I. PURPOSE

This plan will establish policies and procedures that will allow the governments of St. Clair County and the cities therein to save lives, minimize injuries, protect property, preserve functioning civil government, and maintain economic activities essential to St. Clair County's survival and recovery from natural, technological, and war-related disasters. It will establish the guidelines for conducting efficient, effective, coordinated emergency operations involving the use of all resources belonging to St. Clair County or available to it.

This plan will outline actions to be taken by local government officials and cooperating private or volunteer organizations to: 1) prevent avoidable disasters and reduce the vulnerability of St. Clair County residents to any disasters that may strike; 2) establish capabilities for protecting citizens from the effects of disasters; (3) respond effectively to the actual occurrence of disasters; and 4) provide for recovery in the aftermath of any emergency involving extensive damage within the county.

It is not the intent of this plan to attempt to deal with those events that happen on a daily basis, which do not cause widespread problems and are handled routinely by the city and/or county agencies. It will, however, attempt to deal with those occurrences such as floods, tornadoes, earthquakes, etc., which create needs and cause suffering that the victims cannot alleviate without assistance, and that requires an extraordinary commitment of government resources.

II. SITUATION AND ASSUMPTIONS

A. Situation

1. St. Clair County is located in the west-central part of Missouri. Counties that border St. Clair are Bates and Vernon to the west, Henry to the north, Benton and Hickory to the east, and Cedar and Polk to the south.

2. Based on the 1990 Census, the land area of St. Clair County is 698 square miles with a population of 8,457. The largest communities in the county include Appleton City (1,257), Osceola (841), and Lowry City (676). Other communities include Collins, Gerster, Vista, and Roscoe.

3. St. Clair County is vulnerable to many hazards, all of which have the potential to disrupt the community, cause damage, and create casualties. The identified natural hazards include flooding, tornadoes, wildfire, earthquake and severe winter storms. There is also the threat of a war-related incident such as a nuclear attack. Other technological disasters include dam failure, hazardous materials incidents, power failure, and transportation accidents.

4. St. Clair County has capabilities and resources, which, if effectively employed, would minimize or eliminate the loss of life and damage to property in the event of an emergency or major disaster. This must include the utilization of private and volunteer organizations to the greatest extent possible.

5. Mutual aid agreements

a. The St. Clair County Fire and Rescue Squad has a verbal mutual aid agreement with both the Hickory County and the Polk County Fire and Rescue Squad's Emergency Management Organizations. They also maintain a mutual aid agreement with Ellett Memorial Hospital's Emergency Medical Services and the Appleton City Fire Department.

b. The Ellett Memorial Hospital's Emergency Medical Services (EMS) has written mutual aid agreements with Bates and Cedar County, as well as with Whiteman Air Force Base. They also maintain verbal mutual aid agreements with Golden Valley Hospital, Sac-Osage Hospital, and St. Clair County Fire and Rescue Squad.

c. The Appleton City Police Department maintains verbal mutual aid agreements with both the St. Clair County and Bates County Sheriff's Offices.

d. The Appleton City Fire Department has mutual aid agreements with all surrounding fire services, including the St. Clair County Fire and Rescue Squad, as well as with the Missouri Department of Conservation and Whiteman Air Force Base.

e. The Lowry City Fire Department has written mutual aid agreements with Deepwater, Iconium Fire Protection District, Clinton, and Sac-Osage Fire Protection District, as well as with Whiteman Air Force Base.

f. The Lowry City Police Department maintains mutual aid with the St. Clair County Sheriff's Office.

6. In the event of a nuclear attack, St. Clair County has been designated as a risk area due to the Whiteman Air Force Base missile complex. Therefore, if time permits, residents of St. Clair County would relocate to their safer "host" area, Hickory County.

7. This emergency operations plan is being developed and maintained as required by local executive order, pursuant to Missouri State Law, Chapter 44, RSMo, and Federal Emergency Management Agency (FEMA) guidance.

B. Assumptions

1. Some of the situations as previously stated may occur after implementation of warning and other preparedness measures, but others may occur with little or no warning.

2. Officials of St. Clair County are aware of the possible occurrence of an emergency or major disaster and are also aware of their responsibilities in the execution of this plan and will fulfill these responsibilities as needed.

3. The proper implementation of this plan will reduce or prevent the loss of lives and damage to property in St. Clair County.

4. Depending upon the severity and magnitude of the situation, local resources may not be adequate to deal with every occurrence. It may be necessary to request assistance through volunteer organizations, the private sector, mutual aid agreements, or state and federal sources.

5. Although an attack on this country is considered unlikely, there is that possibility as long as the world's war-making capability exists. Should an attack occur, it would probably be after days or weeks of international tension that would allow such protective measures as evacuation and sheltering to be implemented.

III. CONCEPT OF OPERATIONS

A. General

1. It is the responsibility of local government to provide for a comprehensive emergency management program that meets the emergency needs of those who either have been or might be affected by an emergency or major disaster. When the emergency exceeds the local government's capability to respond, assistance will be requested from the state government. If additional assistance is needed beyond state capabilities, the state will coordinate requests to the proper federal agencies.

2. The chief elected official is ultimately responsible for emergency management activities within the boundaries of that jurisdiction. The Presiding Commissioner of St. Clair County is responsible for those activities in the unincorporated areas of the county (see Title II, Division 10, Chapter II, of the Missouri Code of Regulations). The chief elected official of each municipality (i.e., Mayor) has a similar responsibility within their corporate boundaries. These officials can delegate their authority, but never their responsibility.

3. At no time will the County Commission supersede the authority of the elected officials of any of the incorporated subdivisions unless: (1) requested to do so by those elected officials, (2) the local subdivisions' governmental body is incapacitated or ceases to exist, or (3) empowered to do so by the governor under the authority of Chapter 44, RSMo.

4. This plan is based on the concept that the emergency functions assigned to the various groups, organizations, and individuals involved in this plan will parallel their normal day-to-day functions as closely as possible. The same personnel and material resources will be employed as much as possible in both normal and emergency functions.

5. Those day-to-day functions that do not contribute directly to the emergency operations may be suspended for the duration of the emergency. The efforts that would normally be required for those functions will be redirected to the accomplishment of emergency tasks by the agency concerned.

6. This plan or portions thereof will be implemented according to the emergency classification and control procedures set forth in Appendix 3 to this Basic Plan. The procedures discussed under this appendix will describe what happens when an emergency/disaster occurs, activation of the EOC, response procedures that will take place, and notification of departments/individuals.

7. By County Court Order dated May 22, 1979, St. Clair County created an emergency management organization responsible for the preparation and implementation of emergency functions for St. Clair County in accordance with Chapter 44, RSMo, and the State of Missouri Emergency Operations Plan. Two other communities in St. Clair County have also established a legal basis for their emergency management organization:

a. Appleton City, City Ordinance dated December 4, 1961

b. Lowry City, City Ordinance dated August 11, 1966

B. Operational Time Frames

This plan is concerned with all types of hazards that may develop in St. Clair County and must account for activities before, during, and after an occurrence. The following operational time frames were established for the various actions to be performed within the scope of this plan:

1. Mitigation -- A period of time during which activities are undertaken by individuals/departments to improve their capabilities to respond to a potential emergency and fulfill their assigned responsibilities.

2. Preparedness -- A period of time during which activities are undertaken by individuals/departments to increase their readiness posture during periods of heightened risk.

3. Response -- A period of time during which activities are undertaken by individuals/departments to respond to an occurrence that threatens or harms people/property.

4. Recovery -- A period of time during which activities are undertaken by individuals/departments to provide for the welfare of the people following a disaster and/or emergency.

IV. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES

A. Organization

1. Most of the departments within local government have emergency functions in addition to their normal, day-to-day duties which parallel or complement normal functions. The emergency management organization in St. Clair County will be set up along the following functional lines:

a. Direction and Control

b. Communications and Warning

c. Emergency Public Information

d. Damage Assessment

e. Law Enforcement

f. Fire and Rescue

g. Resource and Supply

h. Hazardous Materials Response

I. Public Works

j. Evacuation

k. In-Place Shelter

l. Reception and Care

m. Health and Medical

2. St. Clair County and each incorporated subdivision should develop a capability in each of these functional areas. In some cases, one agency handles a particular operation for both on a day-to-day basis (i.e., County Family Services, County Health Department, etc.).

3. The organizational charts for St. Clair County and its municipalities are located in Appendix 1 to this Basic Plan.

B. Assignment of Responsibilities

1. Specific groups, departments/agencies, and individuals will be assigned primary and/or support responsibilities to prepare for and to perform each of the functions listed above. In some cases a function will be assigned to a county official or agency, while others to city agencies or a combination thereof. Assignments for St. Clair County and its communities are identified on charts in Appendix 2.

2. The specific tasks to be performed in each function are found in detail in each functional annex. Appendix 2 to this Basic Plan contains a general list of task assignments by function common for a county or city organization.

3. It will be the responsibility of those agencies and individuals having a primary or secondary assignment to develop and maintain current standard operating procedures (SOPs) and checklists which detail how their assigned tasks will be performed to support implementing this plan.

4. All levels of government and private sector organizations involved in community service activities have heavy responsibilities for maintaining awareness of and being prepared to provide for the needs of persons with disabilities or other special problems. Throughout this plan, the requirements of special needs groups will be addressed (i.e., providing medical, transportation, and other related support during emergency situations for the handicapped, elderly, etc.).

V. DIRECTION AND CONTROL

A. General

1. The Presiding Commissioner of St. Clair County and the Mayors of its municipalities (or designated representatives) are responsible for all emergency management activities including the implementation of this plan and directing emergency response within the confines of their jurisdiction.

2. The Emergency Management Director is responsible for the following within their jurisdiction:

a. Coordination of all emergency management activities.

b. Decisions on routine day-to-day matters pertaining to emergency management.

c. Advising on courses of action available for major decisions.

d. Insuring proper functioning of the EOC during emergency operations.

e. Acting as liaison with other local, state, and federal emergency management agencies.

f. Coordinating EOC operations.

g. Other duties as outlined in the local ordinances, court orders, and agreements.

B. Emergency Operations Center (EOC)

1. The primary EOC for St. Clair County will be located at the St. Clair County Courthouse in Osceola. (See Annex B, Appendix 2 for a list of communications capabilities.) A portable generator is available for this facility.

2. The County's alternate EOC would be located at the St. Clair County Jail in Osceola. This location has communications capabilities, including MULES, NAWAS, and two-way radio base stations. A back-up diesel generator is used at this facility.

3. Other communities in St. Clair County will operate independent of each other and operate their own EOCs, unless they relegate their authority to another jurisdiction or higher form of government.

Appleton City:

Primary EOC . . . . Community Building

Alternate EOC . . . Ellett Memorial Hospital

Osceola:

Primary EOC . . . . City Hall

Alternate EOC . . . Fire Station, 3rd & Olive

Lowry City:

Primary EOC . . . . City Hall

H.Roe Bartle Scout Reservation:

Primary EOC . . . . RHQ

Secondary EOC . . . Shop

All of the above locations have communications capabilities available. Also, Appleton City and Lowry City each have portable generators available for their EOCs.

4. The EOCs will be manned according to the level of emergency. See Appendix 3 to this Basic Plan.

VI. CONTINUITY OF GOVERNMENT

A. Lines of Succession

In the event that an official or agency charged with participating in emergency operations is unable to perform, lines of succession will be established to ensure continuous emergency services are provided.

1. The line of succession for the St. Clair County Presiding Commissioner is as follows:

a. Presiding Commissioner

b. District Commissioners

2. The lines of succession for the Mayors of each incorporated subdivision are as follows:

Appleton City--Mayor, Mayor Pro Tem, Board of Aldermen

Osceola--Mayor, Mayor Pro Tem, Utility Superintendent

Lowry City--Mayor, Mayor Pro Tem, Board of Aldermen

H. Roe Bartle Scout Reservation--Resident Director, Ranger

3. The lines of succession for the Emergency Management Directors of the various jurisdictions are as follows:

St. Clair County--Emergency Management Director, Assistant Emergency Management Director, Director of Operations, Director of Logistics.

Appleton City--Police Chief, or the Fire Chief, depending upon the emergency situation

4. The line of succession for each department head is according to the standard operating procedures established by each department (see annexes and departmental SOPs).

5. In the event circumstances resulting from a disaster prevent a political entity from performing effective operations, the next higher political subdivision may assume authority until that political entity is able to adequately resume operations.

B. Preservation of Records

1. St. Clair County stores its essential records in a vault inside the courthouse.

Appleton City stores its vital documents in fire-proof file cabinets in City Hall.

Lowry City keeps its important documents in fire-proof file cabinets in City Hall.

2. In order to provide normal government operations after a disaster, all vital records of both a public and private nature recorded by such county and city officials as the clerk, tax collector, tax assessor, etc., must be protected and preserved. These would include legal documents, property deeds, tax records, etc. The following guidelines will apply:

a. Certain records and documents are vital to the continuance of government following a major disruption of normal activities due to a major disaster. These records and documents are to be identified by officials responsible for their day-to-day maintenance.

b. Resources from local government will be allocated to provide for one or more of the following options: (1) duplication of all such records, (2) timely movement to secure or safe areas outside the danger area, and/or development of secure and safe storage areas in St. Clair County.

3. Each emergency support service (i.e., law enforcement, fire, public works, etc.) must establish procedures to protect records deemed essential for continuing government functions and the conduct of emergency operations.

VII. ADMINISTRATION AND LOGISTICS

A. Administration

1. Emergency authority (See Part IX, Authorities and References).

2. Reports and records as required will be submitted to the proper authorities in accordance with the instructions in the individual annexes.

3. Agreements and understandings with other local jurisdictions, higher levels of government, and other agencies can be utilized to supplement local resources should an emergency situation exhaust the capabilities of Cedar County. Requests for such assistance will be made in accordance with negotiated mutual aid agreements and understandings. All such agreements should be formalized in writing whenever possible.

4. Discrimination on the grounds of race, color, religion, nationality, sex, age, physical impairment, or economic status will not be allowed in the execution of emergency management functions. This policy applies to all levels of government and the private sector.

5. Disaster assistance from the state or federal government will be utilized in accordance with their provisions and statutes. Requests for such assistance can only be made by the chief elected official of the jurisdiction or his designated successor and must be submitted to the Governor of Missouri regardless of what type of assistance is required.

6. Review and written concurrence of this plan and its annexes will be accomplished as follows: Each agency/department of government and private sector organizations assigned emergency responsibilities will review this plan. They will report their concurrence to their Emergency Management Director. The County Commissioners and the Mayors will sign the promulgation document for all departments and organizations.

B. Logistics

1. Supply Requisition Procedures

a. St. Clair County:

Each county/city department is responsible for procurement of its own essential supplies needed for emergency operations through normal procurement channels. If, in the opinion of a department head, specific purchases are necessary for the protection of citizens and property, the department head may make those purchases without standard authorization.

b. Municipalities:

Each city department and agency is responsible for its own supplies needed for emergency operations. Supplies available for emergency operations will include all materials, equipment, resources, and facilities belonging to any unit of the city government.

c. Requisitions of privately-owned property will be in accordance with the provisions of Chapter 44, RSMo.

2. Set up procedures for receiving and managing the donations and services of individual citizens, private sector organizations, and others not included in the formal response structure.

3. Identify, as appropriate, special or critical resources required for radiological and chemical analysis, environmental assessment, biological sampling, etc.

4. Develop procedures for inventory, storage, maintenance, and replacement of administrative and logistical support items during emergency conditions.

5. Identify the availability and accessibility of resources from neighboring jurisdictions, military installations, the state and the federal government.

VIII. PLAN DEVELOPMENT AND MAINTENANCE

A. Review and written concurrence of this plan and its annexes will be accomplished as follows: Each agency/department of government and private sector organizations assigned emergency responsibilities will review this plan. They will report their concurrence to their jurisdiction's chief elected officials. These officials and the Emergency Management Directors of these jurisdictions will sign the promulgation document for all departments and organizations.

B. The St. Clair County Emergency Management Director will instigate an annual review of the plan by all officials and agencies. The Director will ensure that necessary changes and revisions to the plan are prepared, coordinated, published, and distributed. The Director will provide a copy of the plan revisions to all organizations/agencies assigned responsibility for implementation of the plan.

C. This plan will be activated once a year in the form of a simulated emergency, taking into account actual events in order to determine if revisions can be made that would improve disaster response and recovery operations. This will also provide practical controlled operations experience to those who have EOC responsibilities. This will be done by the Emergency Management Director with the approval of the chief elected officials.

D. This plan or any portions thereof will be activated by the order of the chief elected official present, or by the procedures set forth in Appendix 3 to this Basic Plan.

E. This plan will become effective upon the date it is approved and signed by the chief elected officials of St. Clair County and municipalities within St. Clair County.

IX. AUTHORITIES AND REFERENCES

A. Federal Public Law 93-288, Robert T. Stafford Disaster Relief and Emergency Act, as amended

B. Federal Public Law 99-499, SARA, Title III

C. FEMA's Guide for State and Local All-Hazard Emergency Operations Planning (draft) and Missouri's All-Hazard Emergency Operations Guidance (draft)

D. Revised Statutes of Missouri, Chapter 44, as amended

E. Revised Statues of Missouri, 49.070

F. Missouri Code of Regulations, Title II, Division 10 Chapter II

G. State of Missouri Emergency Operations Plan, as amended

H. SEMA's Missouri Hazard Analysis, dated August 1995

I. St. Clair County Court Order dated August 22, 1979

J. Appleton City, City Ordinance dated December, 1961

K. Lowry City, City Ordinance dated August 11, 1966

Appendices

1. Emergency Management Organizations by Emergency Function (for St. Clair County and its municipalities)

2. Assignment of Responsibilities

Attachment A - Primary & Support Responsibilities Charts

Attachment B - Task Assignments by Function

3. Emergency (Disaster) Classification & Control Procedures

4. Procedures for Requesting Assistance

5. St. Clair County Hazard Analysis

Attachment A - Earthquake Response

Attachment B - Projected Earthquake Intensities (Map)

NOTE: See each annex for specific coordinators in each municipality.

A. Primary and Support Responsibilities Charts (Attachment A)

1. These P & S charts will assign specific agencies and/or individuals the responsibility to prepare for and to perform each of the thirteen identified emergency management functions, in addition to hazardous materials response, and also whether they have a primary or supporting role.

2. These charts are general in nature and should not be considered all inclusive.

B. Task Assignments by Function (Attachment B)

1. Following the P & S Charts there is a general list of tasks to be assigned to each function. These are only general lists that will be expanded upon in the various annexes.

2. There is one list of tasks for each function. Some tasks may be common to more than one function.

P-Primary responsibility for function S-Support for function

MUNICIPALITIES

FUNCTIONS AND EMERGENCY RESPONSIBILITIES CHART, PRIMARY & SUPPORT