2014-04 – St. Louis County – Emergency Operations Plan – West Lake Landfill Incident Action Plan


Leave a Reply

Your email address will not be published. Required fields are marked *

St Louis County
West Lake Landfill Incident Action Plan
St. Louis County, Missouri
WLLFOIA4312- 001 – 0056965
St Louis County
West Lake Landfill Incident Action Plan
St. Louis County, Missouri
This plan will establish policies and procedures that will allow St. Louis and St. Charles
County to save lives in the event catastrophic event at the West Lake Landfill. This plan
establishes guidelines for conducting efficient, effective, coordinated emergency operations
involving the use of all resources. It also addresses the legal issues that may become
significant during a response to an incident at the West Lake Landfill.
A. Chapter 44, Revised Statutes of Missouri; as amended.
B. Chapter 703, Revised Ordinances of St. Louis County.
A. Situation
1. The West Lake Landfill site is on a parcel of approximately 200 acres in
Bridgeton, Missouri. The site consists of the Bridgeton Sanitary Landfill,
which stopped receiving waste on Dec. 31, 2004, and several old inactive
areas with municipal solid waste and demolition debris. The site is divided
into two Operable Units, or OUs. OU-1 consists of radiological areas and
OU-2 consists of the other landfill areas, which did not receive any
radiologically contaminated soil. .·In 1990, West Lake Landfill was listed on
the National Priorities List making it a Superfund site. In May 2008 a
Record of Decision was signed for OU-1, which describes the Selected
Remedy to contain the radiological contamination using a modified solid
waste landfill cover. EPA is the lead agency for this site.
2. OU-2 has had a “sub-surface smoldering event” occurring for several years
If the “sub-surface smoldering event” reaches the radiological area, there is
a potential for radioactive fallout to be released in the smoke plume and
spread throughout the region.
3. The EPA has finalized an Administrative Order on Consent (AOC) -a
negotiated legal agreement-with two of the site’s Potentially Responsible
Parties – Bridgeton Landfill, Inc., and Rock Road Industries, Inc. – that
outlines pre-construction work the parties must perform at the site
(Attachment D). This AOC requires the Bridgeton Landfill, Inc. and Rock
Road Industries to perform a series of tasks to advance, support and prepare
for the construction of an isolation barrier at the West Lake Landfill site.
Construction of the isolation barrier could, potentially cause a release of
radiation or Volatile Organic Compounds (VOC).
4. St. Louis and St. Charles Counties have capabilities and resources, which, if
effectively deployed, would facilitate an emergency evacuation. This will
WLLFOIA4312- 001 – 0056966
St Louis County
West Lake Landfill Incident Action Plan
St. Louis County, Missouri
include the utilization of private and volunteer organizations to the greatest
extent possible.
5. Hospitals, nursing homes, schools, daycares and other facilities will require
special response considerations if an evacuation is ordered.
6. Municipalities directly affected are Bridgeton, Hazelwood, Maryland
Heights, the Village of Champ, and the city of St. Charles.
B. Assumptions
1. This event will most likely occur with little or no warning.
2. Officials of St. Louis and St. Charles County and the municipalities
surrounding the West Lake landfill are aware of the possible occurrence of
an emergency or major disaster requiring an emergency evacuation 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 has the potential to reduce or
prevent the loss of lives in the 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 througp yolunteer organizations, the private sector,
mutual aid agreements, or state and federal sources.
5. In almost every emergency situation requiring an evacuation, a number of
people will evacuate of their own volition.
6. Most of the persons in the affected area will receive and follow the
evacuation instructions; however a certain portion of the population will not
get the information, will not understand it, or purposely not comply with
7. Family groups will evacuate using privately owned vehicles, while persons
without automobiles may have to rely upon other sources of transportation.
8. An emergency/disaster evacuation situation could be multi-jurisdictional,
thereby complicating command, control and coordination efforts.
9. Short term and long term planning should be accomplished in order to
provide for identification of safe, secure, and reliable evacuation routes that
could possibly be utilized.
10. Not all emergency situations resulting from an event at the West Lake
Landfill will require an evacuation, in some situations; it may be preferable
that a “shelter in place” order be given.
WLLFOIA4312- 001 – 0056967
St Louis County
West Lake Landfill Incident Action Plan
St. Louis County, Missouri
11. Notifications of evacuation or shelter in place will be made in a timely
12. Off-site monitoring will take place.
13. Republic, the Environmental Protection Agency (EPA) [Attachment A], the
Missouri Department of Health and Senior Services (DHSS) [Attachment B]
and the Missouri Department of Natural Resources (MDNR) [Attachment
C] will all provide technical assistance in a timely manner.
A. General
1. Local government has the ultimate responsibility an evacuation or shelter in
place order.
2. A Unified Command Post will be designated and the Emergency Operations
Center will be activated.
3. During any evacuation, close coordination will be required with the
following functions:
a. Reception and Care-‘ The evacuees must have some place to go even if
it’s in another city.
b. Law Enforcement- Traffic control along movement routes and security
for evacuated areas are a necessity.
c. Resource and Supply- Transportation for persons without automobiles,
food, clothing, and fuel will be required.
d. Other Support Agencies- Constant interface will be required with the
state and federal government and private agencies such as the Red
Cross and the Salvation Army.
4. The Unified Command Post, based on technical information furnished by
federal, state, and local agencies will determine the need for and the
duration of the evacuation or shelter in place order.
5. During the evacuation, staging areas and pick-up points will be identified to
provide transportation for those without private automobiles or other means.
This will be based on individual need.
6. No one will be forced from his or her residence after being advised to
evacuate. This is pursuant to state law.
WLLFOIA4312- 001 – 0056968
St Louis County
West Lake Landfill Incident Action Plan
St. Louis County, Missouri
7. The Unified Command Post will support existing transportation plans for
such entities as hospitals, nursing homes, schools, etc.
8. Individual transportation may be provided only when it is safe and practical.
9. Monitoring and detection of the hazard( s) will be performed by the affected
Fire District(s), Hazardous Materials Emergency Response Team(s)
(HMERT), the Missouri National Guard’s 7th Civil Support Team (CST),
8. Certain day-to-day governmental activities may be curtailed during
evacuation operations. The degree to which this is necessary will depend
upon the amount of local resources that have been committed to the
10. The Unified Command Post will monitor the traffic flow, reception areas,
and security for evacuated areas to insure that evacuation functions are
proceeding efficiently and effectively.
11. When the emergency/hazard is no longer a threat or danger, the Unified
Command Post Personnel will prepare plans for reoccupation and then will
monitor all return activities. Reentry into the evacuated areas will begin
after the Unified Command Post has declared the area safe. Similarly, if a
shelter in place order is in effec.t, the Unified Command Post will notify all
affected areas when the “all clear” has been issued.
11. The Incident Commanderwill prepare and present after action reports to the
governing body who initiated the evacuation.
B. Plan Activation
1. The responsibility for activation of this plan rests with the Fire Chief or
Battalion Chief of the initial responding fire agency.
2. The Incident Commander from the primary responding agency will notify
all agencies impacted by the emergency evacuation/shelter in place order.
3. A representative from each notified departlnent will respond to the
command post and be assigned emergency Evacuation Coordinator duties.
This representative will act as liaison officer under the existing ICS plans
and coordinate activities that cross jurisdiction lines.
1. By authority of Missouri State Statute, the Chief Elected Official (CEO) of a
community is ultimately responsible for emergency management activities within
that community.
WLLFOIA4312- 001 – 0056969
St Louis County
West Lake Landfill Incident Action Plan
St. Louis County, Missouri
2. The Police Chief or designate of each jurisdiction impacted by the
evacuation/shelter in place order, will have the responsibility to coordinate all
activities within their jurisdiction to carry out the evacuation/shelter in place order,
to include the calling of a Code 1000 to bring in additional Police Officers to
respond to the incident.
3. St. Louis and St. Charles County have developed plans and procedures to perform
the functions relevant to evacuation using all available resources.
4. The law enforcement Incident Commander will work in a Unified Command post
along with commanders from other disciplines and police agencies. A member of
each Police Department will serve as an Evacuation Coordinator in partnership with
a representative of those communities impacted by the disaster.
5. The Coordinators will control all evacuation operations including the following:
a. Designating primary and alternate evacuation routes and indicating those
routes on a map.
b. Estimating traffic capabilities and the amount of time to successfully
evacuate the area of concern.
c. Identifying potential problems along the evacuation route (i.e., road hazards,
or other limiting factors).
d. Estimating the number of people requiring supplemental transportation and
identifying the best means to tr!fiSport them.
6. Depending on the level of the disaster or community impact of the evacuation, other
coordinators may need to be added. Those other areas may include Logistics, Public
Works support, MODOT representation, etc.
The Incident Command System will be used to direct, control and coordinate field
personnel and the use of resources at the scene of an evacuation emergency.
Assumption of direction and control measures of the regional evacuation process by St.
Louis and St. Charles County officials may occur if the threat will necessitate evacuation of
large numbers of people or if multiple jurisdictions will utilize the limited number of
regional evacuation routes necessitating “county-wide” direction and control.
Agency representatives operating from within the coordination center will provide the
Chief Elected Official of their jurisdiction with timely and accurate information regarding
the current characteristics of the evacuation and shall act as an agent for that official
regarding emergency management issues.
WLLFOIA4312- 001 – 0056970
St Louis County
West Lake Landfill Incident Action Plan
St. Louis County, Missouri
A. The St. Louis County Police Department, Office of Emergency Management will
initiate an annual review of this plan and will ensure that necessary changes and
revisions are prepared, coordinated, published, and distributed.
B. If practical this plan will be tested 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 response. This will also provide practical controlled operations
experience to those who have evacuation plan responsibilities.
A. Due to more than one department being impacted by a local or area wide
evacuation, the Evacuation Coordinators from each responding agency will:
1. Establish the area of evacuation.
2. Estimate the population impacted and number of special care institutions.
3. Establish an evacuation route in concert with support agency plans.
4. Coordinate evacuation pickup points.
5. Contact non-law enforcement support agencies.
B. Evacuation Routes
In order to determine evacuation routes, the following will need to be considered:
1. Determine availability of thet11~in arterial roadways.
2. Identify traffic control points and responsible agencies for staffing and
operational control.
3. Establish barricade plans to include location and staffing.
4. Locate electronic message board signs to display evacuation routes, shelter
information and staging/rest areas.
5. Emergency removal of roadway hazards (i.e. disabled vehicles, motor
vehicle accidents, etc.) through local law enforcement tow contracts.
6. During the evacuation, staging areas and pickup points will be identified to
provide transportation for those persons without a means of transportation.
C. Facilities With Special Response Considerations
1. Transportation support will be provided for patients/residents of institutions
requiring special care or attention and rapid evacuation needs to an
evacuation staging area/shelter and pickup points (i.e. hospitals, nursing
homes, schools, etc.).
2. Private and public sources for mass transportation will need to be identified.
3. Liaison will need to be established between transportation sources and
special needs institutions.
4. During extreme emergency situations, law enforcement and/or fire
district/department personnel may provide transportation to an evacuation
staging area or pickup point.
WLLFOIA4312- 001 – 0056971
St Louis County St. Louis County, Missouri
West Lake Landfill Incident Action Plan April2014
A. Administration
The Finance/ Administration Department of each affected community has the
responsibility for keeping track of evacuation-related costs, personnel and
equipment records. If necessary, a supply officer should be designated and
assigned to serve in this capacity.
B. Logistics
Locally owned transportation resources will initially be utilized to evacuate people
and relocate essential resources. Contacts and arrangements for outside
transportation resources (church buses, school buses, etc.) should also be
1. Family pets and other animals will be admitted to shelter facilities opened
for evacuees. Arrangements for the tracking and care of evacuated animals
will be established through the Missouri Humane Society and or the St.
Louis and St. Charles County Departments of Health by previously
developed plans.
2. In the event of a situation involving an emergency/disaster related
evacuation wherein a multi-jurisdictional response is required, the initial
responding law enforcement agency and affected community are responsible
for the procurement of essel,ltiaf supplies needed for evacuation operations.
The affected community’s Finance/Administration Department will provide
support through its established emergency purchasing procedures.
Missouri State Statute as well as county and local ordinances (refer to Section II;
“Authorities and References” above) confer powers on police and elected officials to make
decisions regarding safety and welfare of citizens during times of emergency. While these
laws do not specifically address evacuation directives, they do give officials the authority
to make general welfare decisions when necessary.
Due to the possibility of more than one department and police dispatch center being
involved in an area-wide evacuation/shelter in place order, it is anticipated that multiple
dispatch center radio communications will be difficult. Therefore all Code
1000/evacuation radio communications will be controlled and coordinated by the St. Louis
County Police Department’s Bureau of Communications per Section 5 of the Code 1000
A. Primary Frequency Operational/Tactical Network
WLLFOIA4312- 001 – 0056972
St Louis County
West Lake Landfill Incident Action Plan
St. Louis County, Missouri
Radio communications will be broadcast on the Police Emergency “Radio for
Interagency Operations and Tactics” (R.I.O.T.) frequency, 154.725 MHz. During
any multi-agency evacuation operation, squad supervisors and all other field units
will use the R.I.O.T. frequency on all fixed station consoles, mobile and portable
radios as the primary frequency.
B . Command Network
Command, general staff officers and subordinate unit supervisors may use the
Incident Command frequency (153.965 MHz), available only on portable radios.
Secondary frequencies, such as the National Mutual Aid frequency (155.475 MHz),
might be considered as a second choice for evacuation operations if the R.I.O.T.
frequency becomes overloaded with operational traffic. Special and support units
having dedicated channels, should monitor the R.I.O.T. frequency, but use their
dedicated channels for “in-house” traffic to reduce the number of transmissions on
the R.I.O.T. frequency.
C. Call Signs
Officers using mobile and/or portable radios on the R.I.O.T. frequency will identify
themselves by using the name of the police department to which they belong,
followed by their department service number (DSN), e.g., “Ballwin 134.”
D. Normal Operations
Police officers who have not be~n activated in a Code 1000 or evacuation operation
will continue to use their department’s assigned frequencies and radio call signs so
as not to interfere with priority traffic on the R.I.O.T. frequency.
E. Operational Headquarters
If St. Louis County does not have the ability to coordinate a Unified Command
structure, they may designate a municipal police department’s dispatching center as
a communications center. The dispatching center must have the capability to
dedicate one console and dispatcher for the evacuation operation, and still have the
ability to dispatch that department’s normal calls-for-service.
A. The Public Information Officer (PIO) assigned for the evacuation/shelter in place
effort will coordinate with the Unified Command to insure the proper release of any
information. The PIO will be responsible for developing public information
releases to the media through print and/or on-camera interviews. The PIO’s
responsibilities include:
1. Determine limits on information release from the Incident Commander.
2. Develop material for use in media briefings.
3. Obtain Incident Commander’s approval of media releases.
WLLFOIA4312- 001 – 0056973
St Louis County
West Lake Landfill Incident Action Plan
St. Louis County, Missouri
4. Inform media and conduct media briefings.
5. Arrange for tours and other interviews or briefings that may be required.
6. Obtain media information that may be useful to incident planning.
7. Maintain current information summaries and/or displays on the incident and
provide information on status of incident to assigned personnel.
B. One Public Information Officer will be identified and assigned to coordinate
information flow among the Coordination Team members and release evacuation
information through the media to the public. To avoid conflict in information, there
will be only one evacuation spokesperson at a time during this operation.
WLLFOIA4312- 001 – 0056974