Crisis & Emergency Management — Missouri K-12 Education Reference

Table of Contents

1. Missouri School Safety Framework
2. Emergency Operations Plan (EOP)
3. Active Threat Response
4. Natural Disaster Protocols
5. Medical Emergencies
6. Reunification Procedures
7. Continuity of Operations (COOP)
8. Threat Assessment (Expanded)
9. Psychological First Aid & Postvention
10. Drill Requirements & Best Practices
11. Communication During Crisis
12. After-Action Review
13. Community Emergency Coordination
14. Legal Considerations

1. Missouri School Safety Framework

Legal Basis

• RSMo 160.660: every school building must have a safety plan
• RSMo 160.665: School Safety and Security Act provisions
• RSMo 161.215: DESE authority to establish school safety standards
• RSMo 170.315: active threat drills and training requirements

Key Components

• Building-level emergency operations plan (EOP)
• Crisis response team at every building
• Annual review and update of safety plans
• Required drills (fire, tornado, earthquake, lockdown, bus evacuation)
• Coordination with local emergency management and law enforcement
• Threat assessment team
• Mental health and crisis response capacity
• Communication protocols (internal and external)
• Reunification plan

DESE School Safety Resources

• DESE's Office of Quality Schools provides guidance, templates, and training
• Missouri Center for Safe Schools
• Missouri School Safety Center (within Missouri Highway Patrol)
• Regional school safety coordinators

2. Emergency Operations Plan (EOP)

FEMA Guide for Developing High-Quality School EOPs

Federal framework used by Missouri schools:

EOP Structure

1. Basic plan — purpose, scope, situation overview, assumptions, roles/responsibilities, concept of operations
2. Functional annexes — protocols for each emergency function:

• Evacuation
• Lockdown
• Shelter-in-place
• Reverse evacuation (outside→inside)
• Drop/Cover/Hold (earthquake)
• Communication
• Accounting for students/staff
• Family reunification
• Medical triage
• Recovery/mental health

1. Threat/hazard-specific annexes — protocols for specific scenarios:

• Active shooter/armed intruder
• Tornado/severe weather
• Earthquake
• Fire
• Hazardous materials (HazMat)
• Bomb threat
• Pandemic/disease outbreak
• Flooding
• Utility failure
• Bus accident
• Student/staff death
• Intruder (unarmed)
• Missing student

Plan Development

1. Form a planning team (school staff, law enforcement, fire, EMS, emergency management, mental health)
2. Conduct site assessment (identify hazards, vulnerabilities, resources)
3. Develop the plan (using FEMA guide template)
4. Train staff on the plan
5. Exercise and drill the plan
6. Review and update annually (and after any critical incident)

3. Active Threat Response

Standard Response Protocol (SRP) / Options-Based Approach

Run/Hide/Fight (ALICE, Avoid/Deny/Defend, or similar)

Modern approaches give staff and students options rather than a single response:

Lockdown Procedures

1. Announcement: clear, unambiguous lockdown announcement (avoid codes that students don't understand)
2. All students inside classrooms immediately
3. Lock classroom doors (key or automatic lock)
4. Barricade door if possible
5. Move students away from doors and windows
6. Lights off
7. Phones silenced
8. Account for all students in the room
9. Communicate with administration only if safe (text or app, not voice)
10. Do NOT open the door until a verified all-clear is given by administration or law enforcement

Law Enforcement Response

• First responders' priority: stop the threat
• Students and staff will be directed to exit with hands visible
• Staff should follow all law enforcement commands
• Reunification happens at a separate location (not the incident scene)

4. Natural Disaster Protocols

Tornado/Severe Weather

• Watch: conditions favorable for tornadoes — heighten awareness, review procedures
• Warning: tornado spotted or indicated by radar — take shelter immediately
• Shelter locations: interior rooms/hallways on lowest floor, away from windows and exterior walls
• Drop/Cover position: kneel facing wall, cover head/neck with arms
• Do NOT shelter in gymnasiums, cafeterias, or rooms with large-span roofs
• School buses: if tornado is imminent, evacuate bus and seek lowest ground/ditch

Earthquake (Missouri — New Madrid Seismic Zone)

• Drop, Cover, Hold On — drop to knees, cover head/neck under desk or table, hold on
• If no desk: against interior wall, cover head/neck
• After shaking stops: evacuate building (check for structural damage)
• Expect aftershocks
• Account for all students/staff
• Do NOT re-enter building until cleared by facilities/fire inspector

Flooding

• Monitor weather alerts
• Avoid low-lying areas and areas near streams/rivers
• Evacuate if flood risk threatens the building
• Do NOT drive buses through standing water (6 inches of moving water can sweep a person; 2 feet can carry a vehicle)
• Alternative transportation and route planning

Severe Thunderstorm / Lightning

• Move outdoor activities inside when lightning threatens
• 30-30 rule: if thunder follows lightning by fewer than 30 seconds, take shelter; wait 30 minutes after last thunder before resuming outdoor activity

Winter Weather

• Decision tree for school closures, delays, early dismissal
• Communication plan for families (robocall, social media, media partners)
• Safety of bus routes (coordination with transportation director and road crews)
• Shelter-in-place if weather deteriorates during school day

5. Medical Emergencies

Emergency Medical Response Protocol

1. Assess the scene for safety
2. Call 911 (or direct someone to call)
3. Provide first aid within training (CPR, AED, bleeding control, EpiPen, seizure response)
4. Do NOT move the person unless immediate danger exists
5. Send a staff member to guide EMS to the location
6. Notify administration
7. Contact parent/guardian
8. Document the incident

AED (Automated External Defibrillator)

• AEDs should be accessible in every school building (athletic facilities especially)
• Staff trained in CPR/AED should be identified and available during school hours and events
• AED locations clearly marked and accessible (not locked)
• Monthly AED checks (battery, pads, readiness indicator)

Bleeding Control (Stop the Bleed)

Growing movement to train school staff in hemorrhage control:

• Direct pressure
• Wound packing
• Tourniquet application (for life-threatening extremity bleeding)
• Bleeding control kits positioned alongside AEDs

Allergic Reaction / Anaphylaxis

• Administer EpiPen (per student's allergy action plan or school's stock epinephrine protocol)
• Call 911 immediately
• Position student appropriately (sitting up if breathing is difficult; on back if light-headed)
• Monitor until EMS arrives
• Second EpiPen dose if no improvement after 5-10 minutes

6. Reunification Procedures

Standard Reunification Method (SRM)

Developed by the "I Love U Guys" Foundation — widely adopted in Missouri:

Process

1. Notification: parents notified to go to a designated reunification site (NOT the school)
2. Check-in: parents/guardians arrive at reunification site, present ID, and complete a reunification card
3. Student release: school staff match parent/guardian to student using the card system
4. Verification: verify identity (photo ID) and authorized pickup (emergency contact list)
5. Reunification: student brought to parent/guardian; documented on the card
6. Tracking: every student release is recorded (who was released, to whom, at what time)

Reunification Site Selection

• Off-campus location (not the school building)
• Large enough to accommodate families (community center, church, neighboring school)
• Accessible parking
• Multiple entry/exit points
• Communication capability (phone, internet)
• Pre-arranged through MOU with the site owner
• Practiced in drills

Key Principles

• Parents may NOT go directly to the school during an emergency
• ONLY authorized persons may pick up students
• Students with special needs may require additional planning (medical, mobility, communication)
• Media staging area separate from reunification site
• Mental health support available at the reunification site

7. Continuity of Operations (COOP)

What It Is

A plan to maintain essential school functions during and after a disruption (natural disaster, pandemic, infrastructure failure, cyber attack).

Essential Functions

1. Student instruction (virtual learning capability)
2. Student safety and accountability
3. Employee communication
4. Payroll and financial operations
5. Student records access
6. Facility security
7. Food service (or community-based alternative)
8. Special education services (IEP obligations continue)
9. Communication with families and community

COOP Triggers

• Building damage (fire, flood, tornado) making facility unusable
• Extended power or utility outage
• Pandemic (COVID-19 demonstrated the need for robust COOP)
• Cyber attack (ransomware affecting IT systems)
• Community emergency affecting school operations

Virtual Learning Readiness

• Devices and internet access for all students (1:1 program, hotspot lending)
• LMS with content pre-loaded
• Staff trained on virtual instruction
• IEP accommodations and related services delivery plan for virtual context
• Attendance and grading policies adapted for virtual
• Communication plan for families without technology access

8. Threat Assessment (Expanded)

See references/discipline-behavior.md for CSTAG model overview.

Behavioral Threat Assessment: Additional Detail

Pre-Attack Behaviors (Research-Based Warning Signs)

Students who carry out targeted violence typically:

• Communicate intent (social media, writings, statements to peers)
• Research methods or acquire means
• Exhibit a marked change in behavior
• Have experienced a recent significant loss or grievance
• Feel desperate, cornered, or out of options
• Show interest in previous attacks or attackers
• Engage in planning or preparation activities
• May not fit a single "profile" — avoid racial, cultural, or demographic profiling

Reporting Systems

• Anonymous reporting platforms (STOPit, Sandy Hook Promise Say Something app, P3 Campus)
• Teacher/staff referral to threat assessment team
• Parent/community reporting to administration
• Student peer reporting (trained through "See Something, Say Something" programs)
• All reports must be taken seriously and investigated — even anonymous ones

Documentation

Threat assessment documentation should include:

• Date and nature of the threat or concerning behavior
• All information gathered (interviews, records, social media, prior incidents)
• Risk level determination and rationale
• Actions taken (safety plan, parent notification, law enforcement, counseling, discipline)
• Follow-up plan and responsible parties
• Stored securely but accessible to the threat assessment team

9. Psychological First Aid & Postvention

Psychological First Aid (PFA)

See references/school-counseling.md for PFA framework. Key operational steps for schools:

1. Immediately after the event: ensure physical safety; account for students/staff; provide calm, reassuring adult presence
2. Within hours: gather crisis team; disseminate factual information to staff; provide age-appropriate information to students; make counseling available
3. Within days: structured opportunities for processing (classroom meetings, not mandatory debriefing); ongoing counseling for affected students; staff support; parent communication
4. Within weeks: monitor for students with prolonged distress; referral to community mental health; memorial planning (if applicable); return to routine
5. Long-term: anniversary date planning; ongoing monitoring; systemic improvements based on lessons learned

Postvention After Student Suicide

See references/health-wellness.md for detailed postvention protocol. Critical additions:

• Social media monitoring — students may be communicating about the death online; watch for contagion indicators
• Media management — do NOT share method, location, or romanticize the death; work with media to follow safe messaging guidelines
• Funeral/memorial coordination — provide information about services; transportation for students who want to attend; counselors at the funeral
• Identification of at-risk students — close friends, students with known depression/suicidality, students who recently experienced loss, LGBTQ+ students, students who found the person or witnessed the event

10. Drill Requirements & Best Practices

Missouri Required Drills

Drill Best Practices

• Vary drill times and conditions (not always at the same time or day)
• Debrief after every drill (what worked, what didn't)
• Include students and staff with disabilities in drill planning
• Notify local emergency services of drills (especially lockdown/active threat)
• Trauma-informed drill practices: give advance notice when possible, offer opt-out for students with trauma history, avoid overly realistic scenarios that may traumatize students
• Document all drills (date, time, type, duration, observations, corrective actions)
• Progressively increase complexity over the year (tabletop → announced drill → unannounced drill)
• Include substitute teachers and visitors in drill procedures

11. Communication During Crisis

Internal Communication

• All-call/PA system — immediate building-wide notification
• Radios (walkie-talkies) — team communication during lockdown/evacuation
• Text/messaging apps — backup communication; group texting for crisis team
• Email — for less urgent updates to staff
• Backup power — communication systems should function during power outages

External Communication

Crisis Communication Principles

• Be first, be right, be credible
• Acknowledge the situation; don't minimize or speculate
• Provide factual information only (do not share unconfirmed details)
• Express empathy and concern
• State what actions are being taken
• Provide next steps for parents (reunification, schedule changes)
• Update regularly (even if there's nothing new — silence creates anxiety)
• Protect student/staff privacy

12. After-Action Review

Purpose

After any significant incident or drill, conduct a structured after-action review (AAR) to identify lessons learned and improve future response.

AAR Process

1. What was supposed to happen? (plan, procedures, expectations)
2. What actually happened? (timeline, actions taken, communications)
3. What went well? (strengths to sustain)
4. What needs improvement? (gaps, failures, delays)
5. What changes will we make? (specific action items with responsible parties and deadlines)

Documentation

• Written AAR report shared with crisis team, administration, and (in summary form) school board
• Action items tracked to completion
• EOP updated based on findings
• Staff re-trained on revised procedures

13. Community Emergency Coordination

Mutual Aid Agreements

• MOUs with local law enforcement, fire, EMS for emergency response
• MOUs with neighboring school districts for alternate facility use
• MOUs with Red Cross, community organizations for shelter and support services
• Coordination with county/city emergency management agency

Unified Command

During major incidents, schools operate within the Incident Command System (ICS):

• School administrator is the incident commander until emergency services arrive
• Transition to unified command with law enforcement/fire when they arrive
• School liaison works within the command structure
• NIMS (National Incident Management System) training recommended for administrators

Schools as Community Shelters

Many school buildings serve as community emergency shelters (tornado, flooding, etc.):

• Pre-designated shelter locations
• Agreement with Red Cross or emergency management
• Shelter supplies (blankets, water, emergency food)
• Generator capability for essential functions

14. Legal Considerations

Sovereign Immunity

Missouri's sovereign immunity doctrine (RSMo 537.600) provides some protection for school districts from liability, but exceptions exist for:

• Negligence in operating vehicles
• Dangerous conditions of property
• Negligent supervision (limited circumstances)

Duty of Care

Schools have a duty of reasonable care for student safety during school hours and school-sponsored activities. Failure to maintain reasonable safety measures can result in liability.

Documentation Imperative

• Document all safety plans, drills, inspections, incidents, and responses
• Documentation demonstrates due diligence and reasonable care
• Retain records per Missouri records retention schedule
• After an incident, preserve all evidence and records (do not alter or destroy)

Mandatory Reporting

• All school employees are mandated reporters (RSMo 210.115)
• Report suspected abuse/neglect IMMEDIATELY to Children's Division hotline (1-800-392-3738)
• Report criminal activity to law enforcement
• Report acts of school violence to DESE (RSMo 160.261)