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«National Disaster Risk Management Policy March 2008 Dili, Timor-Leste FORWARD Because of its geography Timor-Leste is vulnerable to disasters caused ...»

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Secretary of State for Social Assistance and Natural Disasters

National Disaster Management Directorate

National Disaster Risk Management Policy

March 2008

Dili, Timor-Leste


Because of its geography Timor-Leste is vulnerable to disasters caused by

climatic changes which can have a big impact on economic and social

infrastructure and affect the lives of Timorese people.

In this context, the Government considers as a priority the development of policies which contain measures to prevent natural disaster in order to save human lives and property.

Toward this end, there is a need to consolidate a culture of prevention and to provide the Nation with means to prevent natural disasters and or at least to minimise the effects of disasters. For this purpose, the Government deems as

essential priorities the need to:

• Promote studies of the identification of risks zones;

• Create early warning systems, particularly relating to rains and droughts;

• Conduct training and capacity building of human resources in the area of disaster risk management

• Be able to provide immediate response when disaster occurs;

• Establish inter-sectoral coordination mechanisms to respond to natural disasters.” IV Constitutional Government Program Chair of the Council of Ministers 2007-2012 iii Introduction Our Constitution recognizes and guarantees the right to life of all Timorese citizens. This includes the right to live, healthy and ecologically balanced lives and the obligation to protect the environment for future generations.

In this context, disaster risk management is fundamental to the socio-economic development of the country. The IV Constitutional Government takes this responsibility with seriousness, and the National Disaster Risk Management Policy establishes the objectives for the Disaster Risk Management sector for the next five years.

The Ministry of Social Solidarity, through the Secretary of State for Social Assistance and Natural Disasters, has the task of developing an integrated disaster prevention system. The Ministry must be able to respond to our national reality and be able to provide disaster response support to all national citizens and foreigners who, in case of a disaster, require assistance.

This document is consistent with the National Development Plan, the State Budget and the Financial Plan, and the IV Constitutional Government Program, as well as with the plan for gradual decentralization of public administration.

This policy lays out the Government’s approach to disaster risk management.

Previously, the Government’s approach was contained in the form of National Disaster Management Plan by the Ministry of Interior. However, it has now been transformed into a national policy by the Ministry of Social Solidarity, the Secretary of State for Social Assistance and Natural Disasters and National Disaster Management Directorate. This policy is the result of extensive research and consultations with a range of stakeholders including technical groups, professionals, scientists, specialized regional and international agencies, members of civil society from various parts of the country in addition to other Ministries of the Government and the civil protection services.

The principle and the objectives of the National Disaster Risk Management Policy will enable the Timorese people to be more prepared and participative in the prevention of disasters and disaster risk management with the aim to protect and reduce the loss of human lives and properties, contributing to the wellbeing and tranquility of our people.

–  –  –

District Administrator DA National Security Advisor NSA District Disaster Coordinator DDC District Disaster Management Committee DDMC National Disaster Risk Management Inter-Ministerial Commission


National Disaster Coordinator CND National Disaster Operation Centre CNOD Sub-District Disaster Management Committee CSGD National Security Council CSN Cruz Vermelha de Timor-Leste CVTL National Disaster Management Directorate NDMD Forces of Defence Timor-Leste F-FDTL National Disaster Management Office NDMO Government of Timor-Leste GTL Non-Governmental Organisation NGO National Disaster Risk Management Policy NDRMP National Police of Timor-Leste PNTL United Nations Development Programme UNDP Standard Operating Procedures SOP National Crisis Management Framework NCMF Relief Supply Management System DAMS - Disaster Assistance DAMS Management System Disaster Assistance Management System SUMA Geographical Information System GIS Disaster Management Information System – hazard, risk and vulnerability DMIS data and geographical information system at the NDMD United Nations Disaster Assessment and Coordination Team UNDAC United Nations Disaster Management Team UNDMT United Nations Mission in Support of Timor-Leste


United Nations Mission in East-Timor UNMIT United Nations Office for the Coordination of Humanitarian Affairs







Table of Contents

Terminology…………………………………………………………………………………viii Executive Summary

1. Background and Context

1.1 General Situation

1.2 Cartographic and Demographic Profile of the Country

1.3 Risk Assessment ……

1.4 Disaster Risk Reduction Framework

1.4.1 Risks Assessment and Analyses

1.4.2 Risk Management

1.4.3 Risk Communication to the Public

1.4.4 The Social, Economic and Environmental Context of Disaster Risk Reduction Framework..9

2. Vision, Mission, Basic Principles and Objectives

2.1 The Vision for the Disaster Risk Management Sector.

2.2 The Mission of MSS

2.3 Main Objectives of Disaster Risk Management……

2.4 Basic Principles………

3. Policies and Priorities

3.1 General Policies

3.2 Specific Policies …

3.2.1 Strategies for the Sector

3.2.2 Integrated Hazard, Vulnerability,Risk Analysis to Action Systems (Early Warning) 16 Specific Policy 1: Hazard and Vulnerability Monitoring and Analysis Specific Policy 2: Regional Early Warning Monitoring and Analysis Specific Policy3: Emergency Disaster Reporting and Communication to the Public 18 Specific Policy 4: Principles and Responsibilities for Effective Early Warning…....18 3.2.3 Emergency Management… Specific Policy of Safe Refuge and Evacuation Plans ………… Specific Policy of Post-Disaster Survey Specific Policy on International Assistance ……

3.2.4 Customs, Emigration and Quarantine

3.2.5 Financial Consideration

3.3 Priority Actions

3.3.1 Awareness Raising…

3.3.2 Recovery and Knowledge Development Damage Assessment Reports and Recovery Activities ……… Post-Disaster Review Operational Debriefings …

3.3.3 Capacity Building Needs and Tools …………

vi Guiding Principles for Training. Capacity Building Tools

4. Organization and Disaster Risk Management

4.1 Organizational Structure

4.1.1 Inter-Ministerial Commission for Disaster Management (CIGD)

4.1.2. National Disaster Management Directorate (NDMD)

4.1.3 National Disaster Operation Centre (CNOD).

4.1.4 Organizational Structure at District, Sub-district and Sucos… Districts Sub-Districts Sucos

4.2 Declaration of State of Disaster

4.3 Responsibilities of Departments/ Agencies

4.3.1 Operational Response and Tasks of Departments/Agencies

4.4 Sub-Plans and Contingency Plans…………………………

4.4.1 Food Security

4.4.2 Health

4.4.3 Education….……

4.4.4 Defense

4.4.5 Internal Plans for all Departments and Agencies

–  –  –

Hazard analysis Identification, studies and monitoring of any hazard to determine its potential, origin, characteristics and behaviour.

–  –  –

Project planning Sequencing of tasks to achieve the project objectives through timely project implementation and ensuring efficient use of resources. It includes determining tasks, benchmarks of achievements, assigning responsibilities, developing a timetable based on activities, and determining resource allocation and

–  –  –

ix Executive Summary This National Disaster Risk Management Policy (Policy) aims to respond to the constitutional mandate to identify priorities to guide Government objectives and strategies in order to guarantee the security and safety of our citizens and their property and to safeguard our natural resources against natural or human-induced disasters.

A contextualised analysis of the current and future gaps and needs linked to a coherent vision and mission for peace and security for the population and the promotion of continual national economic growth justify and guide the present proposal.

Timor-Leste is located in a region that is highly vulnerable to natural disasters, include droughts, cyclones, earthquake, floods, storm winds, landslides, emerging infectious diseases and pests such as locusts. A retrospective analysis and assessment of disasters occurring in the region shows that there is a need to develop and strengthen national capacities to manage natural disasters, as well as disasters and emergencies caused by human beings.

It is the objective of the Ministry of Social Solidarity, in partnership and cooperation with other relevant institutions and government agencies, civil society, international partners and communities to be effectively organized in order to be able to guarantee the human security of the population in case of a disaster.

The Policy outlines plans to develop disaster risk management programs including risk analyses, vulnerability monitoring, early warning, emergency management, post-disaster research and review, recovery and knowledge development, awareness raising and human resource development. The Policy is in line with internationally recognised approaches to DRM, notably the Hyogo Plan of Action 2005-2015. The policy also takes into account socio-cultural, local, regional, political, economical and environmental realities of TimorLeste. It recognises the need for institutional capacity building, organizational and decentralised administration of disaster risk management as well as the need for participation of children, youth, women and vulnerable groups.

In this context, the Ministry of Social Solidarity through the National Disaster Management Directorate (NDMD) is seeking to: engage all levels of society; promote the integration of disaster management in different government development programs; improve disaster risk management in all sectors at all institutional and operational levels; achieve financial sustainability through the use of greater resources; and preserve our natural environment to guarantee peace for all Timorese people.

These priorities need to be refined and improved through evaluation, monitoring, improving our meteorology services, decentralisation and developing better oversight mechanisms for disaster risk management beginning with the development of process and results focused performance indicators.

In regard to institutional, technical and human capacity development, administration and management are priority issues that require special attention. Improving the organisation and management of disaster risk management services as well as training and building the capacity of disaster managers at national, district and community levels in community awareness raising, among other things, constitutes a key challenge for the Ministry of Social Solidarity to ensure the sustainability of its policies and actions.

x The creation of national, district and local bodies for disaster risk management with the skills and mandate to provide technical and political assistance to disaster managers to be supported, in turn by community members and non-governmental and international institutions provides a framework for the State and the community to work together, recognising the needs, rights and obligations of each party.

Finally, the integration of the disaster management sector in all plans and development programs of Government institutions, constitutes an important aspect for strengthening the post-disaster recovery process.

This Policy is the result of a genuine and integrated vision of civil society, institutions involved in disaster management, political leaders and Government agencies and bodies. It provides platform from which to develop programs, plans and management in disaster risk management over the period of 2008 – 2012.

xi1 BACKGROUND AND CONTEXT1.1 General Situation

This document is a result of the work of the National Disaster Management Directorate (NDMD) established by the United Nations Transitional Administration East Timor (UNTAET), the East Timor Transitional Authority (ETTA) and UNDP who conducted an overall analysis of the risks of and vulnerabilities to disasters that face Timor-Leste.

A turning point for Disaster Risk Management (DRM) in Timor-Leste was the Indian Ocean Tsunami which occurred in late December 2004, immediately after which a strong sense of vulnerability to potential earthquakes and tsunamis emerged among the Timorese community. This led to recognition in Timor-Leste of the need for a proactive approach to managing disasters.

In response to the raised level of concern among the community, the importance of disaster management increased as a priority for the Government. The Government of Timor-Leste now keenly supports the development of DRM policy directives and dissemination channels

for distribution of information on risks of disasters. In particular, two points are highlighted:

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