Microsoft Word - TONGA NEMP 2008 _3

Foreword

Tonga is susceptible to a range of hazards, both natural and technological, which have the capacity
to impact significantly on the country.

This National Emergency Management Plan has been developed by the Planning Working Group of
the National Emergency Management Committee, and provides a framework through which holistic
and comprehensive emergency management can be undertaken within the Kingdom.

The focus, as required by the Emergency Management Act 2007 is on minimising the effects of
hazards on Tonga by ensuring a co-ordinated effort in risk management within the community
utilising partnerships of Government and Regional agencies, and non-government bodies with a
responsibility or capability in emergency risk management and emergency response.

This plan has been designed around the Risk Management Standard AS/NZS4360:2004, engaging
the philosophy of a multi-agency, multi-sectoral approach to risk minimisation, using the CHARM
(Comprehensive Hazard and Risk Management) process developed by SOPAC.

The plan identifies the risk environment for the Kingdom and outlines the key institutional and
programming components relative to effective risk management and emergency response.

The Plan is not designed to usurp the incident management responsibilities of the various emergency
services or other organisations within the community that respond to events which fall within their
normal daily activities. Instead the plan is designed to enhance the capacity of Government to more
effectively plan for and respond to emergency situations. This is achieved through the combined
processes of hazard and risk analysis, which provides a more realistic base of information upon
which to frame operational plans and procedures.

The Plan is a dynamic document which may be extended in the future to incorporate any additional
risk treatment options as they are identified following formal hazard and risk analysis.   The Plan
will also be amended in line with changes in legislation and current best practice, and to reflect
lessons learned from the impact of hazards and other emergency situations that may arise.

Contents

Introduction

Foreword

Authority

for

Planning 5

Amendments

Distribution

List

Country

Background 8

Emergency

Management

Committees

Roles

the

Committees

Emergency

Management

Plans

Training

Program

Public

Education

Hazard Analysis

Part A – Disaster Risk Reduction

Section

Risk Reduction Strategy and Program

Section 2:

Develop and Implement the NRR Program

Section 3:

Integrate DRR into the NRR Strategy and Program

Section 4:

Steps in Development and Implementation

Section 5:

Notes on Development of NRR Program

Section 6:

Overview

CHARM

Section 7:

Risk

Reduction

Steps

Section 8:

Risk Reduction and Emergency Management Process

Part B - Emergency Management

Activation of the Emergency Management System

The Emergency Management System in Operations

Information

and

Support

Structure of Operational Emergency Management

Operational Roles of the Committees

Individual Agency Plans

Threat Specific Plans

Capabilities, Roles and Responsibilities

Operational

Lead

Agencies

National Emergency Response Procedures

Authority for Planning

This National Emergency Management Plan has been developed on behalf of the
National Emergency Management Committee, under Section 28 (1) of the Emergency
Management Act 2006, by the National Emergency Management Office and is
submitted for approval.

Manager, National Emergency Management Office

Date. / /

This National Emergency Management Plan has been reviewed by the National
Emergency Management Committee, complies with Section 28 (1) (a) – (g) of the
Emergency Management Act 2006 and is endorsed for adoption.

Chair, National Emergency Management Committee

Date / /

Country Background

Description of the Country

Geographic

The Kingdom of Tonga is located in the South Pacific Ocean, between latitudes 15 S and 23.5 S;
Longitude 173 W and 177 W, south of Samoa and southeast of Fiji. The total land area is 747.34 sq.
km. spread over 700,000 sq. km. of territorial sea. Tonga consists of 171 islands, 36 of which are
inhabited. The capital Nuku’alofa is located at the main island of Tongatapu. Tonga is 13 hours
ahead of Greenwich Mean Time.

Climate

The climate is pleasant, slightly cooler and less humid than most tropical areas. The temperature
ranges between 18-25C during May through September and 24-32C between October and April.
Trade winds blow a constant 13-18 knots all the year round. The mean annual temperature in
Nuku’alofa is 24.7C, with mean humidity of 76.9%. Average rainfall is 1775.5mm.

Terrain

Many of the islands are coralline with a covering of volcanic ash, comparatively flat and often
encircled by fringing reefs. There also some islands of volcanic origin such as ‘Eua and Niuafo’ou,
with high cliffs and deep forests. The highest point in the Kingdom (186.5 metres) is in Vava’u.

Vegetation

The islands

are covered with plant life and the soil is very fertile but not more than four metres in

depth.   Coconut palms cover the islands except where areas have been cleared for crops of bananas,
pumpkins and tropical crops.

Population

The population of approximately 101,134 (based on last national census in 2006) is distributed
throughout the islands of Tonga with a 3:1 Rural/Urban dispersement.  The islands are in four main
groups Tongatapu, Vava’u, Ha’apai, Niuatoputapu and Niuafo`ou.   Nuku’alofa, the capital, has a
population of approximately 71206.

Education

Free and compulsory education is available for all children between the age of six and fourteen
years. Tonga boasts a 95% literacy rate. The high degree of literacy in Tonga means that the
workforce is well educated. Most people have attended secondary school and they have reasonable
access to skill training or tertiary qualification. (1)

Language

Tongan and English are official and spoken languages.

Government

Government consists of three main bodies, the Executive, Parliament and the Judiciary.

The Executive
The King in Privy Council and the Cabinet, serve as the Executive.   The Monarch appoints the
Cabinet as well as the Governors of Ha’apai and Vava’u.   The administration of the public
sector of which Government Ministries and quasi-government bodies exist, come under the
jurisdiction of the Prime Minister.   Cabinet becomes the Privy Council when presided over by
the Monarch. It is the highest authority in the country.

The Parliament:
The Parliament is unicameral and is composed of an appointed Speaker by the Monarch, the
Cabinet, nine Nobles elected by 33 hereditary Nobles and nine representatives elected by the
people. General Elections are held every three years.

The Judiciary:
The Privy Council, with the addition of the Chief Justice becomes the Court of Appeal. Below
this, are the Supreme Court, the Land Court and the Magistrates Court.

Infrastructure

Communications:

Telecommunications:

Tonga has access to international communications through satellite systems. Access to
domestic communication systems, including land-line and mobile telephone, facsimile, e-mail,
internet, services is readily available. The two service providers, Tonga Communication
Corporation and TonFon, a division of Shoreline Limited, operate throughout the Kingdom and
provide telephone, radiotelephone and satellite telephone services. The telephone systems
have alternative power supply in place. The service providers have their own emergency
communication system throughout the Kingdom, and are well prepared to respond to any
major loss of service.

Radio & Television:

There are three FM radio stations covering Tongatapu, one FM station in Vava’u and one AM
radio station with national coverage. Two free to air television services operate on Tongatapu,
along with a subscription-driven satellite television service. Weekly newspapers are printed in
Nuku’alofa and Vava’u.

Power:

Reticulated power is provided via by diesel generation on the main islands. The smaller, less
populated islands have no reticulated power service. Gas power (e.g. for cooking purposes) is
provided via a decanted cylinder service only.

Water:

Reticulated water supply is provided on the main islands. The smaller, less populated
islands have no reticulated water service, and rely on rain water catchment.

Transportation

Road:

Most roads within the major centres of population and between those centres are sealed.
Outside those areas, and particularly in the outer island groups, many roads are unsealed.
Tonga has a very high level of vehicle ownership, and particularly on Tongatapu, traffic
congestion is beginning to be experienced.

Sea:

Regular international shipping services link Tonga through the ports of Nuku’alofa and Neiafu.
Internally, there are regular ferry services from the capital to the outlying island groups. There
is a substantial port complex at Nuku’alofa, including a container dock facility, and smaller
facilities on the outer islands. International cruise liners also use Nuku’alofa as a port of call.

Air:

Air New Zealand, Air Pacific, Pacific Airlines operate direct air services to Tonga from Suva,
Apia, Pago Pago, Auckland, Sydney and Honolulu. The Tongan-owned airline Tonga Air and
Chatham Pacific provide daily domestic air services to the outer island groups. There are six
(6) operational airports in the Kingdom namely Fua’amotu at Tongatapu (international and
domestic), Lupepau’u at Vava’u (international and domestic), Salote Pilolevu at Ha’apai,
Kaufana at ‘Eua, Mata’aho at Niuatoputapu and Lavinia at Niuafo’ou. All airports are
administered by the Ministry of Civil Aviation.

Industry

Agriculture:

Crops are grown for subsistence, sale on the local market and increasingly for export. The
most successful export crops are squash pumpkin, sold exclusively to Japan and South Korea,
and vanilla, purchased by France, Japan and the United States. Traditional root crops and
vegetables such as taro, kumara, cassava, watermelon and yams are exported to Tongan
communities in New Zealand, Australia and the United States.

Fishing:

There is a significant international fishing fleet based in Tonga, with long line tuna fishing as

the main activity. There is also a substantial reliance on local fisheries, both for
subsistence and for local trade.

Tourism:

The tourism industry contributes a major share of the economy with foreign exchange earnings
reaching the 20 million-dollar mark per annum. Tonga is becoming recognised as a prime
tourist destination, particularly in relation to diving and sport fishing.

Commercial Services

Banking:

Three private banking companies provide full commercial facilities. In addition, the Tonga
Development Bank, established and backed by Government, provides term loans and financial
services to industry and entrepreneurial ventures. It can and does provide equity participation
in approved commercial projects.

Emergency Services

Health:

Major Hospital on Tongatapu, smaller hospitals on Vava’u (Neiafu) and Ha’apai (Pangai).
Other islands and the outlying areas of the main islands are serviced by medical clinics. A
basic ambulance service is provided on Tongatapu and Vava’u.

Emergency Management Committees

National Emergency Management Committee

Chair

Minister of Works

Members

Chief Secretary and Secretary to Cabinet

Director of Works

Secretary for Finance and Planning

Director of Agriculture, Forestry, Fisheries and Food

Director of Health

Police Commander

Commander, Tonga Defence Service

Secretary for Lands, Survey, Natural Resources and
Environment

Director of Education

Manager, National Emergency Management Office as Secretary

National Emergency Recovery Committee

Chair

Minister of Works

Members

Chief Secretary and Secretary to Cabinet
Secretary for Finance and Planning
Director of Works
Secretary of Foreign Affairs
Commander, Tonga Defence Force
Representative of NGOs who may be coopted as required

Manager who shall be the secretary

National Emergency Operations Committee

Chair

Minister of Works

Members

Director of Works

Roles of the Committees

Functions of National Emergency Management Committee

(a)

make policy decisions of national significance relating to emergency management

for the Kingdom;

(b)

coordinate the development and implementation of effective emergency

management for the Kingdom;

(c)

approve and regularly review the National Emergency Management Plan;

(d)

ensure that operational procedures in the National Emergency Management

Plan are regularly exercised;

(e)

have in place arrangements with other nations and relevant bodies to provide

support to the Kingdom during major emergencies;

(f)

provide support to District Emergency Management Committees; and

(g)

coordinate effective emergency management and emergency response in

communities before, during and after the impact of an event.

Functions of National Emergency Recovery Committee

(a)

coordinate the recovery phase following any event that may Impact on

the Kingdom of Tonga;

(b) carry out detail damage assessments in partnership with the District Emergency

Management Committees;

(c)

coordinate the provision of emergency relief to those areas that have been affected

by an event;

(d)

coordinate all recovery and rehabilitation works that are carried out in the affected

area.

Functions of the National Emergency Operations Committees

(a)

activate ministries and organisations in response to an event that may happen, is

happening or about to happen;

(b)

liaise with ministries , non government organisations and community groups in the

execution of their emergency management roles and responsibility

(d) collate and prioritise disaster relief requirements; and

(e) manage the distribution of immediate relief supplies.

Functions of District Emergency Management Committees

(a)

to prepare, and regularly review, a District Emergency Management Plan;

(b)

to develop and implement effective emergency management in the district in

accordance with any relevant policies issued by the National Emergency

Management Committee;

(c)

to provide reports and make recommendations to the National Emergency

Management Committee about disaster risk reduction and emergency management

activities in the district;

(d)

to regularly conduct exercises of operational procedures documented in the District

Emergency Management Plan;

(e)

to provide support to communities to ensure effective emergency management in

communities before, during and after the impact of an event;

(f)

to ensure community awareness of emergency management, including ways of

mitigating, preparing for, responding to and recovering from an emergency;

(g)

to identify and coordinate the use of resources for emergency operations in the

district;

(h)

to manage emergency operations in the district in accordance with any policies and

procedures issued by the National Emergency Management Committee;

(i)

to establish and review communications systems in the district for use when an

event threatens or an emergency happens; and

(j)

to ensure information about an event or an emergency in the district is promptly

provided to the National Emergency Management Committee.

Functions of Village Emergency Committee

(a) to develop and implement effective emergency management in the village in

accordance with any relevant policies issued by the National Emergency

Management Committee;

(b) to provide reports and make recommendations to the District Emergency

Management Committee about disaster risk reduction and emergency management

activities in the village;

communities before, during and after the impact of an event;

(d) to ensure community awareness of emergency management, including ways of

mitigating, preparing for, responding to and recovering from an emergency;

(e) to identify and coordinate the use of resources for emergency operations in the

Village

(f) to manage emergency operations in the village in accordance with any policies and

procedures issued by the National Emergency Management Committee;

(g) to establish and review communications systems in the village for use when an

Event that threatens or an emergency happens; and

(h) to ensure information about an event or an emergency in the village is promptly

provided to the District Emergency Management Committee.

Frequency of Meetings

The committees should meet on a regular basis, at least once each quarter in accordance
with Section 25 of the Emergency Management Act 2007.

Administrative requirements for the National Emergency Management Committee and
will be the responsibility of the National Emergency Management Office.

Reporting Requirements

The National Emergency Management Committee will report annually (and at other
times as may be directed) regarding its activities to the Cabinet. The annual report
shall include such content as required by the Emergency Management Act 2006 and
copies thereof shall be furnished to all members of the National Emergency
Management Committee.

Emergency Management Plans

National Emergency Management Plan

It is the responsibility of the National Emergency Management Office, on behalf of the
National Emergency Management Committee, to maintain the National Emergency
Management Plan

District Emergency Management Plans

It is the responsibility of the various District Emergency Management Committees to
develop and maintain a District Emergency Management Plan, in accordance with
Section 29. (1) of the Emergency Management Act 2006.

Copies of District Emergency Management Plans (along with any amendments made
from time to time) are required to be submitted to the National Emergency Management
Office for ratification, and are to be maintained as annexes to the National Emergency
Management Plan.

Review of the Plan

The National Emergency Management Plan should be reviewed by a working group
from the National Emergency Management Committee as follows:-

August

Working group reviews and amends (as required) the main plan

September

Draft plan submitted to full National Emergency Management
Committee for acceptance/amendment

October

Reviewed plan submitted to Cabinet for endorsement

The master contact list for all organisations/persons involved in the Kingdom’s
emergency management arrangements should be updated at each National Emergency
Management Committee meeting and will be held by the National Emergency
Management Office.

Training Program

The NEMC will ensure that a suitable emergency management training program is
designed and implemented, in collaboration with any training provided by/through the
National Emergency Management Office. The training program will include specific
training, through workshops, discussion forums and formal instruction, in order to
maintain the emergency management knowledge and understanding levels of all
participants at the highest possible level.

The NEMO will arrange for members of the NEMC to be made aware of training
courses being offered by/through the South Pacific Applied Geoscience Commission
(SOPAC) or any other appropriate agency.

Public Education

The community is to be informed of the emergency management arrangements the
Kingdom has in place by the conduct of public meetings, information distribution,
newspaper articles, advertisements and brochures as follows.

Government Offices

The National Emergency Management Office is to ensure each Government

public office has on display any public awareness material available

The current copy of the National Emergency Management Plan is to be

available for public viewing in the National Emergency Management Office.

Business

The National Emergency Management Office should ensure all Tourist

Information Centres, Resorts and other centres have ample supplies of
brochures and information on the Kingdom’s emergency management
arrangements.

Industry

The National Emergency Management Office will conduct meetings with

industry groups to ensure their members are aware of the Kingdom’s emergency
management arrangements.

Community

The National Emergency Management Office will conduct public information

sessions to present the current arrangements in place to assist the community to
prepare for potential hazard impacts or threats. Such meetings should be held
in all areas of the Kingdom, and should be available in Tongan and English
language versions.

Media

The National Emergency Management Committee will provide a media release

on the adoption of the new National Emergency Management Plan, and
following any subsequent annual updates of the Plan.

The National Emergency Management Office will arrange for a disaster

preparedness information page for inclusion in local newspapers at appropriate
times.

Hazard Analysis

Cyclone:
The tropical cyclone season in Tonga is from November to April, although tropical cyclones have
been known to occur outside this period (e.g. TC Keli, June 1997).

Since 1960, Tonga has averaged about one tropical cyclone per year, with four (4) events recorded in
the year 1990. Severe tropical cyclones have occurred in 1961 (TCFlora), 1982 (TC Isaac) and
2001/2002 (TC Waka).

Name Date

Area

Extreme
Wind

Min.
Pressu
re

Centre

Est Damage

Intens
ity

Nil

17 -19 Jan
1960

E/Ntt &
W/Vv

>63kt
gust90kt

Storm
Force

2 Nil 14

-19

Mar 1961

VV/HP/
TBU

100gust
150kt

2 lives lost in
Neiafu

Severe

3 Nil 22-23

Nov

1964

S/Tonga 40kts

gust55kts

Minor

4 Nil 25/26

Feb

1969

S/Tonga DO

Minor

5 Juliett

3-4 April
1973

Ha’apai 50kt

gust

75kt

Storm

6 Betsy 31Jan-

3Feb 1981

Tonga 40kt

gust

52kt

Gale

7 Isaac 28

Feb-3

Mar 82

Hp/
TBU

Gust
130kt

976.4
hpa

Eye
passed
over Hp

T$18.7 m 6
casualties

Severe

8 Nil 22-30

Mar

1984

Tonga 40kt

gust

53kt

Gale

9 Drena 11-14

Jan

1985

Ntt 50kt

gust

70kt

miles

W/ NTT

Houses, crops

Storm

Keli

8 – 12 Feb
1986

Tonga 50kt

gust

70kt

Storm

11 Martin 10-14

Apr

1986

Ha’apai 40kt

gust

60kt

995.5 Eye

over

Kia Is.

No major
damage

Gale

12 Nil

7-14

Feb

1989

Tonga 35kt

gust

50kt

Gale

13 Kerry 29Mar-

3Apr 1989

Tonga 50kt

gust

65kt

14 Nil

14-17Dec
1990

Tonga 40kt

gust

55kt

15 Nil

Feb

1990

DO DO

17 ‘Ofa 30

Jan-

7Feb 1990

Ntt gust

140kts

974.1
at Ntt

30 miles
W/Niue

T$3.2m 70%
houses, 1 death

Severe

18 Sina 24-30

Nov

1990

TBU/
HP

65kt gust
100kt

Hurric
ane

19 Val

4-13

Dec

1991

NTT 50kt

Savai’I

Vegetation

20 Joni 6-13

Dec

1992

Tongata
pu

Lau

group

Vegetation

21 Kina 26

Dec92-

5 Jan 93

Tongata
pu

gust120kt 971.5

at Nuk

Southern
Lau

Communication
, 3 casualties,

Severe

22 Nina 23Dec92-

5 Jan 93

Nfo/Ntt/
Vv

Vegetation

23 Mick 5

9Feb

1993

Vv/Hp

Vegetation/buil
dings

Gale

24 Hina 12

-17Mar

1997

TBU/‘E
ua

50kt gust
90kt

996.5 W/Fua’am

otu

Buildings and
crops

Hurric
ane

25 Keli 10-15

Jun

1997

Nfo, Ntt

Gust100kt

300km
E/Lakeba

26 Ron 1-8

Jan

1998

Niuafo’o
u

gust 125kt

buildings and
crops

27 Cora 25-26

Dec

1998

Tt/Hp/’E
ua

47kt gust
73kt

972.4
at Fm

19 miles
E/ TBU

T$19.6 million

Storm/
Gale

28 Mona 8-10

Mar

2000

Tt/Hp/’E
ua

44kt gust
65kt

999 at
Nuk

30 miles
W/ TBU

T$6 million

29 Paula 1-3

Mar

2001

Tt/Hp/’E
ua

40knots 992

Nuk

200 miles
SW of Tt

T$630,000,reso
rts,W/Eua/TBU

30 Waka 29Dec

01-

1Jan 02

Nfo/
NTT/
VV

136knots 960

eye passed
over VV

T$104.2 million Severe

31 Ami 14-15

Jan

2003

TT/EUA

40 knots

994 at
TT
Gust
60knot
s

120 miles
SW of TT

MV Olovaha
beached

Hurric
ane

32 Cilla 28

Jan

2003

28 knots

993 at
Hp
Gust
58 kns

eye passed
over
Lifuka

Vegetation Storm

33 Eseta 13-14

March 03

TT/Hp

40 knots

n/a

eye passed
60 miles
Gust 60
knots

Damaging swell
south of TT
damage
Nafanua Warf
and Good
Samariatan inn
1.5 Million

Hurrican

34 Heta 5-6

Jan

2004

NFO/NT
T

Est 80
knots

N/a eye

passed

over NTT

Dozen houses
damaged
Vegetation and
Crops

Hurric
ane

Storm Surge and Storm Wave

The report from Landcare Research New Zealand states that there are few comprehensive
records of coastal inundation events in Tonga, but many low-lying areas have a high
exposure to inundation. The most severe inundation in living memory occurred during
Cyclone Isaac in 1982 where a storm surge of about 1.6m acted on top of a high spring
tide. It was estimated that approximately 30% of Tongatapu inundated (not all of this
would have been by seawater - flooding due to heavy rainfall would also have inundated
many areas).

The most severe inundation during a tropical cyclone occurred during Isaac in March 1982.
On Tongatapu, the passage of the cyclone coincided with a high spring tide, which was
about 1.39 m above Chart Datum (1990). The worst affected areas were at Sopu, localised
areas to the west (e.g. Kolovai) and to the east of Manuka. The water level observed across
the Vuna Road at Queen Salote wharf was about 0.5 to 0.75 m above the level of the road.
All houses fronting the road were moved off their foundations a distance of about 10 m.
Based on observed debris lines, the storm tide level reached approximately 3.05 m above
Chart Datum resulting in a storm surge magnitude of about 1.66 m. At Manuka further west
the storm surge was estimated at 1.5 m. In Sopu, water depths were up to 1.5 m but more
generally about 1 m in low-lying property behind the coast road in Nuku’alofa. Inundation
extended around 300 m inland, except at Sopu where it reached 1 km inland. On Ha’apai,
the passage of the cyclone coincided with low tide, resulting in little inundation of coastal
land.

Tornado/Severe Storm:

Do not appear to impact the Kingdom very often; however there have been recorded
occurrences. A tornado on Tongatapu in 2004 affected four villages and inflicted several
hundred thousand pa’anga in damage to homes, buildings and crops.

Flood/Water Inundation:

There have been no records obtainable on (rainfall instigated) floods but recent events have
identified that many low-lying areas are subject to severe ponding of water when large
rainfall occurs. These events flood homes and commercial buildings, and severely curtail
transportation systems. The water usually dissipates within in 48 – 72 hours once the rain
ceases.

While surface flooding may affect agriculture and some infrastructure it is not considered to
pose high risks as the land mass is relatively small with subdued topography and the soils
for the most part are relatively free-draining. Heavy rainfall is known to cause flooding,
notably at Pea, Fanga, Halaleva and Manuka (Kula 2003).

Earthquake:

Tonga lies very close to the convergence of the Australian Tectonic Plate and the Pacific
Tectonic Plate, one of the most seismically active areas in the Pacific.

The last two major earthquakes recorded (with a severe effect on the community) was on
23 June 1977 and 4 May, 2006.   The tremor registered at 7.2 and 7.8 respectively on the
Richter scale and impacted Tongatapu and Eua and Haapai. The first one caused damages
to many buildings, Angaha Hospital, electricity and water supplies, cracks occurred in
Queen Salote Wharf, Vuna Wharf and the yellow pier.   There were only two injuries
reported. The 2006 quake had its epicentre very close to Pangai , Haapai and caused a lot
of structural damages to the Haapai hospital, the wharf and many private and church
buildings. One injury was reported.

The Ministry of Lands Survey and Natural Resources operates a seismic recording station
at Vaololoa, Tongatapu.   Further stations are planned.

Tsunamis

Historical accounts show that some 20 tsunamis have affected many islands in Tonga.
Most tsunami waves have been small (< 1 m) with little recorded damage. An
earthquake in 1919, located close to Tonga, apparently caused tsunami waves of 2.5 m
in the Ha’apai Group. Three tsunami waves caused by the 1977 earthquake were
recorded. An estimation of the annual probability of tsunami waves for NZ and Tonga
indicate that a 10 m run up related to a tsunami wave is approximately 1 chance in 500
for Tonga.

The probability of a 10 m tsunami wave affecting Tonga is about 10% chance in 50
years (475 year return period). However, given that much of the Tongan land mass is
low lying and that most of the population live by the coast, Tonga is vulnerable to
tsunami.

Transportation Event:

There have been several marine incidents over the years, with multiple loss of life. The
international airport services aircraft up to and including Boeing 737-800, and there are
regular international and domestic flights. Any serious incident involving either
international or domestic aircraft would severely stretch the Kingdom’s capacity to respond
within its own resources.

Hazardous Material Event:

The bulk fuel depots and high pressure gas transport ships are the source of the biggest
hazardous material threat in Tonga. There is no record of any major incident in Tonga
resulting from either petroleum or gas products.

Human Disease/Epidemic:

The Ministry Of Health staff advised that there were six deaths from Dengue Fever in 2003
and 38 cases of typhoid previously recorded.

Oil Spill at Sea

This is a matter adequately addressed by other arrangements. The consequences of an oil
spill at sea may require support from the emergency management system, and will be
addressed using the concept of the “All Hazards Approach” to emergency management.

Terrorist Activity

While this has been included as a hazard for the purposes of this Plan, it is not addressed with
a view to its mitigation, but purely as to its consequences. The consequences of a terrorist
event will be similar to the consequences of many other events outlined in this document, and
will be addressed using the concept of the “All Hazards Approach” to emergency
management.

Section 1:

National Risk Reduction Strategy and Program

National Risk Reduction Strategy

The National Risk Reduction Strategy of the Kingdom of Tonga is that formal

processes of risk management and risk reduction are to be applied in all aspects of

Government Agency planning and operations.

National Risk Reduction Program

The National Risk Reduction Program is based upon the ‘Comprehensive Hazard

and Risk Management (CHARM)’ tool developed by the South Pacific Applied

Geoscience Commission (SOPAC) and accepted by the Kingdom of Tonga.

CHARM has been developed from an internationally-recognised risk management

model to facilitate the integration of risk management practices within the national

development planning processes of Pacific Island Countries.

Implementing the Strategy and Program

The introduction of the National Risk Reduction Strategy and Program requires the

establishment of institutional arrangements within the Ministries to manage their

development and implementation.

The development and implementation of the Kingdom of Tonga National Risk

Reduction Strategy and Program.

Section 2:

Developing and Implementing the National Risk Reduction
Program

The National Risk Reduction Process

Includes instituting a program for developing a national risk reduction philosophy

and awareness of ‘risk’ at senior officer levels in all government departments and

agencies. As part of this program, those agencies with primary responsibility for the

management of risks to national sustainable development, sustainable living,

poverty alleviation and sound environmental management within the Kingdom of

Tonga need to be identified.

The National Emergency Management Office is to establish a group to include

senior members of those agencies, under a working group attached to the National

Emergency Management Committee.

This group is to develop for Cabinet approval, the proposed National Risk

Reduction Strategy and Program, to include as appropriate, the necessary

information required for implementation of the strategy and

The group is also required to develop proposals for communicating the strategy and

program. The group is also responsible for the ongoing monitoring and review of

the strategy and program and for making regular reports to the NEMC on national

risk reduction progress and issues.

Developing the National Risk Reduction Program

10.

The National Risk Reduction Program is based upon the ‘Comprehensive Hazard

and Risk Management (CHARM)’ tool developed by the South Pacific Applied

Geoscience Commission (SOPAC).

11.

Notes on the development of the National Risk Reduction Program employing

CHARM are included in this Part.

Implementing the Program at National, District and Village Levels

12.

Guidance on the implementation of the National Risk Reduction Program at

National, District and Village levels is included in this Part.

At national level the National Risk Reduction Group, in consultation with

the National Emergency Management Committee in relation to disaster

risk reduction issues, is responsible for the implementation of the program

and for monitoring and reviewing its progress and regular reporting to

Cabinet.

At District and Village levels the following are responsible for the

implementation of the program and for its ongoing monitoring and review:

at District level, the District Emergency Management Committee,

reporting regularly to the National Emergency Management

Committee, and

ii.

at village level, the Village Emergency Committee, reporting

regularly to its District Emergency Management Committee.

Section 3:

Integrating Disaster Risk Reduction into the National Risk
Reduction Strategy and Program

The Disaster Risk Reduction/National Risk Reduction Relationship

13.

There are two components of disaster risk management, as shown:

Figure A2 Disaster risk management

Disaster risk management refers to ‘all forms of activities, including structural and

non-structural measures, to avoid (prevention) or to limit (mitigation and

preparedness)’ to ‘lessen the impacts of natural hazards and related environmental

and technological disasters’.

Disaster risk reduction refers to ‘minimizing vulnerabilities and disaster risks (to

lessen) the adverse impacts of hazards within the broad context of sustainable

development’.

Emergency management refers to ‘the organization and management of resources

and responsibilities for dealing with all aspects of emergencies/disasters, in

particular preparedness, response and (relief/rehabilitation)’.

(Above definitions from the UNISDR publication ‘Living with Risk’, 2004,
Terminology: Basic terms of disaster risk reduction)

Disaster risk management

Disaster risk reduction

Emergency management

14.

Within the Kingdom of Tonga, the National Emergency Management Office has

specific responsibility for emergency management. In the performance of its

emergency management role and tasks, however, it needs to be informed by:

the outcomes of risk management assessments of risks from ‘natural hazards

and related environmental and technological disasters’ which will allow the

NEMO to develop programs for ‘minimizing vulnerabilities and disaster

risks to lessen the adverse impacts of hazards within the broad context of

sustainable development’ and

national risk reduction strategy, and the implementation of national risk

reduction programs, to allow the NEMO to address potential disaster risks

which are unable to be avoided or satisfactorily mitigated through such

national risk reduction programmes.

Section 4: STEPS IN DEVELOPING AND IMPLEMENTING THE KINGDOM

OF TONGA NATIONAL RISK REDUCTION PROGRAM

Step 1: Support of national government

Develop a national risk reduction philosophy and awareness of ‘risk’ at senior officer
levels in all government departments and agencies. This is facilitated through training,
education and briefing of senior management.

•

The active ongoing support of Cabinet is necessary.

•

A senior minister or similar ‘champion’ and a Group need to sponsor the
initiative.

•

All senior officers shall give full support.

Step 2: Develop the National Program

Develop and document the National Risk Reduction Program integrated with relevant
national sustainable development, sustainable living, poverty alleviation, and sound
environmental management policies and programs. This program should be endorsed
by the NEMC and implemented throughout all levels of government. The strategy for
implementation may include information such as:

•

the objectives of the program and the rationale for managing risk;

•

the links between the program, government objectives and other relevant policies;

•

the guidance on what may be regarded as acceptable risk;

•

who is responsible for managing risks;

•

the support/expertise available to assist those responsible for managing risks;

•

the extent to which donors, non-government and civil society agencies can
contribute to program development and implementation;

•

the level of program documentation required; and

•

the plan for reviewing program performance.

Step 3: Communicate the Policy, Strategy and Program

Develop, establish and implement an infrastructure to ensure that managing risk
becomes an integral part of the planning, management processes and the general
culture of the nation. This may include:

•

establishing, under appropriate ministerial direction, a process for internal and
external communications about the program;

•

raising awareness about managing risks;

•

communication/dialogue throughout the public and private sectors and with
donors and non-government organizations about managing risk and the national
policy;

•

acquiring risk management skills, e.g. consultants, and developing the skills of
staff through education and training;

•

ensuring appropriate levels of recognition, rewards and sanctions; and

establishing performance management processes.

Step 4: Manage risks at national level

Develop and implement a program for managing risks at national level through the
application of the risk management system. The process for managing risks should be
integrated with the national strategic planning and management processes. This will
involve documenting:

•

the national strategic, organizational and risk management context;

•

the risks identified for the nation;

•

the analysis and evaluation of these risks;

•

the treatment strategies;

•

the mechanisms to review the program; and

•

the strategies for awareness raising, skills acquisition, training and education.

Step 5: Manage risks at District and Village levels

Develop and implement a program to manage the risks for each District area and
Village activity through the application of the risk management process outlined in
‘Regional Comprehensive Hazard and Risk Management (CHARM) –
Guidelines for Pacific Island Countries’ (SOPAC, 2002) . The process for
managing risks should be integrated with other planning and management activities.
The process followed, the decisions taken, and the actions planned, should be
documented.

Step 6: Monitor and review

Develop and apply mechanisms to ensure ongoing review of the risks at national.
District and Village levels. This will ensure that the risk management program and its
implementation remain relevant, as circumstances change over time and review of
previous decisions is vital. The effectiveness of the risk management process itself
should also be monitored and reviewed.

Section 5: NOTES ON THE DEVELOPMENT OF THE NATIONAL RISK
REDUCTION PROGRAM EMPLOYING ‘CHARM’

An Overview of the CHARM Model

An overview of the CHARM model and a summary of its attributes are

attached.

Organizational Arrangements for Introducing CHARM

At a meeting of the National Emergency Management Committee, the

committee is to designate a National Risk Reduction Working Group

composed of designated senior members of all the agencies represented on the

Committee, including the NEMO. Working Group members should be agency

representatives with responsibility for hazard/risk management within that

agency.

The role of the National Risk Reduction Working Group is to:

develop for the National Emergency Management Committee a draft

National Risk Reduction Program, employing the CHARM model, for the

Committee’s consideration and subsequently

provide continuing support to the Committee, in particular by monitoring

and reviewing the implementation of the National Risk Reduction

Program.

After its development of the draft national risk reduction program and the

implementation of the initial program, the National Risk Reduction Working

Group is to meet regularly (and at least once each quarter) to undertake its

monitoring, review and NEMC support tasks.

Critical Points in the Application of the CHARM Process

The CHARM Guidelines provides a general guide to the application of the

CHARM process at national, district and village levels.

For its employment in the development of the National Risk Reduction Program

by the National Risk Reduction Working Group, however, there are a number of

critical points which need to be noted

Step 1. Establish

the

context

This component contains an element ‘Develop draft risk evaluation

criteria’, and the importance of these is that they set the parameters under

which risks are evaluated in Step 4. Evaluate risks in order to determine

whether each risk is either ‘accepted’ (then simply monitored against the

criteria in future) or ‘not accepted’ (then actively included in the risk

reduction program). The CHARM publication indicates a number of

factors which should be considered and gives examples of appropriate

criteria.

Step 4. Evaluate

risks

needs to be undertaken in a special workshop or ‘brainstorming session’ of

the Working Group to evaluate each risk against the agreed risk evaluation

criteria to propose which risks should be ‘accepted’ (referred for

subsequent monitoring) and ‘not accepted’ (proposed for inclusion in the

risk reduction program) and to develop a prioritized (ranked) list of the

‘not accepted’ risks for treatment.

The final decision on which risks shall be evaluated as ‘acceptable’ or

‘unacceptable’ is so important that it needs to be undertaken by the

National Emergency Management Committee, which will also need to

determine the priority for the treatment of ‘unacceptable’ risks in terms of

Committee members’ knowledge of governmental and agency policies,

programs and projects related to national development and sustainability.

The Committee itself may need to refer particular issues for higher level

consideration prior to agreeing to the Working Group’s recommendations.

Step 6.

Reduce risks (Prevention/mitigation strategies)

The actions to be taken to reduce those national risks determined as

‘unacceptable’ can be summarised as:

•

Identify prevention/mitigation options

•

Evaluate prevention/mitigation options

•

Select prevention/mitigation options

•

Plan & implement risk reduction program

A detailed diagram of the risk prevention/mitigation process is shown. It

is based on the recognition that the primary options in risk prevention/

mitigation are

reducing the likelihood of a risk event occurring (e.g. through

hazard management);

ii.

reducing the consequence of a risk event occurring (e.g. by

increasing resilience or reducing vulnerability);

iii.

transferring the risk in full or in part (e.g. through insurance,

partnerships, joint ventures etc.), and

iv.

avoiding the risk (e.g. by deciding not to proceed with an activity

likely to generate the risk).

The diagram demonstrates that there may still be a degree of risk present

no matter what risk reduction option or combination of options has been

adopted (‘residual risks’). In addition, risk reduction programs and plans

approved and implemented as an outcome of the process will need to be

monitored and reviewed, and may result in additional or resultant risks

being identified.

Step 7. Manage

residual

risk

‘Residual risks’ and any additional or resultant risks identified in the

course of the ongoing monitoring and review process need to be referred

to the National Emergency Management Office for consideration as to

whether existing or general emergency management programs (covering

preparedness, response and relief activities) will address such risks, or

whether a particular emergency management sub-plan needs to be

developed.

Documentation. A number of forms and pro forma which may be used in the

documentation of the risk reduction process are available in the CHARM

Guidelines and CHARM Manuals or in other source material such as the

Australian/New Zealand Risk Management Standard (AS/NZS

4360:1999/2004)

Communicate and consult, monitor and review. General guidance in

undertaking these over-arching processes is contained in the reference

document.

Section 6

AN OVERVIEW OF

THE CHARM RISK MANAGEMENT PROCESS

In overview, the CHARM risk management process consists of the following steps:

1. Establish the context

Identify risks

3. Analyse risks

4. Evaluate risks

Assess risks

5. Accept risks? Yes

6. Reduce risks

(Prevention/mitigation strategies)

7. Manage residual risk

(Disaster risk

management) *

* Including the emergency management treatments of

a. Developing preparedness and response plans
b. Managing response and immediate relief

Figure 1 CHARM Risk Management Process Overview

15.

The particular attributes of CHARM as a risk management tool when
applied as part of a national risk reduction strategy are that:

•

It is linked to national development planning (social, economic and

infrastructure).

•

It assists in establishing and prioritising development activities.

•

It targets the management of both existing and future risk.

•

It facilitates collaborative partnerships and enhances information

sharing.

•

It creates a programming environment that maximises the use of

available resources and minimises duplication.

•

It provides a mechanism for establishing formal linkages between all

stakeholders.

•

It creates an environment for enhanced collaboration at national and

regional levels.

icate

and co

nsult

nito

r
a

r
e

vie

2. identify risks

Section 7

THE ‘REDUCE RISK’ STEPS – A MORE DETAILED DIAGRAM

Risk Yes Accept

acceptable? (To Monitor/Review)

Identify
reduction
options

Assess
reduction
options

Prepare
reduction
plans

Implement
reduction
plans

Part retained Part transferred

Risk

acceptable? Yes Retain

Evaluated and

ranked risk

Reduce

likelihood

Reduce

consequences

Transfer in

full or in part

Avoid

Consider feasibility costs and benefits

Recommend risk reduction strategies

Select risk reduction strategies

Prepare risk reduction plans

Reduce

likelihood

Reduce

consequences

Transfer in full

or in part

Avoid

Section 8

KINGDOM OF TONGA - RISK REDUCTION AND EMERGENCY MANAGEMENT PROCESS

Establish the context

Identify risks

Analyze risks

Evaluate risks

Accept risks? Yes

Reduce national risks

•

Identify

mitigation

options

•

Evaluate mitigation options

•

Select mitigation options

•

Plan & implement risk reduction programme

Assess emergency management priorities

Implement emergency management

program

•

Develop preparedness plans

•

Strengthen early warning systems

•

Manage response and immediate relief

C
O

M
M

U
N

C
A

T
E

C
O
N
S
U

L
T

M
O

O
R

R
E
V

Nat

i
ona

erge

ncy

nage

men

Off

i
c

National

rgen

Manag

eme

t
t
ee

Part B

Emergency Management

Introduction

This part of the plan replaces the existing ‘National Disaster Plan and Emergency Procedures
(1999)’ and all preceding plans, and will establish comprehensive, integrated and whole-of-
government institutional practices within the Kingdom of Tonga for undertaking emergency
management activities.

Essentially, such activities are required to monitor and address risks which have been unable to be
addressed or have been insufficiently addressed within existing or planned programmes or
activities for the reduction of risks, as detailed in Part A - Disaster Risk Reduction, of this plan,
and which are evaluated as having the potential to create an emergency.

Resulting preparedness, response and relief arrangements are also required to be flexible enough to
cope with emergency situations which may arise from unexpected and/or unanticipated hazards
that may not be addressed in the Preparation and Preparedness part of the plan.

It is for this reason that the document utilises an ‘All Hazards’ or ‘Functional’ approach to
emergency management, where the focus is on the emergency support function to be performed,
rather than the specific hazard being prepared for or responded to.

Activation of the Emergency Management System

National Emergency Management Office – Duty Officer

As the lead agency for the co-ordination of the emergency management system in the Kingdom,
the National Emergency Management Office has a responsibility to provide a 24 hour, 7 day
response capacity.

Accordingly, staff from the National Emergency Management Office will provide a ‘Duty Officer’
service, whereby a member of staff will be rotated “on call” for a period to be determined by the
Director.

The staff member on call will be required to be available to respond to any event immediately, and
shall be provided with the Duty Officer mobile telephone and contact lists, and the National
Emergency Management Office vehicle.

The full operational activation of the Emergency Management System

will be initiated in accordance with the provisions of the

“National Emergency Response Procedures”,

included as an annex to this document.

The Emergency Management System in Operation

Assistance to Responding Agencies

Should the operational event be one which can be readily dealt with by the responding agencies,
using the resources normally available to them, then there will be no necessity to activate the
emergency management system operationally.

Activation of the emergency management system can occur when there is a need for:

monitoring of potential threats or response operations;

coordination of support to response operations being conducted by a response agency;

coordination of resources in support of emergency response and recovery operations.

The emergency management system is designed in order that support can be provided from the
lowest possible level. If the responding agencies need resource assistance, the emergency
management system will provide it. A request from the lead responding agency will be made to
the National Emergency Operations Centre (NEOC).

E V E N T

LOCAL RESPONSE AGENCIES

Need help?

Handle using

Agency procedures

Yes

Request Assistance

from DEMC

Need help?

Yes

Request Assistance

from NEMC

Provide Support from

District Resources

The Structure of Emergency Management in Tonga

National Disaster Council

(CABINET)

Hon. Minister of Works

National

Emergency

Operations

Committee

Response and

Emergency Relief

Operation

National

Emergency

Management Office

(Coordination

Disaster

Management

Programme

National

Emergency

Management

Committee

National

Emergency

Recovery

Committee

Recovery

Rehabilitation

Reconstruction

District

Emergency

Management

Committees

Village

Emergency

Committees

Operational Roles of the Committees

Operational functions of National Emergency Management Committee

•

to make policy decisions of national significance relating to emergency management for

the Kingdom;

•

to have in place arrangements with other nations and relevant bodies to provide support

to the Kingdom during major emergencies;

•

to provide support to District Emergency Management Committees; and

•

to ensure effective emergency management and emergency response in communities

before, during and after the impact of an event.

Operational functions of National Emergency Recovery Committee

•

to coordinate the recovery phase following any event that may Impact on the Kingdom

of Tonga;

•

carry out damage assessments in partnership with the District Emergency Management

Committees;

•

coordinate the provision of emergency relief to those areas that have been affected by an

event;

•

coordinate all recovery and rehabilitation works that are carried out in the affected area.

Operational functions of the National Emergency Operation s Committee

•

activate departments and organisations in response to an event that may happen, is

happening or about to happen;

•

liaise with and guide departments, non government organisations and community groups

in the execution of their emergency management roles and responsibilities;

•

activate disaster assessment systems;

•

collate and prioritise disaster relief requirements; and

•

manage the distribution of immediate relief supplies.

Operational functions of District Emergency Management Committees

•

to provide support to communities to ensure effective emergency management in

communities before, during and after the impact of an event;

•

to ensure community awareness of emergency management, including ways of

mitigating, preparing for, responding to and recovering from an emergency;

•

to identify and coordinate the use of resources for emergency operations in the district;

•

to manage emergency operations in the district in accordance with any policies and

procedures issued by the National Emergency Management Committee;

•

to establish and review communications systems in the district for use when an event

threatens or an emergency happens; and

•

to ensure information about an event or an emergency in the district is promptly provided

to the National Emergency Management Committee.

Operational functions of Village Emergency Committee

•

to provide support to communities to ensure effective emergency management in

communities before, during and after the impact of an event;

•

to ensure community awareness of emergency management, including ways of

mitigating, preparing for, responding to and recovering from an emergency;

•

to identify and coordinate the use of resources for emergency operations in the village;

•

to manage emergency operations in the village in accordance with any policies and

procedures issued by the National Emergency Management Committee;

•

to establish and review communications systems in the village for use when an event

threatens or an emergency happens; and

•

to ensure information about an event or an emergency in the village is promptly provided

to the District Emergency Management Committee.

Individual Agency Business Continuity and Emergency

Response Plans

It is the responsibility of individual agencies to develop and maintain their individual Business
Continuity and Emergency Response Plans.

Copies of individual agency Emergency Response Plans (along with any amendments made from
time to time) are required to be submitted to the National Emergency Management Office for
ratification, and are to be maintained as annexes to the National Emergency Management Plan.

Threat Specific Plans

National Oil Spill Response Plan

The Ministry of Marine and Ports maintains a National Oil Spill Response Plan, which is linked to
international planning arrangements, to deal with the response to an oil spill at sea.

The Ministry operates independently of the national emergency management system in relation to
oil spills, but the national emergency management system will provide support as required to the
Ministry’s efforts, utilising the functional, or all hazards approach to emergency management.

Airport Emergency Plans

The Ministry of Civil Aviation/Transport maintains Emergency Orders for all airports in the
Kingdom, to deal with various aviation and other emergency situations at or near airports.

The Ministry operates independently of the national emergency management system in relation to
aviation incidents, but the national emergency management system will provide support as
required to the Ministry’s efforts, utilising the functional, or all hazards approach to emergency
management.

Capabilities, Roles and Responsibilities of Agencies involved

in Emergency Management

Agency

Capabilities, Roles & Responsibilities

National

Emergency

Management

Office

Maintenance of the operational functioning of the National Emergency Management
System

Development and maintenance of the National Emergency Management Strategies and
the National Emergency Management Plan - Part 2: Emergency Management

Facilitation of a comprehensive approach to emergency management

Maintenance and operation of a National Emergency Co-ordination Centre, including
the training of sufficient personnel to operate the Centre

Provision of a 24/7 point of contact for emergency management matters

Co-ordination of support to response agencies

Co-ordination of reconnaissance and post-impact assessment

Issuing of public information prior to, during and following emergency event impacts

Design and maintenance of a locally-based public education/awareness program,
including multi-lingual information as appropriate

Membership of and provision of secretariat support to the National Emergency
Management Committee

Ministry of

Works

Clearing of roads to enable access to affected areas

Maintenance of a transport resource register for the Kingdom

Leading the emergency impact assessment process and compilation of a full
assessment report for the National Emergency Management Committee and
Cabinet

Provision of a representative to the National and District Emergency
Management Committees

Ministry of

Lands,

Survey and

Natural

Resources

Provision of geo-technical information in relation to hazards and vulnerability

Provision of GIS (Geographic Information System) mapping

Provision of seismic information and warnings

Contribute to post-impact assessment processes

Provision of a representative to the District Emergency Management Committees

Tonga Water

Board

Provide and maintain reticulated water supply as installed

Provide advice and assistance in relation to water provision in emergency affected
areas

Tonga Police

Force

Preservation of peace and good order during emergencies

Prevention of crime during emergencies and at affected communities

Maintenance of any site as a possible crime scene

Coronial investigation procedures

Traffic control, including assistance with road closures and maintenance of road blocks

Crowd control

Co-ordination of rescue

Co-ordination of evacuation

Patrols of evacuated areas

Tracing, or co-ordination of search for, missing members of the community

Contribute to post-impact assessment processes

Provision of a representative to the National and District Emergency Management
Committees

Tonga Fire

Service

Fire control

Fire prevention

General Rescue

Management of hazardous material situations

Provision of Material Safety Data Sheet information relative to hazardous materials

Advice relative to evacuation requirements as a result of a hazardous material incident

Contribute to post-impact assessment processes

Ministry of

Health

Co-ordination of medical resources during emergencies.

Provision and maintenance of hospital and clinic facilities

Appropriate pre-hospital on-site medical and health response management for
casualties

Public health advice and warnings to participating agencies and the community

Health education programs

Immunisation programs

Epidemiology/disease surveillance

Collection/dissemination of health information

Food and water testing capability

Psychological and counselling services for Emergency affected persons

On going medical and health services required during the recovery period to preserve
the general health of the community

Provision of a representative to the National and District Emergency Management
Committees

Ministry of

Education

Provision of schools for temporary shelter as required

Promotion of Community Emergency Awareness and Preparedness through subject
inclusion in curriculum

Contribute to post-impact assessment processes regarding damage to school buildings

Provision of a representative to the National and District Emergency Management
Committees

Ministry of
Marine and
Ports

Assist in search and rescue operation

Maintenance of port areas to ensure minimal disruption to operations resulting from
any emergency event.

Contribute to post-impact assessment processes

Ministry of

Lead Agency role relative to any outbreak of emergency animal or plant disease

Agriculture,

Forestry and

Food

Control/containment of emergency animal diseases

Provision of temporary animal enclosures

Advice relative to stock matters

Destruction of stock or plants as required

Contribute to post-impact assessment processes

Advice to farmers relative to disaster recovery processes

Advice to farmers relative to crop protection

Link with FAO re immediate aid

Support Community Disaster Awareness and Preparedness Program through
agricultural extension officers

Provision of a representative to the National and District Emergency Management
Committees

Tonga

Defence

Services

Provision of HF Radio network as alternative back-up resource

Provision and maintenance of operations room facilities as an alternative National
Emergency Co-ordination Centre

Provide air support to initial impact assessment

Support relief distribution

Support search and rescue operations

Provision of a representative to the National and District Emergency Management
Committees

District and

Town

Officers

Manage the Community Emergency Awareness and Preparedness program on behalf
of the community

Disseminate warning messages within the community and ensure community members
understand their meaning together with action to take

Initiate initial impact assessment within their community

Serve as the emergency management link between the community and the
District/National Emergency Management Committees and the Government
Representatives on the Niuas and Eua

Tonga Red

Cross

Assist in public awareness campaign and Emergency management training activities
through national headquarters and branch officials

Contribute to post-impact assessment processes

Provision of relief supplies, emergency shelter, and first aid service for disaster
affected people as appropriate, in co-ordination with Emergency Management Tonga

Seek assistance from the International Federation of Red Cross and Red Crescent
Societies for international relief when required

Ensure adequate supply of blood is available at the Tonga Blood Bank, Vaiola
Hospital

Assist in tracing of missing persons

Provision of a representative to the National Emergency Relief Committee and the
District Emergency Management Committees

Ministry of

Civil

Aviation/Tra

nsport

Maintenance of all airports within the Kingdom

Provision of operational airports for use as required in emergency response and
recovery operations

Provision of air traffic co-ordination services to facilitate extra traffic which may be
expected during emergency response and recovery operations

Ministry of

Civil

Aviation

(Tonga

Meteorologic

al Service)

Provision of public weather forecasting service

Provision of meteorological and related environmental services in support of national
emergency management requirements

Provision of Special Weather Bulletins in relation to severe weather events

Provide 24hrs service for weather and tsunami warnings.

Assist NEMO with public awareness raising and advice on weather related issues

Ministry of
Foreign
Affairs

Provide the link between the National Emergency Management Committee and the
Diplomatic Corps in Tonga

Co-ordinate the Kingdom’s external relations, and liaise with overseas
countries/agencies on aid issues

Provision of a representative to the National Emergency Management Committees

Customs and
Quarantine

Establish procedures for the clearance of personnel, vessels, aircraft and goods during
emergency relief operations

Develop and enforce procedures to expedite clearance of emergency relief supplies and
for reconstruction and rehabilitation purposes

Ministry of
Finance and
Planning

Management of the financial aspects of relief operations including the recording of
donor contributions

Preparation of a financial record of expenditure following major operations

Provision of a representative to the National Emergency Management Committee

Assistance in the co-ordination of the recovery and reconstruction process

Provision of a representative to the National Emergency Management Committees

Tonga
Power

Maintenance of electrical power supply

Advice Government on power related issues during emergencies

Tonga
Communicati
ons
Corporation
(TCC)

Maintenance of a national telecommunication capacity, including land-line, mobile
telephone, satellite telephone and internet services

Advice Government on capacity status during emergencies

Tonga
Broadcasting
Corporation

Provision of emergency related public information as advised by NEMO

Broadcast of Special Weather Bulletins and other information in conjunction with the
Tonga Meteorological Service.

Operational Lead Agencies

Co-ordination of emergency operations
The under mentioned organisations have agreed to assume the Lead Agency coordinating role for
the operational response to the following threat situations.

It is stressed that the role is one of co-ordination and not control.

Event Coordinating

Agency

Emergency Animal or Plant Disease

Ministry of Agriculture, Forestry and

Food

Fire

Tonga Fire Service

Cyclone/Storm/Flood/Landslip/Earthquake/Volcanic

Eruption/Tsunami

National Emergency Management

Office (on behalf of the National

Emergency Management Committee)

Hazardous Material Event

Tonga Fire Service

Human Epidemic

Ministry of Health

Major Infrastructure Failure

Power: Tonga Electrical Power Board

Communications: Communications

Department, Prime Minister’s Office

and TCC

Major Transportation Event

Tonga Police Force

Terrorist Activity

Tonga Police Force/ Tonga Defense

Services

Water Contamination

Ministry of Health

Oil Spill

Marine and Port & Port Authority/
Ministry of Transport

Plane Crash

Police/Tonga Fire Service

National Emergency Response Procedures

Activation of the emergency management system will occur when there is a need for:

monitoring of potential major threats or response operations;

co-ordination of support to response operations being conducted by a response

agency or agencies;

coordination of resources in support of emergency response and relief operations.

Event

National Emergency Management Office

Action

National Emergency Operations

Committee Action

Initial Advice
of Impending
Hazard Event

For ALL
events
requiring an
activation of
the emergency
management
system

Receive information requiring activation of the

emergency management system.

Obtain independent confirmation if practicable.

Notify Minister

Notify National Emergency Management

Committee and National Emergency
Operations Committee members and advise
members of the Diplomatic Corps

Notify NEMC member organisations an remind

them about the activation of their business
continuity and emergency response plans

Ensure that the National Emergency

Operation/Coordination Centre is on standby

Instigate contact with District Emergency

Management Committees (DEMC) for the
area(s) affected or likely to be affected by the
event

Check the emergency communications systems

for the area(s) affected or likely to be affected
by the event

Ensure that individual agency
Business Continuity and
Emergency Response Plans are
ready for activation

Ensure that District Emergency
Committees are aware of the
situation and have their
Emergency Response Plans ready
for activation

Activate Public Information Plan advising

public of what to do in preparation for likely
impact

For cyclonic
events -
(12-24 hours
from expected
impact)

Liaise with TMS on progress of event

Maintain contact with relevant DEMC’s

With TMS, brief NEOC on current situation

and the possible requirement for evacuation.

Response Agencies to be on
stand-by (Police, TDS, NGO’s,
MOW etc.)

Meeting of NEOC (with relevant
observers –Diplomatic corps etc.)

Assess the likely requirement for
an evacuation order

Recommend the closure of
schools

Instigate staged closure of
Government offices

Activate individual agency
business continuity and
emergency response plans

For cyclonic
events -
(0-12 hours
from expected
impact)

Liaise with TMS on progress of event

Upgrade activation of NEOCC to maximum

staffing on a 24 hour basis

Update Minister and NEOC as appropriate

Maintain contact with DEMC’s

Maintain public information, through live radio

broadcasts

Monitor event as it approaches
the country

Cyclone
Impact

Maintain liaison with TMS

Maintain contact with DEMC’s, if possible

Monitor situation

Ensure public are regularly
informed

Update Minister and NEOC as soon as

practicable

Maintain public information, through live radio

broadcasts

Post Impact
(Within 24-48
hrs)

For ALL
events
requiring an
activation of
the disaster
management
system

Liaise with TMS as appropriate.

Collect Situation Reports from affected

districts

Maintain public information, through live radio

broadcasts

Instigate contact with District Emergency

Management Committees from affected areas

Receive initial situation reports and impact

assessment information from District
Emergency Management Committees

Brief NEOC and NEMC as to overall initial

impact assessment

Identify whether there is a need to recommend

a National Damage Assessment Team (NDAT)
to conduct formal Initial Damage Assessment

Prepare consolidated Initial National Situation

Report

Distribute Initial National Situation Report to:

Minister & NEMC

UNOCHA

SOPAC

Media

Diplomatic Corps

Instigate liaison with District
representatives

Provide individual agency initial
damage impact assessments to the
NEOC

Identify initial relief requirements

NEMC Meeting

Activate National Damage
Assessment Team to the affected
area(s), if required

Activate emergency relief
operations as required

Provide information relative to
the Initial National Situation
Report

Evaluate and/or analyse situation
reports to determine extent of
damage and decide whether a
state of Emergency should be
recommended

Conduct Press release on overall
situation

Post Impact
(Within 48-72
hours)

For ALL
events
requiring an
activation of
the disaster
management
system

Consolidate Situation Reports from all agencies

involved in the response to the event.

Prepare a formal National Situation Report, and

repeat on a daily basis until the event
management is ceased.

Provide comprehensive briefing to the Minster,

and the NEMC

Distribute Formal National Situation Reports

to:

Minister

NEMC

UNOCHA

SOPAC

Media

Diplomatic Corps

Maintain 24 hour NEOCC maximum staffing

as required

Confirm Situation Report to
determine if a State of
Emergency should be declared
for the affected areas and take
necessary steps to that effect.

National Emergency Recovery
Committee activated

Co-ordinate emergency relief
activities

Liaise with Foreign Affairs on
overseas emergency relief
assistance as required

Provide
Customs/Immigration/Quarantine
support for any incoming
international emergency relief
supplies and personnel

Press Release

Operational
Stand Down

Return NEOCC to standby mode

Confirmation check of communications

systems

Conduct NEOC operational de-brief

Complete and submit final National Situation

Report

Complete any other post-operational reports

required.

Final NEOC Meeting –
Operational Debrief