myanmar NGO Contingency Planning Working Group MRCS Myanmar Red Cross Society MSF-H Medecins San Frontiers Holland (locally known as AZG) NCV National Compassionate Volunteers NFI Non Food Items NS National Society RC/HC Resident Coordinator/Humanitarian Coordinator RS Rakhine State SAG Strategic Advisory Group SCT Shelter Coordination Team (used interchangeably with ESCT, see note below) SDF Swanyee Development Fund SWG Shelter Working Group TWG Technical Working Group Note on terminology: Since 2-3 years, the global cluster is called Global Shelter Cluster (SC). The word emergency has been removed as it can imply the SC limits its mandate to only emergency products. As recovery starts on day one, the SC and IFRC cannot only focus on emergency aspects. However there remains confusion, even with IFRC, as it is IFRC who often coordinates during the emergency phase. This was an issue in Myanmar where the term ESC or Emergency Shelter Cluster was repeatedly used by the HCT, the ESC itself and the ERC. This is further elaborated in the evaluation. However for consistency with the Myanmar SC, the term ESC is used in this report. The author would like to acknowledge the outstanding support she received from the IFRC Myanmar and Kuala Lumpur offices, and a network of Myanmar development and humanitarian professionals who helped me organize meetings with local stakeholders, including the formation of a field team who were trained and deployed within days. My thanks to the field team who spent 7 days in Rakhine villages: Ma Myat Myat Moe, Saw Chit Thet Tun, Ma Nan Kan Yone, Ma Ei Ei Brown, and Ma Ya Min Aye. The brief summary of findings presented here does not do justice to the in-depth discussions that they had with the Rakhine people. 4 Executive Summary Comparable in strength to Cyclone Nargis, Cyclone Giri, category 4, made landfall in Rakhine State at 8pm, Friday, 22 October 2010. Two days prior the Myanmar Red Cross Society (MRCS) and Government began the early warning and evacuation of most residents either to higher ground, conveniently located within kilometers of the coast, or to strong buildings located close by. This early action most likely dramatically reduced the loss of life which was less than 100 persons - compared to over 100,000 only two and a half years before in Nargis. Immediately after the cyclone, the Government allowed MRCS, local NGOs and in situ INGO national staff, to make assessments and provide humanitarian assistance. However, similar to Nargis,
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