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This plan will establish policies and procedures that will allow the respective government of Saline County to save lives, minimize injuries, protect property, preserve functioning civil government, and maintain economic activities essential to their survival and recovery from natural and technological hazards. It establishes the guidelines for conducting efficient, effective, coordinated emergency operations involving the use of all resources belonging to these jurisdictions or available to them.




          Saline County is located in the north central part of the state in the Missouri Valley Regional Planning Commission. Counties bordering Saline County are Lafayette to the west, Pettis to the south, Cooper to the southeast, and the Missouri River borders the county on the north and east.


          Based on the 2010 Census, the land area of Saline County is 764.59 square miles with a population of 23,370. The incorporated cities (including population) within the county are: Arrow Rock (56), Blackburn (249), Emma (233), Gilliam (197), Grand Pass (66), Malta Bend (250), Marshall (13,065), Miami (175), Mount Leonard (87), Nelson (192), Slater (1,856), and Sweet Springs (1,484).


          Saline County is vulnerable to many hazards, all of which have the potential to disrupt the community, cause damage, and create casualties. The identified natural and technological hazards include the following (see Appendix 5 to the Basic Plan for further information):


Urban/structural fire


Hazardous materials incident


Transportation accident


Power failure

Severe winter storms

Civil disorder


Heat wave


Public health emergency

Dam failure



          Incidents involving acts of terrorism will be managed as established in Presidential Decision Directive 39 (PDD-39) and Homeland Security Presidential Directive 5 (HSPD-5) which provides specific policy guidance regarding the response to acts of terrorism. See Annex N for further information on terrorism incidents.


          Saline 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.


          Mutual aid agreements, both written and verbal, exist between many of the emergency service agencies, the subdivisions in the county and surrounding areas.


          This emergency management plan is being developed and maintained as required by local executive order, pursuant to Missouri State Law, Chapter 44, RSMo, and the all-hazard emergency planning guidance developed by the State Emergency Management Agency (SEMA).



          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.


          Officials of Saline 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.


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


          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.




          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.


          The chief elected official is ultimately responsible for emergency management activities within the boundaries of the jurisdiction. The Presiding Commissioner of Saline County is responsible for those activities in the unincorporated areas of the county (see Title II, Division 10, Chapter 11, 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.


          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.


          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.


          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.


          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.


          By County Court Order dated March 22, 1971, Saline County created an emergency management organization responsible for the preparation and implementation of emergency functions for Saline County in accordance with Chapter 44, RSMo and the State of Missouri Emergency Operations Plan. Four other communities in Saline County have also established a legal basis for their emergency management organizations:

Emma, Ordinance No. 72, November 3, 1970

Marshall, Ordinance No. 4271, April 2, 1962

Slater, Ordinance No. 2319, February 12, 1968

Sweet Springs, Ordinance No. S-130, July 3, 1972


          All incorporated municipalities within the boundaries of Saline County which have established a legal basis for their emergency management organizations should develop their own emergency operations plan, or coordinate with the Saline County Emergency Management Coordinator to adopt the Saline County Emergency Operations Plan.

Operational Time Frames


          This plan is concerned with all types of hazards that may develop in Saline 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:


          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.


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


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


          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.



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

Direction and Control Annex A

Communications and Warning Annex B

Emergency Public Information Annex C

Damage Assessment Annex D

Law Enforcement Annex E

Fire and Rescue Annex F

Resource and Supply Annex G

Hazardous Materials Response Annex H

Public Works Annex I

Evacuation Annex J

In-Place Shelter Annex K

Reception and Care Annex L

Health and Medical Annex M

Terrorism Annex N

Catastrophic Event Annex O

Agricultural Emergency Annex P


          Saline 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 Office, Ambulance Service, etc.).


          Diagrams of the emergency management structure by emergency function for Saline County are located in Appendix 1 to this Basic Plan.

Assignment of Responsibilities


          Specific groups, departments/agencies, and individuals will be assigned a primary responsibility to prepare for and to perform (coordinate) each of the functions listed previously. Others will be assigned a support responsibility. In some cases a function will be assigned to a county official / agency or a combination thereof. Assignments for Saline County and the municipalities are identified on charts in Appendix 2 to this Basic Plan.


          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 basic list of task assignments by function common for both the county and city organizations.


          It will be the responsibility of those agencies and individuals having a primary and/or support assignment to develop and maintain current standard operating guidelines (SOGs) and checklists which detail how their assigned tasks will be performed to implement this plan.


          Government at all levels 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 needs. Throughout this EOP, 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.).


The Presiding Commissioner of Saline County and the Mayor of each municipality (or their designated representative) are responsible for all emergency management activities to include implementation of an emergency operations plan and directing emergency response within their jurisdiction.

The Emergency Management Director is responsible for the following:


          Coordination of all emergency management activities.


          Make decisions on routine day-to-day matters pertaining to emergency management.


          Advise on courses of action available for major decisions.


          Insure proper functioning of the EOC.


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


          Maintain the EOP.


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

Emergency Operations Center (EOC)

Direction and control will originate from the EOC.


          The primary EOC for Saline County will be located E9-1-1 Center (2025 S. Odell Ave., Marshall), EOC room with the airport terminal (1945 S. Odell Ave., Marshall), and Saline County Sheriff's Office (1915 W. Arrow St., Marshall), as designated alternates. Specific conditions of the specific emergency may require the designation of a differing location to be determined at that time. In the event the primary EOC cannot be used, alternate EOCs have been identified. See Annex A for further information about the EOC.


          The EOC will be staffed according to the level of emergency. See Appendix 3 to this Basic Plan.


          Other communities in Saline County will operate independent of each other and operate their own EOC unless they relegate their authority to another jurisdiction or higher form of government (See Direction and Control Annex for additional information).


          Saline County has access to a mobile communications trailer through the Indian Foothills Radio Club. This trailer is available for on site direction and control in necessary.


Lines of Succession

Saline County


          Presiding Commissioner


          Commissioner, Northern District


          Commissioner, Southern District

(The District Commissioners will follow in order as appointed by the County Clerk.).

Saline County Emergency Management Agency


          Emergency Management Coordinator, (if none assigned, the Presiding Commissioner assumes this role)


          Assistant Emergency Management Coordinator


          As appointed by the County Commission

The line of succession for each department head is according to the Standard Operating Guidelines (SOG) established by each department (See Annexes and department SOG).

In the event circumstances resulting from a disaster prevent a political entity from performing effective operations, assumption of authority will be in accordance with the assumption of authority described in this Basic Plan.

Preservation of Records


          Vital records for Saline County are in various forms such as written, microfilmed, or computerized. The county records are kept by each county office within the county courthouse and / or at each county department that is located outside of the courthouse. Copies of records are kept at the Wood & Huston Bank in Marshall. Essential records for the municipalities are available at each city hall and / or city department.


          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, collector, assessor, etc., must be protected and preserved. These would include legal documents, property deeds, tax records, etc. The following guidelines will apply:

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

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

(3) development of secure and safe storage areas within the jurisdiction.


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


          Further information on preservation of records can be obtained by contacting the Secretary of StateМs Office located in Jefferson City.




          Emergency Authority (see Authorities and References).


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


          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 Saline 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.


          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.


          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 regardless of what type of assistance is required.



          Whenever possible, procurement of necessary resources will be accomplished using normal, day-to-day channels


          During unusual situations when such constraints would result in the loss of life and property, normal requisition procedures can be circumvented. This will be done under the authorities and by the procedures set forth in the local ordinances, court orders, etc.


          Establish policy for obtaining and using facilities, materials, services, and other resources required to support emergency operations


          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.


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


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



          The Saline County EOP was developed through the efforts of the Saline County Emergency Management Coordinator with assistance provided by the State Emergency Management Agency. During the development, various agencies, organizations, and county and city governments were interviewed to discuss their roles, responsibilities, and capabilities in an emergency. This plan is a result of their input.


          The Saline County EOP is a multi-hazard, functional plan, broken into three components: (1) a basic plan that serves as an overview of the jurisdiction's approach to emergency management, (2) annexes that address specific activities critical to emergency response and recovery, and (3) appendices which support each annex and contain technical information, details, and methods for use in emergency operations.


          The basic plan is to be used primarily by the chief executive and public policy officials of a jurisdiction but all individuals/agencies involved in the EOP should be familiar with it. The annexes are to be used by the operational managers and the appendices are for disaster response personnel.


          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 chief elected officials through the Saline County Emergency Management Coordinator. The County Commissioners and Emergency Management Coordinator will sign the promulgation document for all departments and organizations.


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


          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 Coordinator with the approval of the chief elected officials.


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


          This plan will become effective upon the date it is approved and signed by the chief elected officials of Saline County.



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


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


          Presidential Decision Directive 39 (PDD-39), U.S. Policy on Counter-terrorism.


          Revised Statutes of Missouri, Chapter 44, as amended


          State of Missouri Emergency Operations Plan, as amended


          Homeland Security Presidential Directive 5 (HSPD-5) dated, February 28, 2003


          Saline County Order establishing Emergency Management, March 22, 1971


          Guide for All-Hazard Emergency Operations Planning, SLG 101, FEMA, September 1996.


          Pets Evacuation and Transportation Standards Act of 2006, Public law 109-308, October 6, 2006.

(Added September 2015)


Appendix 1- Emergency Management Diagrams by Emergency Function

Appendix 2- Assignment of Responsibilities

Attachment A - Functions & Responsibility Charts

Attachment B - Task Assignments by Function

Appendix 3- Emergency (Disaster) Classification and Control Procedures

Appendix 4 - Procedures for Requesting State and Federal Assistance

Appendix 5 - Hazard Analysis

Attachment A - Earthquake Response

Addendum 1 - Projected Earthquake Intensities (map)

Attachment B - Dam Failure

Addendum 1 - Saline County Dam Inventory

Addendum 2 - Dam Locations (Map)

Attachment C - Transportation Routes (map)

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