TONGA

EMERGENCY PREPAREDNESS

OPERATIONAL LOGISTICS CONTINGENCY PLAN

PART 3 –SCENARIOS IDENTIFICATION &

LOGISTICS RESPONSE PLANS

GLOBAL LOGISTICS CLUSTER – WFP

MAY – JUNE 2012

PROGRAM FUNDED BY:

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 A. Summary

A. SUMMARY 2

B. EMERGENCY SCENARIOS IDENTIFICATION 5

OVERVIEW 5
RISK UNDERSTANDING 6

C. TONGA EMERGENCY PROCEDURES AND RESPONSE ARRANGEMENTS 6

WARNING, ACTIVATION AND ALERTING SYSTEMS 6

NATIONAL ACTIVATION SYSTEM 7
ACTIVATION OF THE TROPICAL CYCLONE EMERGENCY RESPONSE PLAN (TCERP) 8
AIRPORT CLEARANCE 8
CUSTOMS AND QUARANTINE 8
THE VILLAGE EMERGENCY COMMITTEE 8
MINISTRY OF HEALTH DISASTER MANAGEMENT PLAN 8
FU’AMOTU INTERNATIONAL AIRPORT EMERGENCY PLAN 9
UNITED NATIONS DISASTER ASSESSMENT AND COORDINATION (UNDAC) 9

D. LOGISTICS EMERGENCY COORDINATION 10

A. THE LOGISTICS COORDINATION GROUP (LCG) 10

B. PROPOSITION FOR A NEW MANAGEMENT OF LOGISTICS OPERATIONS DURING EMERGENCIES 11
NEOC LOGISTICS UNIT 11
Responsibilities 11
Specific operational cells 11
Customs Clearance Facilitation Cell (CCFC) – Terms of Reference 12
Dispatching and Cargo Tracking Cell (DCTC) – Terms of Reference 13
Transport Cell (TC) – Terms of Reference 14
Logistics Information Management Cell (LIMC) – Terms of Reference 15

E. SCENARIOS DETAILS & OPERATIONAL RESPONSE PLANS 16

A. LOGISTICS CONTINGENCY PLAN 1 – MEDIUM IMPACT SCENARIO 16

1. INTRODUCTION 16
2. EMERGENCY PROCEDURES AND RESPONSE ARRANGEMENTS 16
Operational Command and Coordination 16
Operational Roles of Key Agencies 16
3. SCENARIO DETAILS: 17
Summary 17

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Scenario Overview: 17
Key implications 18
4. OPERATIONAL SUMMARY 18
5. CONCEPT OF OPERATIONS 20
The objectives and activities of the Logistics Unit in Tonga are the following: 20
Logistics Planning Assumptions & Identified Gaps 20
Concept of Operations – Medium level scenario 20
6. SUGGESTED SOPS 21
Activation: 21
Operations: 21
Activities: 21
Stand Down: 22
Essential Equipment: 22
Information Access/Management 22
Required: 22
Responsible to produce: 22
Resources/ Support to the Logistics Unit 22
7. LOGISTICS RESPONSE WORK PLAN 23
Logistics Response Checklist 23
Logistics Response Work Plan 25
8. PREPAREDNESS (MINIMUM PREPAREDNESS MEASURES) 27
B. LOGISTICS CONTINGENCY PLAN 2 – WORST CASE SCENARIO 28
1. BACKGROUND INFORMATION 28
Forecast: 28
Impact: 28
2. EMERGENCY PROCEDURES AND RESPONSE ARRANGEMENTS 29
Operational Command and Coordination 29
Operational Roles of Key Agencies 29
3. SCENARIO DETAILS: 29
Summary 29
Scenario Overview: 30
Key implications 32
4. OPERATIONAL SUMMARY 33
5. CONCEPT OF OPERATIONS 36
The objectives and activities of the Logistics Unit in Tonga are the following: 36
Logistics Planning Assumptions & Identified Gaps 36
Assumptions and constraints: 38
6. SUGGESTED SOPS 38
Activation: 38
Operations: 38
Activities: 38
Stand Down: 39
Essential Equipment: 39
Information Access/Management 39
Resources/ Support to the Logistics Coordination Group 40
7. LOGISTICS RESPONSE WORK PLAN 41

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Logistics Response Checklist 41
Logistics Response Work Plan 42
8. PREPAREDNESS (MINIMUM PREPAREDNESS MEASURES) 45

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 B. Emergency Scenarios Identification

Overview

 The range of possible disasters that may impact Tonga is large, too large to set up specific response mechanisms and
operational logistics procedures for each one.
 As the size of the potential impact, the locations and the type of response may be quite similar between certain types
of hazards, we have tried to group several hazard into one global scenario.

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Risk Understanding

Likelihood Almost Certain Likely Possible

Impact
Moderate Floods
Volcanic Eruption
Major Cyclones
Earthquakes /
Tsunamis
Catastrophic Cyclones

C. Tonga Emergency Procedures and Response Arrangements

Warning, Activation and Alerting Systems

The key to achieving effective response from participating organizations and the community is to have reliable and equally
effective warning and alerting systems in place. Advice of a developing or impact disaster situation will come from two main
sources:

 Official source (meteo/police)

 Unofficial source or member of the public

It will be the responsibility of the NEMO and Lead Authority (responsible organization)to verify the accuracy of unofficial
reports.

It is the responsibility of all departments and organizations to ensure that representatives are contactable at all times and
particularly so during the cyclone season and after normal working hours.

It is the responsibility of the CCG to ensure that timely and appropriate messages are broadcast to the public advising of the
degree of threat, and action that should be taken. Departments and organizations must assist in this process by ensuring that
relevant information is forwarded to the CCG.

Details of the national activation system can be found here under (National Activation System) whilst details on the warning
system used by the Meteorological Service are contained within the cyclone support plan (see here under Activation of the
Tropical Cyclone Emergency Response Plan (TCERP)) . Care should be taken not to confuse the terminology being used in this
section. The warning system does not refer specifically to Meteorological messages – it relates to the system in place that is
used to warn the disaster officials and the community that a potential hazard exists.

The activation system refers to the mechanism for informing and activating the departments and organisations, whilst the
community alerting system guides the community by informing of the degree of threat and action to be taken. It is used
specifically by the disaster officials and should compliment the warning system in place.

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National Activation System

The implementation of this plan will depend on the effective reaction by participating organizations. The following stages of
activation are designed to achieve this goal through a graduated and controlled mechanism which when utilized correctly will
ensure that the level of preparedness and response will equal the level of threat being posed.

The outline of action within these stages is listed below:

 Stage One – Readiness

Comes into effect when some form of information is received which indicates that the provisions of this plan, and/or
associated plans, may be invoked. The Chairman of the NDMC will declare this stage in force and alert appropriate
organizations of such action.

 Stage Two – Standby

Comes into effect when it is established that a threat exists to all or part of the island chain. It requires that all relevant
organizations and personnel are placed on standby to begin operations or actions under this plan immediately they are called
upon. The NDMC in consultation with the NEMO and disaster controller will determine when this stage becomes operative.

In some circumstances there may be no warning or insufficient warning of an impending threat and therefore it may not be
possible to progress through stages one and two in a normal fashion.

 Stage Three – Activation

Comes into effect when the treat is imminent; or in an impact situation where a disaster or emergency has already occurred.
The disaster controller will activate this stage and call upon participating organizations to take action in accordance with
planned procedures and/or as directed by the Controller.

 Stage Four – Stand Down

The order for organizations to stand down will be given by the Minister in consultation with the disaster controller once a full
assessment has been made, the threat has abated, and/or disaster relief operations are well advanced. This will be a gradual
process with organizations which have limited involvement in the operations being stood down in the first instance.

This maximum protection – minimum disruption process will avoid over response, and serve as an effective means of
regulating community action through ongoing communication. The stages will also serve as a guide for departments and
organizations in the development of internal emergency procedures and response.

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Activation of the Tropical Cyclone Emergency Response Plan (TCERP)1

Whenever there is threat of a tropical cyclone affecting any part of Tonga within 48hours or a tropical depression or tropical
cyclone is located within the area bounded by 10S 175E, 25S 175E, 25S 165W, 10S 165W, the Tongan Meteorological Service
(TMS) will activate its TCERP.

 On the event of a tropical cyclone, TMS will provide Special Weather Bulletins (SWB). A SWB will contain either a
TROPICAL CYCLONE ALERT OR TROPICAL CYCLONE WARNING.
 On the event of a tropical depression, warnings will be issued in the normal routine weather bulletins.

Airport Clearance

The CCG is to liaise with the Secretary Civil Aviation, to ensure that security clearance is provided for team assigned to assist
with the unloading and transport of relief supplies. Where possible, the names of personnel involved with these activities shall
be sent prior to the teams arrival at the airport.

Customs and Quarantine

Once an official request for international assistance has been submitted, the Director of Customs and Quarantine are to make
the necessary arrangements for the ongoing clearance of all donor assistance which is provided for “disaster relief purposes”.

This may include duty exemption for goods which are purchase locally with disaster relief funding.

The CCG is responsible for providing information on donor assistance to Customs and Quarantine to facilitate this process. This
includes details on type, quantity, source, means of transportation, arrival point and estimated time of arrival. As for normal
Customs and Quarantine situations, disaster relief operations should not in themselves cause a breakdown in established
security and/or immigration regulations.

The Village Emergency Committee

The Village Emergency Committee (VEC) chaired by the Town Officer is responsible for the development and implementation
of the emergency management plan in the village. The VEC undertakes community awareness on emergency management
including identification of local resources for emergency operations. It plays an important role in ensuring that information
about an event or emergency is communicated immediately to the DEMC. The VEC is also involved with the community in the
response and recovery phase (Government of Tonga, 2008b).

Ministry of Health Disaster Management Plan

1
TONGA METEOROLOGICAL SERVICE - TROPICAL CYCLONE PROCEDURES - AUGUST 2007

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The Ministry of Health (MoH) is responsible for initiating hazard and vulnerability assessment of health facilities/personnel,
logistics, in preparation for various disaster scenarios, to ensure that the MOH, at all times, has the highest achievable state of
preparedness to enable it to mobilize the resources required, to safely and expeditiously provide emergency medical and
public health care to victims of disaster.

Fu’amotu International Airport Emergency Plan

Under the Civil Aviation Act 1990 of Tonga and the Civil Aviation Regulations (Amendment) 1996 and the New Zealand Civil
Aviation Rules, the Fu’amotu International Airport conducts an annual exercise to test the Airport Emergency Plan. This
exercise involves other sectors including the police, fire services, health, ambulance services, army and the Red Cross.

United Nations Disaster Assessment and Coordination (UNDAC)

The United Nations has established a regional UNDAC team which can be deployed in support of national responses to hazard
impacts and major emergencies. Team members are drawn from other Pacific Island Countries, and are placed on standby for
rapid deployment at the request of governments. The Chairman of the NDMC is to advise Government on this decision. Key
support activities which can be undertaken by UNDAC Teams include:

 contributing to the collection and sharing of information among active donors in the region:
 facilitating co-ordination with and mobilisation of appropriate resources from donors who might not be operational in
the region but are interested to assist;
 providing additional know-how and expertise to strengthen the national capacity and to increase the accountability
and credibility of assessments and appeals presented to the donor community;
 strengthening national capacity by providing sectoral assessment expertise that might be required.
 Assisting in the on-site management of the relief operation during the emergency response phase; and
 Advising on the planning for medium term relief, transition to rehabilitation and future mitigation strategies.

The teams are activated by the UNDP Resident Representative, through UNDHA Office in Suva.

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 D. Logistics Emergency Coordination

There are no specific logistics related units in Tonga’s Disaster management framework. During emergency operations, the
country mainly relies upon Tonga Defense Services capacities and assets and upon New-Zealand and Australia operational
support (within FRANZ Alliance regarding NZDF and ADF operations)

Furthermore, up until now, no Logistics preparedness activities have been implemented in Tonga.

As Logistics may be one of the major concerns during emergency operations, a Logistics Coordination Group (LCG) has been
established in 2012. This LCG will support the activities of the NEMO’s regarding Logistics preparedness.

a. The Logistics Coordination Group (LCG)

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The LCG is a newly established coordination working group, aiming to support the NEMO and to ensure that Logistics
Preparedness activities (stand-by agreements, compiling of logistics related databases, logistics contingency plans, training,
simulations) are in place in Tonga.

The LCG is composed of:

- One representative from the NEMO

- One representative from the Civil Society Forum – the NGOs Umbrella Organization
- One representative from the Tonga Red Cross Society
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- One representative from the Ministry of Works
- One representative from the Tonga Defense Services
- One representative from the Tonga Police
- One representative from the UN – from WHO
- As observer, one representative from the Donors?

Among its areas of competencies, let’s mention:

 Implementation of the Logistics Preparedness plan

o Standardization of Logistics Documents
o 3Ws
o Civ-Mil coordination
o Roles & Responsibilities of actors involved in Logistics
o Update of the LCA
o Capacity building and training plan for the key logistics actors
o Facilitations measures aiming at improving the logistics preparedness, emergency customs
clearance, stand-by agreements

2
Inception in June 2012
3
Ministry of Infrastructure, as of July 2012

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 b. Proposition for a new management of Logistics operations during
emergencies

There is no specific logistics unit in the NEOC when activated. Logistics operations and dealt together with all other relief and
emergency operations by NEOC management which will allocate specific logistics activities upon request to the most
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appropriate and available agency. Most of the time, the logistics operations will be allocated to the TDS

Regarding the coordination of logistics activities during emergency operations, it is recommended that the LCG switches to an
operational unit during emergencies and operates, within the NEOC, all the logistics related activities.

A proposition of revised organisation of logistics operations during emergencies is detailed here under. Draft ToRs of the NEOC
Logistics Unit and specific sub-cells and also provided.

NEOC Logistics Unit

This unit is made up of the Logistics Manager (NEMO Logistics and Operations Officer) and members of the Logistics
Coordination Group (LCG). Depending on the size and specificities of the disaster, some operational cells (sub-cells from the
Logistics Unit) may be set up to operate specific duties.

Responsibilities
The Logistics Unit’s objectives are:

 Provision of resources to response agencies (clearance, storage, dispatching and transport)

 Supplies sourcing

The responsibilities are:

 Supplies sourcing at national and international level

 Liaison with national and international organisations on availability of prepositioned humanitarian stocks +
operational arrangements for access, transport (upstream pipeline) …
 Storage, availability and operations, at entry points, intermediate dispatching points and at field level
 Transport, including land, sea and air (downstream pipeline)

Specific operational cells

Depending on the size and the specificities of the disaster, the Supplies Unit may vary significantly in number and in objectives.
If needed, some specific cells may be set up, with precise ToRs, to operate the most challenging parts of the emergency
logistics operations. Here under are examples of ToRs for those thematic cells.

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Nevertheless, it has been recommended by WFP Emergency Logistics Preparedness Mission to set up a permanent Logistics
Unit in the NEMO and a logistics unit in the NEOC when activated. This NEOC Logistics Unit should mainly be composed by the
members of the Logistics Coordination Group

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Customs Clearance Facilitation Cell (CCFC) – Terms of Reference

Introduction:

 During emergencies, if the size of the events requires international assistance, a Customs Clearance coordination cell,
composed by representatives from the Ministry of Finances and the Customs, may be set up.
 In addition, a volunteer support from one of the major Freight Forwarding / Shipping / CC brokers companies should
be a significant added value.

Responsibilities:

Assessment
 Meet with the Central Customs authorities to review existing customs regulations

Information Management
 Ensure INGOs and UN agencies’ good understanding of local Customs policies and their application.
 Document the “application of customs procedures”.
 Keep the humanitarian agencies informed on standard customs procedures

Operations
 If required, negotiate facilitation measures with national and local authorities, including registration process for NGOs
/ International agencies.
 Advise the response teams on main customs issues affecting operations.
 Facilitate / support / ensure Customs Clearance procedures for registered humanitarian agencies
 Maintain a paper trail for future reference

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Dispatching and Cargo Tracking Cell (DCTC) – Terms of Reference

Introduction:

 During Emergency Response operations, Tongan authorities will set up dispatching centers; all the commodities
transiting through the dispatching centers before being sent to distribution areas.

 During emergencies, the dispatching centers should be operated by / with the support of private companies bringing
their professional experience for dispatching operations and commodities tracking. This recommendation will require
that prior stand-by agreement – even basic – is signed between NEMO and the pre-identified private companies.

 As all operations in remote areas will require repackaging and transshipment operations, this need to be considered
when designing the initial Concept of Operations (an additional hangar, linked to the dispatching centre, need to be
specifically designated to this purpose).

 During emergencies, the Customs Clearance coordination cell, composed by representatives from the MoF and
Customs should be operating from the dispatching center

Reporting line:

 The Dispatching & Cargo Tracking Cell reports to the Logistics Manager

Responsibilities:

 Develop mechanisms for capturing data for commodity tracking purpose.

 Distribute reporting formats as required.
 Compile Agencies' relief commodities information and summarize in pre-determined formats for publication in
Sitreps.
 Conduct commodity tracking data filtering in accordance with agreed parameters for ‘pending’, ‘in-stock’, and,
‘distributed (Delivered)’.
 Enforce the tracking of a) filtering, b) entering, c) cross-checking process (third party check) (signatures at each stage).
 Work with the Data entry clerk (If deployed) to resolve discrepant data prior to inputting to the system.
 Coordinate reporting procedures and distribute reporting formats as required
 Register all data for statistical evidence, including details of all commodities handled and transported under the
Logistics co-ordination by establishing a commodity tracking system.
 Commodities should be classified by type of food and by type of non-food item.
 Transport mode should be classified by type (air, road, sea) and by name of operator.

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Transport Cell (TC) – Terms of Reference

Reporting line:

 The Transport Cell reports to the Logistics Manager & the NEOC

Responsibilities:
 The Transport & Shipping Cell is responsible for the downstream pipeline. It includes the following duties:

Land Transport
 Define specific transport strategies and procedures and ensure effective integration of transport in Logistics
operations.
 Manage transport operations including all transport assets in order to ensure timely and cost-effective delivery of
cargoes.
 Identify, mobilize resources, implement and report on special transport operations.
 Ensure that accurate and complete accounting, reporting and internal control systems are functioning and that all
relevant records are maintained.
 Ensure effective commodity management and quality control.
 Coordinate transport operations with the Dispatching and Cargo Tracking Cell.
 Supervise staff as required.

Shipping & Air transport

 Liaise with appropriate resources in order to determine the most efficient mode of calling forward commodities,
taking into consideration type of commodity, quantity, port / airport conditions, weather conditions, freight market
condition, etc.
 Negotiate and conclude sea / air transportation arrangements with shipping / air operators, including the chartering
of vessels, on either a short or long-term basis or conclude ad-hoc individual rate agreements.
 Appoint, instruct and supervise a network of Freight Forwarding Agents and provide advice to the appointed agents as
required.
 Liaise closely with agents and suppliers to ensure that cargo readiness matches vessels arrival.
 Prepare and maintain statistical reports on shipping and chartering information.

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Logistics Information Management Cell (LIMC) – Terms of Reference

Introduction:
 During Emergencies, Information Management is of the upmost importance for Emergency Logistics Operations.
 Logistics Information Management will need to provide updated information about Logistics Operations to the
National Disaster Controller and to the NEOC on a daily basis.

Reporting line:
 The Logistics Information Management Cell reports to the Logistics Manager, the National Disaster Controller and to
the NEOC

Responsibilities:
 The LIMC will act as the focal point for collecting, analyzing and disseminating logistics information.
 The LIMC will work closely with the Logistics Manager.
 Gather information on the overall logistics situation, including comprehensive data on logistics procedures and
bottlenecks from the various Logistics participants and national authorities.
 Produce Logistics reports in specific formats as required within the operations. Key products include: Sitreps,
snapshots, flash news, briefings, road matrix, and area overview.
 Liaise with Logistics participants, and national counterparts to gather information for the production of daily Sitreps
and weekly bulletins, ensuring that challenges and concerns relating to the logistics operations are represented.
 Consolidate and share key logistics information and procedures, such as Concept of Operations and Standard
Operating Procedures (SOPs) ensuring they are regularly revised/updated if required.
 Inform relevant stakeholders on commodity tracking reporting procedures.
 Prepare talking points and agenda for LCG meetings, compile minutes / action points and ensure timely sharing of
meetings minutes with all participants.
 Prepare operational overview, briefings and snapshots on the logistics operation for donors, UN Country Team, Office
of the Humanitarian Coordinator and other stakeholders as requested.
 Establish, moderate and maintain Logistics mailing list.
 Standardize and execute quality control of logistics assessments and activity reports.
 Distribute reporting formats as required, and compile logistics plans/forecasts of other organisations.

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 E. Scenarios Details & Operational Response Plans

a. Logistics Contingency Plan 1 – Medium Impact Scenario

1. Introduction

This scenario is tailored to answer medium impact disasters. Namely, those ones may be flooding, category 1 or 2 cyclones,
moderate volcanic eruption, moderate tsunamis, fire, etc.

It is assumed that the Tongan government is able to answer – at least on an operational point of view - to this kind of event
without asking for international assistance.

2. EMERGENCY PROCEDURES AND RESPONSE ARRANGEMENTS

Regarding Emergency Procedures, roles and responsibilities, activation process, etc. please refer to Chapter C. Tonga
Emergency procedures and Response Arrangements above.

Emergency/disaster management involves the implementation of actions immediately prior to, during, and immediately after
an emergency/disaster in order to ensure that the effects are minimized and that those affected are promptly attended.

The responsibility for all emergency management arrangements at national level lies with the Disaster Management Council. In
relation to a specific hazard, one Lead Agency is responsible for emergency response to the extent that it can manage the
emergency/ disaster (see table on Chapter C).

Operational Command and Coordination

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When disaster operations are initiated, the National Disaster Controller (CEO, Ministry of Works / Infrastructure ) will be in
overall command. He will exercise this command in close cooperation with the Council and the Committee, as stated in the
National Disaster management Plan.

The Council will be fully informed by the National Disaster Controller and will provide policy guidance to the disaster operation.
The committee will be the operational and decision making body.

Operational Roles of Key Agencies

There are different response activities in relation to the issuance of early warnings. The typical responses are:
 Dissemination of warnings
 Evacuation of affected people
 Security for people and property

As soon as a warning is issued, the responsible agencies should coordinate relevant response activities in relation to evacuation
and providing security for people and property.

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In specific occasions, the Minister himself may decide to take the responsibilities of National Disaster Controller

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Every agency/organization shall include response arrangements and procedures in accordance with their agency/organization
emergency plan.

These arrangements and procedures are to be based on this plan. All major facilities/utilities located within the disaster zone
should begin to implement their emergency response plans.

3. Scenario details:

Summary

Casualties: Fatalities and injuries very low, except for flash floods;
Infrastructure Damage Hundred buildings and infrastructure damaged
Evacuations/Displaced Persons: up to 20.000 people - 4.000 HH
Economic Impact Significant at local level
Main crop harvest could be damaged;
Roads, bridges, and other infrastructure in the disaster areas may be partially damaged;
Emergency humanitarian assistance for shelter, water, food, healthcare and sanitation will
be required;
Potential for Multiple Events Yes, seasonal
Recovery Timeline Months

Scenario Overview:

General Description –

 Cyclone

Cyclones may affect the whole country. Destructive winds will affect most of the coastal areas. Subsistence crops destroyed,
property damage and unprotected coastal infrastructure destroyed. Significant injuries. Power and telecommunications
disrupted.

 Volcanic Eruption
Damage will be greatest on adjacent flora and fauna, infrastructure, tourism, subsistence agriculture and fisheries, and general
property damage. The airports may be closed for prolonged periods (due to ash). No loss of life anticipated. Some villages may
have to be permanently relocated.

 Tsunami

Damage to unprotected coastal areas will occur. Subsistence crop loss and damage to coastal infrastructure are expected.
Fishing industry affected. Significant property damage. Loss of life would be expected for both tsunami generated some
distance away (e.g. Chile-Peru region) despite warning of approximately 13 hours, and more significantly for tsunami
generated in the region (e.g. Tonga - Kermadec trench) as warning periods will be much shorter.

 Urban Fires

The buildings are all attached/close together with no fire protection, or water supply. Fast moving fire would destroy
properties quickly and would be difficult to get under control. Many potential fire sources are present in this area (cooking oils
etc). Major economic impact with many injuries and potentially also loss of lives.

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  Flood

Prolonged heavy rainfall may affect roads, block drains, and flash flooding in locations with the potential to cause a small
number of deaths, crops affected. Most effects short lived.

Key implications

Triggers
 Dissemination of relevant flood alerts issued by Meteorology Division
 NEMO issues warnings, alert and updates
 Local authorities determine that the disaster is beyond their capacity and that it requires a higher level of
response.

Resources for Response

To summarize, in case of medium level scenario, local authorities may need support in:
 Shelter
 Emergency health
 Potable water
 Regeneration of livelihoods

Pre-Raining Season Preparedness & Coordination

Ideally:
 NEMO to organize pre-raining season meetings to review preparations for disaster with reference to
shortfalls
 Coordination meeting with first responders agencies
 Coordination to envisage pre-positioned stock
 Updating of local preparedness and response plans
 Preposition of key response equipment to response agencies, boats, etc.
 Visit by Director NEMO and other key stakeholders to vulnerable sites

Preparedness Measures during Raining Season

 Need based meetings
 Monitor dissemination of early warning to vulnerable areas.

4. Operational Summary

Description

Vulnerable areas  Mostly coastal areas. The whole country concerned

/ periodicity  Most frequent rains are reported between November and April.

Early Warning  Dissemination of relevant alert issued by GoS services

and Triggers o MET/NEMO issue warnings, alert and updates
o NEMO may also determine that disaster requires national intervention.

Consequences  Medium impact scenarios will not critically affect the logistics operations for long periods:
most affected areas will continue to be accessible.
 A very large percentage of the total populations live close to the coast and/or on sea level.
 Except regarding flash floods, medium level scenarios usually lead a low level of injuries /
fatalities.

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 Outbreak of communicable diseases:
 Water-borne diseases:
o Diarrheal diseases,
o Etc.
 Air-borne diseases:
o Respiratory infections

Damages will be noticed in:

 Houses
 Sanitation facilities
 Infrastructures, means of communication, transportation

Lack of access to:

 Shelter
 Safe water
 Sanitation facilities (latrines)
Global strategy Support the governmental services in their response and support coordination of activities with other
of intervention stakeholders/actors

Facilitate access to:

 Shelter
 Safe water
 Sanitation facilities
 Food
 Non food items (soap, blankets, jelly cans, plastic sheeting, pots/ dishes, fire wood, etc)
 Health facilities, targeted services and appropriate supply

Prevent outbreak of communicable diseases:

 Leptospirosis, typhoid …
 Water-borne diseases: Diarrheal diseases
 Air-borne diseases: Respiratory infections
Other concerned  National Governmental agencies:
Actors  United Nations
 Local NGOs, CBOs, FBOs
 Donors
 Private Sector
Scope  Prepare for an initial intervention of 2 weeks (<25.000 people = 5.000 HH).

Preparedness

HR  Prepare for an initial intervention of 2 weeks (<25.000 people = 5.000 HH).

Stocks Technical  HH kits

stocks  Hygiene kits
 Cooking kits
 Sanitation facilities
 Medical supplies
Equipment  Power kits
stock  Communication kits
Local  Priority to local procurement in small quantities to the national or local
procurement agencies.
sources
Coordination  DAC Coordination meetings.
 Report on situation, plans, monitoring and surveillance.

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 5. Concept of Operations

The Concept of Operations detailed here under is managed by the Logistics Unit in place in Tonga.

The objectives and activities of the Logistics Unit in Tonga are the following:
The foremost objective is to support the NEOC in coordinating and operating logistics efforts, and by association the delivery of
various humanitarian assistance programmes.

Logistics Planning Assumptions & Identified Gaps

Given the potential extent of the damages inflicted by medium impact scenarios, and given the lessons learnt from the
previous emergency responses, there is a requirement to ensure coordination between the various levels in intervention
(governmental authorities, private sector, humanitarian actors) assisting the affected communities in order to maximize the
sharing of scarce logistics resources.

 In case of medium impact scenarios, the Tongan government and national organisations should have
sufficient capacity to handle the logistics part of their response programmes.
 Access to all affected areas will be the main challenge for logistics operations.
 The overall management of the logistics information such as NFIs availability, prices, storage & transport
availability and capacities, pipeline information and capacities will play a key role in ensuring efficiency and
effectiveness of the overall humanitarian response operations.
 Worth noting that locally based organisations will require operational support for logistics operations. Private
companies’ assets may be required for temporary (and paid) use.

Concept of Operations – Medium level scenario

Coordination

- The initial Concept of Operations is designed for a first 2 weeks response (with prolongation up to 3 months).
- Based on the request of the NEMO / National Controller, the Logistics Unit will be activated at the NEOC. The
Logistics Unit could also appoint one dedicated Logistician at local level to focus specifically on the facilitation of
logistics operations, coordination and information management (IM).
- During the first days, daily meetings will be conducted (at national level) to offer a forum for information
sharing and decision-making related to logistics operations. Periodicity will then be reviewed based on the situation.

Information Management
- Based on the situation reports, organisations inputs and field assessments, the Logistics Unit will solicit data
from local and districts levels (assets availability, prices, bottlenecks, storage, transport capacities, etc.), compile it and
offer updated information along with the relevant recommendations and technical advices.
- Consolidated IM products - including maps - will be disseminated on a regular basis to ensure that all
involved organisations have access and knowledge of the wider situation affecting the logistics, to aid planning and
decision-making in their respective organisations and clusters.

Liaison
- The Logistics Unit will also act as a liaison with the relevant Governmental line ministries/departments, and
UN agencies to facilitate importation of the humanitarian goods, if needed.

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 6. Suggested SOPs

Activation:

 During “emergency phases”, the NEMO’s Logistics Officer switches to an operational officer (the Logistics Manager),
coordinating emergency logistics operations as an active component of the NEOC and, upon identified need, at the
local level.
 The activation of the emergency phase is decided by the Council.
 On a daily basis, members of the Logistics Unit manage / coordinate the Emergency Logistics Operations and
are seconded to the NEOC operations.

Operations:
Meeting Place: NEOC and Local Offices

Meeting Frequency: During emergencies daily, to be adjusted according to situation

Support – provides and receives support from the NEOC. Support can also be requested from the humanitarian community to
assist in the running of the Logistics Unit.

Activities:
Liaison
- Participate actively in the NEOC
- Participate to the clusters meetings organized by OCHA/UN, if appropriate
- Develop and maintain relevant contacts/networks in the humanitarian, private and governmental structures;
- Intervene, as necessary and as required, on behalf of the humanitarian community to expedite processes and resolve
problems related to Logistics with the Government and among the humanitarian actors;

Information Management
- Consolidated IM products - including maps - will be disseminated on a regular basis to ensure that all involved
organisations have access and knowledge of the wider situation affecting the logistics, to aid planning and decision-
making in their respective organisations and clusters.
- During emergencies, the Logistics Unit organizes logistics coordination meetings, acting as an interlocutor between
participating organizations and the management of the NEOC to monitor and resolve gaps in the delivery of
assistance.

Customs Clearance facilitation

- If import of relief items is needed, the Logistics Unit could establish a “Customs Clearance Facilitation Cell” (CCFC).
This Cell should provide a link between organizations importing relief items into Tonga and the governmental
authorities for customs clearance support facility.

Dispatching and Cargo Tracking

- During emergencies, the dispatching centers will be operated by the Logistics Unit with the potential support of
private companies bringing their professional experience for dispatching operations and commodities tracking.

Access to Ad-Hoc storage services:

- The Logistics Unit coordinates logistics support regarding storage.
- The commodities should - as much as possible – be directly routed to the final delivery points.
- Upon identified needs, for larger scale scenarios:
 Agreements with existing storage capacities (TDS, private companies), for the temporary use of part
of their storage capacities during emergency operations.
 Repackaging and transshipment need to be considered when designing the storage / dispatching
centers.

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 - Storage and dispatching at intermediate hubs:
 Each district to identify temporary storage facilities (governmental buildings, schools, churches …) or
to select – floods safe - areas for the setting up of tents.

Access to Ad-Hoc transport services:

- Regarding the transport, the pipeline will be coordinated by the Logistics Unit
a. The Logistics Unit will be using the transport capacities deployed by the Tongan Government (TDS, Police,
private transport assets) and/or by the NGOs and Red Cross.

Stand Down:

Declared: During meeting of Logistics Unit

Non-declared: On advice of National Disaster Controller.

Upon specific request, support may continue through the recovery phase of a disaster.

Essential Equipment:
 HF / VHF radios
 Vehicles
 Mobile phones
 Sat Phones

Information Access/Management

Required:
 Maps of all of the Tonga Islands including current logistical infrastructure.
 Templates for information management- situation reports, minutes of meetings, etc.
 Templates and systems for cargo tracking
 Current contact details of all Logistics & Support Unit members

Responsible to produce:
 Sitreps for logistical information
 Meeting minutes
 Other relevant information for dissemination to humanitarian community.

Resources/ Support to the Logistics Unit

Customs – Ministry of Finance

 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

NEMO/NEOC
 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

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

Telecommunications
 Maintenance of a national telecommunication capacity, including land-line, mobile telephone, satellite telephone and
internet services
 Advice Government on capacity status during emergencies

Tonga Airports Division –

 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

Tonga Marine & Ports Division –

 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

Police –
 Provide assets and manpower for assessment and delivery of relief items
 Contribute to post-impact assessment processes

Civil Society Forum, NGO’s –

 Assist in the maintenance of the logistics capacity assessment
 Feed logistical information for dissemination to other clusters or agencies
 Identify bottlenecks in the logistics operations and ensure this information is shared.
 Where possible make transport assets available for use by all relief providers

Private Sector -
 Provide operational support to dispatching and cargo tracking activities
 Help facilitate the procurement of relief items, transport assets and other items needed for the relief effort in an
affordable and efficient manner.

Donors –
 Ensure systems are in place for logistics operations to access funds in a timely manner
 Be available to assist in filling logistics gaps through the provision of funds or coordination mechanisms.

UN agencies –
 To provide assistance, if requested by the National Disaster Controller.

7. Logistics Response Work Plan

Logistics Response Checklist

Logistics Questions to be considered by the Logistics & Support Unit to set up the Emergency Response:

 Will there be a need for the deployment of logistics support equipment, such as mobile storage units?

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  Will the disaster response require import operations?
 How will the disaster impact on local partners, contractors and suppliers?
 What are the local storage locations and their capacities? Are they located in a secure area protected from the effects
of the anticipated disaster (e.g. floods)?
 What are the delivery routes from entry points to the affected areas and how easily accessible are they?
 Is there enough in-country transport capacity to serve the needs? If not, how could it be increased?
 What could be the alternative transport modes to reach the affected populations? What would be the schedule for
opening new routes? What actions would be required from the government, UN and others?
 How much food items and NFIs are currently available in stocks? How much emergency relief items are en route and
how long will it take to arrive?

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 Logistics Response Work Plan

LOGISTICS PREPAREDNESS PLAN

Status
Due date/ Resources
Lead Comments

To be done
Deadline set
No. Response activities Timeframe needed

Done
First 24 hours
1  Inform the Logistics & Support Unit members of the activation of NEOC
 Determine type and quantity of assets available in the affected area and
2
around (for assessment purposes) and share
 Collect and centralize information from the field and from partners:
3 accesses, damages to infrastructures, field activities & capacities,
availability of transport assets and storage facilities
 If needed, deploy a logistics assessment team to the affected area
4
together with Programme
 Call for a logistics coordination meeting to:
 Review the logistics requirements
 Assess the need to extend logistics support services to partner
5 agencies
 Ensure that logistics efforts are coordinated

+ circulate the minutes

 Provide a first Sitrep to Logistics Coordination members and to other
6
clusters
7  Create / update an operational contacts list
First 72 hours
 As soon as possible, design and share a Logistics Concept of Operations,
8 including services available (entry points, logistics hubs, dispatching,
storage, transport) and how to access them

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  Receive plans from other clusters and from governmental authorities
9
(procurement, distributions)
 Organize a main logistics hub (dispatching center) linked to the NEOC –
10 reception of relief items, dispatching, transport to intermediate hubs or
to districts for distribution
11  Organize / ensure the setting up of a cargo tracking system
12  Identify / secure temporary storage location.
 Discuss government plans for Customs Clearance process. If needed,
13
provide facilitation to the relief agencies.
 Discuss government plans for transport operations and procedures to
14
access these services.
All along Emergency Operations
 Provide regular Sitreps to Logistics Coordination members and to other
15
clusters
 Update and share logistics operational reports: pipeline, storage,
16
transport …
 Ensure that clearance, storage, dispatching and transport services are
17 accessible to all partners. If needed, coordinate allocation of ad-hoc
transport assets for specific needs
 Ensure that operations at the main ports of entry are running smoothly
18
and that no congestion is faced or planned
 Ensure that temporary storage operations at the main ports of entry are
19
running smoothly and that no delays are faced or planned
 Provide liaison between agencies: governmental, UN, NGOs, private
20
companies, to ensure a coordinated logistics response
21  Ensure logistical support to other clusters, if needed
22  Attend other clusters meetings (at least the operational ones)
 Identify / anticipate gaps and bottlenecks in logistics operations and
23
provide alternative solutions to address them

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 8. Preparedness (Minimum Preparedness Measures)

The emergency logistics preparedness measures are detailed separately (Cf. “Emergency Logistics Preparedness Plan”.
Nevertheless, as disasters are recurrent in Tonga, a Logistics preparedness meeting should be held at National level, each
year, and prior to the wet/cyclones season.

As disasters may occur in any Tongan areas, it is recommended to compile, district / district, all the necessary logistics
related information: infrastructures (roads and bridges data, ports …), services (transport capacities available locally, heavy
equipment, communications equipment …), etc.

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 b. Logistics Contingency Plan 2 – Worst Case Scenario

1. Background information

This scenario is tailored to answer large to extreme impact disasters. Namely, those ones may be category 3 to 5 cyclones
directly impacting Tonga, massive explosive volcanic eruption, large narrow tsunamis.

It is assumed that the Tongan government will not be able to answer alone to this kind of event and will be asking for
international assistance.

Table: Highest risk hazards for Tonga

Hazard Level of Risk

Cyclone
6 Extreme

Volcanic Eruption Extreme

Tsunami Extreme

Forecast:
 Cyclones season usually runs from November to April (even if some cyclones have been referenced in
May).
 There are no other major impact scenario that can be anticipated

Impact:
 Non-Medical
o Destruction of:
 Houses and shelter
 Property and livestock
 Water sanitation facilities
 Infrastructures, communication
o Lack of access to:
 Portable safe water
 Food
 Shelter
o Destroyed or overwhelmed health facilities.
 Medical
o Injuries and deaths
o Displacement, overcrowded living conditions and insufficient water sanitation facilities lead to
outbreak of communicable diseases.
o Other health conditions depending on the scenario:
 Mental health trauma
 Injuries
 Humanitarian

6
Includes storm surge causing coastal inundation and high winds

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 o Displacement

2. EMERGENCY PROCEDURES AND RESPONSE ARRANGEMENTS

Regarding Emergency Procedures, roles and responsibilities, activation process, etc. please refer to Chapter C. Tonga
Emergency procedures and Response Arrangements above.

Emergency/disaster management involves the implementation of actions immediately prior to, during, and immediately
after an emergency/disaster in order to ensure that the effects are minimized and that those affected are promptly
attended.

The responsibility for all emergency management arrangements at national level lies with the Disaster Management
Council. In relation to a specific hazard, one Lead Agency is responsible for emergency response to the extent that it can
manage the emergency/ disaster (see table on Chapter C).

Operational Command and Coordination

7
When disaster operations are initiated, the National Disaster Controller (CEO, Ministry of Works / Infrastructure ) will be in
overall command. He will exercise this command in close cooperation with the Council and the Committee, as stated in the
National Disaster management Plan.

The Council will be fully informed by the National Disaster Controller and will provide policy guidance to the disaster
operation. The committee will be the operational and decision making body.

Operational Roles of Key Agencies

There are different response activities in relation to the issuance of early warnings. The typical responses are:
 Dissemination of warnings
 Evacuation of affected people
 Security for people and property

As soon as a warning is issued, the responsible agencies should coordinate relevant response activities in relation to
evacuation and providing security for people and property.

Every agency/organization shall include response arrangements and procedures in accordance with their
agency/organization emergency plan.

These arrangements and procedures are to be based on this plan. All major facilities/utilities anywhere in the country
should begin to implement their emergency response plans.

3. Scenario details:

Summary

Casualties: Due to an efficient Early Warning system and Evacuation procedures in place, fatalities
and injuries caused by cyclones are usually very low, < 30 deaths; injured people <1,000

7
In specific occasions, the Minister himself may decide to take the responsibilities of National Disaster Controller

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 The unpredictable character of earthquakes / tsunamis and – to certain extends – of
major volcanic explosions lead to a significantly higher number in fatalities and major
injuries.
Infrastructure Damage Buildings destroyed, large debris
Affected/Displaced Persons: < 75.000 people - < 15.000 HH; thousands of homes seriously damaged; tens of
thousands in Evacuation Centers
Economic Impact Up to 15% of Tonga’s GDP
Potential for Multiple Events Yes, seasonal for cyclones
Recovery Timeline Months / Years

Scenario Overview:

General Description –

 Cyclones

The South Pacific location south of the equator results in the frequent occurrence of tropical cyclones with damaging winds,
rains and storm surge; tropical storms pass within 100 km of Tonga ‘s capital Nuku’alofa on average once every four years.

Figure above shows the path of the eye, or centre, of major tropical cyclones having affected Tonga since 1945.

These storms can be very wide, with damaging winds and rain extending throughout Tonga. The colour of the path reflects
the intensity of the storm, as measured using the Saffir-Simpson tropical cyclone scale.

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Category 5 Tropical Cyclone with winds gusting to more than 100mph - Destructive storm surge and high surf increasing to
24 feet affects the coastal areas of the whole country. Very destructive storm surges of 15 to 20 feet will affects most of
the coastal areas of the whole country. Subsistence crops destroyed, severe property damage and unprotected coastal
infrastructure destroyed. Many injuries and some loss of life - Power and telecommunications disrupted for several days
possibly weeks - Potential for further deaths due to disease - Estimated damage over US$100 million.

 Volcanic Eruption

Tonga has a history of volcanic activity, recorded from 1839. There is an active volcano on the island of Niuafo’ou. The last
major eruption was in 1946, when the island was completely evacuated.

Tonga is highly vulnerable to off-shore volcanic hazards because of its geographical location and geological constitution.
The island group is situated at the subduction zone of the Australian and the Pacific tectonic plates and within the Ring of
Fire where intense seismic activities occur. It is about 200km to the west of the Tonga Trench which is a potential source of
tsunami. Most of its atoll islands including the main island are very flat with average altitude of 2–5 meters hence highly
vulnerable to tsunami inundation. Volcanic hazards are often triggered by earthquake events.

An undersea eruption occurred in the west of the islands of Hunga Tonga and Hunga Ha’apai in Tonga in 2009. The eruption
was visible from Nuku’alofa, the capital of Tonga. Steam and ash were emitted more than 1 km high. Steam and ash
column first appeared after series of sharp earthquakes were felt in the capital, Nuku’alofa. This resulted in the
cancellation of both domestic and international aircraft flights, as well had detrimental impacts on the marine ecosystem
around the area of eruption.

 Tsunami
Tsunami is a serious threat for Tonga’s socio-economic, natural and built environment given that 80% of Tonga’s population
and infrastructure are located on low lying coastal areas including the capital of Nukualofa, the center of commerce and
economic activity.

Tsunami risk in Tonga is rated as “extreme”. This is because Tonga lies about 200km west of the Tonga Trench fault zone,
where the Pacific Plate subducts beneath the Australian Plate. Tonga Trench and Volcanic arc are potential sources for a
fault or undersea landslide caused by an earthquake or volcanic eruption, which could generate a tsunami. By and large,
the main areas at risk of a tsunami are all low-lying coastal areas of the inhabited islands of Tonga.

Historical accounts show that some 20 tsunamis have affected many islands in Tonga. 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. More recently, the 2009 8.3 earthquake near Niua Toputapu caused a major tsunami with
waves reaching 6 meters as they hit the island, resulting in 9 deaths, 60 percent of houses destroyed and extensive damage
to infrastructure.

The Niuatoputapu (NTT) tsunami reached maximum height of 16.9m on the southeast coast. Flow heights were between 4–
7m above mean sea level along the western coastline where the villages of Hihifo, Vaipoa and Falehau are located. The
greatest damage was evident in the unpopulated, forested areas of the eastern and northern coastline. In these areas
swathes of matured forest were completely destroyed, debris piles of trees and vegetation were built up on land and in the
lagoon, the shoreline was significantly scoured and the land surface was stripped of soil cover.

 Earthquake

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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.

Picture above shows the epicenters of historically recorded earthquakes since 1900. A blue color represents a magnitude
lower than 5.0 while the orange show a magnitude between 7.5 and 7.9. Stronger events or events occurring closer to the
most populated areas tend to cause more damage. The table under shows the mean return period of earthquakes of
different earthquake magnitudes occurring within 200km from Nuku’alofa.

Key implications

Triggers
 Dissemination of relevant flood alerts issued by GoS services (Meteorology Division)
 NEMO issues warnings, alert and updates
 Local authorities determine that the disaster is beyond their capacity and that it requires a higher level of
response.

Resources for Response

To summarize, in case of medium level scenario, local authorities may need support in:
 Shelter
 Emergency health

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  Potable water
 Regeneration of livelihoods

Pre-Raining Season Preparedness & Coordination

Ideally:
 NEMO to organize pre-raining season meetings to review preparations for disaster with reference to
shortfalls
 Coordination meeting with first responders agencies
 Coordination to envisage pre-positioned stock for floods
 Updating of local preparedness and response plans
 Preposition of key response equipment to response agencies, boats, etc.
 Visit by Director NEMO and other key stakeholders to vulnerable sites

Preparedness Measures during Raining Season

 Need based meetings
 Monitor dissemination of early warning to vulnerable areas.

4. Operational Summary

Description

Vulnerable
areas /
periodicity

 The whole country is concerned

 Cyclones season usually runs from November to April, even if cyclonic events have already
been met in May.
 Low-lying areas of the islands are affected by rising sea levels, with extensive tidal flooding
affecting coastal villages, particularly on Nuku’alofa. Impacts of sea level rise will be significant for
ground water supplies and agricultural production.
Early Warning  Dissemination of relevant alert issued by GoS services
and Triggers o MET/NEMO issue warnings, alert and updates
o GoT may determine that disaster requires international intervention.

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Consequences Injuries and deaths:
 A very large percentage of the total populations live close to the coast and/or on sea level.
 Cyclones usually don’t have a high mortality rate in Tonga due to efficient sheltering and
preparedness measures.
 The unpredictable characters of earthquakes / tsunamis and – to certain extend – of
major volcanic explosions lead to a significantly higher number in fatalities and major injuries.

Outbreak of communicable diseases:

 Water-borne diseases:
o Diarrheal diseases
o Etc.
 Air-borne diseases:
o Respiratory infections

Other health conditions:

 Trauma
 Wounds, fractures

Destruction of:
 Houses and shelters
 Property and livestock
 Water & sanitation facilities
 Infrastructures, communication infrastructures, transportation means

Lack of access to:

 Shelter
 Safe water
 Sanitation facilities (latrines)
 Food
 Non food items (soap, blankets, jerry cans, plastic sheeting, pots/ dishes, fire wood, etc)
 Health facilities
Global Support the governmental services in their response and support coordination of activities with other
Strategy of stakeholders/actors
intervention
Facilitate access to:
 Shelter
 Safe water
 Sanitation facilities (latrines)
 Food
 Non food items (soap, blankets, jelly cans, plastic sheeting, pots/ dishes, fire wood, etc)
 Health facilities, targeted services and appropriate supply

Prevent outbreak of communicable diseases:

 Leptospirosis, typhoid …
 Water-borne diseases: Diarrheal diseases
 Air-borne diseases: Respiratory infections

Monitor and address other health conditions as:

 Mental health trauma
Other  National Governmental agencies:
concerned  Local Governmental agencies
Actors  United Nations
 International NGOs,
 Local NGOs, CBOs, FBOs
 Private Sector
 Donors
 Others

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Scope  Prepare for an intervention of 3 months (up to 75.000 people = 15.000 HH).

Preparedness

HR  Prepare for an intervention of 3 months (up to 75.000 people = 15.000 HH).

Stocks Technical  Shelters kits

stocks  Tools kits
 HH kits
 Hygiene kits
 Cooking kits
 Sanitation facilities
 Medical supplies
Equipment  Power kits
stock  Communication kits
Local  Priority to local procurement in small quantities to the national or local
procurement agencies.
sources
Finance

Coordination  NEOC Coordination meetings with NEMO, OCHA, Health Authorities, other stakeholders/
actors.
 Report on situation, plans, monitoring and surveillance.

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 5. Concept of Operations

The Concept of Operations detailed here under is managed by the Logistics Unit in place in Tonga.

The objectives and activities of the Logistics Unit in Tonga are the following:
The foremost objective is to support the NEOC in coordinating and operating logistics efforts, and by association the
delivery of various humanitarian assistance programmes.

Logistics Planning Assumptions & Identified Gaps

Given the potential extent of the damages inflicted by a major disaster, and given the lessons learnt from the previous
emergency responses, there is a clear requirement to ensure coordination between the various levels in intervention
(governmental authorities, private sector, international & domestic humanitarian actors) assisting the affected
communities in order to maximize the sharing of scarce logistics resources.

Based on the request of the National Controller, the Logistics Unit will be activated as part to the NEOC; and mobilize
various logistics assets, including air and sea transportation capacities, power and communication equipment, which will be
made available to both government and humanitarian organizations through the Logistics Unit.

 Considering the number of affected population in this scenario, during the first 3 months the
humanitarian emergency response will require importing a significant quantity of relief items from abroad.
 Gaps in storage capacities are obvious at all entry points and will require the set up of MSUs in pre-
identified areas.
 Concretely, air transport for the very initial stage to reach the cut off areas (especially as helicopters
will be necessary while not available in the country), sea transport and storage capacity will pose the main
challenges to the Government and humanitarian organisations.
 Humanitarian organisations will require guidance and support with importation and customs
clearance for the relief items, majority of which will have to be sourced from outside Tonga. Similarly, logistics
coordination and information management will play a key role in ensuring efficiency and effectiveness of the
overall humanitarian response.

Coordination

- The initial Concept of Operations is designed for a first response plan up to 3 months.
- During the first days, daily meetings will be conducted (at national and local levels) to offer a forum for
information sharing and decision-making related to logistics operations. Periodicity will then be reviewed based on
the situation.

Regarding the response to a major disaster, Logistics coordination objectives will be met through the execution of the
following activities:

b. Customs Clearance facilitation: As import of relief items is needed, for the initial phase of the
operation, the Logistics & Support Unit establish a Customs Clearance Facilitation Cell (CCFC), composed by
representatives from the Ministry of Finances and from the Customs Division. In addition, a volunteer support from
one of the major Logistics / Freight Forwarding / Shipping / CC brokers companies should be a significant added
value. This Cell should provide a link between organizations importing relief items into Tonga and the governmental
authorities for customs clearance.

During emergencies, the Customs Clearance coordination cell should be operating from the main entry point
(International Airport) or from the main dispatching center, upon decision of the best option and liaise with the
Logistics & Support Unit.

c. Dispatching and Cargo Tracking Cell (DCTC): During Emergency Response operations, Tongan
authorities will set up dispatching centers, most probably at / near all entry points and at identified intermediate

36 | P a g e
 locations, depending on the areas affected by the disaster; all the commodities transiting through the dispatching
centers before being sent to distribution areas.
a. During emergencies, the dispatching centers should be operated by the Logistics Unit with the support of
private companies bringing their professional experience for dispatching operations and commodities
tracking.
b. As all distribution will require repackaging and transshipment operations, this need to be considered
when designing the initial Concept of Operations (an additional hangar, linked to the dispatching centre,
need to be specifically designated to this purpose).

d. Transport Cell (TC): As, during Emergency Response operations, Tonga authorities will set up
dispatching centers; it is recommended that the Logistics Unit set up transport cells in NEOC and at field level to
coordinate / manage transport operations from the dispatching centers to the distribution areas.
a. The Transport & Shipping Cell is responsible for the following duties:
 Land Transport
 Manage transport operations including all transport assets – mainly from the TDS, pre-
identified by governmental mapping - in order to ensure timely delivery of cargoes.
 Identify, mobilize resources, implement and report on special transport operations.
 Coordinate transport operations with the Dispatching and Cargo Tracking Cell.
 Shipping & Air transport
 Manage the operational aspects of all chartered vessels carrying organisation
commodities, including loading and discharging operations and the contracting of
stevedoring services.
 Appoint, instruct and supervise a network of transport assets.
 Liaise closely with TDS and FRANZ coordination in place, as probably, New-Zealand,
France and Australian Military transport assets will be used for transportation of relief
items to the intermediate / final distribution points too (in addition to the up-stream
pipeline).

e. Access to Ad-Hoc storage services: There are clear storage / commodities management issues at all
main entry points (Nuku’alofa, International airport).
a. As emergency operations are likely to happen during the wet seasons, open storage is not an option
b. As relief operations to a major disaster will be of a large scale, direct routing of commodities to the final
delivery points is not an option either.
c. As dispatching centers will operate from all the main entry points / logistics hubs around the operations
areas, it is recommended setting up temporary MSUs close to the dispatching centers.
d. For larger scale scenarios, among the options to consider:
 Tonga government – with the support of donors - to procure MSUs that can be set up quickly
everywhere in the country. Sites should be pre-identified for this purpose
 Humanitarian community, through the PHT, to get the funding for the procurement of “Logistics
Kits for entry points”. Those kits include a MSU, one prefab for office, power generation and
lightning equipment.
 Stand-by agreements with existing storage capacities (mainly TDS), for the temporary use of part
of their storage capacities during emergency operations.
 ! Repackaging and transshipment need to be considered when designing the storage /
dispatching center.
e. Storage and dispatching at intermediate hubs (for large scale scenario) are also an issue.
 Among options to consider:
 Each district to identify temporary storage facilities (governmental buildings, schools,
churches …) or to select – floods safe - areas for the setting up of tents.
 For large scale scenarios, MSUs will probably be the only option. UN agencies / donors
to assess this option.

The Logistics Unit coordinates the process to request logistics support regarding storage.

f. Information Management: During emergencies, The Logistics Unit organizes logistics coordination
meetings, acting as an interlocutor between participating organizations and the NEOC / NEMO to monitor and

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 resolve gaps in the delivery of assistance. It also provides cargo tracking services and regular information products
such as situation reports and bulletins.

Assumptions and constraints:

 The Logistics Unit aims to implement the overall logistics capacity in order to help the government and
organizations to focus their energy on other parts of the supply chain, in particular deliveries. This being said, all the
previous experiences, as well as all the recent assessments done in the country, indicate that logistics is – and remains
– a potential bottleneck. In that optic, to avoid as much as possible the delays/problems in the operations, and to
address the identified logistics gaps, a preparedness plan has been designed.
 As planning assumptions, we may consider that the FRANZ alliance governments will support
upstream operations, up to the entry points / logistics hubs (at least for the initial part of the operations), but also, due
to the specific geographic conditions of the country, support the TDS in the downstream transport operations
(potentially into the final distribution points, as AusAID for example may deploy operational relief teams to the field).
 The planned duration of the operational Logistics Unit intervention is up-to three months. [This may
be revised based on operational exigencies].

6. Suggested SOPs

Activation:
 During “emergency phases”, the NEMO’s Logistics Officer switches to an operational officer (the Logistics
Manager), coordinating emergency logistics operations as an active component of the NEOC and, upon identified
need, at the local level.
 The activation of the emergency phase is decided by the Council.
 On a daily basis, members of the Logistics Unit manage / coordinate the Emergency Logistics Operations
and are seconded to the NEOC operations.

Operations:
Meeting Place: NEOC and Local Offices

Meeting Frequency: During emergencies daily, to be adjusted according to situation

Support – provides and receives support from the NEOC. Support can also be requested from the humanitarian community
to assist in the running of the Logistics Unit.

Activities:

Management and Organisation

- Activate Logistics Damage Assessment SOPs and prepare ground/Air Reconnaissance initial damage assessment
teams to areas of greatest damage as soon as possible
- Activate stand-by agreements through the NEOC

Liaison
- Participate actively in the NEOC
- Participate to the clusters meetings organized by OCHA/UN, if appropriate
- Develop and maintain relevant contacts/networks in the humanitarian, private and governmental structures;
- Intervene, as necessary and as required, on behalf of the humanitarian community to expedite processes and
resolve problems related to Logistics with the Government and among the humanitarian actors;

Information Management

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 - Consolidated IM products - including maps - will be disseminated on a regular basis to ensure that all involved
organisations have access and knowledge of the wider situation affecting the logistics, to aid planning and
decision-making in their respective organisations and clusters.
- During emergencies, the Logistics Unit organizes logistics coordination meetings, acting as an interlocutor between
participating organizations and the management of the NEOC to monitor and resolve gaps in the delivery of
assistance.

Customs Clearance Facilitation

- If needed, the Logistics Unit could establish a “Customs Clearance Facilitation Cell” (CCFC). This Cell should provide
a link between organizations importing relief items into Tonga and the governmental authorities for customs
clearance support facility.

Dispatching and Cargo Tracking

- During emergencies, the dispatching centers will be operated by the Logistics Unit with the potential support of
private companies bringing their professional experience for dispatching operations and commodities tracking.

Transport
- It is recommended that the Logistics Unit set up transport cells in NEOC and at field level to coordinate / manage
transport operations from the dispatching centers to the distribution areas.

Access to Ad-Hoc storage services:

- The Logistics Unit coordinates logistics support regarding storage.
- Upon identified needs:
 Agreements with existing storage capacities (TDS, private companies), for the temporary use of
part of their storage capacities during emergency operations.
 Repackaging and transshipment need to be considered when designing the storage / dispatching
centers.
- Storage and dispatching at intermediate hubs:
 Each district to identify temporary storage facilities (governmental buildings, schools, churches
…) or to select – floods safe - areas for the setting up of tents.

Stand Down:
Declared: During meeting of Logistics Unit
Non-declared: On advice of National Disaster Controller.

Upon specific request, support may continue through the recovery phase of a disaster.

Essential Equipment:
 HF / VHF radios
 Vehicles
 Mobile phones
 Sat Phones

Information Access/Management

Required:

 Maps of all of the Tonga Islands including current logistical infrastructure.

 Templates for information management- situation reports, minutes of meetings, etc.
 Templates and systems for cargo tracking
 Current contact details of all Logistics Coordination members
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Responsible to produce:

 Sitreps for logistical information

 Meeting minutes
 Other relevant information for dissemination to humanitarian community.

Resources/ Support to the Logistics Coordination Group

Customs – Ministry of Finance

 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

NEMO/NEOC
 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

Telecommunications
 Maintenance of a national telecommunication capacity, including land-line, mobile telephone, satellite telephone
and internet services
 Advice Government on capacity status during emergencies

Tonga Airports Division –

 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

Tonga Marine & Ports Division –

 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

Police –
 Provide assets and manpower for assessment and delivery of relief items
 Contribute to post-impact assessment processes

Civil Society Forum, NGO’s –

 Assist in the maintenance of the logistics capacity assessment
 Feed logistical information for dissemination to other clusters or agencies
 Identify bottlenecks in the logistics operations and ensure this information is shared.
 Where possible make transport assets available for use by all relief providers

Private Sector -
 Provide operational support to dispatching and cargo tracking activities
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  Help facilitate the procurement of relief items, transport assets and other items needed for the relief effort in an
affordable and efficient manner.

Donors –
 Ensure systems are in place for logistics operations to access funds in a timely manner
 Be available to assist in filling logistics gaps through the provision of funds or coordination mechanisms.

UN agencies –
 To provide assistance, if requested by the National Disaster Controller.

7. Logistics Response Work Plan

Logistics Response Checklist

Logistics Questions to be considered by the Logistics Unit to set up the Emergency Response:

 Will there be a need for the deployment of emergency kits and other emergency logistics support equipment, such
as mobile storage units?
 Will the disaster response require import operations?
 How will the disaster impact on local partners, contractors and suppliers?
 What are the local storage locations and their capacities? Are they located in a secure area protected from the
effects of the anticipated disaster (e.g. floods)?
 What are the delivery routes from entry points to the affected areas and how easily accessible are they?
 Is there enough in-country transport capacity to serve primary, secondary and tertiary needs? If not, how could it
be increased?
 What could be the alternative transport modes to reach the affected populations? What would be the schedule for
opening new routes? What actions would be required from the government, UN and others?
 How much food items and NFIs are currently available in stocks? How much emergency relief items are en route
and how long will it take to arrive?

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 Logistics Response Work Plan
LOGISTICS PREPAREDNESS PLAN
Status
Due date/ Resources
Lead Comments
No. Response activities Timeframe needed

Deadline

To be
Done

done
set
First 24 hours
1  Inform the Logistics & Support Unit members of the activation of NEOC
 Determine type and quantity of assets available in the affected area and
2
around (for assessment purposes) and share
 Collect and centralize information from the field and from partners:
3 accesses, damages to infrastructures, field activities & capacities,
availability of transport assets and storage facilities
 If needed, deploy a logistics assessment team to the affected area
4
together with Programme
 Call for a logistics coordination meeting to:
 Review the logistics requirements
 Assess the need for LCG to extend logistics support services to
5 partner agencies
 Ensure that logistics efforts are coordinated

+ circulate the minutes

 Provide a first Sitrep to Logistics Coordination members and to other
6
clusters
7  Create / update an operational contacts list

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 First 72 hours
 As soon as possible, design and share a Logistics Concept of Operations,
8 including services available (entry points, logistics hubs, dispatching,
storage, transport) and how to access them
 Receive plans from other clusters and from governmental authorities
9
(procurement, distributions)
 Establish the Customs Clearance Facilitation Cell (CCFC)
 Discuss government plans for Customs Clearance process. If needed,
10
provide facilitation to Logistics Coordination members and to other
clusters
 Set up the Dispatching and Cargo Tracking Cell (DCTC)
 Organize a main logistics hub (dispatching center) near the main entry
11 points and linked to the NEOC – reception of relief items, dispatching,
transport to intermediate hubs or to districts for distribution
 Organize / ensure the setting up of a cargo tracking system
 Identify / secure temporary storage location in intermediate hubs. If
12
needed bring & setup Mobile Storage Units
 Set up transport cells in NEOC and at field level to coordinate / manage
transport operations from the dispatching centers to the distribution
areas
13
 Discuss government plans for transport operations and procedures to
access these services. If needed, provide facilitation to Logistics
Coordination members and to other clusters for separate operations
 If needed, provide facilitation to Logistics Coordination members and to
14
other clusters for separate operations
All along Emergency Operations
 Provide regular Sitreps to Logistics Coordination members and to other
15
clusters
 Update and share logistics operational reports: pipeline, storage,
16
transport …
 Ensure that clearance, storage, dispatching and transport services are
17 accessible to all partners. If needed, coordinate allocation of ad-hoc
transport assets for specific needs

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  Ensure that operations at the main ports of entry are running smoothly
18
and that no congestion is faced or planned
 Ensure that temporary storage operations at the main ports of entry are
19
running smoothly and that no delays are faced or planned
 Provide liaison between agencies: governmental, UN, NGOs, private
20
companies, to ensure a coordinated logistics response
21  Ensure logistical support to other clusters, if needed
22  Attend other clusters meetings (at least the operational ones)
 Identify / anticipate gaps and bottlenecks in logistics operations and
23
provide alternative solutions to address them

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 8. Preparedness (Minimum Preparedness Measures)

The emergency logistics preparedness measures are detailed separately (Cf. “Emergency Logistics Preparedness Plan”.
Nevertheless, as disasters are recurrent in Tonga, a Logistics preparedness meeting should be held at National level,
each year, and prior to the wet/cyclones season.

As disasters may occur in any Tongan areas, it is recommended to compile, district / district, all the necessary logistics
related information: infrastructures (roads and bridges data, ports …), services (transport capacities available locally,
heavy equipment, communications equipment …), etc.

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