I'm confused about my work?

i just started my first job 3 weeks ago. i work with an ngo that defends human rights. i'm the development officer in the organization and i'm really confused as to what i'm supposed to do. my boss travels alot and has a laissez-faire attitude where he's give me a task and leave me alone to do it. so far i'm supposed to do a newsletter and an annual report. i don't really know where to begin and end up sitting in the office being unproductive which ends up with me feeling miserable. so what else am i supposed to do? where am i supposed to start and is it normail for me to be feeling this way?