Executive Summary
The Logistics Cluster Lessons Learned Exercise for the Syria operation was conducted between May and August 2016, covering the period July 2014 until June 2016. Syria was chosen as an example of a long-term Logistics Cluster engagement in a complex emergency setting, where physical access to beneficiaries and security are the main challenges in delivering life-saving cargo. The main objectives of the exercise were to draw on the lessons learned and derive recommendations for the future of the Syria operation itself, but also to identify best practices for other operations.
The Logistics Cluster was activated in Syria in January 2013. In July 2014, UN Security Council Resolution 2165 was adopted, authorizing UN agencies to use routes across conflict lines and four border crossings in Turkey, Jordan and Iraq to deliver humanitarian assistance. As a result, cross-line convoys inside Syria and cross-border operations from Turkey and Jordan were scaled up and a Whole of Syria approach adopted. This approach brought together separate operations in Syria, Turkey and Jordan into a single framework. In addition to a highly complex operating environment in an active war zone, coordinating three operations across three different countries under one umbrella has been a challenge of its own.
Overall, the Logistics Cluster in Syria was considered highly relevant. In a complex operating environment such as in Syria, providing a body for logistical coordination to help deliver life-saving cargo to people in need across the country was considered a prerequisite for any humanitarian intervention.
While all three core functions of the Logistics Cluster – Coordination, Information Management and the facilitation of Common Logistics Services – had been implemented time efficiently and effectively inside Syria, there was room for improvement in the areas of Coordination and Information Management for the crossborder operations in Turkey and to a certain extent in Jordan.
One of the main lessons learned was that the Logistics Cluster’s primary focus should lie on coordination. Concentrating too much on the facilitation of Common Logistics Services bears the risk of neglecting the other two core functions. This is particularly the case if the services are facilitated for UN partners only, as was the case for the cross-border operations in Turkey and Jordan under the UN Security Council Resolutions 2165, 2191 and 2258. Looking beyond convoys and transhipment hubs, at the various challenges humanitarian organisations face throughout the entire supply chain, can open up opportunities to provide much needed support and thus strengthen the coordination function of the Logistics Cluster.
It was also found that in the area of coordination, soft skills such as a service-mindset or the ability to listen to partners’ needs were of high importance. The Syria Logistics Cluster team was found to be highly responsive, flexible and quick to respond, and this was identified as a key success factor for effective coordination.
In the Syrian context, access to logistical information was a major challenge. Information management is a vital element of the Logistics Cluster mandate and a prerequisite for the ability of any humanitarian organisation to operate. In a context, where information is difficult to obtain, the relevance of the Logistics Cluster is closely related to its ability to enable information sharing. Recognizing the importance of providing a forum for information exchange was found to be essential but has not been enabled to the full potential in Turkey and Jordan, where communication and knowledge exchange between NGO partners were low.
At the same time, it is important to recognize the sensitivity of certain information in a highly political context as in Syria. The Logistics Cluster respected this and refrained from publishing documents on their website, meanwhile finding alternative communication channels and information products to adapt to a highly restricted, political and fluid situation. Finding a balance between enabling information sharing and respecting partners’ hesitation to do so is a difficult task. While the Logistics Cluster accomplished the latter, there was room to improve in the former area through building trust and creating an environment conducive to open discussions.
Furthermore, it was found that a clear understanding of the Logistics Cluster mandate was lacking among partners. In Turkey, this lead to some NGOs not interacting with the Logistics Cluster as they were not aware that coordination and information management services were provided. More efforts need to be invested in explaining the Logistics Cluster mandate to stakeholders and jointly developing the Logistics Cluster strategy. A clear understanding of both is crucial for adequate coordination and partner-support.
A lack of supervision in the operation in Turkey was found. In an operational setting like in Syria, where activities are implemented in several countries, a strong coordination from the lead team in Syria and a wellfounded team set-up was found to be important. Frequent communication and travel to the other countries of operation ensure that activities are aligned and all Cluster teams feel supported. Exchange of experience and staff between countries can additionally strengthen the understanding of all three operations, their effectiveness and communication.