Posting on The Humanitarian Groundhog Day, the always efficacious Ben Ramalingam pointed out the coordination is a wicked problem [pdf] – essentially a planning challenge that can’t be dealt with using linear planning tools.1 Broadly I agree, although I don’t accept that coordination has all the characteristics that are usually identified for wicked problems, but I’m not convinced that’s the primary reason why the humanitarian sector acts like Bill Murray.
Our work for ICVA wasn’t looking at the meta-issue of coordination, but the specifics of how NGO coordination in the field actually works (leaving aside the question of whether it works). However the overview did point out lack of progress in developing a functional definition or tools for coordination that could do any heavy lifting.2 The reason why those things are important (if dull) is the same reason why we keep repeating our mistakes – not just in coordination, but in a number of areas.
Short version: while I agree with Ben that this is a systemic problem, and that a large part of that problem is misaligned incentives, we have to pay attention to a) the people who work in that system and b) their relationship to those incentives. That’s because a) system behaviour emerges from the behaviour of the agents in that system (although it can’t be reduced to that behaviour, because! Complexity!) and b) different individuals respond to the same incentives in different ways. At root, this is a human resources problem, or rather a set of HR problems.
So: staff turnover is high, because of the stress and unpredictability of disaster response work; compounded by rapid growth of the sector (particularly NGOs), because the increase in staff demand has not been matched by a corresponding growth in supply. This has lead to increasing reliance on young and inexperienced staff in increasingly senior positions (in a sector which already relied quite heavily on them). I could go on, but in the words of Paul Simon: “It’s every generation throws a hero up the pop charts”.
Which is to say that the wheel keeps getting reinvented because the humanitarian community lacks any sense of its own history. That applies even to the old hands3 who are usually so overloaded that they struggle to remember what happened yesterday, let alone what happened ten years ago. It’s too obvious to say that we lack the tools for knowledge management, when the real problem is that we lack historical perspective; on the ground, this leads to a Year Zero approach to issues like coordination.
Interestingly, specific sectors such as health or shelter do make progress in terms of professionalism, although any such progress is hard won. I’d argue that’s because those sectors are populated by sector-specific professionals with links to a professional sector that exists outside the humanitarian sphere, providing a ready-made set of continuity tools and professional resources. Whether we could turn humanitarian coordination (or “humanitarianism”) into a similar sector is an open question.4
Some people might read this as an argument for certification, in the interests of professionalising the sector. It’s actually an argument against certification, but that’s a post that will have to wait for another day when it’s not so sunny outside. For now what we need to remember is this: while Ben’s proposals are a useful part of any solution to this wicked problem, there’s a high chance of failure unless some more elementary problems are addressed at the same time.
