Managing crowds safely

Transcription

1 Health ad Safety Maagig crowds safely A guide for orgaisers at evets ad veues This is a free-to-dowload, web-friedly versio of HSG154 (Secod editio, published 2000). This versio has bee adapted for olie use from HSE s curret prited versio. You ca buy the book at ad most good bookshops. ISBN Price This booklet aims to provide practical guidelies o maagig crowd safety i a systematic way by settig out a approach which ca be utilised by orgaisers of ay evet or veue. Guidace is targeted at all owers ad operators i all public veues where the HSW Act applies. The veue may be used regularly, (eg shoppig cetres ad sports grouds, or occasioally (eg fireworks displays ad agricultural shows). The guide is aimed at orgaisers, but will also be of iterest to veue staff ad cotractors HSE Books Page 1 of 63

2 Health ad Safety Crow copyright 2000 First published 1996 ISBN All rights reserved. No part of this publicatio may be reproduced, stored i a retrieval system, or trasmitted i ay form or by ay meas (electroic, mechaical, photocopyig, recordig or otherwise) without the prior writte permissio of the copyright ower. Applicatios for reproductio should be made i writig to: The Office of Public Sector Iformatio, Iformatio Policy Team, Kew, Richmod, Surrey TW9 4DU or [email protected] This guidace is issued by the Health ad Safety. Followig the guidace is ot compulsory ad you are free to take other actio. But if you do follow the guidace you will ormally be doig eough to comply with the law. Health ad safety ispectors seek to secure compliace with the law ad may refer to this guidace as illustratig good practice. Page 2 of 63

3 Health ad Safety Cotets Itroductio 4 Plaig 7 Assessig risks 16 Puttig precautios i place 26 Emergecy plaig ad procedures 35 Commuicatio 40 Moitorig crowds 46 Review 49 Appedix: relevat legislatio 52 Refereces 60 Further iformatio 62 Maagig crowds safely Page 3 of 63

4 Health ad Safety Itroductio The guide ad its aims 1 Crowds are uavoidable occurreces of everyday life; problems i their safe maagemet are ot. This guide aims to provide practical guidace to help those orgaisig evets to maage crowd safety i a systematic way. It does ot specify a particular way of achievig crowd safety, but sets out a geeral approach. 2 Although primarily aimed at orgaisers who have overall resposibility for the evet, the guide will be of use to others ivolved i the evet, such as veue staff ad cotractors. 3 There is potetial for mior or major ijury occurrig through the dyamics of crowd behaviour, as past tragedies have demostrated. Measures should be take by the orgaisers of evets to esure that there is effective ad safe crowd maagemet so that overcrowdig does ot occur. 4 Crowdig occurs as a result of a excessively large umber of people gatherig i a specified area. Large umbers gather routiely i such places as shoppig malls, trai statios, bus statios etc. However, they also gather, ofte i greater desity, where particular attractios or evets are takig place, such as at sportig evets, cocerts, theatres, ciemas ad festivals. At such evets there may be greater risks to their safety. 5 This guidace addresses: evets, both sportig ad o-sportig, at football stadia ad other sports grouds; evets at sites ot desiged for the purpose such as parks or idustrial uits, eg a fair o a tow commo or a public air-show o a airfield; ad evets i streets or built-up areas, eg street fairs, carival processios, New Year celebratios. 6 For the purpose of this publicatio, the orgaiser is take to be ayoe who has prime resposibility for the evet. The arragemets themselves may ivolve a umber of people, depedig upo the cotractual arragemets uder which the evet is to be ru. 7 I order to successfully ru the evet, orgaisers may employ staff or use voluteers. They may hire self-employed people (such as lightig maagers) or cotractors (for stewardig duties or erectio of a temporary stad). They may also hire out plots for caterig, merchadisig or attractios, such as fairgroud rides. 8 The parties ivolved all have duties uder health ad safety legislatio. The duties are outlied i the followig paragraphs ad further details are give i the Appedix. Close liaiso ad strog commuicatio are essetial i esurig that health ad safety resposibilities for the evet are idetified, assiged ad adhered to. These iclude resposibility for crowd safety. Maagig crowds safely Page 4 of 63

5 Health ad Safety 9 If, as a evet orgaiser, you are i charge of a busiess or orgaisatio, you will have geeral duties uder the Health ad Safety at Work etc Act 1974 (HSW Act) 1 to esure that risks to people s health ad safety arisig from work activities, icludig members of the public, self-employed persos, voluteers ad cotractors, are properly cotrolled. You may allocate elemets of the orgaisatio of your evet to others, eg evet stewards provided by a cotractor, but you will retai overall resposibility for esurig the safety of the visitig crowds. 10 Cotractors ad subcotractors, as employers, have duties uder the HSW Act to esure the health ad safety of members of the public, who may be affected by their udertakig. For example, a cotractor will eed to esure that the barriers they are erectig will ot fall over ad cause ijury to the crowd. The self-employed have similar duties. 11 The Maagemet of Health ad Safety at Work Regulatios 1999 (the MHSW Regulatios) 2 geerally make more explicit what employers ad the self-employed are required to do to maage health ad safety law uder the HSW Act. The MHSW Regulatios set out key steps to esure that activities, icludig evets, are maaged safely. 12 The iformatio i this guide expads o the chapter o crowd maagemet i The evet safety guide, 3 which covers may other issues for orgaisers to cosider whe stagig a evet. Sectio summary The followig sectios provide advice that should help you ru a safe ad successful evet. They should also help meet your legal obligatios to protect the audiece ad staff. Plaig Describes importat milestoes i plaig your evet. A safe ad trouble-free evet requires good plaig from a early stage. You eed to esure that your precautios to maage crowds are adequate ad appropriate for the expected umber ad type of visitor. Plaig ivolves gatherig backgroud iformatio to eable both thikig ahead ad assessig risks, ad time to develop or modify plas. Assessig risks Describes how to systematically idetify hazards which could affect crowd safety, eg surgig ad swayig, estimate the size of the problems ad decide what you eed to do to address the problems. This process is kow as risk assessmet, which ivolves the idetificatio ad assessmet of risks to crowd safety withi a veue ad the developmet of steps required to miimise them. Depedig upo the outcome of the risk assessmet, plas may be modified. Puttig precautios i place Gives examples of practical precautios that ca be take to address potetial hazards idetified through your risk assessmet. Describes arragemets for the selectio ad traiig of staff. Emergecy plaig ad procedures Sets out issues to cosider whe plaig for the safe maagemet of crowds i the evet of a emergecy, eg due to fire or bomb threat. Such plas are very importat as a emergecy could ivolve rapid, large-scale movemet of people with potetial for overcrowdig. Maagig crowds safely Page 5 of 63

6 Health ad Safety Commuicatio Describes importace of good commuicatio ad gives practical examples. Effective commuicatio is particularly importat i the safe maagemet of crowds. Provisio of clear, uambiguous iformatio to visitors ca help prevet dagerous situatios arisig. Good commuicatio betwee staff assists a rapid ad appropriate respose if problems arise. Moitorig crowds Covers the actios ivolved i implemetig your plas ad checkig to make sure they have bee implemeted correctly. Where crowd activity may develop ito hazardous overcrowdig, moitorig should be i place to idetify potetial problems ad quickly sort them out. This sectio gives examples of practical approaches to crowd moitorig. Review Sets out ways to formally review the crowd safety system of your evet ad explais the eed to do so. Reviews ca be a debrief after a evet, part of a ivestigatio followig a crowd-related icidet, or scheduled routie examiatio. Subsequetly, plas ca be modified ad future plas updated accordig to the outcome of your review. Reviewig oe-off evets or regular review of safety measures at your veue provides importat feedback for improvig crowd safety stadards ad checkig that your precautios cotiue to be appropriate. Maagig crowds safely Page 6 of 63

7 Health ad Safety Plaig 13 Good plaig from a early stage will help you ru your evet safely. You eed to allow sufficiet time to gather iformatio, cosult ad obtai advice ad put i place effective precautios to maage crowd safety. The safe ruig of your evet should be give equal priority to other busiess aims. 14 It is importat to ivolve staff represetig differet facets of the evet, eg techical staff, security, merchadise. Where appropriate, represetatives of relevat outside bodies, such as local authorities ad emergecy services, should be brought ito the plaig process. 15 To miimise the risk of overcrowdig, you eed to cosider the activities, movemet ad dyamics of the crowd at various parts withi the veue, at the etrace ad exits, o the pedestria routes to ad from the veue ad at the trasport ad parkig facilities. First steps 16 As a early priority, you eed to establish that you ca maage crowd safety for the type of evet ad at the veue you have chose. A acceptable level of crowd desity varies accordig to the veue. A prelimiary walk aroud your proposed veue, carryig out a visual ispectio, is essetial to fid out both the suitability ad the acceptable level of crowd desity for your evet. Key issues to cosider at this stage are cosidered below. Expected turout 17 Whe forecastig your expected turout, you may fid it helpful to cosider: attedace o previous occasios; umbers visitig similar evets; proposed level of publicity; advace ticket sales; the effect of Bak Holidays, school holidays or good/bad weather; whether some days are goig to be particularly busy, eg first or fial days; whether ay extra visitors will atted special attractios takig place at the evet; ad allowace for uexpectedly large umbers of people turig up. Types of visitor 18 The ature of the visitig crowd will ifluece your plaig ad choice of veue. Childre, people with special eeds ad the elderly eed special cosideratio. People frequetly atted evets as a family or small group ad will ot wat to get separated or leave each other, particularly i emergecy situatios. 19 Performers ca have a sigificat ifluece o crowd mood ad behaviour, eg by jumpig ito the crowd or throwig items ito it, or by calmig the crowd, if pushig or surgig starts to occur. Several acts/performaces at a evet may attract differet groups of people, resultig i cosiderable crowd movemet. For example, where oe particular performer has a large or ethusiastic followig, the audiece may suddely surge forward ad crushig could result. Maagig crowds safely Page 7 of 63

8 Health ad Safety 20 Crushig, tramplig ad suffocatio are all potetial hazards that ca arise from the dyamics of crowd movemet. To help avoid harm from crowd surges etc, esure that crowd behaviour ad movemet are moitored effectively, eg by placig stewards/cctv at suitable vatage poits. All staff should kow their precise roles i crowd moitorig ad who has the authority to take immediate actio (eg by stoppig the evet) if people are at risk. Gettig to ad from the veue 21 Pla your trasport maagemet arragemets well i advace, eg: Where are the earest bus ad trai statios located ad will existig timetables be adequate? Where are the local car ad coach parks? Is existig parkig adequate? Is the layout of roads ad pedestria routes to the veue adequate to deal with the expected turout? Are there ay other veues earby (especially those which may affect the crowdig situatio at your evet)? Is ay costructio work beig carried out or proposed i the area? Roadworks could delay the arrival of crowds ad lead to a late rush. Veue suitability 22 Esure that the maximum capacity of the veue is established. This is to allow: maagemet of the crowd ad help i elimiatig overcrowdig i terms of overall umber of people i the veue; safe etrace ad exit; ad safe exit of people i a emergecy. Esure staff are briefed thoroughly 23 The maximum capacity should be calculated with referece to four factors: the time it takes to get ito the veue; the time it takes to get out of the veue; emergecy evacuatio time; ad accommodatio capacity. Maagig crowds safely Page 8 of 63

9 Health ad Safety Each of these capacities is likely to give a differet figure. The safe capacity is the lowest of the four. 24 Whe calculatig capacity, esure that allowace is made for areas take up by facilities such as food ad merchadisig stalls, temporary structures etc as people caot use these areas. Areas where there is o easy access to view the mai attractio(s) should also be idetified. Whatever the results of the calculatio, the capacity should ever exceed the limit calculated for meas of escape purposes. (More guidace o this poit ca be foud i the first chapter of the Statioery Office publicatio Guide to safety at sports grouds.) 4 25 Cosider the distributio of crowds ad how this might affect permissible capacity. Are the followig adequate for your proposed evet? Capacity of the veue Etraces ad exits Meas of escape i evet of emergecy Provisio for people with special eeds Maiteace of veue ad equipmet (eg turstiles) Facilities such as toilets ad iformatio poits Access to first-aid facilities Suitable meas of access/exit for emergecy services Provisio for adverse weather coditios Arragemets i place to esure crowd safety if maiteace or costructio work is beig carried out i the veue 26 The amout of space available to the audiece is a importat factor to cosider. For example, more space may be eeded at a pop cocert tha a sportig evet due to the time people will be i the veue. See the checklist after paragraph 61. Excess arrivals 27 If there is ay possibility that the umber of people arrivig at the veue will come ear to or exceed the overall capacity of the veue, you will eed: a system for restrictig the umber of people who arrive at the veue as well as those who eter it. This demads close liaiso with the police ad trasport operators at the plaig stage ad durig the lead-i period before the evet; ad arragemets for closely moitorig the umbers of people arrivig. 28 You could: make the evet all-ticket, eve if it s free; pla the advertisig campaig to emphasise that it s all-ticket oly; iclude i the advertisig that the ticket-oly rule will be strictly eforced; discuss with the police how crowds could be redirected before reachig the veue; discuss with the trasport operators the possibility of aoucemets at statios, advisig the public of crowd problems at the veue; ad use local radio to advise o the curret situatio at the veue. Maagig crowds safely Page 9 of 63

10 Health ad Safety Previous iformatio collected 29 You could refer to: experiece of similar veues or evets; problems raised at previous evet debriefigs; reports of previous icidets; experiece of ruig evets at a similar seaso/time of day; ad experiece of previous delays. 30 Seekig advice from relevat ad experieced parties will help you obtai the iformatio you require. It is advisable, if practical, to visit other veues holdig similar evets to obtai the relevat iformatio. I some veues the requiremets of the local authority ad the fire authority will determie key precautios you eed to take. Relevat parties iclude: the ower of the veue where you are proposig to hold your evet; the local authority, for example licesig, evirometal health ad emergecy plaig departmets; police ad other emergecy services; trasport operators or maagemet of earby trasport veues; maagemet of adjoiig or adjacet public veues; local residets or their represetatives, particularly if you are orgaisig a evet such as a carival parade that goes through their residetial area; others providig services for the evet (eg stewardig, first-aid ad welfare orgaisatios ad merchadisig) ad ay experts givig advice, eg o the structural stability of a proposed temporary stad; ad other subcotractors, eg a structures productio maager. Maagig crowds safely Page 10 of 63

11 Health ad Safety Gettig orgaised 31 Oce the decisio to proceed with your evet is made, start by holdig regular evet plaig meetigs, brigig together all the mai iterested parties. Provide relevat iformatio see the Checklist for strategic project plaig at the ed of this sectio. 32 From a early stage, esure that clearly defied roles ad resposibilities exist i relatio to crowd safety, addressig both ormal ad emergecy situatios. Whatever maagemet structure you choose, you will eed to decide who is resposible for the various safety duties, makig sure there are o gaps ad esurig everyoe uderstads their ow resposibilities. If a umber of people are ivolved, there will eed to be close liaiso ad good commuicatio betwee them. Cosider all other related staff or developmets ad exteral bodies or orgaisatios who could at some poit be ivolved i crowd maagemet at the evet. 33 It is importat that meetigs, ad what has bee agreed betwee various parties, have bee clearly documeted to avoid uecessary cofusio ad misuderstadig. 34 A evet cotroller (safety officer) should be appoited by the evet orgaiser to co-ordiate all aspects of safety relative to the evet. Although this perso must be able to act without referece to others, that appoitmet does ot remove the resposibility of the evet orgaiser. The evet cotroller must have fial cotrol over all subcotractors, stewards etc, although their cotrol may be via itermediaries. 35 As a orgaiser, you have primary resposibility for the safety of the crowd. However, you may eed to cosider whether it would be appropriate to appoit a seior member of staff to take overall resposibility for crowd maagemet whe the veue is ope to the public. Always esure there is someoe with the authority to act i their place if this perso is uavailable. 36 If you are a employer, you have a legal duty uder the MHSW Regulatios to appoit oe or more competet persos to assist you with your health ad safety duties. You should look to appoit competet perso(s), where they exist, from amog your employees i preferece to exteral sources of competet advice ad assistace. If you are a sole trader or member of a partership, you may appoit yourself (or other parters), so log as you (or they) are competet. You ca use exteral sources of competet advice ad assistace if o iteral source exists. Ideed, i these circumstaces you would eed to appoit a competet perso from outside your orgaisatio i order to comply with the law. 37 The perso appoited could provide assistace i the followig ways: expert advice o crowd maagemet ad veue suitability for iput to the plaig process; ispectio of the veue ad developig procedures for maagig the crowds; ad ivestigatio of icidets relatig to crowdig. Maagig crowds safely Page 11 of 63

12 Health ad Safety 38 The perso appoited would eed to esure that there are eough staff with the required skills to carry out crowd maagemet duties durig both ormal ad emergecy situatios. Staff eed to be carefully selected ad traied to esure that they ca fulfil their defied roles ad resposibilities i relatio to crowd safety. Traiig is importat as overcrowdig ca develop extremely quickly ad requires a rapid respose from staff. 39 Where crowd maagemet duties are subcotracted (eg to a private stewardig compay) you should esure that the cotractor s staff are competet ad have received traiig appropriate to their resposibilities. Keepig records 40 If you employ five or more people, you have a legal duty to produce several writte documets or records (see the Appedix for further details). These iclude your health ad safety policy ad sigificat fidigs of risk assessmets. 41 It is recommeded that records are also kept of cotigecy plas, staff traiig/job descriptios, ad checks/ispectios of sites ad structures. Crowd behaviour 42 Research has highlighted several importat factors which ifluece the way crowds behave. These factors may affect the types of precautios you put i place to esure crowd safety ad eed to be cosidered durig your evet plaig. The crowd s goals ad objectives 43 This is very ofte oe of the most importat factors affectig how people behave. It may affect, for example, whe people choose to arrive ad leave, which routes they choose to take, where people wat to gather etc. 44 For example, people may: arrive early to gai vatage poits from where to watch the evet. Oce there, they may be reluctat to move away, eve if asked to do so; park illegally, obstructig access for emergecy vehicles, so that they ca make a quick getaway; wait for frieds/family at or ear exits ad obstruct the flow of people; choose to use the most direct or quickest route rather tha follow a desigated oe; or quickly chage directio, eg fas leavig a music cocert early may rush back if they hear a favourite sog durig the ecore. The crowd s kowledge ad experiece 45 People who are ufamiliar with the evet or veue geerally require more assistace ad directio. They ted to follow the crowds, use the mai routes ad gather at the same accommodatio areas. This ca lead to a ueve distributio of people. They may ot be aware of alterative routes or etraces which they could use to reduce cogestio. Those who are familiar with the veue may use short cuts, rather tha follow the directioal sigs. 46 Visitors may be uaware of the locatios of emergecy exits. So they will choose to use those routes or exits with which they are familiar or which are the most obvious, rather tha those which are closest or give the quickest evacuatio time. Maagig crowds safely Page 12 of 63

13 Health ad Safety 47 You ca improve site familiarity with details o the back of tickets, plas of the veue strategically placed iside ad out, ad through good use of sigs. 48 It is importat to ote that veues ad outdoor sites ca look very differet i the light ad the dark. People may become disorietated if they arrive i the light ad depart i the dark. The crowd s expectatios 49 Prior expectatios are likely to have a sigificat impact upo people s reactios uder certai circumstaces: Visitors might regard some routes ad etry poits as the formal or mai access to the evet. Perhaps such a route is the most direct betwee the parkig area ad the part of the veue that they wat to visit. It might be wider ad resemble the mai route with adjacet facilities such as toilets ad stalls. Where smoke or similar effects are part of a evet (eg a fireworks display, dry ice effects at a pop cocert), people are likely to respod more slowly to the presece of smoke geerated by a fire hazard. 50 You eed to cosider if certai groups of people will exhibit udesirable behaviour. Further precautios may be ecessary, for example the use of barriers to set up a diversio, or the use of staff to direct flows of crowd traffic. 51 You may be able to use certai forms of behaviour to your advatage. For example, oce a orderly queue is set up, it teds to attract people ad itroduce some order ito crowd patters. The crowd s metal ad emotioal coditios 52 People s emotios, such as excitemet, desperatio, aggressio, hysteria etc, may affect their behaviour. For example, people who are eager to gai etry may surge towards the doors whe they are opeed. Those ot satisfied with the quality of a performace or outcome of a sportig fixture may become aggressive, offesive ad uco-operative. Collective behaviour 53 The behaviour of idividuals i a crowd ca be iflueced by the thigs they see others doig. The uauthorised actios of a few people ca result i larger umbers followig their example. Idividuals withi a crowd may carry out actios which they would ot perform if they were o their ow. For example, the frustratio of excessive crowdig, queuig or delays may result i icidets such as climbig of barriers which could lead to overcrowdig i aother area. 54 If safety rules are ot visibly eforced, or crowd cotrol is ot maitaied, the spread of o-compliat behaviour ca have a serious impact o crowd safety. For example, if a few people gai etry to a prohibited area by climbig over or uder a barrier, others may follow suit if the respose from those cotrollig the crowd is slow, weak, or o-existet. The resultig ucotrolled crowd flow may lead to overcrowdig ad other related hazards. Maagig crowds safely Page 13 of 63

14 Health ad Safety 55 I the early stages of a emergecy situatio, crowd behaviour ca be iflueced by idividuals who appear to be experts or kow what to do. A idividual or group of people takig decisive actio (eg leavig a earby exit, outwardly dismissig a warig as a false alarm) ca trigger a widespread respose amog the crowd. Members of staff might be allocated to evacuate a veue or aother area. Iformatio 56 I geeral, people look for clear, uambiguous iformatio ad idicators o expected rules of behaviour to help them decide how to act, eg to fid out if a particular door is a etrace, a exit, or both, or whether they ca drik or smoke i the veue. If such iformatio ad istructios are ot provided, people will form their ow rules based o past experiece ad the observed behaviour of others, such as joiig a queue, parkig o access routes, takig short cuts etc. Good use of sigs ad public address systems is therefore extremely importat. 57 Providig visual ad audible iformatio (eg warigs, advice, directios, istructios) is of vital importace durig a emergecy whe the situatio ca be cofusig ad ufamiliar. Figures of authority (eg promoter, steward, firefighter) are likely to be listeed to ad obeyed i a emergecy. For this reaso, such people should always wear easily idetifiable clothes/colours. Relatioships betwee staff ad the public 58 People are more likely to be i a relaxed ad coteted frame of mid if they are effectively maaged ad the veue is comfortable ad pleasat, with adequate facilities, such as toilets, food, drik ad iformatio poits. People are more likely to comply with istructios if good relatios are maitaied betwee veue staff ad the public. Therefore, it is imperative that iformatio is effectively commuicated to them through the staff, so that cofusio or causes for complait are avoided. 59 The attitude of the predicted audiece may be differet to that expected. For example, security searches or ticket checks which you might decide to do may be cotrary to the ticket holders expectatios. This could have the potetial for the developmet of ill feelig, which could result i public order problems. The ext steps 60 Idetify possible hazards that could harm people attedig or ivolved i your evet. Variatio i crowd behaviour meas there is ofte more tha oe way to tackle a particular hazard. For example, i order to esure a early ad effective respose i a evacuatio, where paic may be a feature, measures might be take to improve the quality ad clarity of iformatio that is both broadcasted over the public address system ad displayed through the use of sigs. Such measures would ehace the role of staff i directig or leadig people out of the veue ad aid the staff i maitaiig as much calm as possible. 61 Lookig systematically at the hazards associated with your evet will help you put i place effective precautios to esure crowd safety. The followig sectios suggest ways of doig this. Maagig crowds safely Page 14 of 63

15 Health ad Safety Checklist for veue suitability Are public trasport arragemets to ad from the site adequate to deal with expected umbers of visitors ad for periods of peak demad? Are arragemets for vehicle parkig ad pedestria approach to the veue adequate? Are there sufficiet etraces, spaces ad routes (ie roads, gagways, walkways, stairs etc) iside ad outside the veue to cope with the expected umbers ad are they adequate to cope if people arrive i sudde masses rather tha a eve flow? Are precautios i place to deal with possible crowd pressure at the etraces ad exits to the veue? Will the soud quality be suitable for the evet, eg to avoid crowdig at the frot of the stage? Has the overall capacity of the veue bee established ad precautios put i place to prevet over-capacity? Have you checked the trouble spots? For example: routes which become arrow or areas i which people could cogregate, as these may cause cogestio; bottleecks such as stairs, escalators ad tuels or bridges; areas where people queue, such as pay desks ad iformatio poits; or popular stalls, attractios or exhibitio ad refreshmet areas. Is the safety of vulerable groups (eg childre, people with special eeds ad the elderly) addressed? Are the meas of escape adequate i evet of a emergecy? Has adequate access bee provided for the emergecy services? Have particular hazards arisig from the veue bee take ito accout, eg has drowig bee cosidered as a hazard at water evets or evets adjacet to water? Is the veue properly maitaied i a safe coditio, eg floors, stairways ad lightig? Have litter ad combustible materials bee removed to safe storage or disposed of? Is emergecy equipmet, eg firefightig equipmet, emergecy lightig, fire alarms, smoke alarms, public address ad other commuicatio systems, properly maitaied ad i good workig order? Are fire exits ulocked, ad are escape routes uobstructed ad free from hazardous ad combustible materials? Are all directio ad iformatio sigs i place ad clearly legible? Maagig crowds safely Page 15 of 63

16 Health ad Safety Checklist for strategic project plaig Plas ad drawigs: productio of scaled plas of site or veue with temporary istallatios plotted oto the drawig to be distributed to key persoel. Meetigs caledar: details of pre-productio, durig performace ad post-productio (review) meetigs. Ispectio caledar: details of site suitability survey; ispectios durig build; ad ispectios durig performace. Legal caledar: details of liceces, certificates, cocerts ad otificatios required by legislatio. Maagig crowds safely Page 16 of 63

17 Health ad Safety Assessig risks 62 Look carefully at what you are proposig to do ad idetify hazards, ie those thigs that could harm the people ivolved or attedig. You are required by law to assess what precautios you eed to take to prevet harm. This process is referred to as risk assessmet. Risk is the chace, high or low, that somebody will be harmed by the hazard. 63 Risk assessmet is a legal requiremet uder the MHSW Regulatios. Regulatio 3 requires all employers ad the self-employed (icludig those who orgaise evets) to assess the risks to workers ad ayoe else, for example members of the public attedig a evet, who may be affected by work activities beig udertake. Both the HSW Act ad regulatios coverig particular hazards require that appropriate prevetive ad protective measures should be take i the light of the risks idetified. 64 Your risk assessmet eeds to examie all aspects of your evet, icludig trasport to ad from the evet. You eed to thik about icidets that could occur, eve if they seem ulikely, eg a visitor collapsig from heat exhaustio or a larger scale emergecy such as a fire, bomb threat or stad collapse. You also eed to carefully evaluate all places where there may be potetial for high crowd desity ad subsequet crushig, eg queuig areas at the veue etrace. 65 Durig early plaig, idetify people who have the right competece ad kowledge to cotribute to the risk assessmet process. The importat thigs you eed to decide are whether a hazard is sigificat, ad whether you have dealt with it satisfactorily through takig the relevat precautios, so that the risk is reduced or miimal. 66 HSE has developed a five step approach to risk assessmet: STEP 1: Look for the hazards. STEP 2: Decide who might be harmed ad how. STEP 3: Evaluate the risks ad decide whether the existig precautios are adequate or whether more should be doe. STEP 4: Record your fidigs. STEP 5: Review your assessmet ad revise it if ecessary. For more guidace o this, see the HSE publicatio Five steps to risk assessmet: A step by step guide to a safer ad healthier workplace. 5 The followig paragraphs give advice o how you might carry out a risk assessmet with examples relatig to evet orgaisatio. STEP 1 Look for the hazards 67 Cosider all aspects of the proposed activity ad look at what could reasoably be expected to cause harm. Igore the trivial ad cocetrate o sigificat hazards which could result i serious harm or affect several people, eg fuellig of visitors at the veue etrace leadig to cogestio ad crushig. Maagig crowds safely Page 17 of 63

18 Health ad Safety 68 Speak to your staff about possible hazards they may have oticed thigs that are ot immediately obvious to you. It may be helpful to refer to previous iformatio, eg post-evet reports, icidet reports or visitors commets. 69 Cosider hazards associated with the crowd ad those preseted by the veue. It is importat to idetify hazards that are ot immediately apparet such as a hazard that arises due to the itroductio of a ew feature, eg the late additio of several market stalls at a veue may restrict access routes ad lead to cogestio. Hazards preseted by a crowd Crushig betwee people Crushig agaist fixed structures, such as barriers Tramplig uderfoot Surgig, swayig or rushig Aggressive behaviour, particularly betwee groups of rival supporters Dagerous behaviour, such as climbig o equipmet, ruig dow steep slopes or throwig objects Hazards preseted by a veue Slippig or trippig due to iadequately lit areas or poorly maitaied floors Movig vehicles sharig the same route as pedestrias People gettig trapped, eg wheelchair users i a crowd Collapse of a structure, such as a fece or barrier, which falls oto the crowd People beig pushed agaist objects, such as uguarded, hot cookig equipmet o a food stall Objects, such as stalls, that obstruct movemet ad cause cogestio durig busy periods Crowd movemets obstructed by people queuig Crossflows as people cut through the crowd to get to other areas, such as toilets Failure of equipmet, such as turstiles Sources of fire, such as cookig equipmet 70 For the purpose of this guidace, aspects of activities are cosidered uder five topics, listed below. You may fid the topics helpful whe lookig for hazards ad completig the rest of your risk assessmet. Nature of the evet Who will be attedig ad what is their expected behaviour? What might they do that could cause a problem? Veue suitability Is the veue adequate for esurig the safety of people throughout the evet? Crowd maagemet arragemets Are arragemets adequate? For example, clear roles ad resposibilities; commad ad commuicatio structures i place; good co-operatio ad co-ordiatio throughout the orgaisatio of the evet; sufficiet moitorig of crowds; provisio of appropriate umbers of competet ad traied staff. Presece of hazardous items ad substaces Your activity may ivolve the use ad storage of items or substaces which could pose a hazard to the crowd. I such circumstaces, the relevat specific health ad safety regulatios should be observed. Maagig crowds safely Page 18 of 63

19 Health ad Safety Whe thigs go wrog Thik about how your activity could be disrupted ad what ew hazards could arise as a result of a disruptio. A emergecy, such as a serious fire, may call for a evacuatio, thus itroducig ew hazards. Eve a mior disruptio, such as a trai delay or cacellatio, could tur ito a sigificat hazard. 71 Idetify the scearios which could disrupt your activity, such as: emergecy situatios (eg fire, bomb threat, structural collapse, toxic release etc); accidet, eg traffic accidet, outside or withi the veue; closure of part of the veue; closure of a earby or related veue (eg the closure of a adjacet trai statio); delay or cacellatio, eg late kick-off i a football match; disruptio to the arrival/departure profile, eg severe traffic cogestio o a mai approach road; loss of services, eg power cut; public disorder; system or equipmet failure, eg jammed door or gate, escalator stops; or weather, eg a sudde chage of weather ad adverse weather coditios such as too hot/cold, heavy raifall/sowfall, high wids etc. 72 For the scearios you have idetified, cosider the effect the disruptio could have o people s behaviour, veue operatio, crowd maagemet ad o the items or substaces you are usig. The idetify what ew hazards may arise as a result. For example, a severe traffic problem due to roadworks o oe of the mai approach roads to the veue could lead to a last miute rush ad cogestio at the etrace to the veue. Look for the hazards Maagig crowds safely Page 19 of 63

20 Health ad Safety STEP 2 Decide who might be harmed ad how 73 I the case of major disruptio, such as emergecies ivolvig a major fire or bomb threat, detailed assessmet of sigificat hazards is likely to be ecessary. Maagig such disruptios is dealt with i more detail i the Emergecy plaig ad procedures sectio. 74 The aim of this step is to fid out what causes the hazards idetified i Step 1, what dagers they could pose ad who might be affected. Kowig the cause(s) could help you to decide later i the assessmet process what actios are eeded to get rid of the hazards. Thikig about the cosequeces ad who might be harmed could help you to decide how to protect people agaist the harm. How might people be harmed (what are the causes)? 75 You may have already foud the immediate causes earlier o i Step 1. But do t stop there there could be other causes that are equally importat. It is worth emphasisig agai that a hazard could arise from a combiatio of factors, icludig the suitability of the veue, the crowd ad their behaviour, the crowd maagemet arragemets ad the presece of hazardous items or substaces. 76 Some causes may ot be immediately obvious. Cogestio, for example, could be the result of a object obstructig crowd flows, isufficiet capacity or a pich poit (ie veue suitability), people assemblig or waitig for others i the area (ie behaviour) ad too may people beig directed to use this area (ie crowd maagemet). It could also be because of a problem elsewhere i the veue or what happes earby, such as crowds leavig a earby football match. 77 If the hazard is caused by people s behaviour, you also eed to kow why people behave i such a way (see paragraphs 42 59). Who might be harmed? 78 Thik about the cosequeces ad who might be harmed. This could iclude ayoe i the crowd or ayoe exposed to overcrowded coditios for a prologed period of time. You eed to cosider the umber of people who may be affected. Also, ask yourself if the hazard could oly harm the idividuals directly ivolved or if others i the viciity could be affected. Childre, youg people, people with special eeds ad the elderly are particularly vulerable ad eed special cosideratio. Remember that your ow staff ad cotractors could also be at risk, particularly those who might have to deal with a difficult situatio. Maagig crowds safely Page 20 of 63

21 Health ad Safety Examples Hazard Causes People could trip o stairs withi the veue People pushig their way through the crowd Iadequate lightig i the area Poor costructio of stairs Who might be harmed People beig pushed could fall dow the stairs. They could be trampled o Youg ad old people are particularly vulerable Hazard People fallig over as a result of crowd dyamics Causes Misjudgemet of attractio s popularity Uexpected mass movemet of audiece No-maagemet of aggressive/irresposible behaviour by crowd Who might be harmed Those withi the crowd ad at the edge of wave STEP 3 Evaluate the risks ad decide whether the existig precautios are adequate or whether more should be doe Evaluate the risks 79 The aim is to decide for each sigificat hazard how much risk still remais after the existig precautios have bee take ito accout. The fidigs will eable you to establish how importat the hazards are ad prioritise actios you eed to take to cotrol them. 80 Risk reflects the likelihood that harm from a particular hazard will occur ad the potetial severity of that harm. To evaluate the risk you eed to estimate the likelihood ad the severity. 81 Whe estimatig likelihood, it is importat that you cosider how likely the hazard is to occur ad to cause harm. This is because ot all hazards cause harm all the time. For example, crossflows ad obstructios do ot ormally give rise to a sigificat problem, uless they take place i a busy area. Check existig precautios Hold traiig sessios Maagig crowds safely Page 21 of 63

22 Health ad Safety 82 Severity is a cosideratio of the extet of possible ijuries, ragig from little real harm to a idividual to multiple deaths. Whe estimatig severity, you eed to take ito accout the circumstaces uder which the hazard takes place. For example, the severity of potetial harm to people miglig with movig vehicles will deped o whether this takes place o a busy mai road with fast movig traffic or o a quiet side road where the vehicles move slowly. 83 By cosiderig both likelihood ad severity for each sigificat hazard you will be able to judge the size of the remaiig risk. Groupig the hazards ito high, medium ad low risks groups may help you prioritise further actios you eed to take to reduce risks. 84 Other tools such as risk classificatio matrices have bee developed, ad you may fid these helpful if you are orgaisig a complex activity or have large umbers of sigificat hazards to cosider. Are existig precautios adequate? 85 Some hazards may already be cotrolled, whether by deliberate measures (eg you may have recetly improved the lightig o stairways) or by the circumstaces i which they are foud (eg street lightig outside the veue may icidetally light the veue etrace stairs). The aim is therefore to idetify the precautios ad decide whether they are adequate or whether more should be doe. 86 Thik about how effective the existig precautios are. Look at how they actually work, ot how they are supposed to work. Actual practice may differ from what you origially plaed. Ideed, this is ofte where risks creep i uoticed. 87 Also cosider how your precautios may fail or become less effective. For example, features at the veue such as turstiles could suffer from vadalism, wear ad tear, compoet failure etc. Crowd maagemet arragemets could be hidered by staff cofusio over their roles ad resposibilities or a breakdow i commuicatio betwee parties ivolved i the activity. 88 I order to decide whether the existig precautios are eough, you may wish to make a first rough risk assessmet. Cosider the risks i the light of existig precautios; trivial risks ca usually be igored as ca risks arisig from routie activities associated with life i geeral, uless the activity compouds those risks. I a street evet, the pavemet kerb could pose a trippig hazard but you could igore it o the grouds that the risk is o more tha that arisig from walkig alog the high street o a ormal Saturday afteroo. If the crowd desity is much higher tha that o the ormal high street, so will be the risk. Oe reaso for this is that people may ot see the kerb. Therefore, the previous assessmet is o loger valid ad this hazard should be evaluated further. Decidig what more should be doe 89 A umber of importat factors should be cosidered whe decidig what further precautios you eed to take to address remaiig risks. 90 Have you doe all the thigs that the law says you have to do? For example, the MHSW Regulatios require employers, icludig orgaisers ad cotractors, to provide employees with adequate health ad safety traiig ad relevat iformatio. Safety sigs at the veue must coform to the Health ad Safety (Safety Sigs ad Sigals) Regulatios Maagig crowds safely Page 22 of 63

23 Health ad Safety 91 Are geerally accepted stadards i place? For example, have you take accout of HSE guidace that may relate to your evet? This guidace icludes publicatios o fairgrouds, 7 fireworks displays, 8 music evets 3 ad motor sports The law also says that you must do what is reasoably practicable to keep your activity safe. Reasoably practicable meas that the time, trouble, cost ad physical difficulty of takig measures to avoid the risk are ot wholly disproportioate to it. The greater the risk, the more likely it is that it is reasoable to go to very substatial expese, trouble ad ivetio to reduce it. But if the cosequeces ad extet of a risk are small, isistece o a great expese would ot be cosidered reasoable. The size or fiacial positio of the employer is ot take ito accout i this calculatio. Example The owers of a veue situated adjacet to a busy road idetified the high risk of ijury to people. There was a high risk of them beig struck by a movig vehicle whe queuig at the veue etrace. The owers had permaet barriers istalled ad provided additioal stewardig at the etrace to reduce the risk of ijury. They regarded this as a reasoably practicable measure to esure safety. Although the cost of istallig the barriers was sigificat, it was ot disproportioate to the high risk of ijury. A further illustratio of this poit is icluded i the example of completig a risk assessmet at the ed of this sectio. 93 The actios you idetify should be realistic ad give priority to hazards which pose the highest risks. A essetial part of your risk assessmet is to cosider first if it is possible to eradicate the risks altogether. This ca usually be achieved by either removig the source of hazard or tacklig its causes. For example, it may be possible to exclude all vehicles from the site prior to the evet, thus elimiatig the risk of people beig struck by vehicles durig the evet. 94 If it is ot reasoably practicable to eradicate the risk, the thik about how to cotrol the risk (ie to make it less likely to occur or cause harm, to reduce its severity ad/or to protect people agaist harm). For example, the orgaisers of a ope-air festival set aside a area where members of a vitage car club could display their vehicles. To reduce the risk of visitors beig struck, the cars had to arrive oe hour before the public were admitted ad leave oe hour after they had left. 95 The sectio Puttig precautios i place covers examples of steps you might take to address risks you have idetified. STEP 4: Record your fidigs 96 If you have fewer tha five employees you are ot legally required to write aythig dow, though it is good practice to keep a writte record of what you have doe. However, if you employ five or more people you must record the sigificat fidigs of your assessmet. Sigificat fidigs usually iclude: Maagig crowds safely Page 23 of 63

24 Health ad Safety the sigificat hazards idetified i the assessmet; the existig precautios i place; the remaiig risks, icludig ay groups of visitors who are especially at risk; ad the coclusios of the assessmet, icludig the actios you have idetified to further reduce the risks. 97 The law requires you to tell your staff, icludig ay safety represetatives, about your fidigs. The record could be documeted i writig by other meas (eg electroically), so log as it is available for use by maagemet or for examiatio (eg by eforcig authority ispectors). 98 Some hazards may have already bee dealt with elsewhere. A risk assessmet uder the Cotrol of Substaces Hazardous to Health Regulatios 1999 (COSHH) 10 will have addressed the risks associated with the use of hazardous substaces. Also, some existig precautios may have already bee described i other documets (eg a procedures maual). There is o eed to repeat this iformatio i the record you ca simply refer to where it ca be foud. STEP 5 Review your assessmet ad revise it if ecessary 99 You are required by law to review your assessmet ad revise it if there are developmets which suggest that your assessmet may o loger be valid. Such developmets could iclude: major chages to the veue, for example beig uable to use waterlogged greefield parkig areas; sigificat chages to the evet, for example a last-miute itroductio of fairgroud attractios; previous icidets which did or could have ijured members of the public; or serious icidets at other veues from which you could lear ad take prevetive actio. Further iformatio about this issue is cotaied i the Review sectio. Maagig crowds safely Page 24 of 63

25 Health ad Safety Completig a risk assessmet: a example (family fu day) STEP 1: Look for the hazards Crossflow of people ear the toilets i the etrace area was idetified by the veue ower as a sigificat hazard. STEP 2: Decide who might be harmed ad how Staff at the veue had commeted that people may cut through other people eterig the veue to get to the toilets. This could lead to severe cogestio i the veue, pushig ad eve some mior crushig. A large umber of prams ad wheelchair-users were aticipated. STEP 3: Evaluate the risks ad decide whether the existig precautios are adequate or whether more should be doe After ivestigatig the crossflow i this busy area, the ower felt it possible that harm could occur (likelihood), resultig i ijuries to a umber of people who would require first aid (severity). The ower decided that the remaiig risk associated with this sigificat hazard was medium. Relocatio of the toilets was cosidered i the future, but the costs of doig so were regarded as disproportioate to the improvemets that could be achieved to reduce the risks associated with the crossflow. Maagemet decided that this risk reductio method was ot reasoably practicable. The ower decided to reduce the risk by a lower cost optio of hirig additioal portable toilets for the evet ad locatig them elsewhere. Clear sigage ad iformatio was provided to reduce the usage of toilets i the etrace area. STEP 4: Record your fidigs Usig a risk assessmet form, the ower recorded details of the hazard ad the people at risk from it. The ower the recorded the risk as medium ad wrote dow the steps to be take to address the risk. The employees were told about the ew arragemets. Whe the toilets ad sigs had bee put i place, the ower made a ote o the risk assessmet form to cofirm that the actio had bee completed. STEP 5: Review your assessmet ad revise it if ecessary After the evet, the ower ad team discussed how effective the arragemets had bee, ad reviewed the risk assessmet. Mior chages to sigage were agreed to further reduce risks at such evets ad the actios recorded o the ameded assessmet. Maagig crowds safely Page 25 of 63

26 Health ad Safety Risk assessmet a checklist It may be helpful to cosider the followig questios whe lookig for hazards ad completig your risk assessmet: Are the umbers attedig cotrolled or predictable? Are visitors likely to be familiar with the veue? Is the evet goig to attract a particular age group? Is the evet likely to geerate high emotios? Is the crowd likely to be mostly male, mostly female or mixed? Is the crowd goig to be made up of idividuals, families or mostly large groups? How are you goig to cater for particular groups with disabilities? How log will the evet last? How will performers at the evet affect the behaviour of the crowd? I what ways could media provisio at the evet affect crowd safety? Have you cosidered possible aggressive behaviour, for example betwee rival supporters or by visitors towards staff? Are gatecrashers likely? Will alcohol be available? Is it likely that some idividuals attedig the evet have bee cosumig drugs? Are there other major evets i the area at the same time as your evet? Maagig crowds safely Page 26 of 63

27 Health ad Safety Puttig precautios i place 100 This sectio provides further details about precautios to address risks to crowd safety that you have idetified durig your risk assessmet. The types of precautios described fall broadly ito two categories the veue ad crowd maagemet. 101 The guidace uder the followig headigs illustrates the types of precautios you may eed to cosider. It does ot cover all possible circumstaces that may be relevat to your evet. Refereces to more detailed guidace are provided. The veue 102 The followig paragraphs cover people s arrival through to their departure. Wherever possible, ecourage phased arrivals ad departures to prevet overcrowdig, for example by: makig etry cheaper off-peak; offerig etertaimet before ad after the mai evet; staggerig the start ad/or fiish of several evets withi the veue; makig early arrival ad late departure pleasurable by providig good caterig ad welfare facilities. If possible, provide a place for people who wat to eat their ow food or just wat to sit dow. Trasport to ad from the veue 103 Esure that at the plaig stage trasport facilities (eg bus stops ad statios, trai statios, car parks) are sufficiet to cope with the expected umbers of people. Schedule your evet to fiish at a time which allows people plety of time to catch trasport. 104 Cosider ecouragig people to use existig or specially provided public trasport systems. For some evets you could also cosider issuig combiatio bus or rail tickets. 105 If parkig space ear the veue is limited or remote sites are used, or it is some distace betwee the veue ad bus/rail statios, cosider the use of a shuttle bus service to take people to ad from the veue. Parkig 106 Eure that parkig arragemets are clearly sigposted some distace from the veue, so that the iformatio is coveyed to drivers well i advace. 107 Avoid locatig coach drop-off ad pick-up poits ad parkig places immediately i frot of, or very close to, the etraces/exits to reduce the risk of cogestio. 108 Cordo-off areas where parkig is potetially dagerous (because it would cause a obstructio, for example to emergecy access routes, or a udesirable mix of vehicles ad pedestrias) ad erect sigposts that explai the pealties for illegal parkig. It may be ecessary to seek the advice of the police about cars that are illegally parked outside the veue. Maagig crowds safely Page 27 of 63

28 Health ad Safety Access routes to ad from the veue 109 Esure, as far as is possible, that pedestria routes are separated from vehicle routes. Additioal precautios will be required where vehicles form a itegral part of the evet, for example at motor sport evets. 110 Maitai a clear route for emergecy vehicles ad esure that the emergecy services are aware of the route. 111 Esure that routes are adequately lit ad, where ecessary, provide guard rails or barriers to prevet trips or falls. 112 Where possible provide: direct routes to prevet people from tryig to take uauthorised short cuts, such as walkig o the road amog traffic; oe-way systems to prevet flows of people i more tha oe directio; separate flows, for example you could set up differet pedestria access routes for visitors arrivig from the railway statio ad those comig from coach/car parks. Separate routes ca also be used to reduce coflict betwee rival supporters; routes without pich poits or width chages (slow flows at these poits ca cause people to become separated). They may wait i other areas to try to rejoi their group, causig further cogestio; ad access routes that are level ad ramps for people usig wheelchairs. 113 Cosider providig facilities such as toilets ad refreshmets outside the veue for those who arrive early. These ca also be used to attract some of the people away from particularly busy routes or areas. Combiig barriers with effective stewardig Etraces ad exit 114 A combiatio of barriers ad effective stewardig ca be used to ecourage orderly queuig ad movemet through etraces ad exits. Be careful that queues do ot block access or pedestria flow. Wherever possible, esure that there is a way by which people ca get out of the queue without havig to move agaist the flow or those queuig behid them. 115 Avoid locatig ticket sales ad pick-up poits, temporary structures, attractios, facilities ad mai iformatio sources close to etraces ad exits. Maagig crowds safely Page 28 of 63

29 Health ad Safety 116 Etraces ad exits for people with disabilities should be clearly sigposted. Provide a separate etrace if large umbers of people are expected; this will avoid disruptios of crowd flows. 117 Do t let people queue o roads, uless there is plety of room for both people ad traffic, ad the queue is physically separated by adequate barriers. If this is difficult to achieve, it is better to avoid queuig o roads if possible. 118 Try to avoid lettig people queue o stairs, especially if they are used by others, or are part of the meas of escape. If it is uavoidable, make certai you have adequate stewards to esure the queue ad adjacet flow of people are well cotrolled. 119 Try to discourage people from movig forward util doors are fully ope. Fix doors i the ope positio oce you have started to let people i or out. If there are other etraces or exits that are ot to be used, idicate these types of doors, for example by puttig up o etry sigs. 120 Take measures at etry poits ad at sales poits to esure that prohibited items, such as metal cas, glass bottles, or other possible missiles, caot be take ito the veue. You may fid it helpful to use a filter system. For large outdoor evets, a system of free flow ca help speed up etry to the veue. Iside the veue 121 Esure that etrace routes do ot filter ito vatage poits such as popular attractios or frot stage areas. This is to avoid people stayig at the ed of the route ad blockig flow ito the veue. 122 Crowd surges or pushig should be aticipated whe the actio i the veue becomes particularly excitig, leadig to excess pressure ad overcrowdig - stadig areas are particularly vulerable. For example: the audiece may move forward as the mai act comes o stage at a music cocert; or uexpected mass movemet of audiece members from oe attractio or performace to aother; or i respose to cheers ad shrieks, the people gathered aroud a attractio may rush forward to get a better view. Ecourage orderly queuig 123 Protect areas where people are vulerable to crushig by meas of barriers or special desig arragemets. For example, relieve ad prevet build-up of crowd pressures by usig the frot of stage barrier used at music evets or crush barriers i terraced areas at sports grouds where spectators are stadig. Maagig crowds safely Page 29 of 63

30 Health ad Safety Viewig areas 124 Desig viewig areas i such a way that all people have good sight lies to ay stage areas. This reduces the tedecy of people to crush or surge i order to obtai a better view. Video or projectio screes ca be used to attract people away from crowded areas. 125 Esure that viewig areas are set aside so that people usig wheelchairs have a clear view of the attractio ad are ot affected by crowd movemet, such as surgig. Be careful that wheelchairs do ot block gagways or exits. Seatig areas 126 For seated areas, esure that the distace betwee rows of seats is sufficiet to eable people to move i ad out freely. If temporary seatig is provided, it will be ecessary to esure that the seatig is adequately secured to avoid sakig. Feces 127 At outdoor veues, the provisio of a fixed boudary will help the safety maagemet of the crowd ad prevet trespassers eterig the site. For large outdoor evets, a substatial perimeter fece may be eeded. Barriers 128 You may eed to keep certai areas clear of people, for example a area adjacet to a meas of escape. This ca be doe by barrierig-off the areas or obstructig sight lies. For example, side-stage sight lies ca be reduced, so that people do ot cogregate by emergecy exits i those areas. 129 Make sure that there are eough facilities, eg refreshmets, toilets, welfare ad iformatio services, meetig poits or waitig areas provided i the veue to prevet obstructio ad cogestio through the build-up of queues. 130 The locatio of facilities, attractios, eg fairgroud rides ad temporary structures, eg stages, temporary stads, viewig platforms etc ca obstruct etraces, exits or emergecy vehicle access ad therefore eeds to be checked. Esure that there is sufficiet space provided aroud them for people to move without obstructig flows. 131 You should esure that adequate ispectios ad tests are carried out to establish that all structures, istallatios ad equipmet, whether permaet or temporary, are safe for the purposes for which they are iteded. This is likely to iclude ispectios before, durig ad after the evet. These are equally importat for oe-day evets as for evets that last for a umber of days. 132 You should esure that such ispectios are carried out by suitably qualified persoel, that a programme of ispectios ad tests have bee draw up ad adhered to, that detailed records of ispectios ad tests are kept ad that adequate resources are allocated to carry out the tasks. Further advice o this ca be foud i the Istitute of Structural Egieers publicatio Temporary demoutable structures: Guidace o procuremet, desig ad use. 11 Maagig crowds safely Page 30 of 63

31 Health ad Safety Crowd maagemet 133 You should provide a adequate umber of staff to esure effective crowd maagemet. Your staffig structure will deped o the size of your evet. A large evet may require the appoitmet of a chief steward to be resposible for effective stewardig, supported by a seior supervisor ad a umber of other supervisors. 134 The staff may also assist the police ad other emergecy services. Where a evet requires the presece of police officers, agree the duties ad resposibilities of staff betwee the orgaisers ad the police. 135 Staff duties iclude: kowig the layout of the site ad beig able to assist the public by givig iformatio about the available facilities, rememberig those with special eeds; beig aware of the locatio of etraces ad exits ad first-aid poits; esurig that overcrowdig does ot occur i ay part of the veue by maagig ad directig the crowd, particularly o eterig or leavig the veue; keepig gagways ad exits clear at all times ad prevetig stadig o seats ad furiture; cotrollig uruly behaviour ad ivestigatig immediately ay disturbaces or icidets; esurig that combustible litter does ot accumulate; commuicatig with supervisors; kowig ad uderstadig the arragemets for evacuatig the veue, icludig coded messages ad udertakig specific duties i a emergecy; moitorig of crowds at key poits where overcrowdig may occur; cotrollig vehicle parkig ad marshallig traffic. 136 Idetify the parts of the veue where staff will be eeded ad the umbers required to maage the crowd uder both ormal ad emergecy situatios. Locate staff at key poits to maage the crowds. These would iclude etraces ad exits, gagways, barriers, pit areas ear the stage at pop cocerts etc. 137 Co-ordiate the maagemet of staff from the veue s cotrol poit, which eeds to maitai a efficiet meas of commuicatio with the staff ad/or their supervisors (see the Commuicatio sectio). 138 Provide staff with distictive clothig, such as jackets or tabards which clearly idicate the duty that they are performig (eg steward, traffic marshal supervisor). Provide staff with a meas of idetificatio. 139 Trai staff to carry out their duties effectively. The type of traiig will deped o the fuctios to be performed. Keep a record of the traiig ad istructio provided. Staff with fewer duties (eg cotrollig parkig ad marshallig traffic) may ot eed to cover all elemets of the traiig. 140 Brief staff prior to the evet, particularly about commuicatig with supervisors ad others i the evet of a emergecy. It is recommeded that staff receive a writte statemet of their duties ad a pla showig key features of the veue, so that there is less likelihood of iformatio beig misiterpreted. Maagig crowds safely Page 31 of 63

32 Health ad Safety 141 Trai all supervisory staff i the hadlig of emergecies, ad agree the limits of their resposibilities i cojuctio with the emergecy services at the plaig stage. Iform supervisors of the commuicatios system for the evet ad the workig of the cotrol poit (see the Commuicatio sectio). It is advisable for some of the supervisory staff to have received traiig i first aid, particularly i cardiac pulmoary resuscitatio. Provide staff with distictive clothig 142 If you are usig a cotractor to supply staff, it is recommeded that you check that they: carry adequate public ad employer liability isurace; have a compay policy o health ad safety; employ a adequate umber of persoel who are competet i the followig areas: fire safety ad emergecy evacuatio; basic first aid; ad commuicatio procedures. Where staffig duties are subcotracted (eg to a private stewardig firm), esure that the cotractor s staff meet the required stadards. 143 To check that your staffig arragemets are adequate you could, for example: check staff traiig records; carry out mock exercises to assess staff traiig; or check procedures are beig followed. Eforcig rules 144 Veue rules, eg those cocerig brigig i alcohol, drugs ad offesive weapos eed to be eforced firmly ad clearly. If appropriate: discuss arragemets with the police ad thik about ivitig a special police presece; cosider itroducig some form of pealty for certai types of dagerous behaviour. Pealties could iclude exclusio from the veue ad/or baig from future evets; publicise the cosequeces of dagerous behaviour i terms of possible outcome (accidets, ijuries, structural collapse etc). Maagig crowds safely Page 32 of 63

33 Health ad Safety Checkig your precautios 145 Check ad ispect the precautios you have put i place to esure they remai effective. Are the arragemets as you plaed them? You eed to check that stads, attractios etc are sited as plaed. Carry out ispectios regularly, both before ad after members of the public are admitted to the evet. Esure that the persos performig the checks ad ispectios are competet. Remember to allow eough time for the problems that are discovered to be put right, or for you to fid aother effective precautio. 146 Durig the evet esure that all routes, icludig emergecy routes, are kept clear ad well sigposted. Esure that arragemets are i place to prevet litter ad waste accumulatig or beig stored i circulatio, exit or escape routes. 147 Esure that ay ecessary remedial actio is take before the ext evet. You may fid it helpful to write dow areas of cocer ad record whe they have bee corrected. Whe thigs go wrog 148 Disruptios could happe, for example through: equipmet failure, eg public address system ot workig; overcrowdig, eg through late arrival of large umber of people; or crowd behaviour, eg surgig ad pushig, people leavig the veue early, people re-eterig the veue. 149 As part of your risk assessmet, idetify potetial disruptios ad set up procedures to deal with them (ofte referred to as cotigecy procedures or plas ). For each disruptio, cosider the extra resources you will require i staff ad equipmet (eg loud hailers, additioal barrier sectios etc). Staff have a key role to play i dealig with disruptios ad it is importat that they have received adequate traiig ad briefig. 150 Esure that procedures are made familiar to all relevat staff. Staff meetigs or briefigs could be used to remid staff about the procedures prior to the stagig of the evet. Mock exercises are a useful way of testig out your procedures for dealig with disruptios ad emergecies. 151 At large evets, barriered-off areas, ofte referred to as safety zoes, ca be desigated. If overcrowdig threates, people ca be filtered ito ad through the safety zoe to prevet crushig. The use of safety zoes eeds careful cosideratio; their possible use should be discussed at the plaig stage with relevat parties icludig the local authorities, the police ad emergecy services. 152 Plaig for emergecies is covered i the Emergecy plaig ad procedures sectio. Maagig crowds safely Page 33 of 63

34 Health ad Safety Crowd safety maagemet a checklist Commuicatio Is the iformatio you will provide to visitors adequate? Is the iformatio you will provide to employees ad others ivolved i the evet, icludig emergecy services, adequate? Have you established clear lies of commuicatio with visitors ad others ivolved with the evet? Who are the visitors ad what do they already kow about the veue ad the evet? How could the layout of the veue affect safety ad what assistace could you provide for people to fid their way about? What directios, advice warig or other geeral iformatio will people eed? Where, ad at what stage of the visit, will people eed the iformatio or assistace? I what form should the iformatio be preseted? Puttig precautios i place Are staffig levels, icludig those for stewards, adequate? Are staff competet ad adequately traied? Are arragemets i place to eforce veue rules, for example those regardig prohibitig the brigig i of alcohol, drugs ad offesive weapos? Moitorig crowds Are arragemets i place to moitor the evet ad detect ad deal with ay potetial problems at a earlier stage? Are there sufficiet staff to be able to moitor reliably all areas where there are potetial crowdig problems? Are there suitable vatage poits available to eable staff o locatio to moitor all areas effectively? Ca iformatio collected i a local area of the veue be relayed i a accurate ad reliable maer to a cetral locatio or cotrol poit for cotrol ad co-ordiatio purposes? How quickly could crowdig develop to a dagerous level at various idetified locatios? How much time is required to respod to crowdig problems? If a crowdig icidet occurred, how would you get to kow about it so that you could deal with the icidet itself ad prevet its escalatio or reoccurrece? Are there eough staff to be able to moitor reliably all areas where there are potetial crowdig problems? Are there eough good vatage poits for staff to moitor all areas effectively? Ca iformatio collected from differet areas of the veue be commuicated quickly to the cotrol poit? Ca staff at the cotrol poit quickly alert staff to a potetial problem? Presece of hazardous items ad substaces Have structures, such as temporary stads, bee ispected by a competet perso to esure agaist collapse? Has the positio of structures bee checked prior to the activity to esure that they do ot restrict access routes? Maagig crowds safely Page 34 of 63

35 Health ad Safety Are ay fireworks to be used stored safely ad are adequate procedures i place for their safe use? Are adequate precautios i place to prevet visitors from beig struck by vehicles i ad aroud the area of the evet? Has the effect o crowd safety of ay special effects, eg lasers, dry ice etc bee adequately addressed? Has equipmet istalled to esure effective crowd movemet, eg escalators, turstiles, ticket machies etc bee adequately maitaied? Are the risks associated with substaces hazardous to health, eg fumes form geerators adequately cotrolled? Are potetially hazardous areas, such as plat rooms, switchgear ad chemical storage areas, iaccessible to uauthorised persos? Have sources of fire bee adequately dealt with, for example hot food stalls, LPG cyliders o stalls ad i caravas, petrol geerators, smokig, lightig of fires by visitors etc? Maagig crowds safely Page 35 of 63

36 Health ad Safety Emergecy plaig ad procedures What is good crowd safety emergecy? 153 The term emergecy is take to mea a situatio where the emergecy services become actively ivolved or a urget evacuatio is required. Broadly, they will be situatios with the potetial for serious ijuries requirig immediate ad specialist actio beyod the capabilities of veue staff. 154 Emergecies may iclude fire or explosios, bomb threats, collapse of a structure, eg seatig, stagig, fairgroud attractio, release of hazardous substaces, eg gas leak, or uaticipated, hostile weather coditios, eg floodig, high wids. 155 The sigificace of crowd maagemet for emergecy plaig is that crowd disorder ad overcrowdig ca be factors i the creatio of emergecies, eg overloadig of barriers, stagig etc, behavioural problems such as violece or paic ad are also factors which make dealig with emergecies more difficult if they do occur. Measures to maage emergecy situatios 156 The types of measures you put i place will deped o the fidigs of your risk assessmet. They will also be iflueced by your cosultatios with other relevat parties icludig: authorities who eforce the relevat legislatio, eg local authority, fire authority ad ay relevat govermet departmets; emergecy services, icludig the police, earby hospitals ad o-site first-aid providers; all those ivolved i the operatio, such as the veue ower, security firms ad vedors operatig at the veue; earby sites ad trasport operators, which could be affected by the emergecy or subsequet evacuatio. Ay discussios eed to iclude the cosideratio of the safety of the emergecy services, as well as that of the public, your ow staff ad others o-site. 157 This sectio sets out key issues that should be covered i emergecy procedures to miimise risks due to crowdig durig emergecy situatios. It does ot attempt to provide guidace o the geeral subject of dealig with emergecies; further iformatio is available o this from other sources. 158 It is importat to keep writte emergecy procedures together as a emergecy pla. Esure that copies of emergecy procedures or plas are easily accessible to maagers, supervisors, stewards, other relevat staff ad persoel from outside bodies (eg local authority cotractors, vedors, emergecy services). Cover the procedures i traiig ad reiforce durig evet briefigs; this will help staff to act cofidetly ad efficietly durig a emergecy. Basic procedures ad other relevat iformatio could be put o a small card or sheet provided to all Maagig crowds safely Page 36 of 63

37 Health ad Safety staff. Cosider carryig out mock exercises to esure that your procedures will be effective i the evet of a emergecy. Emergecy procedures should cover the areas dealt with i the followig paragraphs. Iformig the emergecy services 159 Decide who will cotact the emergecy services i the evet of a emergecy ad who will deputise i their absece. They should be clear o their resposibilities. 160 Oce a emergecy is idetified (i the case of bomb threat, whe a suspicious package is discovered or a warig telephoe call received), the police ad other relevat emergecy services, icludig those resposible for accidet ivestigatio, eed to be told as soo as possible. It may be helpful if checklists of iformatio obtaied are passed to relevat staff, or at key locatios such as the cotrol poit. The obtaied iformatio could iclude: the exact official address of the veue; the ature of the emergecy, accidet or icidet ad its extet, if kow; the access route ad meetig poit. The previously agreed access may o loger be suitable due to the circumstaces of the emergecy; ay relevat iformatio about hazards, eg storage of chemicals; make sure that there is a system for passig o iformatio to all veue staff ad ay relevat outside bodies. Clearly specify who should be iformed ad i what order. 161 Further guidace for maagers ad security officers o bomb icidets ad threats is cotaied i the Home Office hadbook Bombs: Protectig people ad property. 12 Commuicatig with staff 162 Differet levels of urget respose may be ecessary, from ijury or sickess of oe perso to a major icidet that requires urget evacuatio. It is therefore importat that a competet perso(s) with authority to stop the evet is desigated at the plaig stage. Sice each lik i a commuicatio chai is a potetial source of misuderstadig, breakdow or delay, alertig chais should be as short as possible. Are commuicatio systems adequate? 163 Make sure that there is a system for passig o iformatio to all veue staff ad ay relevat outside bodies. Clearly specify who should be iformed ad i what order. Staff eed to be kept iformed about ay emergecies withi the veue i a way that does ot alert the crowd before staff are ready ad i a positio to hadle the sudde flows. You could do this by two-way radio, or by coded public address messages. The latter ca also be used to sigal to staff to liste to radio messages or to cotact the cotrol poit through the iteral telephoe system. Maagig crowds safely Page 37 of 63

38 Health ad Safety 164 You eed to decide what to tell staff. Iformatio could iclude: the ature of the emergecy, the locatio ad the affected areas, the procedures to follow, ad ay special iformatio about which escape routes or exits should ot be used. Commuicatig with the public withi the viciity of the evet 165 You will eed to cosider what to tell the public about the emergecy, ad whe. Whether the whole veue is told at oce will deped o the ature of the emergecy. 166 People may be cofused ad usure of what actio to take i a ufamiliar situatio. Some may be more cocered about makig alterative arragemets, such as lookig for separated frieds/family or telephoig home about a delay. The way you provide istructios ca address these cocers ad ifluece the speed of the public respose. 167 It will help to give short, clear istructios, repeat importat iformatio ad phrase istructios positively (eg Use the gree door, ot Do ot use the red door ). Be polite, firm ad calm. It is importat to esure that the iformatio is preseted i a way that is ot alarmig. 168 People ca be iformed about evacuatio by combiatios of the followig meas: recorded or live PA messages; word of mouth by staff (icludig the use of loud hailers); audible alarms; iformatio boards (icludig scoreboards, star scree etc). 169 Iformatio to be give to the public might iclude: which exits to use ad how to get there; where to assemble, if appropriate; the reaso for the istructios (eg to avoid overcrowdig i Area A, please use... ); a assurace to people that arragemets will be made to compesate them or to refud/re-schedule the evet; tellig people where the meetig poit(s) are for frieds/relatives who have got separated; availability of toilets ad telephoes outside the veue; ad providig iformatio o ay trasport arragemets that are available. Evacuatio 170 People ted to evacuate via the routes ad exits with which they are most familiar. Uless clear directios are give, this could result i overloadig of certai routes ad exits. You will eed to esure arragemets are made to make use of all available exits, ad people are directed to the most appropriate escape route ad exit. It may be ecessary to redeploy staff to help i the most crowded areas. 171 Esure suitable arragemets are made to provide assistace to people with special eeds, adults with youg childre ad pushchairs etc durig the evacuatio. Such assistace will help these people ad also reduce the likelihood of both crushig ad overcrowdig. You may also eed to set up barriers ad sigs ad help staff ad police tur away those arrivig at the veue as quickly as possible. Maagig crowds safely Page 38 of 63

39 Health ad Safety 172 If the layout of the veue is complex, or the size of the area to be evacuated is particularly large or distat from the exits, it may be more practical to ask people to gather at various safe poits i the veue ad the escort them i groups to the exits. 173 Staff eed clear guidace o what to do if someoe refuses to co-operate, for example goig i the wrog directio or beig reluctat to leave. Staff should try to fid out what the problem is if time permits. The perso(s) may have a problem that ca easily be solved, or kow of a problem which you do t, such as a blocked exit. If their refusal to follow istructios is likely to edager the safety of others, staff should seek help from a supervisor or evet promoter or maager. If dager is ivolved, do t waste time o it - tur to more urget tasks. 174 Maitai a clear route for emergecy vehicles ad esure that the emergecy services are aware of the route. This is to avoid emergecy vehicles havig to compete with departig or other traffic or the evacuatig crowds i order to get to the veue. Cosider phasig departure Assembly areas 175 Safe assembly areas are vital for successful evacuatio. Esure there are eough assembly areas ad that they are big eough to accommodate the crowd. Situate these areas away from vulerable areas such as flammable or chemical stores or car parks i bomb threat situatios. Esure that sigs are promiet ad that the locatio of assembly areas o veue maps or programmes is clearly marked. This will make it easier to direct the crowd to them whe a evacuatio is ecessary. 176 Provide people i assembly areas with: relevat iformatio, eg closure of car parks, availability of facilities such as toilets, telephoes ad meetig poits etc; ad updated iformatio o what is happeig at regular itervals, eg whether ad whe the veue is likely to be reopeed, or if the evet is likely to cotiue etc. 177 The iformatio could be provided via your public address system or by staff usig loud hailers. This assists other staff to carry out their tasks without frequet iterruptio from members of the public seekig iformatio. 178 If departure e masse as a result of a emergecy or otherwise is likely to lead to cogestio of departure routes or hamper emergecy services, esure there are sufficiet stewards to cotrol a phased departure. Maagig crowds safely Page 39 of 63

40 Health ad Safety Reopeig the veue 179 You will eed to cosider the implicatios of reopeig the veue oce it is safe to do so issues iclude: whether you ca readmit the people safely i a short time; aticipated crowd reactio to closure or reopeig; whether there will be trasport to take people home after the plaed closig time; ad refud arragemets. 180 Set up procedures to maage the reopeig of the veue. These procedures would esure a orderly reoccupatio ad avoid overcrowdig due to the heavy ad sudde flows created by people who may be i a hurry to get back ito the veue. Esure staff are i positio before allowig people to re-eter the veue. Positio staff at the likely pich poits i order to form orderly flows or queues. Thigs that ca go wrog checklist Have all foreseeable scearios that could disrupt the evet bee cosidered? For example: Have you cosulted relevat parties, eg local authority, police, fire authority, emergecy services, trasport operators, about plaig for possible emergecies? Have you cosidered possible disruptios ad emergecies i your risk assessmet? Do you have procedures i place to deal with possible disruptios ad emergecies? Do employees ad other staff uderstad the procedures? Are the procedures covered i traiig ad reiforced durig evet briefigs? Have you carried out mock exercise(s) to check that your procedures work? Maagig crowds safely Page 40 of 63

41 Health ad Safety Commuicatio 181 Good commuicatio is a essetial feature of maagig crowd safety. Orgaisers, their staff ad other persoel all have a key role to play. Commuicatio with the public 182 If you fail to provide the right iformatio at a early eough stage, visitors may quickly become cofused. For example, they may stop or slow dow to search for iformatio, or suddely chage directio, beig usure about where to go. This could lead to overcrowdig or obstructio of flows. 183 People experiecig difficulties i obtaiig iformatio may feel usatisfied, discoteted or eve become aggressive. They may be less likely to comply with istructios. 184 There are may ways of commuicatig effectively with the public; examples are show i Table 1 o page 62. Whatever methods you decide to use, esure that your commuicatio system provides accurate, up-to-date ad relevat iformatio, for example whe certai tickets are sold out or a attractio is temporarily closed. Cosider relayig iformatio i laguages other tha Eglish if ecessary, for example if there is likely to be a proportioately large umber of people from a ethic group. 185 Commuicatios play a essetial role i maagig the flow of people, for example by ecouragig people to use alterative or uder-used routes, etraces ad exits. Selective iformatio ca be give to people comig from differet directios to direct them to certai routes ad etraces ad exits. 186 Wherever possible, esure that iformatio is give to the public i advace to help them pla. For example: trasport details, meetig poits, veue rules ad prohibitios could be prited o the ticket or promotioal leaflet; display boards at the veue s etrace(s)/exit(s) could be used to iform people about items such as tickets that they eed to have ready or prohibited items that caot be brought ito the evet. This may reduce cogestio at ticket checkpoits; or a formal press release, letter drop, or advertisemets could be used to provide iformatio to the local commuity. Example: Evet i park People familiar with a park are likely to follow park paths rather tha those set out for the evet, eve if this meas cuttig through crowds. Routes would therefore eed to be cosidered i plaig. Good sigage ad effective stewardig would be essetial. Maagig crowds safely Page 41 of 63

42 Health ad Safety Provide clear aoucemets 187 Iform people promptly whe a evet is postpoed or trasport is delayed; this could be doe via display boards, public address system or loud hailers. Iform people of the measures that are i place to deal with the chages. Remember that for eveig evets people may arrive i the light ad leave i darkess - they could be disorietated. 188 Esure that all sigs, ad particularly those relatig to fire safety ad emergecy evacuatio, are preseted ad sited so that, as far as is possible, they ca be easily see by people with impaired visio or colour perceptio. Clear, audible public address aoucemets are vital for safety of people with impaired visio. People with impaired hearig rely o the presetatio of clear, iformative visual iformatio. Commuicatio betwee staff 189 Crowdig icidets ca develop very quickly; good commuicatios eable you to make a rapid ad orgaised respose. Cotrol poit 190 You eed to esure the flow of essetial iformatio betwee all staff cocered with crowd maagemet, durig ormal operatios ad i emergecies. The use of a cetral locatio or cotrol poit to co-ordiate the flow of iformatio ca assist you to: gai a overall picture at the veue, eg size of crowd, build-up of queues, serious icidets; co-ordiate the respose of all staff resposible for crowd maagemet; ad co-ordiate actios with other departmets, emergecy services or other exteral bodies. 191 For small veues, the cotrol poit ca be i the form of a maager s office with basic commuicatio equipmet (eg telephoe ad a two-way radio) ad ecessary plas ad procedures. At a outside evet, it could be a tet or cabi. For a street evet, you may eed to choose a primary site (eg begiig or ed of carival route to base the cotrol poit). Maagig crowds safely Page 42 of 63

43 Health ad Safety Table 1 Ways to commuicate with the public Method of commuicatio Tickets, leaflets, posters ad promotioal material Sigs Noticeboards ad electroic iformatio display boards Public address systems Commuicatio to idividuals by staff Iformatio desks Natioal or local radio ad press Commets Ca provide iformatio about trasport ad veue etry details ad layout, house rules ad prohibitios. Leaflets for residets i parade areas - parkig, recommedig carryig ID etc. Need to be sufficietly large, clear, legible ad suitably positioed. They iclude safety sigs, eg o smokig, emergecy escape etc ad iformatio sigs, eg directioal sigs, veue plas, veue rules. Ca display essetial iformatio such as prohibitio o cas ad bottles beig take ito the veue or o-smokig. Iformatio o chages such as trasport delays, opeig of alterative etraces or emergecy iformatio ca easily be displayed. The system should be audible, clear ad itelligible. It ca be used to iform, advise ad direct people. The system ca help to free staff from aswerig questios regardig delays or chages, so that they ca carry o with their duties. The idividual makig the aoucemets should have a calmig voice. A helpful way of givig specific advice, directios ad istructios to idividuals or small groups durig ormal ad emergecy situatios. The iformatio should be clearly give ad accurate. Ca provide specific advice, directios ad aswer specific equiries. Ca provide details of trasport (eg routes to take), ay chages to the evet or veue or late iformatio such as forecast of bad weather that will affect a outdoor evet. Maagig crowds safely Page 43 of 63

44 Health ad Safety 192 A major veue, o the other had, may require a purpose-built cetral cotrol room equipped with closed circuit TV moitors etc. Cotrol rooms are particularly useful i emergecy situatios, where the actios of veue staff ad emergecy services eed to be closely co-ordiated. 193 If you eed frequet commuicatios with outside bodies or others, such as a stewardig compay assistig with your evet, thik about sharig a cetral cotrol poit with them, positioig your cetral cotrol poit ear to theirs, or settig up a permaet commuicatios lik betwee the cotrol poits. 194 Bear i mid the followig poits whe cosiderig where to locate cotrol poits ad how to equip them. Try to avoid locatig ear ay potetial hazards or high-risk areas. Access should be cotrolled, ad etrace restricted to authorised persoel oly. If several items of electrical equipmet are istalled, a appropriate fire extiguisher should be provided. Try to reduce the glare o closed circuit TVs or visual display uit screes from atural ad artificial lightig. Geeral oise levels should be kept to a miimum, so that staff ca commuicate without difficulty. Try to keep all appropriate equipmet withi easy reach of everyoe who eeds to use it. Cosider istallig emergecy back-up power supplies, emergecy lightig ad back-up moitorig ad commuicatio systems. Cosider idetifyig a secodary cotrol poit i case a emergecy should require oe. Ways of commuicatig 195 May ways of commuicatig are available for use i public veues, ragig from simple verbal messages to radio ad telephoe systems. Examples are show i Table 2 at the ed of this sectio. Choose systems appropriate for your veue that are effective, clear, ad reliable. Orgaise routie checks ad tests of your commuicatio systems. 196 Durig a evet moitor the systems, icludig simple verbal oes, to esure that they are workig effectively. For example, the veue maager could be provided with a portable radio which is left switched o while they are o duty. 197 The failure of electrical commuicatios systems eeds to be cosidered. Provisio could iclude: spare mobile phoes or radios; back-up loud hailers i the evet of failure of the public address system; ad at larger veues, back-up power supply for the public address system. 198 Further iformatio o commuicatio systems is cotaied i the Guide to safety at sports grouds. Commuicatio procedures 199 Establish clear procedures that defie what eeds to be commuicated to whom, by whom ad whe. Thik about developig stadard procedures for commuicatios betwee staff. For example, a radio commuicatio might cosist of the followig: Maagig crowds safely Page 44 of 63

45 Health ad Safety who is callig; where they are callig from; the message itself; ad cofirmatio of the message. 200 Esure that o cofusio ca arise about areas of the veue beig discussed i commuicatios. Areas of the veue could be give agreed ames or umbers etc that are clearly uderstood by all staff. A grid map is ofte used for large outdoor evets to assist staff to idetify a locatio at the veue. To esure that commuicatio tasks are properly carried out, cosider providig checklists for the staff cocered. A checklist for a emergecy might idicate who should be cotacted ad i which order. 201 Thik about keepig some forms of commuicatio for high-priority use oly, such as a radio chael solely for the use of the medical or health ad safety teams. 202 At a evet where may people are ivolved, such as a street parade, cosider requestig that stadard messages are used betwee stewards ad to the public so as to avoid icosistet iformatio ad approach. Commuicatio with outside bodies 203 Decide who is resposible for key co-ordiatio tasks i emergecy or other cotigecy situatios, I particular, decide who speaks to emergecy services, other local veues, trasport orgaisatios ad other outside bodies. If you eed to have special trasport arragemets, maitai commuicatios chaels with trasport authorities, the police ad motorig orgaisatios throughout the plaig period ad durig the evet itself, makig cotigecy plas to deal with the results of traffic coditios. Maagig crowds safely Page 45 of 63

46 Health ad Safety Table 2 Commuicatig i public veues Way of commuicatig Briefigs/debriefigs Reviews Verbal commads/had sigals Public address system Telephoe Radio system/portable phoes How it is used To provide iformatio about crowd safety issues ad emergecy procedures prior to the opeig of the veue. For collectig observatios ad feedback commets after the evet or followig a evacuatio. Where staff are workig i visual cotact or i close proximity to a oisy area. Apart from its use i commuicatig with the public, it also allows staff to respod to broadcast public iformatio messages, or to coded messages alertig them to respod to a problem. Where staff are based at fixed locatios, eg turstiles or for emergecy commuicatios from key locatios, eg ext to emergecy exits ad where staff report i at itervals. Where staff operate over a wide area, there is a eed for close co-ordiatio ad/or a fast commuicatio with other colleagues or supervisory staff. 204 Traffic coditios may affect the timig of people s arrival or departure plas. Keep i close cotact with the police or motorig orgaisatios for updated traffic reports. 205 Esure that good commuicatio liks, eg direct phoe lies are maitaied with bus, tube ad rail statios close to the veue. If, for example, a trai is delayed, this iformatio ca be relayed to visitors. If your evet is likely to affect traffic to ad from earby evets or veues, esure the orgaisers are iformed. Maagig crowds safely Page 46 of 63

47 Health ad Safety Moitorig crowds 206 The moitorig of crowd behaviour is a key compoet of crowd maagemet, eablig you to detect crowdig problems at a early stage. You ca also assess how effective your crowd safety precautios are. 207 Effective moitorig ca help avoid overcrowdig problems ad aid log-term actio to correct problems i veue desig or evet maagemet. Three key areas to cosider are: overall umber of people (to esure that the overall veue capacity is ot likely to be exceeded); distributio of people (to help prevet local overcrowdig); ad idetifyig potetial crowd problems (to prevet problems such as public disorder from escalatig ad leadig to overcrowdig). Where to moitor 208 As part of your risk assessmet, idetify potetial problem areas which will eed to be closely moitored. Such areas may iclude: etraces ad exits; stadig areas with a potetial for crowd surges or pushig; popular stalls, attractios, exhibits ad refreshmets; bottleecks (eg stairs, escalators etc); areas where people queue; ad eclosed or cofied areas. CCTV ca be a helpful additio How to moitor Coutig systems 209 Coutig systems ca help you estimate the umber of people withi your veue or area of the veue. Desig these systems to provide iformatio to staff at the cotrol poit as to how quickly people are eterig ad whe ad if a area is expected to become full. 210 Examples of coutig systems iclude: Maagig crowds safely Page 47 of 63

48 Health ad Safety had couters. These ca be used at etraces to avoid double coutig; providig wristbads to allow people to eter particular areas such as a stadig area at a music evet. Overcrowdig ca be preveted by oly issuig a agreed set umber of wristbads; turstiles liked to automatic coutig systems; ad computerised systems liked to sesors at etry poits. 211 The followig ways of coutig may be more appropriate to veues where there are few defied boudaries, such as street evets or statios ad shoppig malls where people are cotiuously arrivig ad leavig throughout the day: samplig flow rates at etraces to estimate umbers eterig or leavig the veue; moitorig of cars ad coaches eterig the veue ad checkig how full the parkig areas are; usig closed circuit televisio (CCTV) or staff at vatage poits to view the crowd ad estimate umbers; ad estimatig the umber of people based o advaced bookigs, trasportatio schedules or previous experiece. Staff withi the crowd 212 This eables staff to experiece crowdig coditios at first had. It also eables them to observe people s faces, idetify sigs of distress ad sese atmospheres or tesio. Staff o had ca help to assist people or to diffuse ay dagerous behaviour such as jumpig oto seats or surfig the crowd. Staff may discourage dagerous behaviour by their presece i the crowd. 213 Where moitorig is doe by staff statioed at particular posts, esure that they occupy vatage poits where they ca sca a sufficietly large area ad their lies of sight are ot obstructed. 214 Moitorig ca also be carried out by staff patrollig the veue. This is appropriate where crowdig problems are likely to develop slowly at particular poits withi the veue. Staff may be give specific areas to check at regular itervals. Patrollig the veue 215 If moitorig is doe by staff at the same time as other duties, such as ticket checkig, esure they have sufficiet opportuities to moitor the crowd. Otherwise, cosider havig additioal staff to reduce their workload or to moitor ad cotrol crowds durig busy periods. Maagig crowds safely Page 48 of 63

49 Health ad Safety Closed circuit televisio (CCTV) 216 CCTV systems ca vary from a few fixed cameras at key locatios through to extesive coverage usig a large umber of remote operatio cameras with zoom les. CCTV allows a overview of sectios such as etraces, departure routes ad problem areas relayed directly to the cotrol poit. 217 The systems ca provide iformatio o distributio i a umber of areas ad are useful for directig ad moitorig crowd maagemet operatios. CCTV is particularly useful to moitor areas which would otherwise require a great deal of staffig. A CCTV system should ever be cosidered as a substitute for good stewardig or other forms of safety maagemet. It should be viewed as a helpful additio. 218 Esure that the CCTV system is adequately maitaied ad ispected. Develop a cotigecy pla to cover power supply or system failure. For large evets, a auxiliary power supply may be appropriate. Further guidace o CCTV systems ca be foud i the Guide to safety at sports grouds. 219 You may fid it appropriate to use a selectio of the systems described to effectively moitor your evet. For example, you could use CCTV at fixed locatios, supported by staff watchig the crowd from vatage poits, while others patrol the veue. Estimatig the crowd 220 Whe moitorig the size of the crowd, the followig are useful idicators: space betwee people; rough cout of people i a small idetifiable area, eg betwee four colums which ca be scaled up; ad rate of flow ito or out of a area (ie the umber of people or size of crowd passig a marked object). 221 Whe moitorig chages i the behaviour of the crowd, the followig are useful idicators: sigs of distress; pushig ad surgig; ad shoutig or similar idicatios of bad temper or excitemet. Maagig crowds safely Page 49 of 63

50 Health ad Safety Review 222 Review your activity ad cosider all aspects of the arragemets you have put i place to maage crowd safety. The review ca be i the light of a recet evet, eg football match, street festival or a period of operatio of a veue, eg coferece cetre, shoppig mall, railway statio. 223 Reviews are vitally importat to esure that your crowd safety arragemets are relevat to ad appropriate for your ext evet or to the chagig eeds of your veue ad its visitors. Your review will help to idetify areas where chages are eeded ad/or itroduce suggested improvemets. It may be helpful to use the sectio headigs i this publicatio as a guide to esure that you cover all the key issues durig your review. Aims 224 You should aim to: ivolve staff i the review ad ecourage them to discuss cocers; idetify ad cater for ay chages to the veue, eg staffig structure, type of people attedig the veue, temporary chages due to buildig work; idetify the causes of ay particular problems or accidets that occurred at the evet or durig veue operatio. Iclude icidets that possibly could have led to ijury or damage ( ear misses ); idetify ways of improvig the maagemet of crowd safety; ad collect feedback from those ivolved i the evet or operatio of the veue. 225 The coclusios or key poits, successes ad failures from the review process eed to be fed back to all those ivolved i the evet. This is a useful way to motivate staff to improve performace. Timig 226 Review your evet as soo as possible after it has fiished, i order to esure that ay problems are still relatively fresh i people s memories. 227 If may of the staff are likely to disperse, you may wish to carry out a rapid debriefig as soo as practicable ad use the report of this i the full review. Some evet maagers carry out a debriefig immediately after the evet. They the look at the issues raised before their ext evet ad modify plas ad procedures i the light of those issues. 228 Whatever approach you adopt, agree the ature ad timig of the review before the evet starts. Arragemets for addressig issues raised i the review ca also be agreed at this stage. For veues used o a routie basis, eg shoppig malls, reviews could be carried out regularly (ie mothly, aually) ad certaily after ay major problems or icidets or whe ay chages i veue desig or procedures are cosidered. Maagig crowds safely Page 50 of 63

51 Health ad Safety Review evet safety as soo as possible Ivolve staff i the review Who to ivolve 229 I geeral, represetatives of all parties ivolved i the evet should take part i the review. Where possible, select represetatives who ca give you the fullest picture of all aspects of the evet. 230 Specific traiig for your ow staff ivolved i the review process ca help to improve its effectiveess. If there are a large umber of people ivolved, you may fid it more maageable to have a umber of separate reviews examiig particular issues, which ca the be combied. What iformatio to collect 231 The process of review is based o iformatio gathered durig a evet or the ruig of a veue. You ca gather this iformatio i a umber of ways, some are suggested below. The way you collect iformatio should also be periodically reviewed ad updated. Sources of iformatio 232 You could cosider the followig sources of iformatio: debriefig meetig after evets for evets ru over several days, collect commets made at staff meetigs ad updates durig the evet; thik about settig up a reportig system to record the cocers of idividual members of staff ad members of the public; usig a reportig system which documets icidets, ear misses, good ad bad features of operatios etc; ad health ad safety ispectios by your ow staff or eforcig authority ispectors. Maagig crowds safely Page 51 of 63

52 Health ad Safety Types of iformatio 233 It is importat to cosider: the effectiveess of your plas, risk assessmets ad procedures, for example how well a ew procedure worked for improvig supervisors resposes to iformatio from stewards or whether the ew type of barrier was effective; ad idicatios of problems, for example areas of crowd build-up, sudde crowd movemets, complaits by members of the public. I each istace, it is very importat to try to idetify both the obvious ad uderlyig causes of the problem. After your review 234 Based o the iformatio you have collected, your review will help you to decide if your arragemets for maagig crowd safety are adequate. It may be ecessary to take remedial actio to improve aspects of your arragemets. Risk assessmets may eed to be modified. It is importat to decide who is resposible for takig the actio ad the time for its completio. 235 To assist i future plaig, you should keep a record of the fidigs of the review. The record is particularly importat where there are chages i the persoel resposible for crowd safety. Maagig crowds safely Page 52 of 63

53 Health ad Safety Appedix: Relevat legislatio The Health ad Safety at Work etc Act The Health ad Safety at Work etc Act 1974 (HSW Act) applies to all employers, employees ad self-employed people. The Act protects ot oly people at work but also members of the public ad voluteers who may be affected by a work activity. Arragig ad ruig a evet couts as work activity. Duties of employers to employees 2 All employers have a geeral duty uder the Act to make sure that, so far as reasoably practicable, the health, safety ad welfare of their employees are protected whe they are at work. I practical terms, employers must make sure that: the workplace is safe ad without risks; safe workig procedures are set ad followed; machiery ad equipmet is properly maitaied ad safe to use; equipmet ad harmful substaces are used properly ad stored safely; employees are provided with the iformatio, istructio, traiig ad supervisio ecessary for them to work safely; ad employees have healthy workig coditios, icludig adequate lightig, heatig, vetilatio ad toilet facilities. 3 Employers with five or more employees must prepare a writte health ad safety policy. The safety policy must set out the employer s aims ad objectives for improvig health ad safety for their employees. It must also set out the orgaisatio ad arragemets i place for achievig those objectives. Orgaisatio ca be take to mea people ad their resposibilities, ad arragemets to mea systems ad procedures. 4 Employers are required to brig the health ad safety policy to the otice of all their employees ad to keep their policy up to date. Revisios will be ecessary if, for example, procedures icluded i the policy are chaged or if the policy ames particular idividuals as beig resposible for aspects of health ad safety ad there are subsequet chages i persoel. 5 Recogised trade uios have the right to appoit safety represetatives o behalf of the employees i cosultatios with their employer about health ad safety matters. 6 Ay employees ot i groups covered by trade uio safety represetatives must be cosulted by their employers. The employer ca choose to cosult them directly or through elected represetatives. Duties of employers to people ot employed by them 7 Employers ad self-employed people have a resposibility for the health ad safety of members of the public, other self-employed people or cotractors employees who may be affected by their udertakig. Maagig crowds safely Page 53 of 63

54 Health ad Safety 8 The people who should be cosidered iclude the followig: people attedig the evet; stewards or voluteers; ad food ad merchadise vedors or cotractors erectig temporary stads. 9 Cotractors ad people such as vedors also have their ow duties to comply with health ad safety legislatio. However, they may eed to be give iformatio about a site so that they are ot put at risk. Those hirig cotractors may eed to exchage iformatio about the way i which a job is to be carried out, so that their ow employees or members of the public are ot put i dager. Duties of employees 10 Uder the HSW Act, employees have a legal duty to take reasoable care of themselves ad other people ad co-operate with their employer where safety is cocered. Duties of self-employed people 11 Self-employed people have duties uder the HSW Act similar to those for employers ad should ot create risks to themselves or other people. They may also be subject to the requiremets of the Regulatios made uder the HSW Act. Although oly the courts ca give a authoritative iterpretatio of law, i cosiderig the applicatio of these Regulatios ad guidace to people workig uder aother s directio, the followig should be cosidered: If people workig uder the cotrol ad directio of others are treated as selfemployed for tax ad atioal isurace purposes they are evertheless treated as their employees for health ad safety purposes. It may therefore be ecessary to take appropriate actio to protect them. If ay doubt exists about who is resposible for the health ad safety of a worker this could be clarified ad icluded i the terms of a cotract. However, remember, a legal duty uder sectio 3 of the HSW Act caot be passed o by meas of a cotract ad there will still be duties towards others uder sectio 3 of the HSW Act. If such workers are employed o the basis that they are resposible for their ow health ad safety, legal advice should be sought before doig so. Duties of people i cotrol of premises 12 The HSW Act places duties o ayoe who has cotrol to ay extet of odomestic premises, eg public veues used by people who are ot their employees eg members of public attedig a evet. These duties overlap to some extet with the duties of employers ad the self-employed to people who are ot employees. 13 The duties apply to premises where machiery or equipmet or substaces are provided for use of others. The duties also apply whe people eter to work there, for example cotractors who go ito premises to istall or repair machiery. 14 Every perso i cotrol of o-domestic premises has a duty to take such steps as are reasoable i their positio to esure, so far as is reasoably practicable, that there are o risks to health ad safety. The duty exteds to the o-domestic premises themselves, ay coected o-domestic premises such as corridors, staircases or storage spaces, the ways ito ad out of o-domestic premises, ad ay machiery or materials i the o-domestic premises. Maagig crowds safely Page 54 of 63

55 Health ad Safety 15 The duty applies to persos such as owers ad occupiers of o-domestic premises, or persos who by virtue of a cotract or teacy agreemet have specific obligatios i respect of the repair or maiteace of premises or to esure that machiery or substaces are safe ad without risks to health. The Maagemet of Health ad Safety at Work Regulatios The Maagemet of Health ad Safety at Work Regulatios 1999 (the MHSW Regulatios) require employers ad the self-employed to assess the risks to employees ad o-employees, eg members of the public arisig from work activities. This is i order to idetify the cotrol measures which eed to be take to comply with relevat health ad safety legislatio, elimiatig risks where possible ad reducig risk from those activities which remai. 17 Where there are five or more employees, the sigificat fidigs of the assessmet must be recorded. These should iclude: a record of the prevetive ad protective measures i place to cotrol the risks; what further actio, if ay, eeds to be take to reduce risk sufficietly; ad demostrable proof that a suitable ad sufficiet assessmet has bee made. A assessmet should be reviewed if there are developmets that suggest that it may o loger be valid (or that it ca be improved). The assessmet should, if ecessary, be modified. 18 Employers are required to have arragemets for effective plaig, orgaisatio, cotrol, moitorig ad review of prevetive ad protective measures (ie health ad safety precautios). The MHSW Regulatios cover key aspects of health ad safety arragemets for esurig the safety of crowds. Further geeral guidace ca be foud i the HSE publicatio Maagig health ad safety: Five steps to success The Regulatios require employers to appoit a competet perso to assist them with their health ad safety duties. The employer should look to appoit competet perso(s), where they exist, from amog your employees i preferece to exteral sources of competet advice ad assistace. Exteral sources of competet advice ad assistace should be sought if o iteral source exists or it is isufficiet to provide the employer with the help they eed. 20 Employers are required to provide employees with adequate health ad safety traiig ad comprehesible ad relevat iformatio. 21 The Regulatios also require that temporary workers (ie those who are employed uder a fixed-term cotract of employmet) must be give certai iformatio about health ad safety iformatio before their duties begi. 22 Where employers share their workplace with aother employer or selfemployed perso, or have aother employer s staff workig i their premises, they have a duty to co-operate with each other, take all reasoable steps to co-ordiate measures take by them to comply with the Fire Precautios (Workplace) Regulatios 1997, 14 ad exchage iformatio o health ad safety. Every employer ad self-employed perso must esure that employees of ay other employer workig i their workplace are provided with comprehesible iformatio o risks to their health ad safety arisig from the work activity ad cotrol measures itroduced to comply with the law. Maagig crowds safely Page 55 of 63

56 Health ad Safety 23 The Regulatios also require employers to arrage ecessary cotacts with the emergecy services with regard to first aid, emergecy medical care ad rescue work, as well as requirig them to have procedures i place to deal with serious ad immiet dager. This might iclude evacuatio of the workplace. The employer must omiate a sufficiet umber of people to implemet the procedures. They should be traied ad competet to carry out their role i a emergecy situatio. The Health ad Safety (First-Aid) Regulatios Uder the Regulatios, arragemets for first aid should be made at places where people work. The level of first aid eeded depeds o a umber of factors, icludig the umber of employees ad the type of work they are doig. The Regulatios will apply to evets where there is a work activity. 25 The HSE publicatio First aid at work. Health ad Safety (First-Aid) Regulatios Approved Code of Practice ad Guidace 15 gives advice o how to comply with the Regulatios. 26 The requiremets of the Regulatios are separate to the first-aid arragemets which may be eeded for visitors. The Provisio ad Use of Work Equipmet Regulatios The Provisio ad Use of Work Equipmet Regulatios 1999 (PUWER) 16 place duties o employers ad the self-employed to esure the provisio of safe ad suitable work equipmet, ad to esure its safe use. The Cotrol of Substaces Hazardous to Health Regulatios The Cotrol of Substaces Hazardous to Health Regulatios 1999 (COSHH) require employers ad self-employed to prevet or cotrol the exposure of employees ad others (ie members of the public) to hazardous substaces. COSHH sets out basic measures that employers must take to assess the risks associated with hazardous substaces, implemet ay measures eeded to prevet or cotrol exposure ad establish good workig practices. Further iformatio is cotaied i the HSE publicatios COSHH: A brief guide to the Regulatios17 ad A step by step guide to COSHH assessmet. 18 The Reportig of Ijuries, Diseases ad Dagerous Occurreces Regulatios The Reportig of Ijuries, Diseases ad Dagerous Occurreces Regulatios 1995 (RIDDOR) 19 make requiremets for fatalities, certai types of ijury ad other icidets to be reported to the eforcig authority (either the local authority or HSE). The perso who is resposible for makig the report is either the employer of the idividual ivolved, the perso who has cotrol of the premises or, i some cases, a self-employed perso. Further iformatio is cotaied i the HSE publicatios RIDDOR explaied 20 ad Everyoe s guide to RIDDOR Whe you must report 30 The Regulatios require a report to be made uder the followig circumstaces: Maagig crowds safely Page 56 of 63

57 Health ad Safety Death or major ijury If there is a accidet coected with work ad: your employee, or a self-employed perso workig o your premises, is killed or suffers a major ijury (icludig as a result of ocosesual physical violece); or a member of the public is killed or take to hospital for treatmet; you must otify the appropriate eforcig authority without delay, for example by telephoe. Withi te days you must follow this up with a completed accidet report form (F2508). Major ijuries are listed i RIDDOR ad iclude, fracture, amputatio, loss of sight, ijury leadig to heat-iduced illess or ucosciousess. Over-three-day ijury If there is a accidet coected with work (icludig a act of ocosesual physical violece) ad your employee (or a self-employed perso workig o your premises) suffers a over-three-day ijury, you must sed a completed accidet report form (F2508) to the eforcig authority withi te days. A over-three-day ijury is oe which is ot major but results i the ijured perso beig away from work or uable to do their ormal work for more tha three days (icludig ay days they would t ormally be expected to work, such as weekeds, rest days or holidays), ot coutig the day of the ijury itself. Dagerous occurrece If somethig happes which does ot result i a reportable ijury, but which clearly could have doe, the it may be a dagerous occurrece which must be reported immediately (eg by telephoe). A full list of dagerous occurreces is give i RIDDOR. The dagerous occurreces most relevat to evets are: the collapse or partial collapse of scaffoldig which is more tha 5 metres high; failure of ay loadbearig fairgroud equipmet; ad explosio or fire causig suspesio of ormal work for over 24 hours. You must follow this up withi te days with a completed accidet report form (F2508). Certai types of disease that affect people as a result of their work must also be reported uder the Regulatios. A full list of reportable diseases is give i RIDDOR. Record keepig 31 You must keep a record of ay reportable ijury, disease or dagerous occurrece for three years after the date o which it happeed. This must iclude the date ad method of reportig; the date, time ad place of the evet, persoal details of those ivolved ad a brief descriptio of the ature of the evet or disease. You ca keep the record i ay form you wish, for example by keepig copies of report forms i a file; recordig the details o a computer; or maitaiig a writte log. Maagig crowds safely Page 57 of 63

58 Health ad Safety Fire safety legislatio 32 The Fire Precautios (Workplace) Regulatios 1997, as ameded, came ito effect o 1 December They removed virtually all exceptios from the regulatios, particularly premises with fire certificates. Your resposibility exteds beyod compliace with the requiremets of the regulatios i relatio to matters withi the employer s cotrol. You must: carry out a fire risk assessmet of the site of the evet. All employees ad those who atted who may be affected by a fire, icludig those with special eeds, must be take ito accout record the fidigs of your risk assessmet if you employ more tha five people; provide ad maitai adequate fire precautios ad safeguard occupats of the site by such meas as properly maitaied fire-fightig equipmet ad fire detectors, emergecy routes ad exits; ad provide iformatio ad istructio to your employees about what to do i a emergecy. 33 You have six further legal duties: you must omiate employees, possibly yourself, to udertake special roles idetified i your emergecy pla; you must cosult your employees, or their represetatives, about these omiatios ad about proposals to improve fire precautios; you must iform other employers who share the locatio of potetially major risks that might affect the safety of their employees you must also co-operate with them regardig measures proposed to reduce or cotrol those risks; if you are ot a employer, but cotrol a locatio that accommodates several evets, you must esure compliace with the fire regulatios i those areas that you cotrol; your employees must co-operate to esure the site is safe from fire ad avoid placig themselves or other people at risk; ad you must establish a suitable meas of cotactig the emergecy services, ad esure that they ca be called easily. 34 The Fire Precautios Act works primarily through fire certificatio procedures. If you are i ay doubt about whether you eed to obtai a fire certificate for your evet or at your veue, you should seek advice from your local fire authority. Specificatios for meas of escape i ew, exteded or altered premises are cotaied i the relevat Buildig Regulatios. 35 Musical evets are subject to the requiremets of the Fire Precautios (Workplace) Regulatios 1997, as ameded, ad the Fire Precautios Act The regulatios also apply to ay tet or moveable structure. Further guidace icludes the Guide to fire precautios i existig places of etertaimet ad like premises The MHSW Regulatios require you to assess the risks to employees ad those who atted a evet, so that you ca decide what measures are ecessary to comply with health ad safety law. This icludes protectio from fire, a assessmet of its likelihood ad cosequeces, ad the eed for measures to reduce or elimiate such risks. Maagig crowds safely Page 58 of 63

59 Health ad Safety 37 Fire safety: A employer s guide 24 cotais guidelies o how to draw up a emergecy pla ad deals with geeral fire precautios. 38 If you are i doubt about ay aspect of fire safety, you should cosult your local fire authority. Sports grouds 39 Fire precautios i sports grouds with a local authority safety certificate, issued uder the Safety of Sports Grouds Act or the Fire Safety ad Safety of Places of Sport Act 1987, 26 form a sigle elemet of itegrated requiremets for spectators safety. Differet authorities should eforce coflictig requiremets. The fire authority should cosult the local authority issuig the safety certificate. 40 Local authorities issue, moitor or eforce safety certificates for sports grouds. They ca set or reduce capacities or issue prohibitio otices uder sports grouds legislatio. However, with fire precautios based o your risk assessmet uder the Fire Regulatios, a safety certificate that cotravees the Fire Regulatios may be revoked. Local authorities have legal power to amed safety certificates. Etertaimet which requires a licece 41 Several forms of etertaimet require a licece from the local authority or licesig magistrate. These liceces ca impose additioal fire safety requiremets ad stadards of safety ad hygiee, which may go beyod the miimum levels eeded by the Fire Regulatios. The most commo evets which are subject to licesig cotrol ivolve: the sale of alcohol; music ad dacig; theatrical performaces; the showig of films; gamblig; sportig activities; ad other forms of public etertaimet. 42 Permaet veues usually have a aual etertaimet licece grated with specific coditios attached for differet types of evets. If you are orgaisig a evet i premises with a existig etertaimet licece, you will eed to familiarise yourself with its specific requiremets. 43 Public etertaimet liceces do ot replace the eed for you to comply with the provisios of the HSW Act. The HSW Act should ot be cofused with etertaimet licesig, which is dealt with uder separate legislatio, such as the Local Govermet (Miscellaeous Provisios) Act If your evet is, or may be, subject to licesig cotrol, it is advisable to discuss the fidigs of your risk assessmet with the local fire authority before puttig your proposed fire safety measures ito place. This ca help you avoid uecessary expediture. 45 If you already have a licece, you should discuss your proposals for chages to the fire precautios with the local fire authority before approachig the authority who issued your licece. Maagig crowds safely Page 59 of 63

60 Health ad Safety People with special eeds 46 Legislatio dealig with people with special eeds makes o specific requiremets regardig meas of escape. However, the Disability Discrimiatio Act requires you to make reasoable adjustmets to esure that o perso preset is at a disadvatage. This icludes esurig that people with special eeds ca leave the evet safely i a emergecy. 47 You should therefore esure that your emergecy pla takes accout of people with special eeds. You should idetify the special eeds of ay disabled employees whe plaig your emergecy arragemets ad evacuatio procedures. You must also cosider other less able-bodied people who may have access to the evet. 48 You have to bear i mid the difficulties experieced i eterig ad leavig the evet, particularly i a emergecy, by people with various physical ad/or metal disabilities. 49 If ay of your employees have disabilities, you should cosult them about your emergecy pla, takig their disabilities ito accout. Maagig crowds safely Page 60 of 63

61 Health ad Safety Refereces 1 Health ad Safety at Work etc Act 1974 Ch 37 The Statioery Office 1974 ISBN Maagemet of health ad safety at work. Maagemet of Health ad Safety at Work Regulatios 1999: Approved Code of Practice L21 (Secod editio) HSE Books 2000 ISBN The evet safety guide: A guide to health, safety ad welfare at music ad similar evets HSG195 HSE Books 1999 ISBN Guide to safety at sports grouds ( The gree guide ) The Statioery Office ISBN Five steps to risk assessmet: A step by step guide to a safer ad healthier workplace INDG163 HSE Books 1998 Sigle copies free, multiple copies i priced packs ISBN Safety sigs ad sigals. Health ad Safety (Safety Sigs ad Sigals) Regulatios Guidace o Regulatios L64 HSE Books 1997 ISBN Fairgrouds ad amusemet parks: Guidace o safe practice HSG175 HSE Books 1998 ISBN Workig together o firework displays: A guide to safety for firework display orgaisers ad operators HSG123 HSE Books 1999 ISBN Health ad safety at motor sport evets: A guide for employers ad orgaisers HSG112 HSE Books 1999 ISBN Geeral COSHH ACOP (Cotrol of substaces hazardous to health) ad Carcioges ACOP (Cotrol of carciogeic substaces) ad Biological agets ACOP (Cotrol of biological agets). Cotrol of Substaces Hazardous to Health Regulatios Approved Codes of Practice L5 HSE Books 1999 ISBN Temporary demoutable structures: Guidace o procuremet, desig ad use Istitute of Structural Egieers 1995 (Available from 11 Upper Belgrave Street, Lodo SW1X 8BH) 12 Bombs: Protectig people ad property Home Office 1999 (Oly available o website: 13 Maagig health ad safety: Five steps to success INDG275 HSE Books1998 (Free leaflet) 14 Fire Precautios (Workplace) Regulatios 1997 SI 1997/1840 The Statioery Office 1997 ISBN First aid at work. The Health ad Safety (First-Aid) Regulatios Approved Code of Practice ad Guidace L74 HSE Books 1997 ISBN Safe use of work equipmet. Provisio ad Use of Work Equipmet Regulatios Approved Code of Practice ad Guidace L22 (Secod editio) HSE Books 1998 ISBN Maagig crowds safely Page 61 of 63

62 Health ad Safety 17 COSHH: A brief guide to the Regulatios INDG136 (rev1) HSE Books 1999 Sigle copies free, multiple copies i priced packs ISBN A step by step guide to COSHH assessmet HSG97 HSE Books 1992 ISBN A guide to the Reportig of Ijuries, Diseases ad Dagerous Occurreces Regulatios 1995 L73 (Secod editio) HSE Books 1999 ISBN RIDDOR explaied: The Reportig of Ijuries, Diseases ad Dagerous Occurreces Regulatios 1995 HSE31(rev1) HSE Books 1999 Sigle copies free, multiple copies i priced packs ISBN Everyoe s guide to RIDDOR 95: Reportig of Ijuries, Diseases ad Dagerous Occurreces Regulatios 1995 HSE Books 1996 Sigle copies free, multiple copies i priced packs ISBN Fire Precautios Act 1971 Ch 40 The Statioery Office 1971 ISBN X 23 Guide to fire precautios i existig places of etertaimet ad like premises The Statioery Office 1994 ISBN Fire safety: A employer s guide HSE Books 1999 ISBN Safety of Sports Grouds Act 1975 Ch 52 The Statioery Office 1975 ISBN Fire Safety ad Safety of Places of Sport Act 1987 Ch 27 The Statioery Office 1987 ISBN X 27 Local Govermet (Miscellaeous Provisios) Act 1982 Ch 30 The Statioery Office 1982 ISBN X 28 Disability Discrimiatio Act 1995 Ch 50 The Statioery Office 1995 ISBN While every effort has bee made to esure the accuracy of the refereces listed i this publicatio, their future availability caot be guarateed Statioery Office publicatios Copies of the acts, regulatios ad other Statioery Office (formerly HMSO) publicatios metioed i this guide are available from: The Publicatios Cetre, PO Box 276, Lodo SW8 5DT Tel: Fax: HSE publicatios See iside back cover for details Maagig crowds safely Page 62 of 63

63 Health ad Safety Further iformatio For iformatio about health ad safety rig HSE s Ifolie Tel: Fax: Textphoe: [email protected] or write to HSE Iformatio Services, Caerphilly Busiess Park, Caerphilly CF83 3GG. HSE priced ad free publicatios ca be viewed olie or ordered from or cotact HSE Books, PO Box 1999, Sudbury, Suffolk CO10 2WA Tel: Fax: HSE priced publicatios are also available from bookshops. British Stadards ca be obtaied i PDF or hard copy formats from the BSI olie shop: or by cotactig BSI Customer Services for hard copies oly Tel: [email protected]. The Statioery Office publicatios are available from The Statioery Office, PO Box 29, Norwich NR3 1GN Tel: Fax: [email protected] Website: (They are also available from bookshops.) Statutory Istrumets ca be viewed free of charge at Published by HSE 03/10 Page 63 of 63