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Health and Safety Executive
Managing crowds safelyAguidefororganisersateventsandvenues
This is a free-to-download, web-friendly version of HSG154 (Second edition, published 2000). This version has been adapted for online use from HSE’s current printed version.
Youcanbuythebookatwww.hsebooks.co.ukandmostgoodbookshops.
ISBN 978 0 7176 1834 7Price £17.50
Thisbookletaimstoprovidepracticalguidelinesonmanagingcrowdsafetyinasystematicwaybysettingoutanapproachwhichcanbeutilisedbyorganisersofanyeventorvenue.GuidanceistargetedatallownersandoperatorsinallpublicvenueswheretheHSWActapplies.Thevenuemaybeusedregularly,(egshoppingcentresandsportsgrounds,oroccasionally(egfireworksdisplaysandagriculturalshows).Theguideisaimedatorganisers,butwillalsobeofinteresttovenuestaffandcontractors
HSE Books
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Health and Safety Executive
© Crown copyright 2000
Firstpublished1996
ISBN9780717618347
Allrightsreserved.Nopartofthispublicationmaybereproduced,storedinaretrievalsystem,ortransmittedinanyformorbyanymeans(electronic,mechanical,photocopying,recordingorotherwise)withoutthepriorwrittenpermissionofthecopyrightowner.
Applicationsforreproductionshouldbemadeinwritingto:TheOfficeofPublicSectorInformation,InformationPolicyTeam,Kew,Richmond,SurreyTW94DUore-mail:[email protected]
ThisguidanceisissuedbytheHealthandSafetyExecutive.Followingtheguidanceisnotcompulsoryandyouarefreetotakeotheraction.Butifyoudofollowtheguidanceyouwillnormallybedoingenoughtocomplywiththelaw.Healthandsafetyinspectorsseektosecurecompliancewiththelawandmayrefertothisguidanceasillustratinggoodpractice.
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ContentsIntroduction 4
Planning 7
Assessingrisks 16
Puttingprecautionsinplace 26
Emergencyplanningandprocedures 35
Communication40
Monitoringcrowds 46
Review 49
Appendix:relevantlegislation 52
References 60
Furtherinformation 62
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IntroductionThe guide and its aims
1 Crowdsareunavoidableoccurrencesofeverydaylife;problemsintheirsafemanagementarenot.Thisguideaimstoprovidepracticalguidancetohelpthoseorganisingeventstomanagecrowdsafetyinasystematicway.Itdoesnotspecifyaparticularwayofachievingcrowdsafety,butsetsoutageneralapproach.
2 Althoughprimarilyaimedatorganiserswhohaveoverallresponsibilityfortheevent,theguidewillbeofusetoothersinvolvedintheevent,suchasvenuestaffandcontractors.
3 Thereispotentialforminorormajorinjuryoccurringthroughthedynamicsofcrowdbehaviour,aspasttragedieshavedemonstrated.Measuresshouldbetakenbytheorganisersofeventstoensurethatthereiseffectiveandsafecrowdmanagementsothatovercrowdingdoesnotoccur.
4 Crowdingoccursasaresultofanexcessivelylargenumberofpeoplegatheringinaspecifiedarea.Largenumbersgatherroutinelyinsuchplacesasshoppingmalls,trainstations,busstationsetc.However,theyalsogather,ofteningreaterdensity,whereparticularattractionsoreventsaretakingplace,suchasatsportingevents,concerts,theatres,cinemasandfestivals.Atsucheventstheremaybegreaterriskstotheirsafety.
5 Thisguidanceaddresses:
n events,bothsportingandnon-sporting,atfootballstadiaandothersportsgrounds;
n eventsatsitesnotdesignedforthepurposesuchasparksorindustrialunits,egafaironatowncommonorapublicair-showonanairfield;and
n eventsinstreetsorbuilt-upareas,egstreetfairs,carnivalprocessions,NewYearcelebrations.
6 Forthepurposeofthispublication,the‘organiser’istakentobeanyonewhohasprimeresponsibilityfortheevent.Thearrangementsthemselvesmayinvolveanumberofpeople,dependinguponthecontractualarrangementsunderwhichtheeventistoberun.
7 Inordertosuccessfullyruntheevent,organisersmayemploystafforusevolunteers.Theymayhireself-employedpeople(suchaslightingmanagers)orcontractors(forstewardingdutiesorerectionofatemporarystand).Theymayalsohireoutplotsforcatering,merchandisingorattractions,suchasfairgroundrides.
8 Thepartiesinvolvedallhavedutiesunderhealthandsafetylegislation.ThedutiesareoutlinedinthefollowingparagraphsandfurtherdetailsaregivenintheAppendix.Closeliaisonandstrongcommunicationareessentialinensuringthathealthandsafetyresponsibilitiesfortheeventareidentified,assignedandadheredto.Theseincluderesponsibilityforcrowdsafety.
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9 If,asaneventorganiser,youareinchargeofabusinessororganisation,youwillhavegeneraldutiesundertheHealthandSafetyatWorketcAct1974(HSWAct)1toensurethatriskstopeople’shealthandsafetyarisingfromworkactivities,includingmembersofthepublic,self-employedpersons,volunteersandcontractors,areproperlycontrolled.Youmayallocateelementsoftheorganisationofyoureventtoothers,egeventstewardsprovidedbyacontractor,butyouwillretainoverallresponsibilityforensuringthesafetyofthevisitingcrowds.
10 Contractorsandsubcontractors,asemployers,havedutiesundertheHSWActtoensurethehealthandsafetyofmembersofthepublic,whomaybeaffectedbytheirundertaking.Forexample,acontractorwillneedtoensurethatthebarrierstheyareerectingwillnotfalloverandcauseinjurytothecrowd.Theself-employedhavesimilarduties.
11 TheManagementofHealthandSafetyatWorkRegulations1999(theMHSWRegulations)2generallymakemoreexplicitwhatemployersandtheself-employedarerequiredtodotomanagehealthandsafetylawundertheHSWAct.TheMHSWRegulationssetoutkeystepstoensurethatactivities,includingevents,aremanagedsafely.
12 TheinformationinthisguideexpandsonthechapteroncrowdmanagementinThe event safety guide,3whichcoversmanyotherissuesfororganiserstoconsiderwhenstaginganevent.
Section summary
Thefollowingsectionsprovideadvicethatshouldhelpyourunasafeandsuccessfulevent.Theyshouldalsohelpmeetyourlegalobligationstoprotecttheaudienceandstaff.
PlanningDescribesimportantmilestonesinplanningyourevent.Asafeandtrouble-freeeventrequiresgoodplanningfromanearlystage.Youneedtoensurethatyourprecautionstomanagecrowdsareadequateandappropriatefortheexpectednumberandtypeofvisitor.Planninginvolvesgatheringbackgroundinformationtoenableboththinkingaheadandassessingrisks,andtimetodevelopormodifyplans.
Assessing risks Describeshowtosystematicallyidentifyhazardswhichcouldaffectcrowdsafety,egsurgingandswaying,estimatethesizeoftheproblemsanddecidewhatyouneedtodotoaddresstheproblems.Thisprocessisknownasriskassessment,whichinvolvestheidentificationandassessmentofriskstocrowdsafetywithinavenueandthedevelopmentofstepsrequiredtominimisethem.Dependingupontheoutcomeoftheriskassessment,plansmaybemodified.
Putting precautions in placeGivesexamplesofpracticalprecautionsthatcanbetakentoaddresspotentialhazardsidentifiedthroughyourriskassessment.Describesarrangementsfortheselectionandtrainingofstaff.
Emergency planning and proceduresSetsoutissuestoconsiderwhenplanningforthesafemanagementofcrowdsintheeventofanemergency,egduetofireorbombthreat.Suchplansareveryimportantasanemergencycouldinvolverapid,large-scalemovementofpeoplewithpotentialforovercrowding.
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CommunicationDescribesimportanceofgoodcommunicationandgivespracticalexamples.Effectivecommunicationisparticularlyimportantinthesafemanagementofcrowds.Provisionofclear,unambiguousinformationtovisitorscanhelppreventdangeroussituationsarising.Goodcommunicationbetweenstaffassistsarapidandappropriateresponseifproblemsarise.
Monitoring crowds Coverstheactionsinvolvedinimplementingyourplansandcheckingtomakesuretheyhavebeenimplementedcorrectly.Wherecrowdactivitymaydevelopintohazardousovercrowding,monitoringshouldbeinplacetoidentifypotentialproblemsandquicklysortthemout.Thissectiongivesexamplesofpracticalapproachestocrowdmonitoring.
ReviewSetsoutwaystoformallyreviewthecrowdsafetysystemofyoureventandexplainstheneedtodoso.Reviewscanbeadebriefafteranevent,partofaninvestigationfollowingacrowd-relatedincident,orscheduledroutineexamination.Subsequently,planscanbemodifiedandfutureplansupdatedaccordingtotheoutcomeofyourreview.Reviewingone-offeventsorregularreviewofsafetymeasuresatyourvenueprovidesimportantfeedbackforimprovingcrowdsafetystandardsandcheckingthatyourprecautionscontinuetobeappropriate.
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Planning13 Goodplanningfromanearlystagewillhelpyourunyoureventsafely.Youneedtoallowsufficienttimetogatherinformation,consultandobtainadviceandputinplaceeffectiveprecautionstomanagecrowdsafety.Thesaferunningofyoureventshouldbegivenequalprioritytootherbusinessaims.
14 Itisimportanttoinvolvestaffrepresentingdifferentfacetsoftheevent,egtechnicalstaff,security,merchandise.Whereappropriate,representativesofrelevantoutsidebodies,suchaslocalauthoritiesandemergencyservices,shouldbebroughtintotheplanningprocess.15 Tominimisetheriskofovercrowding,youneedtoconsidertheactivities,movementanddynamicsofthecrowdatvariouspartswithinthevenue,attheentranceandexits,onthepedestrianroutestoandfromthevenueandatthetransportandparkingfacilities.
First steps
16 Asanearlypriority,youneedtoestablishthatyoucanmanagecrowdsafetyforthetypeofeventandatthevenueyouhavechosen.Anacceptablelevelofcrowddensityvariesaccordingtothevenue.Apreliminarywalkaroundyourproposedvenue,carryingoutavisualinspection,isessentialtofindoutboththesuitabilityandtheacceptablelevelofcrowddensityforyourevent.Keyissuestoconsideratthisstageareconsideredbelow.
Expected turnout17 Whenforecastingyourexpectedturnout,youmayfindithelpfultoconsider:
n attendanceonpreviousoccasions;n numbersvisitingsimilarevents;n proposedlevelofpublicity;n advanceticketsales;n theeffectofBankHolidays,schoolholidaysorgood/badweather;n whethersomedaysaregoingtobeparticularlybusy,egfirstorfinaldays;n whetheranyextravisitorswillattendspecialattractionstakingplaceatthe
event;andn allowanceforunexpectedlylargenumbersofpeopleturningup.
Types of visitor 18 Thenatureofthevisitingcrowdwillinfluenceyourplanningandchoiceofvenue.Children,peoplewithspecialneedsandtheelderlyneedspecialconsideration.Peoplefrequentlyattendeventsasafamilyorsmallgroupandwillnotwanttogetseparatedorleaveeachother,particularlyinemergencysituations.
19 Performerscanhaveasignificantinfluenceoncrowdmoodandbehaviour,egbyjumpingintothecrowdorthrowingitemsintoit,orbycalmingthecrowd,ifpushingorsurgingstartstooccur.Severalacts/performancesataneventmayattractdifferentgroupsofpeople,resultinginconsiderablecrowdmovement.Forexample,whereoneparticularperformerhasalargeorenthusiasticfollowing,theaudiencemaysuddenlysurgeforwardandcrushingcouldresult.
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20 Crushing,tramplingandsuffocationareallpotentialhazardsthatcanarisefromthedynamicsofcrowdmovement.Tohelpavoidharmfromcrowdsurgesetc,ensurethatcrowdbehaviourandmovementaremonitoredeffectively,egbyplacingstewards/CCTVatsuitablevantagepoints.Allstaffshouldknowtheirpreciserolesincrowdmonitoringandwhohastheauthoritytotakeimmediateaction(egbystoppingtheevent)ifpeopleareatrisk.
Getting to and from the venue21 Planyourtransportmanagementarrangementswellinadvance,eg:
n Wherearethenearestbusandtrainstationslocatedandwillexistingtimetablesbeadequate?
n Wherearethelocalcarandcoachparks?n Isexistingparkingadequate?n Isthelayoutofroadsandpedestrianroutestothevenueadequatetodeal
withtheexpectedturnout?n Arethereanyothervenuesnearby(especiallythosewhichmayaffectthe
crowdingsituationatyourevent)?n Isanyconstructionworkbeingcarriedoutorproposedinthearea?
Roadworkscoulddelaythearrivalofcrowdsandleadtoalaterush.
Venue suitability22 Ensurethatthemaximumcapacityofthevenueisestablished.Thisistoallow:
n managementofthecrowdandhelpineliminatingovercrowdingintermsofoverallnumberofpeopleinthevenue;
n safeentranceandexit;andn safeexitofpeopleinanemergency.
Ensurestaffarebriefedthoroughly
23 Themaximumcapacityshouldbecalculatedwithreferencetofourfactors:
n thetimeittakestogetintothevenue;n thetimeittakestogetoutofthevenue;n emergencyevacuationtime;andn accommodationcapacity.
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Eachofthesecapacitiesislikelytogiveadifferentfigure.Thesafecapacityisthelowestofthefour.
24 Whencalculatingcapacity,ensurethatallowanceismadeforareastakenupbyfacilitiessuchasfoodandmerchandisingstalls,temporarystructuresetcaspeoplecannotusetheseareas.Areaswherethereisnoeasyaccesstoviewthemainattraction(s)shouldalsobeidentified.Whatevertheresultsofthecalculation,thecapacityshouldneverexceedthelimitcalculatedformeansofescapepurposes.(MoreguidanceonthispointcanbefoundinthefirstchapteroftheStationeryOfficepublicationGuide to safety at sports grounds.)4
25 Considerthedistributionofcrowdsandhowthismightaffectpermissiblecapacity.Arethefollowingadequateforyourproposedevent?
n Capacityofthevenuen Entrancesandexitsn Meansofescapeineventofemergencyn Provisionforpeoplewithspecialneedsn Maintenanceofvenueandequipment(egturnstiles)n Facilitiessuchastoiletsandinformationpointsn Accesstofirst-aidfacilitiesn Suitablemeansofaccess/exitforemergencyservicesn Provisionforadverseweatherconditionsn Arrangementsinplacetoensurecrowdsafetyifmaintenanceorconstruction
workisbeingcarriedoutinthevenue
26 Theamountofspaceavailabletotheaudienceisanimportantfactortoconsider.Forexample,morespacemaybeneededatapopconcertthanasportingeventduetothetimepeoplewillbeinthevenue.Seethechecklistafterparagraph61.
Excess arrivals27 Ifthereisanypossibilitythatthenumberofpeoplearrivingatthevenuewillcomeneartoorexceedtheoverallcapacityofthevenue,youwillneed:
n asystemforrestrictingthenumberofpeoplewhoarriveatthevenueaswellasthosewhoenterit.Thisdemandscloseliaisonwiththepoliceandtransportoperatorsattheplanningstageandduringthelead-inperiodbeforetheevent;and
n arrangementsforcloselymonitoringthenumbersofpeoplearriving.
28 Youcould:
n maketheevent‘all-ticket’,evenifit’sfree;n plantheadvertisingcampaigntoemphasisethatit’sall-ticketonly;n includeintheadvertisingthattheticket-onlyrulewillbestrictlyenforced;n discusswiththepolicehowcrowdscouldberedirectedbeforereaching
thevenue;n discusswiththetransportoperatorsthepossibilityofannouncementsat
stations,advisingthepublicofcrowdproblemsatthevenue;andn uselocalradiotoadviseonthecurrentsituationatthevenue.
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Previous information collected29 Youcouldreferto:
n experienceofsimilarvenuesorevents;n problemsraisedatpreviouseventdebriefings;n reportsofpreviousincidents;n experienceofrunningeventsatasimilarseason/timeofday;andn experienceofpreviousdelays.
30 Seekingadvicefromrelevantandexperiencedpartieswillhelpyouobtaintheinformationyourequire.Itisadvisable,ifpractical,tovisitothervenuesholdingsimilareventstoobtaintherelevantinformation.Insomevenuestherequirementsofthelocalauthorityandthefireauthoritywilldeterminekeyprecautionsyouneedtotake.Relevantpartiesinclude:
n theownerofthevenuewhereyouareproposingtoholdyourevent;n thelocalauthority,forexamplelicensing,environmentalhealthand
emergencyplanningdepartments;n policeandotheremergencyservices;n transportoperatorsormanagementofnearbytransportvenues;n managementofadjoiningoradjacentpublicvenues;n localresidentsortheirrepresentatives,particularlyifyouareorganisingan
eventsuchasacarnivalparadethatgoesthroughtheirresidentialarea;n othersprovidingservicesfortheevent(egstewarding,first-aidandwelfare
organisationsandmerchandising)andanyexpertsgivingadvice,egonthestructuralstabilityofaproposedtemporarystand;and
n othersubcontractors,egastructuresproductionmanager.
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Getting organised
31 Oncethedecisiontoproceedwithyoureventismade,startbyholdingregulareventplanningmeetings,bringingtogetherallthemaininterestedparties.Providerelevantinformation–seethe‘Checklistforstrategicprojectplanning’attheendofthissection.
32 Fromanearlystage,ensurethatclearlydefinedrolesandresponsibilitiesexistinrelationtocrowdsafety,addressingbothnormalandemergencysituations.Whatevermanagementstructureyouchoose,youwillneedtodecidewhoisresponsibleforthevarioussafetyduties,makingsuretherearenogapsandensuringeveryoneunderstandstheirownresponsibilities.Ifanumberofpeopleareinvolved,therewillneedtobecloseliaisonandgoodcommunicationbetweenthem.Considerallotherrelatedstaffordevelopmentsandexternalbodiesororganisationswhocouldatsomepointbeinvolvedincrowdmanagementattheevent.
33 Itisimportantthatmeetings,andwhathasbeenagreedbetweenvariousparties,havebeenclearlydocumentedtoavoidunnecessaryconfusionandmisunderstanding.
34 Aneventcontroller(safetyofficer)shouldbeappointedbytheeventorganisertoco-ordinateallaspectsofsafetyrelativetotheevent.Althoughthispersonmustbeabletoactwithoutreferencetoothers,thatappointmentdoesnotremovetheresponsibilityoftheeventorganiser.Theeventcontrollermusthavefinalcontroloverallsubcontractors,stewardsetc,althoughtheircontrolmaybeviaintermediaries.
35 Asanorganiser,youhaveprimaryresponsibilityforthesafetyofthecrowd.However,youmayneedtoconsiderwhetheritwouldbeappropriatetoappointaseniormemberofstafftotakeoverallresponsibilityforcrowdmanagementwhenthevenueisopentothepublic.Alwaysensurethereissomeonewiththeauthoritytoactintheirplaceifthispersonisunavailable.
36 Ifyouareanemployer,youhavealegaldutyundertheMHSWRegulationstoappointoneormorecompetentpersonstoassistyouwithyourhealthandsafetyduties.Youshouldlooktoappointcompetentperson(s),wheretheyexist,fromamongyouremployeesinpreferencetoexternalsourcesofcompetentadviceandassistance.Ifyouareasoletraderormemberofapartnership,youmayappointyourself(orotherpartners),solongasyou(orthey)arecompetent.Youcanuseexternalsourcesofcompetentadviceandassistanceifnointernalsourceexists.Indeed,inthesecircumstancesyouwouldneedtoappointacompetentpersonfromoutsideyourorganisationinordertocomplywiththelaw.
37 Thepersonappointedcouldprovideassistanceinthefollowingways:
n expertadviceoncrowdmanagementandvenuesuitabilityforinputtotheplanningprocess;
n inspectionofthevenueanddevelopingproceduresformanagingthecrowds;and
n investigationofincidentsrelatingtocrowding.
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38 Thepersonappointedwouldneedtoensurethatthereareenoughstaffwiththerequiredskillstocarryoutcrowdmanagementdutiesduringbothnormalandemergencysituations.Staffneedtobecarefullyselectedandtrainedtoensurethattheycanfulfiltheirdefinedrolesandresponsibilitiesinrelationtocrowdsafety.Trainingisimportantasovercrowdingcandevelopextremelyquicklyandrequiresarapidresponsefromstaff.
39 Wherecrowdmanagementdutiesaresubcontracted(egtoaprivatestewardingcompany)youshouldensurethatthecontractor’sstaffarecompetentandhavereceivedtrainingappropriatetotheirresponsibilities.
Keeping records
40 Ifyouemployfiveormorepeople,youhavealegaldutytoproduceseveralwrittendocumentsorrecords(seetheAppendixforfurtherdetails).Theseincludeyourhealthandsafetypolicyandsignificantfindingsofriskassessments.
41 Itisrecommendedthatrecordsarealsokeptofcontingencyplans,stafftraining/jobdescriptions,andchecks/inspectionsofsitesandstructures.
Crowd behaviour
42 Researchhashighlightedseveralimportantfactorswhichinfluencethewaycrowdsbehave.Thesefactorsmayaffectthetypesofprecautionsyouputinplacetoensurecrowdsafetyandneedtobeconsideredduringyoureventplanning.
The crowd’s goals and objectives43 Thisisveryoftenoneofthemostimportantfactorsaffectinghowpeoplebehave.Itmayaffect,forexample,whenpeoplechoosetoarriveandleave,whichroutestheychoosetotake,wherepeoplewanttogatheretc.
44 Forexample,peoplemay:
n arriveearlytogainvantagepointsfromwheretowatchtheevent.Oncethere,theymaybereluctanttomoveaway,evenifaskedtodoso;
n parkillegally,obstructingaccessforemergencyvehicles,sothattheycanmakeaquickgetaway;
n waitforfriends/familyatornearexitsandobstructtheflowofpeople;n choosetousethemostdirectorquickestrouteratherthanfollowa
designatedone;orn quicklychangedirection,egfansleavingamusicconcertearlymayrush
backiftheyhearafavouritesongduringtheencore.
The crowd’s knowledge and experience45 Peoplewhoareunfamiliarwiththeeventorvenuegenerallyrequiremoreassistanceanddirection.Theytendtofollowthecrowds,usethemainroutesandgatheratthesameaccommodationareas.Thiscanleadtoanunevendistributionofpeople.Theymaynotbeawareofalternativeroutesorentranceswhichtheycouldusetoreducecongestion.Thosewhoarefamiliarwiththevenuemayuseshortcuts,ratherthanfollowthedirectionalsigns.
46 Visitorsmaybeunawareofthelocationsofemergencyexits.Sotheywillchoosetousethoseroutesorexitswithwhichtheyarefamiliarorwhicharethemostobvious,ratherthanthosewhichareclosestorgivethequickestevacuationtime.
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47 Youcanimprovesitefamiliaritywithdetailsonthebackoftickets,plansofthevenuestrategicallyplacedinsideandout,andthroughgooduseofsigns.
48 Itisimportanttonotethatvenuesandoutdoorsitescanlookverydifferentinthelightandthedark.Peoplemaybecomedisorientatediftheyarriveinthelightanddepartinthedark.
The crowd’s expectations49 Priorexpectationsarelikelytohaveasignificantimpactuponpeople’sreactionsundercertaincircumstances:
n Visitorsmightregardsomeroutesandentrypointsasthe‘formal’ormainaccesstotheevent.Perhapssucharouteisthemostdirectbetweentheparkingareaandthepartofthevenuethattheywanttovisit.Itmightbewiderandresemblethemainroutewithadjacentfacilitiessuchastoiletsandstalls.
n Wheresmokeorsimilareffectsarepartofanevent(egafireworksdisplay,dryiceeffectsatapopconcert),peoplearelikelytorespondmoreslowlytothepresenceofsmokegeneratedbyafirehazard.
50 Youneedtoconsiderifcertaingroupsofpeoplewillexhibitundesirablebehaviour.Furtherprecautionsmaybenecessary,forexampletheuseofbarrierstosetupadiversion,ortheuseofstafftodirectflowsofcrowdtraffic.
51 Youmaybeabletousecertainformsofbehaviourtoyouradvantage.Forexample,onceanorderlyqueueissetup,ittendstoattractpeopleandintroducesomeorderintocrowdpatterns.
The crowd’s mental and emotional conditions 52 People’semotions,suchasexcitement,desperation,aggression,hysteriaetc,mayaffecttheirbehaviour.Forexample,peoplewhoareeagertogainentrymaysurgetowardsthedoorswhentheyareopened.Thosenotsatisfiedwiththequalityofaperformanceoroutcomeofasportingfixturemaybecomeaggressive,offensiveandunco-operative.
Collective behaviour 53 Thebehaviourofindividualsinacrowdcanbeinfluencedbythethingstheyseeothersdoing.Theunauthorisedactionsofafewpeoplecanresultinlargernumbersfollowingtheirexample.Individualswithinacrowdmaycarryoutactionswhichtheywouldnotperformiftheywereontheirown.Forexample,thefrustrationofexcessivecrowding,queuingordelaysmayresultinincidentssuchasclimbingofbarrierswhichcouldleadtoovercrowdinginanotherarea.
54 Ifsafetyrulesarenotvisiblyenforced,orcrowdcontrolisnotmaintained,thespreadofnon-compliantbehaviourcanhaveaseriousimpactoncrowdsafety.Forexample,ifafewpeoplegainentrytoaprohibitedareabyclimbingoverorunderabarrier,othersmayfollowsuitiftheresponsefromthosecontrollingthecrowdisslow,weak,ornon-existent.Theresultinguncontrolledcrowdflowmayleadtoovercrowdingandotherrelatedhazards.
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55 Intheearlystagesofanemergencysituation,crowdbehaviourcanbeinfluencedbyindividualswhoappeartobe‘experts’orknowwhattodo.Anindividualorgroupofpeopletakingdecisiveaction(egleavinganearbyexit,outwardlydismissingawarningasafalsealarm)cantriggerawidespreadresponseamongthecrowd.Membersofstaffmightbeallocatedtoevacuateavenueoranotherarea.
Information56 Ingeneral,peoplelookforclear,unambiguousinformationandindicatorsonexpectedrulesofbehaviourtohelpthemdecidehowtoact,egtofindoutifaparticulardoorisanentrance,anexit,orboth,orwhethertheycandrinkorsmokeinthevenue.Ifsuchinformationandinstructionsarenotprovided,peoplewillformtheirownrulesbasedonpastexperienceandtheobservedbehaviourofothers,suchasjoiningaqueue,parkingonaccessroutes,takingshortcutsetc.
Gooduseofsignsandpublicaddresssystemsisthereforeextremelyimportant.
57 Providingvisualandaudibleinformation(egwarnings,advice,directions,instructions)isofvitalimportanceduringanemergencywhenthesituationcanbeconfusingandunfamiliar.Figuresofauthority(egpromoter,steward,firefighter)arelikelytobelistenedtoandobeyedinanemergency.Forthisreason,suchpeopleshouldalwaysweareasilyidentifiableclothes/colours.
Relationships between staff and the public 58 Peoplearemorelikelytobeinarelaxedandcontentedframeofmindiftheyareeffectivelymanagedandthevenueiscomfortableandpleasant,withadequatefacilities,suchastoilets,food,drinkandinformationpoints.Peoplearemorelikelytocomplywithinstructionsifgoodrelationsaremaintainedbetweenvenuestaffandthepublic.Therefore,itisimperativethatinformationiseffectivelycommunicatedtothemthroughthestaff,sothatconfusionorcausesforcomplaintareavoided.
59 The‘attitude’ofthepredictedaudiencemaybedifferenttothatexpected.Forexample,securitysearchesorticketcheckswhichyoumightdecidetodomaybecontrarytotheticketholders’expectations.Thiscouldhavethepotentialforthedevelopmentofillfeeling,whichcouldresultinpublicorderproblems.
The next steps
60 Identifypossiblehazardsthatcouldharmpeopleattendingorinvolvedinyourevent.Variationincrowdbehaviourmeansthereisoftenmorethanonewaytotackleaparticularhazard.Forexample,inordertoensureanearlyandeffectiveresponseinanevacuation,wherepanicmaybeafeature,measuresmightbetakentoimprovethequalityandclarityofinformationthatisbothbroadcastedoverthepublicaddresssystemanddisplayedthroughtheuseofsigns.Suchmeasureswouldenhancetheroleofstaffindirectingorleadingpeopleoutofthevenueandaidthestaffinmaintainingasmuchcalmaspossible.
61 Lookingsystematicallyatthehazardsassociatedwithyoureventwillhelpyouputinplaceeffectiveprecautionstoensurecrowdsafety.Thefollowingsectionssuggestwaysofdoingthis.
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Checklist for venue suitability
n Arepublictransportarrangementstoandfromthesiteadequatetodealwithexpectednumbersofvisitorsandforperiodsofpeakdemand?
n Arearrangementsforvehicleparkingandpedestrianapproachtothevenueadequate?
n Aretheresufficiententrances,spacesandroutes(ieroads,gangways,walkways,stairsetc)insideandoutsidethevenuetocopewiththeexpectednumbersandaretheyadequatetocopeifpeoplearriveinsuddenmassesratherthananevenflow?
n Areprecautionsinplacetodealwithpossiblecrowdpressureattheentrancesandexitstothevenue?
n Willthesoundqualitybesuitablefortheevent,egtoavoidcrowdingatthefrontofthestage?
n Hastheoverallcapacityofthevenuebeenestablishedandprecautionsputinplacetopreventover-capacity?
n Haveyoucheckedthetroublespots?Forexample:
– routeswhichbecomenarroworareasinwhichpeoplecouldcongregate,asthesemaycausecongestion;
– bottleneckssuchasstairs,escalatorsandtunnelsorbridges;– areaswherepeoplequeue,suchaspaydesksandinformationpoints;or– popularstalls,attractionsorexhibitionandrefreshmentareas.
n Isthesafetyofvulnerablegroups(egchildren,peoplewithspecialneedsandtheelderly)addressed?
n Arethemeansofescapeadequateineventofanemergency?n Hasadequateaccessbeenprovidedfortheemergencyservices?n Haveparticularhazardsarisingfromthevenuebeentakenintoaccount,
eghasdrowningbeenconsideredasahazardatwatereventsoreventsadjacenttowater?
n Isthevenueproperlymaintainedinasafecondition,egfloors,stairwaysandlighting?
n Havelitterandcombustiblematerialsbeenremovedtosafestorageordisposedof?
n Isemergencyequipment,egfirefightingequipment,emergencylighting,firealarms,smokealarms,publicaddressandothercommunicationsystems,properlymaintainedandingoodworkingorder?
n Arefireexitsunlocked,andareescaperoutesunobstructedandfreefromhazardousandcombustiblematerials?
n Arealldirectionandinformationsignsinplaceandclearlylegible?
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Checklist for strategic project planning
n Plansanddrawings:
– productionofscaledplansofsiteorvenuewithtemporaryinstallationsplottedontothedrawingtobedistributedtokeypersonnel.
n Meetingscalendar:
– detailsofpre-production,duringperformanceandpost-production(review)meetings.
n Inspectioncalendar:
– detailsofsitesuitabilitysurvey;– inspectionsduringbuild;and– inspectionsduringperformance.
n Legalcalendar:
– detailsoflicences,certificates,concertsandnotificationsrequiredbylegislation.
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Assessing risks62 Lookcarefullyatwhatyouareproposingtodoandidentifyhazards,iethosethingsthatcouldharmthepeopleinvolvedorattending.Youarerequiredbylawtoassesswhatprecautionsyouneedtotaketopreventharm.Thisprocessisreferredtoasriskassessment.Riskisthechance,highorlow,thatsomebodywillbeharmedbythehazard.
63 RiskassessmentisalegalrequirementundertheMHSWRegulations.Regulation3requiresallemployersandtheself-employed(includingthosewhoorganiseevents)toassesstheriskstoworkersandanyoneelse,forexamplemembersofthepublicattendinganevent,whomaybeaffectedbyworkactivitiesbeingundertaken.BoththeHSWActandregulationscoveringparticularhazardsrequirethatappropriatepreventiveandprotectivemeasuresshouldbetakeninthelightoftherisksidentified.
64 Yourriskassessmentneedstoexamineallaspectsofyourevent,includingtransporttoandfromtheevent.Youneedtothinkaboutincidentsthatcouldoccur,eveniftheyseemunlikely,egavisitorcollapsingfromheatexhaustionoralargerscaleemergencysuchasafire,bombthreatorstandcollapse.Youalsoneedtocarefullyevaluateallplaceswheretheremaybepotentialforhighcrowddensityandsubsequentcrushing,egqueuingareasatthevenueentrance.
65 Duringearlyplanning,identifypeoplewhohavetherightcompetenceandknowledgetocontributetotheriskassessmentprocess.Theimportantthingsyouneedtodecidearewhetherahazardissignificant,andwhetheryouhavedealtwithitsatisfactorilythroughtakingtherelevantprecautions,sothattheriskisreducedorminimal.
66 HSEhasdevelopedafivestepapproachtoriskassessment:
STEP1:Lookforthehazards.
STEP2:Decidewhomightbeharmedandhow.
STEP3:Evaluatetherisksanddecidewhethertheexistingprecautionsareadequateorwhethermoreshouldbedone.
STEP4:Recordyourfindings.
STEP5:Reviewyourassessmentandreviseitifnecessary.
Formoreguidanceonthis,seetheHSEpublicationFive steps to risk assessment: A step by step guide to a safer and healthier workplace.5Thefollowingparagraphsgiveadviceonhowyoumightcarryoutariskassessmentwithexamplesrelatingtoeventorganisation.
STEP 1 Look for the hazards
67 Considerallaspectsoftheproposedactivityandlookatwhatcouldreasonablybeexpectedtocauseharm.Ignorethetrivialandconcentrateonsignificanthazardswhichcouldresultinseriousharmoraffectseveralpeople,egfunnellingofvisitorsatthevenueentranceleadingtocongestionandcrushing.
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68 Speaktoyourstaffaboutpossiblehazards–theymayhavenoticedthingsthatarenotimmediatelyobvioustoyou.Itmaybehelpfultorefertopreviousinformation,egpost-eventreports,incidentreportsorvisitors’comments.
69 Considerhazardsassociatedwiththecrowdandthosepresentedbythevenue.Itisimportanttoidentifyhazardsthatarenotimmediatelyapparentsuchasahazardthatarisesduetotheintroductionofanewfeature,egthelateadditionofseveralmarketstallsatavenuemayrestrictaccessroutesandleadtocongestion.
Hazards presented by a crowd
n Crushingbetweenpeoplen Crushingagainstfixedstructures,suchasbarriersn Tramplingunderfootn Surging,swayingorrushingn Aggressivebehaviour,particularlybetweengroupsofrivalsupportersn Dangerousbehaviour,suchasclimbingonequipment,runningdownsteep
slopesorthrowingobjects
Hazards presented by a venue
n Slippingortrippingduetoinadequatelylitareasorpoorlymaintainedfloorsn Movingvehiclessharingthesamerouteaspedestriansn Peoplegettingtrapped,egwheelchairusersinacrowdn Collapseofastructure,suchasafenceorbarrier,whichfallsontothecrowdn Peoplebeingpushedagainstobjects,suchasunguarded,hotcooking
equipmentonafoodstalln Objects,suchasstalls,thatobstructmovementandcausecongestionduring
busyperiodsn Crowdmovementsobstructedbypeoplequeuingn Crossflowsaspeoplecutthroughthecrowdtogettootherareas,suchas
toiletsn Failureofequipment,suchasturnstilesn Sourcesoffire,suchascookingequipment
70 Forthepurposeofthisguidance,aspectsofactivitiesareconsideredunderfivetopics,listedbelow.Youmayfindthetopicshelpfulwhenlookingforhazardsandcompletingtherestofyourriskassessment.
Nature of the event–Whowillbeattendingandwhatistheirexpectedbehaviour?Whatmighttheydothatcouldcauseaproblem?
Venue suitability–Isthevenueadequateforensuringthesafetyofpeoplethroughouttheevent?
Crowd management arrangements–Arearrangementsadequate?Forexample,clearrolesandresponsibilities;commandandcommunicationstructuresinplace;goodco-operationandco-ordinationthroughouttheorganisationoftheevent;sufficientmonitoringofcrowds;provisionofappropriatenumbersofcompetentandtrainedstaff.
Presence of hazardous items and substances–Youractivitymayinvolvetheuseandstorageofitemsorsubstanceswhichcouldposeahazardtothecrowd.Insuchcircumstances,therelevantspecifichealthandsafetyregulationsshouldbeobserved.
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‘When things go wrong’–Thinkabouthowyouractivitycouldbedisruptedandwhatnewhazardscouldariseasaresultofadisruption.Anemergency,suchasaseriousfire,maycallforanevacuation,thusintroducingnewhazards.Evenaminordisruption,suchasatraindelayorcancellation,couldturnintoasignificanthazard.
71 Identifythescenarioswhichcoulddisruptyouractivity,suchas:
n emergencysituations(egfire,bombthreat,structuralcollapse,toxicreleaseetc);
n accident,egtrafficaccident,outsideorwithinthevenue;n closureofpartofthevenue;n closureofanearbyorrelatedvenue(egtheclosureofanadjacenttrain
station);n delayorcancellation,eglatekick-offinafootballmatch;n disruptiontothearrival/departureprofile,egseveretrafficcongestionona
mainapproachroad;n lossofservices,egpowercut;n publicdisorder;n systemorequipmentfailure,egjammeddoororgate,escalatorstops;orn weather,egasuddenchangeofweatherandadverseweatherconditions
suchastoohot/cold,heavyrainfall/snowfall,highwindsetc.
72 Forthescenariosyouhaveidentified,considertheeffectthedisruptioncouldhaveonpeople’sbehaviour,venueoperation,crowdmanagementandontheitemsorsubstancesyouareusing.Thenidentifywhatnewhazardsmayariseasaresult.Forexample,aseveretrafficproblemduetoroadworksononeofthemainapproachroadstothevenuecouldleadtoalastminuterushandcongestionattheentrancetothevenue.
Lookforthehazards
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STEP 2 Decide who might be harmed and how
73 Inthecaseofmajordisruption,suchasemergenciesinvolvingamajorfireorbombthreat,detailedassessmentofsignificanthazardsislikelytobenecessary.Managingsuchdisruptionsisdealtwithinmoredetailinthe‘Emergencyplanningandprocedures’section.
74 TheaimofthisstepistofindoutwhatcausesthehazardsidentifiedinStep1,whatdangerstheycouldposeandwhomightbeaffected.Knowingthecause(s)couldhelpyoutodecidelaterintheassessmentprocesswhatactionsareneededtogetridofthehazards.Thinkingabouttheconsequencesandwhomightbeharmedcouldhelpyoutodecidehowtoprotectpeopleagainsttheharm.
How might people be harmed (what are the causes)?75 YoumayhavealreadyfoundtheimmediatecausesearlieroninStep1.Butdon’tstopthere–therecouldbeothercausesthatareequallyimportant.Itisworthemphasisingagainthatahazardcouldarisefromacombinationoffactors,includingthesuitabilityofthevenue,thecrowdandtheirbehaviour,thecrowdmanagementarrangementsandthepresenceofhazardousitemsorsubstances.
76 Somecausesmaynotbeimmediatelyobvious.Congestion,forexample,couldbetheresultofanobjectobstructingcrowdflows,insufficientcapacityorapinchpoint(ievenuesuitability),peopleassemblingorwaitingforothersinthearea(iebehaviour)andtoomanypeoplebeingdirectedtousethisarea(iecrowdmanagement).Itcouldalsobebecauseofaproblemelsewhereinthevenueorwhathappensnearby,suchascrowdsleavinganearbyfootballmatch.
77 Ifthehazardiscausedbypeople’sbehaviour,youalsoneedtoknowwhypeoplebehaveinsuchaway(seeparagraphs42–59).
Who might be harmed?78 Thinkabouttheconsequencesandwhomightbeharmed.Thiscouldincludeanyoneinthecrowdoranyoneexposedtoovercrowdedconditionsforaprolongedperiodoftime.Youneedtoconsiderthenumberofpeoplewhomaybeaffected.Also,askyourselfifthehazardcouldonlyharmtheindividualsdirectlyinvolvedorifothersinthevicinitycouldbeaffected.Children,youngpeople,peoplewithspecialneedsandtheelderlyareparticularlyvulnerableandneedspecialconsideration.Rememberthatyourownstaffandcontractorscouldalsobeatrisk,particularlythosewhomighthavetodealwithadifficultsituation.
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Examples
Hazard PeoplecouldtriponstairswithinthevenueCauses Peoplepushingtheirwaythroughthecrowd
Inadequatelightinginthearea Poorconstructionofstairs
Who mightbe harmed Peoplebeingpushedcouldfalldownthestairs.They couldbetrampledon
Youngandoldpeopleareparticularlyvulnerable
Hazard PeoplefallingoverasaresultofcrowddynamicsCauses Misjudgementofattraction’spopularity
Unexpectedmassmovementofaudience Non-managementofaggressive/irresponsiblebehaviour
bycrowdWho might be harmed Thosewithinthecrowdandattheedgeof‘wave’
STEP 3 Evaluate the risks and decide whether the existing precautions are adequate or whether more should be done
Evaluate the risks
79 Theaimistodecideforeachsignificanthazardhowmuchriskstillremainsaftertheexistingprecautionshavebeentakenintoaccount.Thefindingswillenableyoutoestablishhowimportantthehazardsareandprioritiseactionsyouneedtotaketocontrolthem.
80 Riskreflectsthelikelihoodthatharmfromaparticularhazardwilloccurandthepotentialseverityofthatharm.Toevaluatetheriskyouneedtoestimatethelikelihoodandtheseverity.
81 Whenestimatinglikelihood,itisimportantthatyouconsiderhowlikelythehazardistooccurandtocauseharm.Thisisbecausenotallhazardscauseharmallthetime.Forexample,crossflowsandobstructionsdonotnormallygiverisetoasignificantproblem,unlesstheytakeplaceinabusyarea.
Checkexistingprecautions
Holdtrainingsessions
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82 Severityisaconsiderationoftheextentofpossibleinjuries,rangingfromlittlerealharmtoanindividualtomultipledeaths.Whenestimatingseverity,youneedtotakeintoaccountthecircumstancesunderwhichthehazardtakesplace.Forexample,theseverityofpotentialharmtopeopleminglingwithmovingvehicleswilldependonwhetherthistakesplaceonabusymainroadwithfastmovingtrafficoronaquietsideroadwherethevehiclesmoveslowly.
83 Byconsideringbothlikelihoodandseverityforeachsignificanthazardyouwillbeabletojudgethesizeoftheremainingrisk.Groupingthehazardsintohigh,mediumandlowrisksgroupsmayhelpyouprioritisefurtheractionsyouneedtotaketoreducerisks.
84 Othertoolssuchasriskclassificationmatriceshavebeendeveloped,andyoumayfindthesehelpfulifyouareorganisingacomplexactivityorhavelargenumbersofsignificanthazardstoconsider.
Are existing precautions adequate?85 Somehazardsmayalreadybecontrolled,whetherbydeliberatemeasures(egyoumayhaverecentlyimprovedthelightingonstairways)orbythecircumstancesinwhichtheyarefound(egstreetlightingoutsidethevenuemayincidentallylightthevenueentrancestairs).Theaimisthereforetoidentifytheprecautionsanddecidewhethertheyareadequateorwhethermoreshouldbedone.86 Thinkabouthoweffectivetheexistingprecautionsare.Lookathowtheyactuallywork,nothowtheyaresupposedtowork.Actualpracticemaydifferfromwhatyouoriginallyplanned.Indeed,thisisoftenwhereriskscreepinunnoticed.
87 Alsoconsiderhowyourprecautionsmayfailorbecomelesseffective.Forexample,featuresatthevenuesuchasturnstilescouldsufferfromvandalism,wearandtear,componentfailureetc.Crowdmanagementarrangementscouldbehinderedbystaffconfusionovertheirrolesandresponsibilitiesorabreakdownincommunicationbetweenpartiesinvolvedintheactivity.
88 Inordertodecidewhethertheexistingprecautionsareenough,youmaywishtomakeafirstroughriskassessment.Considertherisksinthelightofexistingprecautions;trivialriskscanusuallybeignoredascanrisksarisingfromroutineactivitiesassociatedwithlifeingeneral,unlesstheactivitycompoundsthoserisks.Inastreetevent,thepavementkerbcouldposeatrippinghazardbutyoucouldignoreitonthegroundsthattheriskisnomorethanthatarisingfromwalkingalongthehighstreetonanormalSaturdayafternoon.Ifthecrowddensityismuchhigherthanthatonthenormalhighstreet,sowillbetherisk.Onereasonforthisisthatpeoplemaynotseethekerb.Therefore,thepreviousassessmentisnolongervalidandthishazardshouldbeevaluatedfurther.
Deciding what more should be done89 Anumberofimportantfactorsshouldbeconsideredwhendecidingwhatfurtherprecautionsyouneedtotaketoaddressremainingrisks.
90 Haveyoudoneallthethingsthatthelawsaysyouhavetodo?Forexample,theMHSWRegulationsrequireemployers,includingorganisersandcontractors,toprovideemployeeswithadequatehealthandsafetytrainingandrelevantinformation.SafetysignsatthevenuemustconformtotheHealthandSafety(SafetySignsandSignals)Regulations1996.6
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91 Aregenerallyacceptedstandardsinplace?Forexample,haveyoutakenaccountofHSEguidancethatmayrelatetoyourevent?Thisguidanceincludespublicationsonfairgrounds,7fireworksdisplays,8musicevents3andmotorsports.9
92 Thelawalsosaysthatyoumustdowhatisreasonablypracticabletokeepyouractivitysafe.‘Reasonablypracticable’meansthatthetime,trouble,costandphysicaldifficultyoftakingmeasurestoavoidtheriskarenotwhollydisproportionatetoit.Thegreatertherisk,themorelikelyitisthatitisreasonabletogotoverysubstantialexpense,troubleandinventiontoreduceit.Butiftheconsequencesandextentofariskaresmall,insistenceonagreatexpensewouldnotbeconsideredreasonable.Thesizeorfinancialpositionoftheemployerisnottakenintoaccountinthiscalculation.
Example
Theownersofavenuesituatedadjacenttoabusyroadidentifiedthehighriskofinjurytopeople.Therewasahighriskofthembeingstruckbyamovingvehiclewhenqueuingatthevenueentrance.Theownershadpermanentbarriersinstalledandprovidedadditionalstewardingattheentrancetoreducetheriskofinjury.Theyregardedthisasa‘reasonablypracticable’measuretoensuresafety.Althoughthecostofinstallingthebarrierswassignificant,itwasnotdisproportionatetothehighriskofinjury.
Afurtherillustrationofthispointisincludedintheexampleofcompletingariskassessmentattheendofthissection.
93 Theactionsyouidentifyshouldberealisticandgiveprioritytohazardswhichposethehighestrisks.Anessentialpartofyourriskassessmentistoconsiderfirstifitispossibletoeradicatetherisksaltogether.Thiscanusuallybeachievedbyeitherremovingthesourceofhazardortacklingitscauses.Forexample,itmaybepossibletoexcludeallvehiclesfromthesitepriortotheevent,thuseliminatingtheriskofpeoplebeingstruckbyvehiclesduringtheevent.
94 Ifitisnot‘reasonablypracticable’toeradicatetherisk,thenthinkabouthowtocontroltherisk(ietomakeitlesslikelytooccurorcauseharm,toreduceitsseverityand/ortoprotectpeopleagainstharm).Forexample,theorganisersofanopen-airfestivalsetasideanareawheremembersofavintagecarclubcoulddisplaytheirvehicles.Toreducetheriskofvisitorsbeingstruck,thecarshadtoarriveonehourbeforethepublicwereadmittedandleaveonehouraftertheyhadleft.
95 Thesection‘Puttingprecautionsinplace’coversexamplesofstepsyoumighttaketoaddressrisksyouhaveidentified.
STEP 4: Record your findings
96 Ifyouhavefewerthanfiveemployeesyouarenotlegallyrequiredtowriteanythingdown,thoughitisgoodpracticetokeepawrittenrecordofwhatyouhavedone.However,ifyouemployfiveormorepeopleyoumustrecordthesignificantfindingsofyourassessment.Significantfindingsusuallyinclude:
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n thesignificanthazardsidentifiedintheassessment;n theexistingprecautionsinplace;n theremainingrisks,includinganygroupsofvisitorswhoareespeciallyat
risk;andn theconclusionsoftheassessment,includingtheactionsyouhaveidentified
tofurtherreducetherisks.
97 Thelawrequiresyoutotellyourstaff,includinganysafetyrepresentatives,aboutyourfindings.Therecordcouldbedocumentedinwritingbyothermeans(egelectronically),solongasitisavailableforusebymanagementorforexamination(egbyenforcingauthorityinspectors).
98 Somehazardsmayhavealreadybeendealtwithelsewhere.AriskassessmentundertheControlofSubstancesHazardoustoHealthRegulations1999(COSHH)10willhaveaddressedtherisksassociatedwiththeuseofhazardoussubstances.Also,someexistingprecautionsmayhavealreadybeendescribedinotherdocuments(egaproceduresmanual).Thereisnoneedtorepeatthisinformationintherecord–youcansimplyrefertowhereitcanbefound.
STEP 5 Review your assessment and revise it if necessary
99 Youarerequiredbylawtoreviewyourassessmentandreviseitiftherearedevelopmentswhichsuggestthatyourassessmentmaynolongerbevalid.Suchdevelopmentscouldinclude:
n majorchangestothevenue,forexamplebeingunabletousewaterloggedgreenfieldparkingareas;
n significantchangestotheevent,forexamplealast-minuteintroductionoffairgroundattractions;
n previousincidentswhichdidorcouldhaveinjuredmembersofthepublic;orn seriousincidentsatothervenuesfromwhichyoucouldlearnandtake
preventiveaction.Furtherinformationaboutthisissueiscontainedinthe‘Review’section.
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Completing a risk assessment: an example (family fun day)STEP 1: Look for the hazards
Crossflowofpeoplenearthetoiletsintheentranceareawasidentifiedbythevenueownerasasignificanthazard.
STEP 2:Decide who might be harmed and how
Staffatthevenuehadcommentedthatpeoplemaycutthroughotherpeopleenteringthevenuetogettothetoilets.Thiscouldleadtoseverecongestioninthevenue,pushingandevensomeminorcrushing.Alargenumberofpramsandwheelchair-userswereanticipated.
STEP 3:Evaluate the risks and decide whether the existing precautions are adequate or whether more should be done
Afterinvestigatingthecrossflowinthisbusyarea,theownerfeltitpossiblethatharmcouldoccur(likelihood),resultingininjuriestoanumberofpeoplewhowouldrequirefirstaid(severity).Theownerdecidedthattheremainingriskassociatedwiththissignificanthazardwas‘medium’.
Relocationofthetoiletswasconsideredinthefuture,butthecostsofdoingsowereregardedasdisproportionatetotheimprovementsthatcouldbeachievedtoreducetherisksassociatedwiththecrossflow.Managementdecidedthatthisriskreductionmethodwasnot‘reasonablypracticable’.
Theownerdecidedtoreducetheriskbyalowercostoptionofhiringadditionalportabletoiletsfortheeventandlocatingthemelsewhere.Clearsignageandinformationwasprovidedtoreducetheusageoftoiletsintheentrancearea.
STEP 4:Record your findings
Usingariskassessmentform,theownerrecordeddetailsofthehazardandthepeopleatriskfromit.Theownerthenrecordedtheriskas‘medium’andwrotedownthestepstobetakentoaddresstherisk.Theemployeesweretoldaboutthenewarrangements.Whenthetoiletsandsignshadbeenputinplace,theownermadeanoteontheriskassessmentformtoconfirmthattheactionhadbeencompleted.
STEP 5:Review your assessment and revise it if necessary
Aftertheevent,theownerandteamdiscussedhoweffectivethearrangementshadbeen,andreviewedtheriskassessment.Minorchangestosignagewereagreedtofurtherreducerisksatsucheventsandtheactionsrecordedontheamendedassessment.
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Risk assessment – a checklist
Itmaybehelpfultoconsiderthefollowingquestionswhenlookingforhazardsandcompletingyourriskassessment:
n Arethenumbersattendingcontrolledorpredictable?n Arevisitorslikelytobefamiliarwiththevenue?n Istheeventgoingtoattractaparticularagegroup?n Istheeventlikelytogeneratehighemotions?n Isthecrowdlikelytobemostlymale,mostlyfemaleormixed?n Isthecrowdgoingtobemadeupofindividuals,familiesormostlylarge
groups?n Howareyougoingtocaterforparticulargroupswithdisabilities?n Howlongwilltheeventlast?n Howwillperformersattheeventaffectthebehaviourofthecrowd?n Inwhatwayscouldmediaprovisionattheeventaffectcrowdsafety?n Haveyouconsideredpossibleaggressivebehaviour,forexamplebetween
rivalsupportersorbyvisitorstowardsstaff?n Aregatecrasherslikely?n Willalcoholbeavailable?n Isitlikelythatsomeindividualsattendingtheeventhavebeenconsuming
drugs?n Arethereothermajoreventsintheareaatthesametimeasyourevent?
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Putting precautions in place100 Thissectionprovidesfurtherdetailsaboutprecautionstoaddressriskstocrowdsafetythatyouhaveidentifiedduringyourriskassessment.Thetypesofprecautionsdescribedfallbroadlyintotwocategories–thevenueandcrowdmanagement.
101 Theguidanceunderthefollowingheadingsillustratesthetypesofprecautionsyoumayneedtoconsider.Itdoesnotcoverallpossiblecircumstancesthatmayberelevanttoyourevent.Referencestomoredetailedguidanceareprovided.
The venue
102 Thefollowingparagraphscoverpeople’sarrivalthroughtotheirdeparture.Whereverpossible,encouragephasedarrivalsanddeparturestopreventovercrowding,forexampleby:
n makingentrycheaperoff-peak;n offeringentertainmentbeforeandafterthemainevent;n staggeringthestartand/orfinishofseveraleventswithinthevenue;n makingearlyarrivalandlatedeparturepleasurablebyprovidinggoodcatering
andwelfarefacilities.Ifpossible,provideaplaceforpeoplewhowanttoeattheirownfoodorjustwanttositdown.
Transport to and from the venue103 Ensurethatattheplanningstagetransportfacilities(egbusstopsandstations,trainstations,carparks)aresufficienttocopewiththeexpectednumbersofpeople.Scheduleyoureventtofinishatatimewhichallowspeopleplentyoftimetocatchtransport.
104 Considerencouragingpeopletouseexistingorspeciallyprovidedpublictransportsystems.Forsomeeventsyoucouldalsoconsiderissuingcombinationbusorrailtickets.
105 Ifparkingspacenearthevenueislimitedorremotesitesareused,oritissomedistancebetweenthevenueandbus/railstations,considertheuseofashuttlebusservicetotakepeopletoandfromthevenue.
Parking106 Enurethatparkingarrangementsareclearlysignpostedsomedistancefromthevenue,sothattheinformationisconveyedtodriverswellinadvance.
107 Avoidlocatingcoachdrop-offandpick-uppointsandparkingplacesimmediatelyinfrontof,orverycloseto,theentrances/exitstoreducetheriskofcongestion.
108 Cordon-offareaswhereparkingispotentiallydangerous(becauseitwouldcauseanobstruction,forexampletoemergencyaccessroutes,oranundesirablemixofvehiclesandpedestrians)anderectsignpoststhatexplainthepenaltiesforillegalparking.Itmaybenecessarytoseektheadviceofthepoliceaboutcarsthatareillegallyparkedoutsidethevenue.
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Access routes to and from the venue109 Ensure,asfarasispossible,thatpedestrianroutesareseparatedfromvehicleroutes.Additionalprecautionswillberequiredwherevehiclesformanintegralpartoftheevent,forexampleatmotorsportevents.
110 Maintainaclearrouteforemergencyvehiclesandensurethattheemergencyservicesareawareoftheroute.
111 Ensurethatroutesareadequatelylitand,wherenecessary,provideguardrailsorbarrierstopreventtripsorfalls.
112 Wherepossibleprovide:
n directroutes–topreventpeoplefromtryingtotakeunauthorisedshortcuts,suchaswalkingontheroadamongtraffic;
n one-waysystems–topreventflowsofpeopleinmorethanonedirection;n separateflows,forexampleyoucouldsetupdifferentpedestrianaccess
routesforvisitorsarrivingfromtherailwaystationandthosecomingfromcoach/carparks.Separateroutescanalsobeusedtoreduceconflictbetweenrivalsupporters;
n routeswithoutpinchpointsorwidthchanges(slowflowsatthesepointscancausepeopletobecomeseparated).Theymaywaitinotherareastotrytorejointheirgroup,causingfurthercongestion;and
n accessroutesthatarelevelandrampsforpeopleusingwheelchairs.
113 Considerprovidingfacilitiessuchastoiletsandrefreshmentsoutsidethevenueforthosewhoarriveearly.Thesecanalsobeusedtoattractsomeofthepeopleawayfromparticularlybusyroutesorareas.
Combiningbarrierswitheffectivestewarding
Entrances and exit114 Acombinationofbarriersandeffectivestewardingcanbeusedtoencourageorderlyqueuingandmovementthroughentrancesandexits.Becarefulthatqueuesdonotblockaccessorpedestrianflow.Whereverpossible,ensurethatthereisawaybywhichpeoplecangetoutofthequeuewithouthavingtomoveagainstthefloworthosequeuingbehindthem.
115 Avoidlocatingticketsalesandpick-uppoints,temporarystructures,attractions,facilitiesandmaininformationsourcesclosetoentrancesandexits.
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116 Entrancesandexitsforpeoplewithdisabilitiesshouldbeclearlysignposted.Provideaseparateentranceiflargenumbersofpeopleareexpected;thiswillavoiddisruptionsofcrowdflows.
117 Don’tletpeoplequeueonroads,unlessthereisplentyofroomforbothpeopleandtraffic,andthequeueisphysicallyseparatedbyadequatebarriers.Ifthisisdifficulttoachieve,itisbettertoavoidqueuingonroadsifpossible.
118 Trytoavoidlettingpeoplequeueonstairs,especiallyiftheyareusedbyothers,orarepartofthemeansofescape.Ifitisunavoidable,makecertainyouhaveadequatestewardstoensurethequeueandadjacentflowofpeoplearewellcontrolled.
119 Trytodiscouragepeoplefrommovingforwarduntildoorsarefullyopen.Fixdoorsintheopenpositiononceyouhavestartedtoletpeopleinorout.Ifthereareotherentrancesorexitsthatarenottobeused,indicatethesetypesofdoors,forexamplebyputtingup‘noentry’signs.
120 Takemeasuresatentrypointsandatsalespointstoensurethatprohibiteditems,suchasmetalcans,glassbottles,orotherpossiblemissiles,cannotbetakenintothevenue.Youmayfindithelpfultouseafiltersystem.Forlargeoutdoorevents,asystemoffreeflowcanhelpspeedupentrytothevenue.
Inside the venue121 Ensurethatentranceroutesdonotfilterintovantagepointssuchaspopularattractionsorfrontstageareas.Thisistoavoidpeoplestayingattheendoftherouteandblockingflowintothevenue.
122 Crowdsurgesorpushingshouldbeanticipatedwhentheactioninthevenuebecomesparticularlyexciting,leadingtoexcesspressureandovercrowding-standingareasareparticularlyvulnerable.Forexample:
n theaudiencemaymoveforwardasthemainactcomesonstageatamusicconcert;or
n unexpectedmassmovementofaudiencemembersfromoneattractionorperformancetoanother;or
n inresponsetocheersandshrieks,thepeoplegatheredaroundanattractionmayrushforwardtogetabetterview.
Encourageorderlyqueuing
123 Protectareaswherepeoplearevulnerabletocrushingbymeansofbarriersorspecialdesignarrangements.Forexample,relieveandpreventbuild-upofcrowdpressuresbyusingthefrontofstagebarrierusedatmusiceventsorcrushbarriersinterracedareasatsportsgroundswherespectatorsarestanding.
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Viewing areas 124 Designviewingareasinsuchawaythatallpeoplehavegoodsightlinestoanystageareas.Thisreducesthetendencyofpeopletocrushorsurgeinordertoobtainabetterview.Videoorprojectionscreenscanbeusedtoattractpeopleawayfromcrowdedareas.
125 Ensurethatviewingareasaresetasidesothatpeopleusingwheelchairshaveaclearviewoftheattractionandarenotaffectedbycrowdmovement,suchassurging.Becarefulthatwheelchairsdonotblockgangwaysorexits.
Seating areas126 Forseatedareas,ensurethatthedistancebetweenrowsofseatsissufficienttoenablepeopletomoveinandoutfreely.Iftemporaryseatingisprovided,itwillbenecessarytoensurethattheseatingisadequatelysecuredtoavoid‘snaking’.
Fences127 Atoutdoorvenues,theprovisionofafixedboundarywillhelpthesafetymanagementofthecrowdandpreventtrespassersenteringthesite.Forlargeoutdoorevents,asubstantialperimeterfencemaybeneeded.
Barriers128 Youmayneedtokeepcertainareasclearofpeople,forexampleanareaadjacenttoameansofescape.Thiscanbedonebybarriering-offtheareasorobstructingsightlines.Forexample,side-stagesightlinescanbereduced,sothatpeopledonotcongregatebyemergencyexitsinthoseareas.
129 Makesurethatthereareenoughfacilities,egrefreshments,toilets,welfareandinformationservices,meetingpointsorwaitingareasprovidedinthevenuetopreventobstructionandcongestionthroughthebuild-upofqueues.
130 Thelocationoffacilities,attractions,egfairgroundridesandtemporarystructures,egstages,temporarystands,viewingplatformsetccanobstructentrances,exitsoremergencyvehicleaccessandthereforeneedstobechecked.Ensurethatthereissufficientspaceprovidedaroundthemforpeopletomovewithoutobstructingflows.
131 Youshouldensurethatadequateinspectionsandtestsarecarriedouttoestablishthatallstructures,installationsandequipment,whetherpermanentortemporary,aresafeforthepurposesforwhichtheyareintended.Thisislikelytoincludeinspectionsbefore,duringandaftertheevent.Theseareequallyimportantforone-dayeventsasforeventsthatlastforanumberofdays.
132 Youshouldensurethatsuchinspectionsarecarriedoutbysuitablyqualifiedpersonnel,thataprogrammeofinspectionsandtestshavebeendrawnupandadheredto,thatdetailedrecordsofinspectionsandtestsarekeptandthatadequateresourcesareallocatedtocarryoutthetasks.FurtheradviceonthiscanbefoundintheInstituteofStructuralEngineerspublicationTemporary demountable structures: Guidance on procurement, design and use.11
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Crowd management
133 Youshouldprovideanadequatenumberofstafftoensureeffectivecrowdmanagement.Yourstaffingstructurewilldependonthesizeofyourevent.Alargeeventmayrequiretheappointmentofachiefstewardtoberesponsibleforeffectivestewarding,supportedbyaseniorsupervisorandanumberofothersupervisors.
134 Thestaffmayalsoassistthepoliceandotheremergencyservices.Whereaneventrequiresthepresenceofpoliceofficers,agreethedutiesandresponsibilitiesofstaffbetweentheorganisersandthepolice.
135 Staffdutiesinclude:
n knowingthelayoutofthesiteandbeingabletoassistthepublicbygivinginformationabouttheavailablefacilities,rememberingthosewithspecialneeds;
n beingawareofthelocationofentrancesandexitsandfirst-aidpoints;n ensuringthatovercrowdingdoesnotoccurinanypartofthevenueby
managinganddirectingthecrowd,particularlyonenteringorleavingthevenue;
n keepinggangwaysandexitsclearatalltimesandpreventingstandingonseatsandfurniture;
n controllingunrulybehaviourandinvestigatingimmediatelyanydisturbancesorincidents;
n ensuringthatcombustiblelitterdoesnotaccumulate;n communicatingwithsupervisors;n knowingandunderstandingthearrangementsforevacuatingthevenue,
includingcodedmessagesandundertakingspecificdutiesinanemergency;n monitoringofcrowdsatkeypointswhereovercrowdingmayoccur;n controllingvehicleparkingandmarshallingtraffic.
136 Identifythepartsofthevenuewherestaffwillbeneededandthenumbersrequiredtomanagethecrowdunderbothnormalandemergencysituations.Locatestaffatkeypointstomanagethecrowds.Thesewouldincludeentrancesandexits,gangways,barriers,pitareasnearthestageatpopconcertsetc.
137 Co-ordinatethemanagementofstafffromthevenue’scontrolpoint,whichneedstomaintainanefficientmeansofcommunicationwiththestaffand/ortheirsupervisors(seethe‘Communication’section).
138 Providestaffwithdistinctiveclothing,suchasjacketsortabardswhichclearlyindicatethedutythattheyareperforming(egsteward,trafficmarshalsupervisor).Providestaffwithameansofidentification.
139 Trainstafftocarryouttheirdutieseffectively.Thetypeoftrainingwilldependonthefunctionstobeperformed.Keeparecordofthetrainingandinstructionprovided.Staffwithfewerduties(egcontrollingparkingandmarshallingtraffic)maynotneedtocoverallelementsofthetraining.
140 Briefstaffpriortotheevent,particularlyaboutcommunicatingwithsupervisorsandothersintheeventofanemergency.Itisrecommendedthatstaffreceiveawrittenstatementoftheirdutiesandaplanshowingkeyfeaturesofthevenue,sothatthereislesslikelihoodofinformationbeingmisinterpreted.
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141 Trainallsupervisorystaffinthehandlingofemergencies,andagreethelimitsoftheirresponsibilitiesinconjunctionwiththeemergencyservicesattheplanningstage.Informsupervisorsofthecommunicationssystemfortheeventandtheworkingofthecontrolpoint(seethe‘Communication’section).Itisadvisableforsomeofthesupervisorystafftohavereceivedtraininginfirstaid,particularlyincardiacpulmonaryresuscitation.
Providestaffwithdistinctiveclothing
142 Ifyouareusingacontractortosupplystaff,itisrecommendedthatyoucheckthatthey:
n carryadequatepublicandemployerliabilityinsurance;n haveacompanypolicyonhealthandsafety;n employanadequatenumberofpersonnelwhoarecompetentinthe
followingareas:– firesafetyandemergencyevacuation;– basicfirstaid;and– communicationprocedures.
Wherestaffingdutiesaresubcontracted(egtoaprivatestewardingfirm),ensurethatthecontractor’sstaffmeettherequiredstandards.
143 Tocheckthatyourstaffingarrangementsareadequateyoucould,forexample:
n checkstafftrainingrecords;n carryoutmockexercisestoassessstafftraining;orn checkproceduresarebeingfollowed.
Enforcing rules144 Venuerules,egthoseconcerningbringinginalcohol,drugsandoffensiveweaponsneedtobeenforcedfirmlyandclearly.Ifappropriate:
n discussarrangementswiththepoliceandthinkaboutinvitingaspecialpolicepresence;
n considerintroducingsomeformofpenaltyforcertaintypesofdangerousbehaviour.Penaltiescouldincludeexclusionfromthevenueand/orbanningfromfutureevents;
n publicisetheconsequencesofdangerousbehaviourintermsofpossibleoutcome(accidents,injuries,structuralcollapseetc).
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Checking your precautions
145 Checkandinspecttheprecautionsyouhaveputinplacetoensuretheyremaineffective.Arethearrangementsasyouplannedthem?Youneedtocheckthatstands,attractionsetcaresitedasplanned.Carryoutinspectionsregularly,bothbeforeandaftermembersofthepublicareadmittedtotheevent.Ensurethatthepersonsperformingthechecksandinspectionsarecompetent.Remembertoallowenoughtimefortheproblemsthatarediscoveredtobeputright,orforyoutofindanothereffectiveprecaution.
146 Duringtheeventensurethatallroutes,includingemergencyroutes,arekeptclearandwellsignposted.Ensurethatarrangementsareinplacetopreventlitterandwasteaccumulatingorbeingstoredincirculation,exitorescaperoutes.
147 Ensurethatanynecessaryremedialactionistakenbeforethenextevent.Youmayfindithelpfultowritedownareasofconcernandrecordwhentheyhavebeencorrected.
When things go wrong
148 Disruptionscouldhappen,forexamplethrough:
n equipmentfailure,egpublicaddresssystemnotworking;n overcrowding,egthroughlatearrivaloflargenumberofpeople;orn crowdbehaviour,egsurgingandpushing,peopleleavingthevenueearly,
peoplere-enteringthevenue.
149 Aspartofyourriskassessment,identifypotentialdisruptionsandsetupprocedurestodealwiththem(oftenreferredtoas‘contingencyproceduresorplans’).Foreachdisruption,considertheextraresourcesyouwillrequireinstaffandequipment(egloudhailers,additionalbarriersectionsetc).Staffhaveakeyroletoplayindealingwithdisruptionsanditisimportantthattheyhavereceivedadequatetrainingandbriefing.
150 Ensurethatproceduresaremadefamiliartoallrelevantstaff.Staffmeetingsorbriefingscouldbeusedtoremindstaffabouttheprocedurespriortothestagingoftheevent.Mockexercisesareausefulwayoftestingoutyourproceduresfordealingwithdisruptionsandemergencies.151 Atlargeevents,barriered-offareas,oftenreferredtoas‘safetyzones’,canbedesignated.Ifovercrowdingthreatens,peoplecanbefilteredintoandthroughthe‘safetyzone’topreventcrushing.Theuseofsafetyzonesneedscarefulconsideration;theirpossibleuseshouldbediscussedattheplanningstagewithrelevantpartiesincludingthelocalauthorities,thepoliceandemergencyservices.
152 Planningforemergenciesiscoveredinthe‘Emergencyplanningandprocedures’section.
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Crowd safety management – a checklist
Communication
n Istheinformationyouwillprovidetovisitorsadequate?n Istheinformationyouwillprovidetoemployeesandothersinvolvedinthe
event,includingemergencyservices,adequate?n Haveyouestablishedclearlinesofcommunicationwithvisitorsandothers
involvedwiththeevent?n Whoarethevisitorsandwhatdotheyalreadyknowaboutthevenueand
theevent?n Howcouldthelayoutofthevenueaffectsafetyandwhatassistancecould
youprovideforpeopletofindtheirwayabout?n Whatdirections,advicewarningorothergeneralinformationwillpeople
need?n Where,andatwhatstageofthevisit,willpeopleneedtheinformationor
assistance?n Inwhatformshouldtheinformationbepresented?
Putting precautions in place
n Arestaffinglevels,includingthoseforstewards,adequate?n Arestaffcompetentandadequatelytrained?n Arearrangementsinplacetoenforcevenuerules,forexamplethose
regardingprohibitingthebringinginofalcohol,drugsandoffensiveweapons?
Monitoring crowds
n Arearrangementsinplacetomonitortheeventanddetectanddealwithanypotentialproblemsatanearlierstage?
n Aretheresufficientstafftobeabletomonitorreliablyallareaswheretherearepotentialcrowdingproblems?
n Aretheresuitablevantagepointsavailabletoenablestaffonlocationtomonitorallareaseffectively?
n Caninformationcollectedinalocalareaofthevenueberelayedinanaccurateandreliablemannertoacentrallocationorcontrolpointforcontrolandco-ordinationpurposes?
n Howquicklycouldcrowdingdeveloptoadangerouslevelatvariousidentifiedlocations?
n Howmuchtimeisrequiredtorespondtocrowdingproblems?n Ifacrowdingincidentoccurred,howwouldyougettoknowaboutitso
thatyoucoulddealwiththeincidentitselfandpreventitsescalationorreoccurrence?
n Arethereenoughstafftobeabletomonitorreliablyallareaswheretherearepotentialcrowdingproblems?
n Arethereenoughgoodvantagepointsforstafftomonitorallareaseffectively?
n Caninformationcollectedfromdifferentareasofthevenuebecommunicatedquicklytothecontrolpoint?
n Canstaffatthecontrolpointquicklyalertstafftoapotentialproblem?
Presence of hazardous items and substances
n Havestructures,suchastemporarystands,beeninspectedbyacompetentpersontoensureagainstcollapse?
n Hasthepositionofstructuresbeencheckedpriortotheactivitytoensurethattheydonotrestrictaccessroutes?
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n Areanyfireworkstobeusedstoredsafelyandareadequateproceduresinplacefortheirsafeuse?
n Areadequateprecautionsinplacetopreventvisitorsfrombeingstruckbyvehiclesinandaroundtheareaoftheevent?
n Hastheeffectoncrowdsafetyofanyspecialeffects,eglasers,dryiceetcbeenadequatelyaddressed?
n Hasequipmentinstalledtoensureeffectivecrowdmovement,egescalators,turnstiles,ticketmachinesetcbeenadequatelymaintained?
n Aretherisksassociatedwithsubstanceshazardoustohealth,egfumesformgeneratorsadequatelycontrolled?
n Arepotentiallyhazardousareas,suchasplantrooms,switchgearandchemicalstorageareas,inaccessibletounauthorisedpersons?
n Havesourcesoffirebeenadequatelydealtwith,forexamplehotfoodstalls,LPGcylindersonstallsandincaravans,petrolgenerators,smoking,lightingoffiresbyvisitorsetc?
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Emergency planning and proceduresWhat is good crowd safety emergency?
153 Theterm‘emergency’istakentomeanasituationwheretheemergencyservicesbecomeactivelyinvolvedoranurgentevacuationisrequired.Broadly,theywillbesituationswiththepotentialforseriousinjuriesrequiringimmediateandspecialistactionbeyondthecapabilitiesofvenuestaff.
154 Emergenciesmayincludefireorexplosions,bombthreats,collapseofastructure,egseating,staging,fairgroundattraction,releaseofhazardoussubstances,eggasleak,orunanticipated,hostileweatherconditions,egflooding,highwinds.
155 Thesignificanceofcrowdmanagementforemergencyplanningisthatcrowddisorderandovercrowdingcanbefactorsinthecreationofemergencies,egoverloadingofbarriers,stagingetc,behaviouralproblemssuchasviolenceorpanicandarealsofactorswhichmakedealingwithemergenciesmoredifficultiftheydooccur.
Measures to manage emergency situations
156 Thetypesofmeasuresyouputinplacewilldependonthefindingsofyourriskassessment.Theywillalsobeinfluencedbyyourconsultationswithotherrelevantpartiesincluding:
n authoritieswhoenforcetherelevantlegislation,eglocalauthority,fireauthorityandanyrelevantgovernmentdepartments;
n emergencyservices,includingthepolice,nearbyhospitalsandon-sitefirst-aidproviders;
n allthoseinvolvedintheoperation,suchasthevenueowner,securityfirmsandvendorsoperatingatthevenue;
n nearbysitesandtransportoperators,whichcouldbeaffectedbytheemergencyorsubsequentevacuation.
Anydiscussionsneedtoincludetheconsiderationofthesafetyoftheemergencyservices,aswellasthatofthepublic,yourownstaffandotherson-site.
157 Thissectionsetsoutkeyissuesthatshouldbecoveredinemergencyprocedurestominimiserisksduetocrowdingduringemergencysituations.Itdoesnotattempttoprovideguidanceonthegeneralsubjectofdealingwithemergencies;furtherinformationisavailableonthisfromothersources.
158 Itisimportanttokeepwrittenemergencyprocedurestogetherasanemergencyplan.Ensurethatcopiesofemergencyproceduresorplansareeasilyaccessibletomanagers,supervisors,stewards,otherrelevantstaffandpersonnelfromoutsidebodies(eglocalauthoritycontractors,vendors,emergencyservices).Covertheproceduresintrainingandreinforceduringeventbriefings;thiswillhelpstafftoactconfidentlyandefficientlyduringanemergency.Basicproceduresandotherrelevantinformationcouldbeputonasmallcardorsheetprovidedtoall
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staff.Considercarryingoutmockexercisestoensurethatyourprocedureswillbeeffectiveintheeventofanemergency.Emergencyproceduresshouldcovertheareasdealtwithinthefollowingparagraphs.
Informing the emergency services159 Decidewhowillcontacttheemergencyservicesintheeventofanemergencyandwhowilldeputiseintheirabsence.Theyshouldbeclearontheirresponsibilities.
160 Onceanemergencyisidentified(inthecaseofbombthreat,whenasuspiciouspackageisdiscoveredorawarningtelephonecallreceived),thepoliceandotherrelevantemergencyservices,includingthoseresponsiblefor‘accidentinvestigation’,needtobetoldassoonaspossible.Itmaybehelpfulifchecklistsofinformationobtainedarepassedtorelevantstaff,oratkeylocationssuchasthecontrolpoint.Theobtainedinformationcouldinclude:
n theexactofficialaddressofthevenue;n thenatureoftheemergency,accidentorincidentanditsextent,ifknown;n theaccessrouteandmeetingpoint.Thepreviouslyagreedaccessmayno
longerbesuitableduetothecircumstancesoftheemergency;n anyrelevantinformationabouthazards,egstorageofchemicals;n makesurethatthereisasystemforpassingoninformationtoallvenuestaff
andanyrelevantoutsidebodies.Clearlyspecifywhoshouldbeinformedandinwhatorder.
161 FurtherguidanceformanagersandsecurityofficersonbombincidentsandthreatsiscontainedintheHomeOfficehandbookBombs: Protecting people and property.12
Communicating with staff 162 Differentlevelsofurgentresponsemaybenecessary,frominjuryorsicknessofonepersontoamajorincidentthatrequiresurgentevacuation.Itisthereforeimportantthatacompetentperson(s)withauthoritytostoptheeventisdesignatedattheplanningstage.Sinceeachlinkinacommunicationchainisapotentialsourceofmisunderstanding,breakdownordelay,alertingchainsshouldbeasshortaspossible.
Arecommunicationsystemsadequate?
163 Makesurethatthereisasystemforpassingoninformationtoallvenuestaffandanyrelevantoutsidebodies.Clearlyspecifywhoshouldbeinformedandinwhatorder.Staffneedtobekeptinformedaboutanyemergencieswithinthevenueinawaythatdoesnotalertthecrowdbeforestaffarereadyandinapositiontohandlethesuddenflows.Youcoulddothisbytwo-wayradio,orbycodedpublicaddressmessages.Thelattercanalsobeusedtosignaltostafftolistentoradiomessagesortocontactthecontrolpointthroughtheinternaltelephonesystem.
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164 Youneedtodecidewhattotellstaff.Informationcouldinclude:thenatureoftheemergency,thelocationandtheaffectedareas,theprocedurestofollow,andanyspecialinformationaboutwhichescaperoutesorexitsshouldnotbeused.
Communicating with the public within the vicinity of the event 165 Youwillneedtoconsiderwhattotellthepublicabouttheemergency,andwhen.Whetherthewholevenueistoldatoncewilldependonthenatureoftheemergency.
166 Peoplemaybeconfusedandunsureofwhatactiontotakeinanunfamiliarsituation.Somemaybemoreconcernedaboutmakingalternativearrangements,suchaslookingforseparatedfriends/familyortelephoninghomeaboutadelay.Thewayyouprovideinstructionscanaddresstheseconcernsandinfluencethespeedofthepublicresponse.
167 Itwillhelptogiveshort,clearinstructions,repeatimportantinformationandphraseinstructionspositively(eg‘Usethegreendoor’,not‘Donotusethereddoor’).Bepolite,firmandcalm.Itisimportanttoensurethattheinformationispresentedinawaythatisnotalarming.
168 Peoplecanbeinformedaboutevacuationbycombinationsofthefollowingmeans:
n recordedorlivePAmessages;n wordofmouthbystaff(includingtheuseofloudhailers);n audiblealarms;n informationboards(includingscoreboards,starscreenetc).
169 Informationtobegiventothepublicmightinclude:
n whichexitstouseandhowtogetthere;n wheretoassemble,ifappropriate;n thereasonfortheinstructions(eg‘toavoidovercrowdinginAreaA,please
use...’);n anassurancetopeoplethatarrangementswillbemadetocompensatethem
ortorefund/re-scheduletheevent;n tellingpeoplewherethemeetingpoint(s)areforfriends/relativeswhohave
gotseparated;n availabilityoftoiletsandtelephonesoutsidethevenue;andn providinginformationonanytransportarrangementsthatareavailable.
Evacuation170 Peopletendtoevacuateviatheroutesandexitswithwhichtheyaremostfamiliar.Unlesscleardirectionsaregiven,thiscouldresultinoverloadingofcertainroutesandexits.Youwillneedtoensurearrangementsaremadetomakeuseofallavailableexits,andpeoplearedirectedtothemostappropriateescaperouteandexit.Itmaybenecessarytoredeploystafftohelpinthemostcrowdedareas.
171 Ensuresuitablearrangementsaremadetoprovideassistancetopeoplewithspecialneeds,adultswithyoungchildrenandpushchairsetcduringtheevacuation.Suchassistancewillhelpthesepeopleandalsoreducethelikelihoodofbothcrushingandovercrowding.Youmayalsoneedtosetupbarriersandsignsandhelpstaffandpoliceturnawaythosearrivingatthevenueasquicklyaspossible.
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172 Ifthelayoutofthevenueiscomplex,orthesizeoftheareatobeevacuatedisparticularlylargeordistantfromtheexits,itmaybemorepracticaltoaskpeopletogatheratvarioussafepointsinthevenueandthenescortthemingroupstotheexits.
173 Staffneedclearguidanceonwhattodoifsomeonerefusestoco-operate,forexamplegoinginthewrongdirectionorbeingreluctanttoleave.Staffshouldtrytofindoutwhattheproblemisiftimepermits.Theperson(s)mayhaveaproblemthatcaneasilybesolved,orknowofaproblemwhichyoudon’t,suchasablockedexit.Iftheirrefusaltofollowinstructionsislikelytoendangerthesafetyofothers,staffshouldseekhelpfromasupervisororeventpromoterormanager.Ifdangerisinvolved,don’twastetimeonit-turntomoreurgenttasks.
174 Maintainaclearrouteforemergencyvehiclesandensurethattheemergencyservicesareawareoftheroute.Thisistoavoidemergencyvehicleshavingtocompetewithdepartingorothertrafficortheevacuatingcrowdsinordertogettothevenue.
Considerphasingdeparture
Assembly areas175 Safeassemblyareasarevitalforsuccessfulevacuation.Ensurethereareenoughassemblyareasandthattheyarebigenoughtoaccommodatethecrowd.Situatetheseareasawayfromvulnerableareassuchasflammableorchemicalstoresorcarparksinbombthreatsituations.Ensurethatsignsareprominentandthatthelocationofassemblyareasonvenuemapsorprogrammesisclearlymarked.Thiswillmakeiteasiertodirectthecrowdtothemwhenanevacuationisnecessary.
176 Providepeopleinassemblyareaswith:
n relevantinformation,egclosureofcarparks,availabilityoffacilitiessuchastoilets,telephonesandmeetingpointsetc;and
n updatedinformationonwhatishappeningatregularintervals,egwhetherandwhenthevenueislikelytobereopened,oriftheeventislikelytocontinueetc.
177 Theinformationcouldbeprovidedviayourpublicaddresssystemorbystaffusingloudhailers.Thisassistsotherstafftocarryouttheirtaskswithoutfrequentinterruptionfrommembersofthepublicseekinginformation.
178 Ifdepartureenmasseasaresultofanemergencyorotherwiseislikelytoleadtocongestionofdepartureroutesorhamperemergencyservices,ensuretherearesufficientstewardstocontrolaphaseddeparture.
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Reopening the venue179 Youwillneedtoconsidertheimplicationsofreopeningthevenueonceitissafetodoso–issuesinclude:
n whetheryoucanreadmitthepeoplesafelyinashorttime;n anticipatedcrowdreactiontoclosureorreopening;n whethertherewillbetransporttotakepeoplehomeaftertheplannedclosing
time;andn refundarrangements.
180 Setupprocedurestomanagethereopeningofthevenue.Theseprocedureswouldensureanorderlyreoccupationandavoidovercrowdingduetotheheavyandsuddenflowscreatedbypeoplewhomaybeinahurrytogetbackintothevenue.Ensurestaffareinpositionbeforeallowingpeopletore-enterthevenue.Positionstaffatthelikely‘pinchpoints’inordertoformorderlyflowsorqueues.
Things that can go wrong checklist
Haveallforeseeablescenariosthatcoulddisrupttheeventbeenconsidered?Forexample:
n Haveyouconsultedrelevantparties,eglocalauthority,police,fireauthority,emergencyservices,transportoperators,aboutplanningforpossibleemergencies?
n Haveyouconsideredpossibledisruptionsandemergenciesinyourriskassessment?
n Doyouhaveproceduresinplacetodealwithpossibledisruptionsandemergencies?
n Doemployeesandotherstaffunderstandtheprocedures?n Aretheprocedurescoveredintrainingandreinforcedduringeventbriefings?n Haveyoucarriedoutmockexercise(s)tocheckthatyourprocedureswork?
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Communication181 Goodcommunicationisanessentialfeatureofmanagingcrowdsafety.Organisers,theirstaffandotherpersonnelallhaveakeyroletoplay.
Communication with the public
182 Ifyoufailtoprovidetherightinformationatanearlyenoughstage,visitorsmayquicklybecomeconfused.Forexample,theymaystoporslowdowntosearchforinformation,orsuddenlychangedirection,beingunsureaboutwheretogo.Thiscouldleadtoovercrowdingorobstructionofflows.
183 Peopleexperiencingdifficultiesinobtaininginformationmayfeelunsatisfied,discontentedorevenbecomeaggressive.Theymaybelesslikelytocomplywithinstructions.
184 Therearemanywaysofcommunicatingeffectivelywiththepublic;examplesareshowninTable1onpage62.Whatevermethodsyoudecidetouse,ensurethatyourcommunicationsystemprovidesaccurate,up-to-dateandrelevantinformation,forexamplewhencertainticketsaresoldoutoranattractionistemporarilyclosed.ConsiderrelayinginformationinlanguagesotherthanEnglishifnecessary,forexampleifthereislikelytobeaproportionatelylargenumberofpeoplefromanethnicgroup.
185 Communicationsplayanessentialroleinmanagingtheflowofpeople,forexamplebyencouragingpeopletousealternativeorunder-usedroutes,entrancesandexits.Selectiveinformationcanbegiventopeoplecomingfromdifferentdirectionstodirectthemtocertainroutesandentrancesandexits.
186 Whereverpossible,ensurethatinformationisgiventothepublicinadvancetohelpthemplan.Forexample:
n transportdetails,meetingpoints,venuerulesandprohibitionscouldbeprintedontheticketorpromotionalleaflet;
n displayboardsatthevenue’sentrance(s)/exit(s)couldbeusedtoinformpeopleaboutitemssuchasticketsthattheyneedtohavereadyorprohibiteditemsthatcannotbebroughtintotheevent.Thismayreducecongestionatticketcheckpoints;or
n aformalpressrelease,letterdrop,oradvertisementscouldbeusedtoprovideinformationtothelocalcommunity.
Example: Event in park
Peoplefamiliarwithaparkarelikelytofollowparkpathsratherthanthosesetoutfortheevent,evenifthismeanscuttingthroughcrowds.Routeswouldthereforeneedtobeconsideredinplanning.Goodsignageandeffectivestewardingwouldbeessential.
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Provideclearannouncements
187 Informpeoplepromptlywhenaneventispostponedortransportisdelayed;thiscouldbedoneviadisplayboards,publicaddresssystemorloudhailers.Informpeopleofthemeasuresthatareinplacetodealwiththechanges.Rememberthatforeveningeventspeoplemayarriveinthelightandleaveindarkness-theycouldbedisorientated.
188 Ensurethatallsigns,andparticularlythoserelatingtofiresafetyandemergencyevacuation,arepresentedandsitedsothat,asfarasispossible,theycanbeeasilyseenbypeoplewithimpairedvisionorcolourperception.Clear,audiblepublicaddressannouncementsarevitalforsafetyofpeoplewithimpairedvision.Peoplewithimpairedhearingrelyonthepresentationofclear,informativevisualinformation.
Communication between staff
189 Crowdingincidentscandevelopveryquickly;goodcommunicationsenableyoutomakearapidandorganisedresponse.
Control point190 Youneedtoensuretheflowofessentialinformationbetweenallstaffconcernedwithcrowdmanagement,duringnormaloperationsandinemergencies.Theuseofacentrallocationorcontrolpointtoco-ordinatetheflowofinformationcanassistyouto:
n gainanoverallpictureatthevenue,egsizeofcrowd,build-upofqueues,seriousincidents;
n co-ordinatetheresponseofallstaffresponsibleforcrowdmanagement;andn co-ordinateactionswithotherdepartments,emergencyservicesorother
externalbodies.
191 Forsmallvenues,thecontrolpointcanbeintheformofamanager’sofficewithbasiccommunicationequipment(egtelephoneandatwo-wayradio)andnecessaryplansandprocedures.Atanoutsideevent,itcouldbeatentorcabin.Forastreetevent,youmayneedtochoosea‘primarysite’(egbeginningorendofcarnivalroutetobasethecontrolpoint).
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Table 1 Waystocommunicatewiththepublic
Method of communication Comments
Tickets,leaflets,postersand Canprovideinformationabouttransportand promotionalmaterial venueentrydetailsandlayout,houserules andprohibitions.Leafletsforresidentsinparade areas-parking,recommendingcarryingIDetc.
Signs Needtobesufficientlylarge,clear,legibleand suitablypositioned.Theyincludesafetysigns,eg ‘nosmoking’,‘emergencyescape’etcand informationsigns,egdirectionalsigns,venue plans,venuerules.
Noticeboardsandelectronic Candisplayessentialinformationsuchas informationdisplayboards prohibitiononcansandbottlesbeingtaken intothevenueorno-smoking.Informationon changessuchastransportdelays,openingof alternativeentrancesoremergencyinformation caneasilybedisplayed.
Publicaddresssystems Thesystemshouldbeaudible,clearand intelligible.Itcanbeusedtoinform,adviseand directpeople.Thesystemcanhelptofreestaff fromansweringquestionsregardingdelaysor changes,sothattheycancarryonwiththeir duties.Theindividualmakingtheannouncements shouldhaveacalmingvoice.
Communicationto Ahelpfulwayofgivingspecificadvice,directionsindividualsbystaff andinstructionstoindividualsorsmallgroups duringnormalandemergencysituations.The informationshouldbeclearlygivenandaccurate.
Informationdesks Canprovidespecificadvice,directionsand answerspecificenquiries.
Nationalorlocalradio Canprovidedetailsoftransport(egroutesto andpress take),anychangestotheeventorvenueorlate informationsuchasforecastofbadweather thatwillaffectanoutdoorevent.
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192 Amajorvenue,ontheotherhand,mayrequireapurpose-builtcentralcontrolroomequippedwithclosedcircuitTVmonitorsetc.Controlroomsareparticularlyusefulinemergencysituations,wheretheactionsofvenuestaffandemergencyservicesneedtobecloselyco-ordinated.
193 Ifyouneedfrequentcommunicationswithoutsidebodiesorothers,suchasastewardingcompanyassistingwithyourevent,thinkaboutsharingacentralcontrolpointwiththem,positioningyourcentralcontrolpointneartotheirs,orsettingupapermanentcommunicationslinkbetweenthecontrolpoints.
194 Bearinmindthefollowingpointswhenconsideringwheretolocatecontrolpointsandhowtoequipthem.
n Trytoavoidlocatingnearanypotentialhazardsorhigh-riskareas.n Accessshouldbecontrolled,andentrancerestrictedtoauthorisedpersonnel
only.n Ifseveralitemsofelectricalequipmentareinstalled,anappropriatefire
extinguishershouldbeprovided.n TrytoreducetheglareonclosedcircuitTVsorvisualdisplayunitscreens
fromnaturalandartificiallighting.n Generalnoiselevelsshouldbekepttoaminimum,sothatstaffcan
communicatewithoutdifficulty.n Trytokeepallappropriateequipmentwithineasyreachofeveryonewho
needstouseit.n Considerinstallingemergencyback-uppowersupplies,emergencylighting
andback-upmonitoringandcommunicationsystems.n Consideridentifyingasecondarycontrolpointincaseanemergencyshould
requireone.
Ways of communicating195 Manywaysofcommunicatingareavailableforuseinpublicvenues,rangingfromsimpleverbalmessagestoradioandtelephonesystems.ExamplesareshowninTable2attheendofthissection.Choosesystemsappropriateforyourvenuethatareeffective,clear,andreliable.Organiseroutinechecksandtestsofyourcommunicationsystems.
196 Duringaneventmonitorthesystems,includingsimpleverbalones,toensurethattheyareworkingeffectively.Forexample,thevenuemanagercouldbeprovidedwithaportableradiowhichisleftswitchedonwhiletheyareonduty.
197 Thefailureofelectricalcommunicationssystemsneedstobeconsidered.Provisioncouldinclude:
n sparemobilephonesorradios;n back-uploudhailersintheeventoffailureofthepublicaddresssystem;andn atlargervenues,back-uppowersupplyforthepublicaddresssystem.
198 FurtherinformationoncommunicationsystemsiscontainedintheGuide to safety at sports grounds.
Communication procedures199 Establishclearproceduresthatdefinewhatneedstobecommunicatedtowhom,bywhomandwhen.Thinkaboutdevelopingstandardproceduresforcommunicationsbetweenstaff.Forexample,aradiocommunicationmightconsistofthefollowing:
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n whoiscalling;n wheretheyarecallingfrom;n themessageitself;andn confirmationofthemessage.
200 Ensurethatnoconfusioncanariseaboutareasofthevenuebeingdiscussedincommunications.Areasofthevenuecouldbegivenagreednamesornumbersetcthatareclearlyunderstoodbyallstaff.Agridmapisoftenusedforlargeoutdooreventstoassiststafftoidentifyalocationatthevenue.Toensurethatcommunicationtasksareproperlycarriedout,considerprovidingchecklistsforthestaffconcerned.Achecklistforanemergencymightindicatewhoshouldbecontactedandinwhichorder.
201 Thinkaboutkeepingsomeformsofcommunicationforhigh-priorityuseonly,suchasaradiochannelsolelyfortheuseofthemedicalorhealthandsafetyteams.
202 Ataneventwheremanypeopleareinvolved,suchasastreetparade,considerrequestingthatstandardmessagesareusedbetweenstewardsandtothepublicsoastoavoidinconsistentinformationandapproach.
Communication with outside bodies
203 Decidewhoisresponsibleforkeyco-ordinationtasksinemergencyorothercontingencysituations,Inparticular,decidewhospeakstoemergencyservices,otherlocalvenues,transportorganisationsandotheroutsidebodies.Ifyouneedtohavespecialtransportarrangements,maintaincommunicationschannelswithtransportauthorities,thepoliceandmotoringorganisationsthroughouttheplanningperiodandduringtheeventitself,makingcontingencyplanstodealwiththeresultsoftrafficconditions.
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Table 2 Communicatinginpublicvenues
Way of communicating How it is used
Briefings/debriefings–Reviews Toprovideinformationaboutcrowdsafety issuesandemergencyprocedurespriortothe openingofthevenue. Forcollectingobservationsandfeedback commentsaftertheeventorfollowingan evacuation.
Verbalcommands/handsignals Wherestaffareworkinginvisualcontactorin closeproximitytoanoisyarea.Publicaddresssystem Apartfromitsuseincommunicatingwiththe public,italsoallowsstafftorespondto broadcastpublicinformationmessages,orto codedmessagesalertingthemtorespondtoa problem.Telephone Wherestaffarebasedatfixedlocations,eg turnstilesorforemergencycommunications fromkeylocations,egnexttoemergencyexits andwherestaffreportinatintervals.Radiosystem/portablephones Wherestaffoperateoverawidearea,thereisa needforcloseco-ordinationand/orafast communicationwithothercolleaguesor supervisorystaff.
204 Trafficconditionsmayaffectthetimingofpeople’sarrivalordepartureplans.Keepinclosecontactwiththepoliceormotoringorganisationsforupdatedtrafficreports.
205 Ensurethatgoodcommunicationlinks,egdirectphonelinesaremaintainedwithbus,tubeandrailstationsclosetothevenue.If,forexample,atrainisdelayed,thisinformationcanberelayedtovisitors.Ifyoureventislikelytoaffecttraffictoandfromnearbyeventsorvenues,ensuretheorganisersareinformed.
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Monitoring crowds206 Themonitoringofcrowdbehaviourisakeycomponentofcrowdmanagement,enablingyoutodetectcrowdingproblemsatanearlystage.Youcanalsoassesshoweffectiveyourcrowdsafetyprecautionsare.
207 Effectivemonitoringcanhelpavoidovercrowdingproblemsandaidlong-termactiontocorrectproblemsinvenuedesignoreventmanagement.Threekeyareastoconsiderare:
n overallnumberofpeople(toensurethattheoverallvenuecapacityisnotlikelytobeexceeded);
n distributionofpeople(tohelppreventlocalovercrowding);andn identifyingpotentialcrowdproblems(topreventproblemssuchaspublic
disorderfromescalatingandleadingtoovercrowding).
Where to monitor
208 Aspartofyourriskassessment,identifypotentialproblemareaswhichwillneedtobecloselymonitored.Suchareasmayinclude:
n entrancesandexits;n standingareaswithapotentialforcrowdsurgesorpushing;n popularstalls,attractions,exhibitsandrefreshments;n bottlenecks(egstairs,escalatorsetc);n areaswherepeoplequeue;andn enclosedorconfinedareas.
CCTVcanbeahelpfuladdition
How to monitor
Counting systems209 Countingsystemscanhelpyouestimatethenumberofpeoplewithinyourvenueorareaofthevenue.Designthesesystemstoprovideinformationtostaffatthecontrolpointastohowquicklypeopleareenteringandwhenandifanareaisexpectedtobecomefull.
210 Examplesofcountingsystemsinclude:
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n handcounters.Thesecanbeusedatentrancestoavoiddoublecounting;n providingwristbandstoallowpeopletoenterparticularareassuchasa
standingareaatamusicevent.Overcrowdingcanbepreventedbyonlyissuinganagreedsetnumberofwristbands;
n turnstileslinkedtoautomaticcountingsystems;andn computerisedsystemslinkedtosensorsatentrypoints.
211 Thefollowingwaysofcountingmaybemoreappropriatetovenueswheretherearefewdefinedboundaries,suchasstreeteventsorstationsandshoppingmallswherepeoplearecontinuouslyarrivingandleavingthroughouttheday:
n samplingflowratesatentrancestoestimatenumbersenteringorleavingthevenue;
n monitoringofcarsandcoachesenteringthevenueandcheckinghowfulltheparkingareasare;
n usingclosedcircuittelevision(CCTV)orstaffatvantagepointstoviewthecrowdandestimatenumbers;and
n estimatingthenumberofpeoplebasedonadvancedbookings,transportationschedulesorpreviousexperience.
Staff within the crowd212 Thisenablesstafftoexperiencecrowdingconditionsatfirsthand.Italsoenablesthemtoobservepeople’sfaces,identifysignsofdistressandsenseatmospheresortension.Staffonhandcanhelptoassistpeopleortodiffuseanydangerousbehavioursuchasjumpingontoseatsor‘surfing’thecrowd.Staffmaydiscouragedangerousbehaviourbytheirpresenceinthecrowd.
213 Wheremonitoringisdonebystaffstationedatparticularposts,ensurethattheyoccupyvantagepointswheretheycanscanasufficientlylargeareaandtheirlinesofsightarenotobstructed.
214 Monitoringcanalsobecarriedoutbystaffpatrollingthevenue.Thisisappropriatewherecrowdingproblemsarelikelytodevelopslowlyatparticularpointswithinthevenue.Staffmaybegivenspecificareastocheckatregularintervals.
Patrollingthevenue
215 Ifmonitoringisdonebystaffatthesametimeasotherduties,suchasticketchecking,ensuretheyhavesufficientopportunitiestomonitorthecrowd.Otherwise,considerhavingadditionalstafftoreducetheirworkloadortomonitorandcontrolcrowdsduringbusyperiods.
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Closed circuit television (CCTV)216 CCTVsystemscanvaryfromafewfixedcamerasatkeylocationsthroughtoextensivecoverageusingalargenumberofremoteoperationcameraswithzoomlens.CCTVallowsanoverviewofsectionssuchasentrances,departureroutesandproblemareasrelayeddirectlytothecontrolpoint.
217 Thesystemscanprovideinformationondistributioninanumberofareasandareusefulfordirectingandmonitoringcrowdmanagementoperations.CCTVisparticularlyusefultomonitorareaswhichwouldotherwiserequireagreatdealofstaffing.ACCTVsystemshouldneverbeconsideredasasubstituteforgoodstewardingorotherformsofsafetymanagement.Itshouldbeviewedasahelpfuladdition.
218 EnsurethattheCCTVsystemisadequatelymaintainedandinspected.Developacontingencyplantocoverpowersupplyorsystemfailure.Forlargeevents,anauxiliarypowersupplymaybeappropriate.FurtherguidanceonCCTVsystemscanbefoundintheGuide to safety at sports grounds.
219 Youmayfinditappropriatetouseaselectionofthesystemsdescribedtoeffectivelymonitoryourevent.Forexample,youcoulduseCCTVatfixedlocations,supportedbystaffwatchingthecrowdfromvantagepoints,whileotherspatrolthevenue.
Estimating the crowd
220 Whenmonitoringthesizeofthecrowd,thefollowingareusefulindicators:
n spacebetweenpeople;n roughcountofpeopleinasmallidentifiablearea,egbetweenfourcolumns
whichcanbescaledup;andn rateofflowintooroutofanarea
(iethenumberofpeopleorsizeofcrowdpassingamarkedobject).
221 Whenmonitoringchangesinthebehaviourofthecrowd,thefollowingareusefulindicators:
n signsofdistress;n pushingandsurging;andn shoutingorsimilarindicationsofbadtemperorexcitement.
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Review222 Reviewyouractivityandconsiderallaspectsofthearrangementsyouhaveputinplacetomanagecrowdsafety.Thereviewcanbeinthelightofarecentevent,egfootballmatch,streetfestivaloraperiodofoperationofavenue,egconferencecentre,shoppingmall,railwaystation.
223 Reviewsarevitallyimportanttoensurethatyourcrowdsafetyarrangementsarerelevanttoandappropriateforyournexteventortothechangingneedsofyourvenueanditsvisitors.Yourreviewwillhelptoidentifyareaswherechangesareneededand/orintroducesuggestedimprovements.Itmaybehelpfultousethesectionheadingsinthispublicationasaguidetoensurethatyoucoverallthekeyissuesduringyourreview.
Aims
224 Youshouldaimto:
n involvestaffinthereviewandencouragethemtodiscussconcerns;n identifyandcaterforanychangestothevenue,egstaffingstructure,typeof
peopleattendingthevenue,temporarychangesduetobuildingwork;n identifythecausesofanyparticularproblemsoraccidentsthatoccurredat
theeventorduringvenueoperation.Includeincidentsthatpossiblycouldhaveledtoinjuryordamage(‘nearmisses’);
n identifywaysofimprovingthemanagementofcrowdsafety;andn collectfeedbackfromthoseinvolvedintheeventoroperationofthevenue.
225 Theconclusionsorkeypoints,successesandfailuresfromthereviewprocessneedtobefedbacktoallthoseinvolvedintheevent.Thisisausefulwaytomotivatestafftoimproveperformance.
Timing
226 Reviewyoureventassoonaspossibleafterithasfinished,inordertoensurethatanyproblemsarestillrelativelyfreshinpeople’smemories.
227 Ifmanyofthestaffarelikelytodisperse,youmaywishtocarryoutarapiddebriefingassoonaspracticableandusethereportofthisinthefullreview.Someeventmanagerscarryoutadebriefingimmediatelyaftertheevent.Theythenlookattheissuesraisedbeforetheirnexteventandmodifyplansandproceduresinthelightofthoseissues.
228 Whateverapproachyouadopt,agreethenatureandtimingofthereviewbeforetheeventstarts.Arrangementsforaddressingissuesraisedinthereviewcanalsobeagreedatthisstage.Forvenuesusedonaroutinebasis,egshoppingmalls,reviewscouldbecarriedoutregularly(iemonthly,annually)andcertainlyafteranymajorproblemsorincidentsorwhenanychangesinvenuedesignorproceduresareconsidered.
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Revieweventsafetyassoonaspossible
Involvestaffinthereview
Who to involve
229 Ingeneral,representativesofallpartiesinvolvedintheeventshouldtakepartinthereview.Wherepossible,selectrepresentativeswhocangiveyouthefullestpictureofallaspectsoftheevent.
230 Specifictrainingforyourownstaffinvolvedinthereviewprocesscanhelptoimproveitseffectiveness.Iftherearealargenumberofpeopleinvolved,youmayfinditmoremanageabletohaveanumberofseparatereviewsexaminingparticularissues,whichcanthenbecombined.
What information to collect
231 Theprocessofreviewisbasedoninformationgatheredduringaneventortherunningofavenue.Youcangatherthisinformationinanumberofways,somearesuggestedbelow.Thewayyoucollectinformationshouldalsobeperiodicallyreviewedandupdated.
Sources of information
232 Youcouldconsiderthefollowingsourcesofinformation:n debriefingmeetingafterevents–foreventsrunoverseveraldays,collect
commentsmadeatstaffmeetingsandupdatesduringtheevent;n thinkaboutsettingupareportingsystemtorecordtheconcernsofindividual
membersofstaffandmembersofthepublic;n usingareportingsystemwhichdocumentsincidents,nearmisses,goodand
badfeaturesofoperationsetc;andn healthandsafetyinspectionsbyyourownstafforenforcingauthority
inspectors.
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Types of information
233 Itisimportanttoconsider:
n theeffectivenessofyourplans,riskassessmentsandprocedures,forexamplehowwellanewprocedureworkedforimprovingsupervisors’responsestoinformationfromstewardsorwhetherthenewtypeofbarrierwaseffective;and
n indicationsofproblems,forexampleareasofcrowdbuild-up,suddencrowdmovements,complaintsbymembersofthepublic.Ineachinstance,itisveryimportanttotrytoidentifyboththeobviousandunderlyingcausesoftheproblem.
After your review
234 Basedontheinformationyouhavecollected,yourreviewwillhelpyoutodecideifyourarrangementsformanagingcrowdsafetyareadequate.Itmaybenecessarytotakeremedialactiontoimproveaspectsofyourarrangements.Riskassessmentsmayneedtobemodified.Itisimportanttodecidewhoisresponsiblefortakingtheactionandthetimeforitscompletion.
235 Toassistinfutureplanning,youshouldkeeparecordofthefindingsofthereview.Therecordisparticularlyimportantwheretherearechangesinthepersonnelresponsibleforcrowdsafety.
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Appendix:Relevant legislationThe Health and Safety at Work etc Act 1974
1 TheHealthandSafetyatWorketcAct1974(HSWAct)appliestoallemployers,employeesandself-employedpeople.TheActprotectsnotonlypeopleatworkbutalsomembersofthepublicandvolunteerswhomaybeaffectedbyaworkactivity.Arrangingandrunninganeventcountsasworkactivity.
Duties of employers to employees2 AllemployershaveageneraldutyundertheActtomakesurethat,sofarasreasonablypracticable,thehealth,safetyandwelfareoftheiremployeesareprotectedwhentheyareatwork.Inpracticalterms,employersmustmakesurethat:
n theworkplaceissafeandwithoutrisks;n safeworkingproceduresaresetandfollowed;n machineryandequipmentisproperlymaintainedandsafetouse;n equipmentandharmfulsubstancesareusedproperlyandstoredsafely;n employeesareprovidedwiththeinformation,instruction,trainingand
supervisionnecessaryforthemtoworksafely;andn employeeshavehealthyworkingconditions,includingadequatelighting,
heating,ventilationandtoiletfacilities.
3 Employerswithfiveormoreemployeesmustprepareawrittenhealthandsafetypolicy.Thesafetypolicymustsetouttheemployer’saimsandobjectivesforimprovinghealthandsafetyfortheiremployees.Itmustalsosetouttheorganisationandarrangementsinplaceforachievingthoseobjectives.‘Organisation’canbetakentomeanpeopleandtheirresponsibilities,and‘arrangements’tomeansystemsandprocedures.
4 Employersarerequiredtobringthehealthandsafetypolicytothenoticeofalltheiremployeesandtokeeptheirpolicyuptodate.Revisionswillbenecessaryif,forexample,proceduresincludedinthepolicyarechangedorifthepolicynamesparticularindividualsasbeingresponsibleforaspectsofhealthandsafetyandtherearesubsequentchangesinpersonnel.
5 Recognisedtradeunionshavetherighttoappointsafetyrepresentativesonbehalfoftheemployeesinconsultationswiththeiremployerabouthealthandsafetymatters.
6 Anyemployeesnotingroupscoveredbytradeunionsafetyrepresentativesmustbeconsultedbytheiremployers.Theemployercanchoosetoconsultthemdirectlyorthroughelectedrepresentatives.
Duties of employers to people not employed by them7 Employersandself-employedpeoplehavearesponsibilityforthehealthandsafetyofmembersofthepublic,otherself-employedpeopleorcontractors’employeeswhomaybeaffectedbytheirundertaking.
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8 Thepeoplewhoshouldbeconsideredincludethefollowing:
n peopleattendingtheevent;n stewardsorvolunteers;andn foodandmerchandisevendorsorcontractorserectingtemporarystands.
9 Contractorsandpeoplesuchasvendorsalsohavetheirowndutiestocomplywithhealthandsafetylegislation.However,theymayneedtobegiveninformationaboutasitesothattheyarenotputatrisk.Thosehiringcontractorsmayneedtoexchangeinformationaboutthewayinwhichajobistobecarriedout,sothattheirownemployeesormembersofthepublicarenotputindanger.
Duties of employees10 UndertheHSWAct,employeeshavealegaldutytotakereasonablecareofthemselvesandotherpeopleandco-operatewiththeiremployerwheresafetyisconcerned.
Duties of self-employed people11 Self-employedpeoplehavedutiesundertheHSWActsimilartothoseforemployersandshouldnotcreateriskstothemselvesorotherpeople.TheymayalsobesubjecttotherequirementsoftheRegulationsmadeundertheHSWAct.Althoughonlythecourtscangiveanauthoritativeinterpretationoflaw,inconsideringtheapplicationoftheseRegulationsandguidancetopeopleworkingunderanother’sdirection,thefollowingshouldbeconsidered:Ifpeopleworkingunderthecontrolanddirectionofothersaretreatedasself-employedfortaxandnationalinsurancepurposestheyareneverthelesstreatedastheiremployeesforhealthandsafetypurposes.Itmaythereforebenecessarytotakeappropriateactiontoprotectthem.Ifanydoubtexistsaboutwhoisresponsibleforthehealthandsafetyofaworkerthiscouldbeclarifiedandincludedinthetermsofacontract.However,remember,alegaldutyundersection3oftheHSWActcannotbepassedonbymeansofacontractandtherewillstillbedutiestowardsothersundersection3oftheHSWAct.Ifsuchworkersareemployedonthebasisthattheyareresponsiblefortheirownhealthandsafety,legaladviceshouldbesoughtbeforedoingso.
Duties of people in control of premises12 TheHSWActplacesdutiesonanyonewhohascontroltoanyextentofnon-domesticpremises,egpublicvenuesusedbypeoplewhoarenottheiremployeesegmembersofpublicattendinganevent.Thesedutiesoverlaptosomeextentwiththedutiesofemployersandtheself-employedtopeoplewhoarenotemployees.
13 Thedutiesapplytopremiseswheremachineryorequipmentorsubstancesareprovidedforuseofothers.Thedutiesalsoapplywhenpeopleentertoworkthere,forexamplecontractorswhogointopremisestoinstallorrepairmachinery.
14 Everypersonincontrolofnon-domesticpremiseshasadutytotakesuchstepsasarereasonableintheirpositiontoensure,sofarasisreasonablypracticable,thattherearenoriskstohealthandsafety.Thedutyextendstothenon-domesticpremisesthemselves,anyconnectednon-domesticpremisessuchascorridors,staircasesorstoragespaces,thewaysintoandoutofnon-domesticpremises,andanymachineryormaterialsinthenon-domesticpremises.
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15 Thedutyappliestopersonssuchasownersandoccupiersofnon-domesticpremises,orpersonswhobyvirtueofacontractortenancyagreementhavespecificobligationsinrespectoftherepairormaintenanceofpremisesortoensurethatmachineryorsubstancesaresafeandwithoutriskstohealth.
The Management of Health and Safety at Work Regulations 1999
16 TheManagementofHealthandSafetyatWorkRegulations1999(theMHSWRegulations)requireemployersandtheself-employedtoassesstheriskstoemployeesandnon-employees,egmembersofthepublicarisingfromworkactivities.Thisisinordertoidentifythecontrolmeasureswhichneedtobetakentocomplywithrelevanthealthandsafetylegislation,eliminatingriskswherepossibleandreducingriskfromthoseactivitieswhichremain.
17 Wheretherearefiveormoreemployees,thesignificantfindingsoftheassessmentmustberecorded.Theseshouldinclude:
n arecordofthepreventiveandprotectivemeasuresinplacetocontroltherisks;
n whatfurtheraction,ifany,needstobetakentoreducerisksufficiently;andn demonstrableproofthatasuitableandsufficientassessmenthasbeenmade.
Anassessmentshouldbereviewediftherearedevelopmentsthatsuggestthatitmaynolongerbevalid(orthatitcanbeimproved).Theassessmentshould,ifnecessary,bemodified.
18 Employersarerequiredtohavearrangementsforeffectiveplanning,organisation,control,monitoringandreviewofpreventiveandprotectivemeasures(iehealthandsafetyprecautions).TheMHSWRegulationscoverkeyaspectsofhealthandsafetyarrangementsforensuringthesafetyofcrowds.FurthergeneralguidancecanbefoundintheHSEpublicationManaging health and safety: Five steps to success.13
19 TheRegulationsrequireemployerstoappointacompetentpersontoassistthemwiththeirhealthandsafetyduties.Theemployershouldlooktoappointcompetentperson(s),wheretheyexist,fromamongyouremployeesinpreferencetoexternalsourcesofcompetentadviceandassistance.Externalsourcesofcompetentadviceandassistanceshouldbesoughtifnointernalsourceexistsoritisinsufficienttoprovidetheemployerwiththehelptheyneed.
20 Employersarerequiredtoprovideemployeeswithadequatehealthandsafetytrainingandcomprehensibleandrelevantinformation.
21 TheRegulationsalsorequirethattemporaryworkers(iethosewhoareemployedunderafixed-termcontractofemployment)mustbegivencertaininformationabouthealthandsafetyinformationbeforetheirdutiesbegin.
22 Whereemployerssharetheirworkplacewithanotheremployerorself-employedperson,orhaveanotheremployer’sstaffworkingintheirpremises,theyhaveadutytoco-operatewitheachother,takeallreasonablestepstoco-ordinatemeasurestakenbythemtocomplywiththeFirePrecautions(Workplace)Regulations1997,14andexchangeinformationonhealthandsafety.Everyemployerandself-employedpersonmustensurethatemployeesofanyotheremployerworkingintheirworkplaceareprovidedwithcomprehensibleinformationonriskstotheirhealthandsafetyarisingfromtheworkactivityandcontrolmeasuresintroducedtocomplywiththelaw.
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23 TheRegulationsalsorequireemployerstoarrangenecessarycontactswiththeemergencyserviceswithregardtofirstaid,emergencymedicalcareandrescuework,aswellasrequiringthemtohaveproceduresinplacetodealwithseriousandimminentdanger.Thismightincludeevacuationoftheworkplace.Theemployermustnominateasufficientnumberofpeopletoimplementtheprocedures.Theyshouldbetrainedandcompetenttocarryouttheirroleinanemergencysituation.
The Health and Safety (First-Aid) Regulations 1981
24 UndertheRegulations,arrangementsforfirstaidshouldbemadeatplaceswherepeoplework.Theleveloffirstaidneededdependsonanumberoffactors,includingthenumberofemployeesandthetypeofworktheyaredoing.TheRegulationswillapplytoeventswherethereisaworkactivity.
25 TheHSEpublicationFirst aid at work. Health and Safety (First-Aid) Regulations 1981. Approved Code of Practice and Guidance15givesadviceonhowtocomplywiththeRegulations.
26 TherequirementsoftheRegulationsareseparatetothefirst-aidarrangementswhichmaybeneededforvisitors.
The Provision and Use of Work Equipment Regulations 1999
27 TheProvisionandUseofWorkEquipmentRegulations1999(PUWER)16placedutiesonemployersandtheself-employedtoensuretheprovisionofsafeandsuitableworkequipment,andtoensureitssafeuse.
The Control of Substances Hazardous to Health Regulations 1999
28 TheControlofSubstancesHazardoustoHealthRegulations1999(COSHH)requireemployersandself-employedtopreventorcontroltheexposureofemployeesandothers(iemembersofthepublic)tohazardoussubstances.COSHHsetsoutbasicmeasuresthatemployersmusttaketoassesstherisksassociatedwithhazardoussubstances,implementanymeasuresneededtopreventorcontrolexposureandestablishgoodworkingpractices.FurtherinformationiscontainedintheHSEpublicationsCOSHH: A brief guide to the Regulations17 and A step by step guide to COSHH assessment.18
The Reporting of Injuries, Diseases and Dangerous Occurrences Regulations 1995
29 TheReportingofInjuries,DiseasesandDangerousOccurrencesRegulations1995(RIDDOR)19makerequirementsforfatalities,certaintypesofinjuryandotherincidentstobereportedtotheenforcingauthority(eitherthelocalauthorityorHSE).Thepersonwhoisresponsibleformakingthereportiseithertheemployeroftheindividualinvolved,thepersonwhohascontrolofthepremisesor,insomecases,aself-employedperson.FurtherinformationiscontainedintheHSEpublicationsRIDDOR explained20andEveryone’s guide to RIDDOR 95.21
When you must report30 TheRegulationsrequireareporttobemadeunderthefollowingcircumstances:
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Death or major injuryIfthereisanaccidentconnectedwithworkand:
n youremployee,oraself-employedpersonworkingonyourpremises,iskilledorsuffersamajorinjury(includingasaresultofnonconsensualphysicalviolence);or
n amemberofthepubliciskilledortakentohospitalfortreatment;
youmustnotifytheappropriateenforcingauthoritywithoutdelay,forexamplebytelephone.Withintendaysyoumustfollowthisupwithacompletedaccidentreportform(F2508).
MajorinjuriesarelistedinRIDDORandinclude,fracture,amputation,lossofsight,injuryleadingtoheat-inducedillnessorunconsciousness.
Over-three-day injuryIfthereisanaccidentconnectedwithwork(includinganactofnonconsensualphysicalviolence)andyouremployee(oraself-employedpersonworkingonyourpremises)suffersanover-three-dayinjury,youmustsendacompletedaccidentreportform(F2508)totheenforcingauthoritywithintendays.Anover-three-dayinjuryisonewhichisnotmajorbutresultsintheinjuredpersonbeingawayfromworkorunabletodotheirnormalworkformorethanthreedays(includinganydaystheywouldn’tnormallybeexpectedtowork,suchasweekends,restdaysorholidays),notcountingthedayoftheinjuryitself.
Dangerous occurrenceIfsomethinghappenswhichdoesnotresultinareportableinjury,butwhichclearlycouldhavedone,thenitmaybeadangerousoccurrencewhichmustbereportedimmediately(egbytelephone).AfulllistofdangerousoccurrencesisgiveninRIDDOR.Thedangerousoccurrencesmostrelevanttoeventsare:
n thecollapseorpartialcollapseofscaffoldingwhichismorethan5metreshigh;
n failureofanyloadbearingfairgroundequipment;andn explosionorfirecausingsuspensionofnormalworkforover24hours.
Youmustfollowthisupwithintendayswithacompletedaccidentreportform(F2508).
CertaintypesofdiseasethataffectpeopleasaresultoftheirworkmustalsobereportedundertheRegulations.AfulllistofreportablediseasesisgiveninRIDDOR.
Record keeping 31 Youmustkeeparecordofanyreportableinjury,diseaseordangerousoccurrenceforthreeyearsafterthedateonwhichithappened.Thismustincludethedateandmethodofreporting;thedate,timeandplaceoftheevent,personaldetailsofthoseinvolvedandabriefdescriptionofthenatureoftheeventordisease.Youcankeeptherecordinanyformyouwish,forexampleby
n keepingcopiesofreportformsinafile;n recordingthedetailsonacomputer;orn maintainingawrittenlog.
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Fire safety legislation
32 TheFirePrecautions(Workplace)Regulations1997,asamended,cameintoeffecton1December1999.Theyremovedvirtuallyallexceptionsfromtheregulations,particularlypremiseswithfirecertificates.Yourresponsibilityextendsbeyondcompliancewiththerequirementsoftheregulationsinrelationtomatterswithintheemployer’scontrol.Youmust:
n carryoutafireriskassessmentofthesiteoftheevent.Allemployeesandthosewhoattendwhomaybeaffectedbyafire,includingthosewithspecialneeds,mustbetakenintoaccount–recordthefindingsofyourriskassessmentifyouemploymorethanfivepeople;
n provideandmaintainadequatefireprecautionsandsafeguardoccupantsofthesitebysuchmeansasproperlymaintainedfire-fightingequipmentandfiredetectors,emergencyroutesandexits;and
n provideinformationandinstructiontoyouremployeesaboutwhattodoinanemergency.
33 Youhavesixfurtherlegalduties:
n youmustnominateemployees,possiblyyourself,toundertakespecialrolesidentifiedinyouremergencyplan;
n youmustconsultyouremployees,ortheirrepresentatives,aboutthesenominationsandaboutproposalstoimprovefireprecautions;
n youmustinformotheremployerswhosharethelocationofpotentiallymajorrisksthatmightaffectthesafetyoftheiremployees–youmustalsoco-operatewiththemregardingmeasuresproposedtoreduceorcontrolthoserisks;
n ifyouarenotanemployer,butcontrolalocationthataccommodatesseveralevents,youmustensurecompliancewiththefireregulationsinthoseareasthatyoucontrol;
n youremployeesmustco-operatetoensurethesiteissafefromfireandavoidplacingthemselvesorotherpeopleatrisk;and
n youmustestablishasuitablemeansofcontactingtheemergencyservices,andensurethattheycanbecalledeasily.
34 TheFirePrecautionsAct197122worksprimarilythroughfirecertificationprocedures.Ifyouareinanydoubtaboutwhetheryouneedtoobtainafirecertificateforyoureventoratyourvenue,youshouldseekadvicefromyourlocalfireauthority.Specificationsformeansofescapeinnew,extendedoralteredpremisesarecontainedintherelevantBuildingRegulations.
35 MusicaleventsaresubjecttotherequirementsoftheFirePrecautions(Workplace)Regulations1997,asamended,andtheFirePrecautionsAct1971.Theregulationsalsoapplytoanytentormoveablestructure.FurtherguidanceincludestheGuide to fire precautions in existing places of entertainment and like premises.23
36 TheMHSWRegulationsrequireyoutoassesstheriskstoemployeesandthosewhoattendanevent,sothatyoucandecidewhatmeasuresarenecessarytocomplywithhealthandsafetylaw.Thisincludesprotectionfromfire,anassessmentofitslikelihoodandconsequences,andtheneedformeasurestoreduceoreliminatesuchrisks.
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37 Fire safety: An employer’s guide24containsguidelinesonhowtodrawupanemergencyplananddealswithgeneralfireprecautions.
38 Ifyouareindoubtaboutanyaspectoffiresafety,youshouldconsultyourlocalfireauthority.
Sports grounds
39 Fireprecautionsinsportsgroundswithalocalauthoritysafetycertificate,issuedundertheSafetyofSportsGroundsAct197525ortheFireSafetyandSafetyofPlacesofSportAct1987,26formasingleelementofintegratedrequirementsforspectators’safety.Differentauthoritiesshouldenforceconflictingrequirements.Thefireauthorityshouldconsultthelocalauthorityissuingthesafetycertificate.
40 Localauthoritiesissue,monitororenforcesafetycertificatesforsportsgrounds.Theycansetorreducecapacitiesorissueprohibitionnoticesundersportsgroundslegislation.However,withfireprecautionsbasedonyourriskassessmentundertheFireRegulations,asafetycertificatethatcontravenestheFireRegulationsmayberevoked.Localauthoritieshavelegalpowertoamendsafetycertificates.
Entertainment which requires a licence
41 Severalformsofentertainmentrequirealicencefromthelocalauthorityorlicensingmagistrate.Theselicencescanimposeadditionalfiresafetyrequirementsandstandardsofsafetyandhygiene,whichmaygobeyondtheminimumlevelsneededbytheFireRegulations.Themostcommoneventswhicharesubjecttolicensingcontrolinvolve:
n thesaleofalcohol;n musicanddancing;n theatricalperformances;n theshowingoffilms;n gambling;n sportingactivities;andn otherformsofpublicentertainment.
42 Permanentvenuesusuallyhaveanannualentertainmentlicencegrantedwithspecificconditionsattachedfordifferenttypesofevents.Ifyouareorganisinganeventinpremiseswithanexistingentertainmentlicence,youwillneedtofamiliariseyourselfwithitsspecificrequirements.
43 PublicentertainmentlicencesdonotreplacetheneedforyoutocomplywiththeprovisionsoftheHSWAct.TheHSWActshouldnotbeconfusedwithentertainmentlicensing,whichisdealtwithunderseparatelegislation,suchastheLocalGovernment(MiscellaneousProvisions)Act1982.27
44 Ifyoureventis,ormaybe,subjecttolicensingcontrol,itisadvisabletodiscussthefindingsofyourriskassessmentwiththelocalfireauthoritybeforeputtingyourproposedfiresafetymeasuresintoplace.Thiscanhelpyouavoidunnecessaryexpenditure.
45 Ifyoualreadyhavealicence,youshoulddiscussyourproposalsforchangestothefireprecautionswiththelocalfireauthoritybeforeapproachingtheauthoritywhoissuedyourlicence.
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People with special needs46 Legislationdealingwithpeoplewithspecialneedsmakesnospecificrequirementsregardingmeansofescape.However,theDisabilityDiscriminationAct199528requiresyoutomake‘reasonableadjustments’toensurethatnopersonpresentisatadisadvantage.Thisincludesensuringthatpeoplewithspecialneedscanleavetheeventsafelyinanemergency.
47 Youshouldthereforeensurethatyouremergencyplantakesaccountofpeoplewithspecialneeds.Youshouldidentifythespecialneedsofanydisabledemployeeswhenplanningyouremergencyarrangementsandevacuationprocedures.Youmustalsoconsiderotherlessable-bodiedpeoplewhomayhaveaccesstotheevent.
48 Youhavetobearinmindthedifficultiesexperiencedinenteringandleavingtheevent,particularlyinanemergency,bypeoplewithvariousphysicaland/ormentaldisabilities.
49 Ifanyofyouremployeeshavedisabilities,youshouldconsultthemaboutyouremergencyplan,takingtheirdisabilitiesintoaccount.
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References1 Health and Safety at Work etc Act 1974Ch37TheStationeryOffice1974ISBN0105437743
2 Management of health and safety at work. Management of Health and Safetyat Work Regulations 1999: Approved Code of PracticeL21(Secondedition)HSEBooks2000ISBN0717624889
3 The event safety guide: A guide to health, safety and welfare at music andsimilar eventsHSG195HSEBooks1999ISBN0717624536
4 Guide to safety at sports grounds(‘Thegreenguide’)TheStationeryOfficeISBN0113000952
5 Five steps to risk assessment: A step by step guide to a safer and healthier workplaceINDG163HSEBooks1998Singlecopiesfree,multiplecopiesin pricedpacksISBN0717609049
6 Safety signs and signals. Health and Safety (Safety Signs and Signals)Regulations 1996. Guidance on RegulationsL64HSEBooks1997ISBN0717608700
7 Fairgrounds and amusement parks: Guidance on safe practiceHSG175HSEBooks1998ISBN0717611744
8 Working together on firework displays: A guide to safety for firework displayorganisers and operatorsHSG123HSEBooks1999ISBN0717624781
9 Health and safety at motor sport events: A guide for employers and organisersHSG112HSEBooks1999ISBN0717607054
10 General COSHH ACOP (Control of substances hazardous to health) andCarcinogens ACOP (Control of carcinogenic substances) and Biological agentsACOP (Control of biological agents). Control of Substances Hazardous to HealthRegulations 1999. Approved Codes of PracticeL5HSEBooks1999ISBN0717616703
11 Temporary demountable structures: Guidance on procurement, design anduseInstituteofStructuralEngineers1995(Availablefrom11UpperBelgraveStreet,LondonSW1X8BH)
12 Bombs: Protecting people and propertyHomeOffice1999(Onlyavailableon website:www.homeoffice.gov.uk)
13 Managing health and safety: Five steps to successINDG275HSEBooks1998(Freeleaflet)
14 Fire Precautions (Workplace) Regulations 1997SI1997/1840TheStationeryOffice1997ISBN0110647386
15 First aid at work. The Health and Safety (First-Aid) Regulations 1981.Approved Code of Practice and GuidanceL74HSEBooks1997ISBN0717610500
16 Safe use of work equipment. Provision and Use of Work EquipmentRegulations 1998. Approved Code of Practice and GuidanceL22(Secondedition)HSEBooks1998ISBN0717616266
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17 COSHH: A brief guide to the RegulationsINDG136(rev1)HSEBooks1999Singlecopiesfree,multiplecopiesinpricedpacksISBN071762444718 A step by step guide to COSHH assessmentHSG97HSEBooks1992ISBN0717614468
19 A guide to the Reporting of Injuries, Diseases and Dangerous OccurrencesRegulations 1995L73(Secondedition)HSEBooks1999ISBN0717624315
20 RIDDOR explained: The Reporting of Injuries, Diseases and DangerousOccurrences Regulations 1995HSE31(rev1)HSEBooks1999Singlecopiesfree,multiplecopiesinpricedpacksISBN071762441221 Everyone’s guide to RIDDOR 95: Reporting of Injuries, Diseases andDangerous Occurrences Regulations 1995HSEBooks1996Singlecopiesfree,multiplecopiesinpricedpacksISBN071761077222 Fire Precautions Act1971Ch40TheStationeryOffice1971ISBN010544071X
23 Guide to fire precautions in existing places of entertainment and like premisesTheStationeryOffice1994ISBN0113410794
24 Fire safety: An employer’s guideHSEBooks1999ISBN0113412290
25 Safety of Sports Grounds Act1975Ch52TheStationeryOffice1975ISBN0105452750
26 Fire Safety and Safety of Places of Sport Act 1987Ch27TheStationeryOffice1987ISBN010542787X
27 Local Government (Miscellaneous Provisions) Act 1982Ch30TheStationeryOffice1982ISBN010543082X
28 Disability Discrimination Act 1995Ch50TheStationeryOffice1995ISBN0105450952
Whileeveryefforthasbeenmadetoensuretheaccuracyofthereferenceslistedinthispublication,theirfutureavailabilitycannotbeguaranteed
Stationery Office publicationsCopiesoftheacts,regulationsandotherStationeryOffice(formerlyHMSO)publicationsmentionedinthisguideareavailablefrom:
ThePublicationsCentre,POBox276,LondonSW85DTTel:08706005522Fax:08706005533
HSE publicationsSeeinsidebackcoverfordetails
Further informationForinformationabouthealthandsafetyringHSE’sInfolineTel:08453450055Fax:08454089566Textphone:08454089577e-mail:[email protected],CaerphillyBusinessPark,CaerphillyCF833GG.
HSEpricedandfreepublicationscanbeviewedonlineororderedfromwww.hse.gov.ukorcontactHSEBooks,POBox1999,Sudbury,SuffolkCO102WATel:01787881165Fax:01787313995.HSEpricedpublicationsarealsoavailablefrombookshops.
BritishStandardscanbeobtainedinPDForhardcopyformatsfromtheBSIonlineshop:www.bsigroup.com/ShoporbycontactingBSICustomerServicesforhardcopiesonlyTel:02089969001e-mail:[email protected].
TheStationeryOfficepublicationsareavailablefromTheStationeryOffice,POBox29,NorwichNR31GNTel:08706005522Fax:08706005533e-mail:[email protected]:www.tso.co.uk(Theyarealsoavailablefrombookshops.)StatutoryInstrumentscanbeviewedfreeofchargeatwww.opsi.gov.uk.
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Health and Safety Executive