Planning Safe Public Events Practical Guidelines

Authors: Neil Mellor and Art Veno
Centre for Police and Justice Studies
Monash University

This project is an initiative of the Australian and New Zealand Crime Prevention Ministerial Forum. Forum projects are jointly funded by the Commonwealth's Crime Prevention Branch and State and Territory jurisdictions. The Commonwealth Government's National Crime Prevention Programme uses the forum to consult with States and Territories on crime prevention issues.

To order any National Crime Prevention publications please contact:

Crime Prevention Branch
Commonwealth Attorney-General's Department
Robert Garran Offices
National Circuit, BARTON ACT 2600

Ph: +61 2 6250 6711
Fax: +61 2 6273 0913

Publications are also available at www.crimeprevention.gov.au

Planning a Safe Public Event: Practical Guidelines

Attorney-General's Department, Canberra

© Commonwealth of Australia, November 2002

ISBN 0 642 21069 1

The views expressed in this publication are those of the authors and do not necessarily represent the view of the Commonwealth of Australia. Whilst all reasonable care has been taken in the preparation of this publication, no liability is assumed for any errors or omissions.

Cover concept: GRASP Design, Canberra
Modified cover design: ZOO, Canberra
Folder print: Megara, Melbourne
Internal design: ZOO, Canberra
Internal print: National Capital Printing, Canberra
Publisher: Commonwealth Attorney-General's Department, Canberra

ACKNOWLEDGEMENTS

The authors greatly acknowledge the advice and assistance provided on the development and refinement of Planning a Safe Public Event: Practical Guidelines received from:

New South Wales

K. E. Moroney, Assistant Commissioner, New South Wales Police Service

Paul Costello, Executive Officer, Lesbian and Gay Anti-Violence Project

Peter Homel, Director, Desmond Crowley, Senior Policy Analyst, Michelle Huntsman, Senior Police Analyst, Crime Prevention Division, Department of Justice, New South Wales

Johnny Allen, Mr Events Pty Ltd

Queensland

Bob Gee, Senior Sergeant, Queensland Police Service

Ben Norris, Queensland Department of Health

David Curd, Director, Community Solutions Inc

Victoria

Brian Anderson, Events Manager, City of Melbourne

Grant Johnson, Manager, Crime Prevention, Department of Justice

South Australia

Jane Fisher, Senior Project Officer, National Anti-Crime Strategy

National

Melanie Brown, Project Development Officer, Crime Prevention Branch, Attorney-General's Department

Graeme Stephen, National Events Coordinator, Amnesty International

Peter Johnson, Training Manager, Chubb Security

Finally, a very special thanks to Fiona Wiltshier who worked so diligently as our Research Assistant on this project.

Authors

Neil Mellor, BA, BSW, has been involved in developing strategies to address problems associated with public events, particularly New Year's Eve, since 1985. He has published, lectured and trained extensively in the fields of health promotion, community development and alcohol/drug harm minimisation. He is currently undertaking part-time PhD studies at the University of Melbourne through the Department of General Practice and Public Health, where his thesis subject is the application of situational harm reduction strategies to crowd problems. He undertook this project as a Senior Research Officer at Turning Point Alcohol and Drug Centre and is currently working as a risk management consultant and trainer for his company Relative Communications Pty Ltd.

Art Veno, PhD, has a background in community psychology and has used situational and social crime prevention techniques in a variety of settings, including the 1989 Australian Motorcycle Grand Prix. He is Director of the Centre for Police and Justice Studies, Monash University, which conducts a number of courses and projects related to crime prevention. He was a recipient of the 1995 Australian Crime Prevention Award for Violence Prevention, and the 1996 Victorian Crime Prevention Award for the special category of Violence Prevention for his work in public venues. For his training video MalFunction, he received the 1997 Victorian Community Safety and Crime Prevention Award.

Contents

Introduction

GENERAL GUIDELINES FOR EVENT PLANNING

Section 1: Initial planning

Checklist for initial planning
1.1 Regulations, licences and permits
1.2 Insurance
1.3 Risk management principles / Duty of Care
1.4 Assessing the risk
1.5 Planning

Section 2: Communication

Checklist for communication
2.1 Crowd management
2.2 Other issues to consider
2.3 Communicating with staff
2.4 Communicating with the crowd
2.5 Signage

Section 3: Setting

Checklist for setting
3.1 Choosing a venue
3.2 Environmental hazards
3.3 Campgrounds

Section 4: Staffing

Checklist for staffing
4.1 Assessing required staff numbers
4.2 Staff and volunteer training

Section 5: Managing the crowd

Checklist for managing the crowd
5.1 Anticipating the crowd
5.2 Getting the crowd to the event
5.3 Parking
5.4 Getting the crowd into and out of the event
5.5 Monitoring the crowd 28 5.6 Measures for crowd management
5.7 Measures to help prevent violence and crime in the crowd
5.8 Dispersal of the crowd

Section 6: Emergency services, planning and procedures

Checklist for emergency services, planning and procedures
6.1 Responding to an emergency
6.2 Planning
6.3 Staff training
6.4 Informing Emergency Services
6.5 Communications within the venue
6.6 Evacuation
6.7 Assembly areas
6.8 When to re-open the venue
6.9 Emergency medical facilities
6.10 Security and law enforcement on-site

Section 7: Reducing the impact of alcohol

Checklist for reducing the impact of alcohol
7.1 Licences
7.2 Food and drink
7.3 Special promotions
7.4 Staff
7.5 Policies
7.6 Venue
7.7 Community relations

Section 8: Other considerations

Checklist of other considerations
8.1 Responsibilities of performers
8.2 Street activities
8.3 Food and drink
8.4 Litter management
8.5 Media
8.6 Independent stall holders
8.7 Fireworks and flares

Section 9: After the event

Checklist for after the event
9.1 Timing
9.2 Recording issues
9.3 Revising plans and procedures

ADDITIONAL GUIDELINES FOR DANCE PARTIES

Checklist for dance parties

Section 1: Planning

Section 2: Administration

Section 3: Police/security

3.1 Crowd control
3.2 General security

Section 4: Staff training

4.1 Clean up

Section 5: First aid

5.1 Prevention measures
5.2 Medical/first aid provisions

Section 6: Building requirements

Section 7: Liquor and dance parties

ADDITIONAL GUIDELINES FOR SPORTING EVENTS

Checklist for sporting events

Section 1: Protecting the players/umpires

Section 2: Controlling the crowd

2.1 Entrances and exits
2.2 Signposting and directions on tickets
2.3 Parking areas

Section 3: Communications

3.1 Public address system
3.2 Electronic scoreboards

Section 4: Emergency Services

4.1 Planning for emergencies
4.2 First aid

Index

Introduction

The Federal Government's National Crime Prevention Programme, in conjunction with the National Anti-Crime Strategy, commissioned these practical guidelines which have been developed to assist with the planning and management of public events to minimise or prevent crime and violence and to maximise safety and enjoyment.

After reviewing national and international literature on public event management, the authors prepared the draft guidelines which they tested at six public events and then revised accordingly.

The first part contains a set of generic guidelines for planning, conducting and reviewing events. They relate to general recreational and leisure public events, while the other two parts contain additional guidelines designed specifically for dance parties and sporting events.

Each section of the guidelines starts with a checklist of key tasks identified in that section. Readers can use the checklists to guide them through the sections and also as handy reminders of things to do for their event.

The guidelines are intended for use Australia-wide, and to complement existing advice, regulations and legislation concerning the planning of public events. Following the guidelines is no guarantee that occurrences of violence, crime and injury at events will be prevented. However, they highlight the areas, which should be given attention to achieve best outcomes and provide information and strategies for dealing with incidents if they should occur.

Initial planning

Checklist for initial planning

Download the Checklist for initial planning (PDF 9kb)

Where to go for more information

A good reference for further information on the requirements for your State or Territory is their website. The relevant URLs are:

• www.act.gov.au
• www.nsw.gov.au
• www.vic.gov.au
• www.service.tas.gov.au
• www.sa.gov.au
• www.wa.gov.au
• www.nt.gov.au
• www.qld.gov.au

Other Australian guides and references include:

City of Melbourne major events (risk management) sub-plan. 1997, City of Melbourne, Melbourne.

Melbourne alive! A practical guide to planning your event in Melbourne, 1998, City of Melbourne.

NSW Department of Local Government 1997, A guide to major and special events planning.

Queensland Police Service 1998, Alcohol, safety and event management: a resource to assist event managers to conduct safer public events, Brisbane.

Tourism South Australia 1990, Planning of festivals and special events, TSA, Adelaide.

Health Department of Western Australia 1995, Operational guidelines for rave parties, concerts and large public events, the Dept, East Perth.

Section 1: Initial planning

1.1 Regulations, licences and permits

An event planner may need to obtain legal advice on appropriate regulations, licences and permits for the event. Even for small events, there are significant lists of regulations, which need to be satisfied. In general, the larger the event, the more regulations apply. Regulations vary between and within States, and adjacent councils may have different interpretations of the same regulation. Furthermore, regulations and their interpretations change continually. It is therefore imperative that event organisers allow significant time to establish and satisfy all relevant regulations.

Licences and permits are needed for certain event activities such as sale of alcohol and handling of food. Like regulations, the onus of responsibility is upon the event organiser to gain appropriate licences and permits.

In planning events there are various agencies which should be contacted prior to the event itself. This includes anyone who has a critical role in the operation of the event or venue approval, and anyone who has experienced any operational problems in managing similar events or can offer suggestions to improve future events. Agencies to contact include:

• the promoter and any representatives
• police, about special events coordination and general duties
• liquor and gaming representatives, if liquor is to be consumed at the event
• local government representatives
• transport operators
• parking controllers
• State Emergency Services representatives
• fire brigade representatives
• first aid or ambulance representatives
• ground or venue facility manager
• conservation, land and environment representatives
• health authorities representative
• representative of relevant energy utilities
• community organisation representatives

1.2 Insurance

Reducing liability requires insurance. There is a wide array of insurance available for event organisers and the correct insurance depends upon the risk management strategy.

1.3 Risk management principles/ Duty of Care

The sensible assessment of potential hazards, loss and subsequent preventative action is the basis for risk management.

One fundamental legal principle applicable to public events is that all reasonable care must be taken to avoid acts or omissions which may injure patrons or residents living near event venues. This principle is called 'Duty of Care'.

For event operators, Duty of Care requires all reasonable actions to be taken to prevent any foreseeable risk of injury, loss or harm to people directly affected by or involved in the event. This includes staff, volunteers, performers, the audience, and the public in surrounding areas.

The main areas for risk at public events are:

• administration: the working conditions and management of both volunteers and paid staff must minimise the risk of injury and subsequent loss to profits for event organisers
• marketing and public relations: promoters of the event must portray the forthcoming event accurately; frustration and subsequent anger and violence can flow from patrons feeling misled about events
• health and safety: such as food sanitation, responsible serving of alcohol, developing an effective dispersal strategy for the crowd to minimise risk of vandalism
• crowd management: including control of crowd flow to prevent surges and crushes, access control for emergency vehicles, noise controls, techniques for controlling intoxicated persons
• security: involving a careful analysis of potential risks and loss and the development of contingency plans should they occur
• transport: deliveries, parking, and public transport hazards

Risk management can be described as a cycle consisting of four stages:

Identification

Risks are identified during this stage. Most risk management strategies suggest convening groups of people involved in the various aspects of the event to assess the risks.

Evaluation

Identified risks are prioritised according to their probability of occurrence and severity of impact. The goal of the evaluation phase is to produce a comprehensive and realistic analysis and listing of potential risks. Performance measures will need to be specified at the planning stage to assist the evaluation process.

Control

Once risks are listed and prioritised, event organisers need to establish strategies to control problems which arise.

Review

Once the event is over it is important to review all aspects of the operation, establishing the cause of any problems that may have occurred and ensuring that the procedures in place continue to be relevant as the needs of the venue and the visitors change. This should be an ongoing process of measuring achievement against stated goals, as well as more specific reviews carried out in response to particular problems or incidents. The review process should, wherever possible, incorporate evaluation of performance against standards or targets.

The review should encompass management aspects such as policy, management structure, as well as plans, procedures and measures used in the operation of the venue or problems experienced. In certain instances, day-to-day operations may vary little over a period of time and so require little specific provision or modification.

1.4 Assessing the risk

As part of the process of analysis, planning and implementation, it is important to identify potential hazards and problem areas within the venue.

Identifying the risks

First, it is necessary to consider where the event is going to be held and who will be attending. Any potential hazards should be identified in order to plan effective safety measures. A site inspection by a competent person should identify specific hazards of the site. Hazard identification does not only involve identifying the hazards themselves but should also include identification of 'contributory events' or problem scenarios which contribute to the hazards, the assessment of how likely they are to occur and what happens when they do.

The venue may present hazards such as:

• slipping or tripping due to inadequately lit areas or poorly maintained floors and stairs
• collision with a vehicle due to pedestrians and vehicles sharing the same route
• failure of equipment such as lifts, escalators, turnstiles

The crowd may present hazards such as:

• crushing between people
• crushing against fixed structures
• trampling underfoot
• fights between rival supporters
• action by the crowd such as surging, swaying or rushing

Think about people who may be harmed and how. This could include:

• anyone in the crowd
• anyone exposed to overcrowded conditions for a prolonged period of time; children, young people, people with special needs and the elderly are particularly vulnerable
• staff and contractors could also be at risk

Controlling the risks

When assessing a risk, consider the likelihood of a hazard occurring and the potential severity of the outcome. The first approach is to eliminate the hazard altogether, but where this is not practical the aim should be to control the risk so that harm to any person is unlikely. Strategies to control the risk could include:

Cancel and avoid the risk

If violence has previously been involved with the event and signs indicate that more trouble is on the way, cancellation may be appropriate.

Diminish the risk

Although limited searches are conducted as a standard condition of entry to many major events, searching every patron entering the event may be unwise and impractical. Diminishing the risk of weapons might be better done by positioning more security guards throughout the venue.

Reduce the severity of risks that do eventuate

Plans to respond to the risk should be in place, generally as emergency plans.

Devise back-ups and alternatives

For example, standby power generator in case of power failure.

Distribute the risk

For example, use multiple cash-taking areas to prevent robbery.

Transfer the risks

For example, security subcontractors may be required to share the liability for their part in an event. Contracts may well have clauses stating that these companies have the responsibility for their staff during an event.

Recording the risk assessment

The significant findings of the risk assessment and what measures are being taken to tackle risks should be recorded. Included could be the main hazards identified, the people who may be exposed to such hazards and assessment of the significant risks. Also included should be the control measures already in place and the additional precautions required to reduce any risks to an acceptable level.

It may help to include the date for review of the assessment, noting that changing circumstances trigger an earlier review. Such criteria could include:

• major changes in the venue
• significant changes to the event
• incidents which did or could have injured members of the public
• serious incidents at other venues

1.5 Planning

It helps to have a written statement of policy on health and safety, including a statement of arrangements for dealing with the possible risks arising from crowds.

The arrangements will need to be updated whenever there is a change to procedures. Included could be:

• general objectives, such as the safe evacuation of the venue in an emergency and managing departing crowds safely
• any particular concerns, such as significant risks identified in the risk assessment
• a brief description of how objectives are to be achieved and main concerns dealt with, this may refer to plans or procedures
• references to other relevant information, such as the detailed layout of the venue and calculations of venue and entrance capacities

Anyone managing an event will need to plan. It makes good sense to integrate safety into the planning, taking into account the results of the risk assessment.

Plan early

It will help to involve in the planning process key staff and representatives of other bodies associated with running the venue or the event. The planning should start early enough to allow time for:

• coordinating with any other bodies involved
• gathering all relevant information
• drawing up plans
• carrying out consultation
• amending plans
• implementing plans

The plan

Good plans will cover:

• communications between staff and with other bodies involved to make sure that everyone is aware of the venue's safety procedures
• particular concerns identified in your risk assessment
• staff training
• arrangements for general maintenance work; maintaining safety equipment; repairing damage and electrical or mechanical failures; and making sure all exits are completely clear
• changing certain design features, ranging from putting up barriers, signs or temporary structures (tents, stands, etc) to major construction work
• staff needed to contain sudden crowd movements at events where the action could lead to great excitement in the crowd; if this situation is likely to arise, additional first aid and medical facilities may be needed

The audience

Planning action will depend on the number of people likely to visit the venue, taking into account:

• attendance on previous occasions
• the numbers visiting similar events
• the level of publicity
• advance ticket sales, where appropriate
• the effect of public holidays, school holidays and particularly good weather
• whether some days are going to be particularly busy, especially first or final days
• whether any special attractions are taking place such as a fireworks display

The nature of the crowd also needs to be considered, including:

• whether the event is going to attract a particular age group
• if the event is likely to generate high emotions
• whether the crowd is likely to consume a high level of alcohol
• if the crowd is likely to be mostly male, mostly female or mixed
• whether the crowd will be made up of individuals, families or mostly large groups
• the particular needs of groups, such as people with reduced mobility and people from non-English speaking backgrounds

Knowing the type of crowd expected may help in deciding how to prevent overcrowding and how to make the best use of the areas within the venue. Issues to be considered include whether:

• the venue should be all-seated
• some areas should be reserved for certain groups, such as families
• opposing fans should be segregated
• some areas should be kept empty for emergency purposes
• there should be a one-way traffic circulation system within the venue
• extra barriers should be provided
• additional staff should be provided

Duty to warn

A legal view of crowd management responsibilities requires that crowd participants be informed of foreseeable dangers associated with crowd behaviours and/or assembly facilities. Factors to be determined include:

• whether there is currently any legislation which governs or restricts the event
• if local legislation to permit good order at the event could be prepared and passed prior to the event
• whether legal counsel for the municipality in which the event is proposed has been advised, with a view to determining:
  - liability for injuries
  - liability for acts and omissions
  - liability for financial obligations incurred in responding to major emergencies occasioned by the event
• if the promoters are required to post a bond to cover costs of municipal response to emergencies, subsequent site clean-up, traffic, crowd and other policing functions
• whether any legal permits required have been applied for, and obtained, such as parade permits, permits to serve liquor or food, fire safety permits
• whether any legislation is required to close certain adjacent or peripheral roads or streets

Staffing

Incorporated into the plan should be an effective management structure for crowd control. Issues to consider are:

• appointing a senior member of staff to have responsibility for crowd control when the venue is open to the public
• identifying the roles and responsibilities of individual staff members
• developing a command structure
• ensuring that all staff are adequately trained
• introducing effective communication channels

The command structure should be clear and easily understood and include all staff concerned with crowd control. It generally should allow control to be exercised over all groups and support coordinated action where required. Too many levels of command should be avoided, because in an emergency information needs to be passed on quickly. It is important for safety that roles and responsibilities are clearly defined.

Communication

Checklist for communication

Download the Checklist for communication (PDF 9kb)

Section 2: Communication

Communication is a critical issue when organising any kind of event. In some cases a few loudspeakers may be enough, but usually far more thought needs to go into organising an effective communication system. Essential information needs to flow unhindered between all staff concerned with crowd management, both during normal operations and in emergencies, and between representatives of any major groups present at the event.

The manager of the venue needs to establish the means of communication with the staff, emergency services, media and the crowd and also establish how they are going to communicate with each other.

Whatever methods of communicating are used, the system should be designed to give accurate, up-to-date and relevant information. Perhaps someone could be employed to act as MC, to communicate with the crowd during the event and provide a liaison between the management and the crowd as a whole.

Liaison with outside bodies may be necessary in the planning stage, during the event and in an emergency. Consider liaising with the local police force, the emergency services, local transport operators and managers of other venues in the area.

Prior communication with such bodies is often extremely useful. For example, the local police may be responsible for monitoring traffic flows to and from the venue. Similarly, if there are special transport arrangements, communication channels need to be maintained with transport authorities, the police and motoring organisations throughout the planning period and during the event itself.

All communication needs are dependent primarily on the nature of the event, what works for one venue may be totally inadequate for another. For instance, methods of communication which will be most effective in the staging of an orchestral performance are not likely to be much good when hosting a football match. As in all the recommendations, how the communication strategy is managed ultimately depends on the integration of various factors, as no single solution exists which will work for all events.

2.1 Crowd management

It is best that information is relayed to a central point such as a control room, the manager's office or a central person. This is because the person in charge needs to:

• gain an overall picture of occurrences at the venue, such as size of crowd, build up of queues, serious incidents
• coordinate the response by all staff responsible for crowd control
• coordinate actions with other departments, emergency services or other external bodies

For small venues this can be in the form of a central person or a manager's office equipped with basic communication equipment such as a telephone and two-way radio and the necessary plans and procedures. A major venue, on the other hand, may require a purpose-built central control room equipped with CCTV monitors, PA systems, etc.

The ideal centre would provide a maximum view of the venue, supplemented by video camera access to blind spaces, pressure points and major movement pathways. Full communications coordination should be provided between all venue staff, local police, fire and emergency medical services and any on-site radio or television media. Details of radio frequencies, telephone numbers and similar communications information and related procedures should be distributed to all staff. Control rooms are particularly useful in emergency situations where the actions of venue staff and emergency services need to be closely coordinated.

If frequent communication is required with outside bodies, it may be possible to share a central control room with them, position the central control room near theirs or set up permanent communication links between the control rooms.

It is best to avoid locating the control room near any potential hazards or high-risk areas. Unauthorised entry by members of the public, staff or contractors should be restricted.

2.2 Other issues to consider

• When and to whom the staff monitoring crowding levels should report their observations.
• Whether the control room staff know when and how to alert staff to a developing problem or to carry out particular tasks.
• Who is responsible for key coordination tasks in emergency and other situations, in particular, who speaks to emergency services, other local venues, transport organisations and other outside bodies.
• Developing standard procedures for communications between staff.
• Providing the staff with checklists to ensure that communication tasks are properly carried out. For example, in the case of an emergency, who should be contacted and in what order.
• Making arrangements to monitor all communication systems to make sure they are working properly.
• Holding periodic mock emergency exercises to test the efficiency of the communication systems.

2.3 Communicating with staff

In considering the best way of communicating with staff, think about:

• who needs to communicate with whom
• when and how frequently the communications take place
• where staff are located
• the speed with which a person is required to respond to information or commands
• how many people need to be involved in the same communication at the same time
• other relevant factors, such as the resources and equipment available

2.4 Communicating with the crowd

When planning what information, advice, warnings and instructions need to be provided for the public, think about:

• who the visitors are and what they need to know about the place, the event and the venue
• what people need to know so that they can respond appropriately
• what sorts of assistance people require in order to respond appropriately, for example, detailed instructions or direction by staff

The public need to know what to expect and must have sufficient time to plan their actions. Failure to provide the required information at an early enough stage may lead to confusion and aggression.

2.5 Signage

In planning where and when relevant information should be given, consider:

• who the visitors are and what they already know about the place and the event
• the layout of the venue and what assistance people will require to find their way about
• what directions, advice, warning or other general information people will need
• at what stage of the visit, and where, people will need the information
• in what form the information should be presented
• what languages other than English should be used

As far as possible inform people in advance about rules and prohibitions which apply to the venue or event. There are many ways of communicating with the public and, depending on the venue and the event, the appropriate system could include:

• tickets carrying basic information
• leaflets
• posters and other promotional material
• notice boards and other directional or information signs
• centrally controlled information display boards or monitors
• public address systems
• local or individual communication by staff

Setting

Checklist for setting

Download the Checklist for setting  (PDF 9kb)

Section 3: Setting

3.1 Choosing a venue

When determining where the event is to be held, one of the primary considerations should be how the potential venue is designed and whether certain characteristics are likely to add to or detract from the occurrence of violence and crime. For example, if opposing fans are placed in adjacent seats during a highly competitive match, trouble will most likely occur.

To establish whether the proposed venue provides the required space, access and facilities, it will be necessary to check whether:

• the site allows for adequate crowd regulation, with existing regimented seating areas and flow barriers
• there are spectator overflow areas to avoid congestion should spectator turnout significantly exceed expectations (a common phenomenon in rock concerts)
• there are nearby areas for overflow parking, if anticipated spectator parking areas are filled, and if shuttle buses are desirable, feasible or necessary
• in the event of a mass casualty situation, space is available for an on-site triage area to permit stabilising medical treatment before removal of critical patients
• the adjacent street on all four sides of the venue can be closed to other than emergency, service and resident vehicles, to permit a perimeter for access as well as a buffer zone

Before deciding on a particular venue:

• check that any necessary approvals for the use of the site for public performances have been given and the number of patrons for which they are approved is going to be adequate for what is planned
• check that there is adequate access for arrivals and egress for departures by whatever means of transport are to be used
• check that there are adequate stairs, gangways and walkways within the venue for pedestrians and any planned traffic
• ensure that all emergency equipment is properly maintained and in good working order and, where appropriate, test it; examples of such equipment include fire-fighting equipment, fire alarms, smoke alarms, public address and other communication systems
• check the emergency exits; make sure the exits are unlocked; check that escape routes are unobstructed and free from hazardous and combustible materials; check that the emergency lighting is working and that all direction and information signs are in place and are legible
• carry out a general safety check; make sure that all floors, stairs and other areas which people use are well-maintained and do not present tripping or slipping hazards; check that refuse and combustible materials have been removed to safe storage or disposed of and that switchgear, chemical storage areas, plant rooms and any other potential hazards are inaccessible to unauthorised persons

Assessing the crowd

Assessing the type of crowd will provide information to help design the venue. Every crowd is different, but certain characteristics can be forecast by exchanging information with other operators who have run similar events or by referring to past experiences.

Assessing the capacity of a venue

At some venues the capacity may already be set. If this is not the case and the capacity is being established, think about:

• contacting other organisations that have run a similar event
• the type and probable behaviour of the crowd
• the useable space on the site; exclude steep inclines, suspect ground, water hazards and stairs, gangways, and areas from which the event cannot be witnessed
• the amount of car parking that can be realistically provided; exclude unofficial car parks

The entrance and exit

The entrances should not allow admissions to exceed the rate of crowd dispersal inside the venue. Try to estimate the entry rates and take measures to prevent an excessive build-up of people outside the venue. Means of illegal entry to the venue should be blocked.

The exits should allow people to leave a venue easily and quickly if necessary. Make sure that they can pass through the system at the same speed throughout its length. Think about the potential obstructions and routes that have limited space.

Emergency exit routes can also be used. Check that all emergency doors open outwards into a large open area at the same level (sliding or roller shutter type doors should be avoided). Twisting and complex exit systems should also be avoided.

Stairways, gangways and ramps

Stairways, gangways and ramps should be designed to ensure a steady flow along their length.

Remember that movement down an incline poses risks to people at all times. Stumbling, pushing and congestion may cause sudden, uncontrolled surges downwards. Consider gradients, escalators, approaches to stairways, segregation of conflicting flows of people, widths, accessibility of hand rails, lighting and the length of flights of stairs.

Seating

Consider having enough space between rows of seats to enable people to move freely without disturbing others. This should also help reduce the evacuation time in an emergency situation, provided an adequate gangway is available.

The type of seating required is dependent, to a large extent, on the type of event being organised. As a guide it is recommended that:

• individual movable chair seating should not be used in all enclosed and restricted facilities at events for more than 2,000 people
• individual movable chair seating can be used in unconfined, outdoor areas
• general admission seating can be used for events that are expected to attract a disciplined and orderly audience
• reserved seating should be the only seating allowed for those events that attract excitable and competitive crowds
• special facilities should be provided for handicapped patrons
• the legal capacity level of each area should be prominently displayed for public viewing and enforced

Temporary structures

People generally treat temporary structures in the same way as permanent structures and the same degree of comfort and performance is expected. Therefore temporary structures should be designed on the same principles applied to permanent structures.

Fire safety

The risk of fires starting can be minimised by examining the fire regulations applicable to the venue. Most new venues will conform to current safety requirements. However, the building structure and fabric in older venues may need to be upgraded to meet requirements.

3.2 Environmental hazards

If the event is to be staged near water, especially when alcohol is to be available at the venue, adequate patrols should be arranged to prevent accidental drowning.

There may also be a fire risk at the venue, particularly in campground settings in country and bushland districts. Provision must be made to ensure fires are restricted or banned altogether during periods of high fire risk.

3.3 Campgrounds

Facilities provided in campgrounds should be adequate for the number of people present. They should be adequately lit at night and kept clean. Access to the facilities should be maintained and the pathways kept clear. In addition to the provision of showers and toilets, adequate signage, litter bins and litter clearance must be arranged.

Staffing

Checklist for staffing

Download the Checklist for staffing  (PDF 9kb)

Section 4: Staffing

There will need to be adequate staff with the necessary skills to carry out crowd control duties during both normal and emergency situations.

4.1 Assessing required staff numbers

There are various factors to consider when deciding how many staff will be required:

• the size and layout of the venue
• duty of care responsibilities for staff security and comfort
• the total number of crowd control tasks and other duties that need to be carried out, such as managing traffic, checking tickets, monitoring the crowd, etc
• how demanding each task is
• the likely size and behaviour of the crowd; use previous events held to give an estimate
• the distance people have to travel; people travelling a long distance, such as for an international event, are not likely to be familiar with the venue and may need more assistance
• any expected problems, such as people arriving without tickets
• seasonal factors, time of day, weather; more staff will probably be needed at high season, peak hours
• the experience of the staff
• extra staffing that may be needed to cover rest breaks and absences due to illness and leave

The working conditions for staff and volunteers, such as rosters, hours worked and any exposure to health risks, should be taken into account when planning the staffing for an event.

Ensure that any legal liability for volunteers and staff is covered by insurance policies.

4.2 Staff and volunteer training

Staff and volunteer training is an important element in risk minimisation and preventing problems arising from crowds. It is important that staff and volunteers receive proper training because:

• untrained staff and volunteers are often unaware of the importance of crowd control
• they need to learn how to identify potentially dangerous situations at an early stage and how to react quickly and effectively to prevent an incident
• bar staff need to be able to identify and deal with intoxicated persons
• they need to know exactly what their duties are in both normal and emergency situations and how their duties relate to the overall crowd management structure
• some skills, such as communicating and controlling crowds, can only be obtained through training and 'on the job' experience
• the morale and self-confidence of staff and volunteers is improved by training

Consider the amount of training each member of staff or volunteer requires. Think about:

• their involvement in crowd control
• their level of seniority or experience; junior staff may require only induction training to do their job safely, whereas senior staff may need to be trained in a variety of roles to supervise the actions of others

The organiser of the event is responsible for ensuring that all staff and volunteers are adequately trained and are familiar with the procedures and layout of the venue.

Training could include:

• instructions on the basics of normal and emergency crowd movement and assembly
• initial handling of accident victims, altercations and other crowd incidents
• communications procedures and use of communications equipment
• avoidance of actions that would incite or trigger dangerous crowd behaviours
• conduct, responsibilities and demeanour during an emergency
• first aid
• general health and safety, such as fire precautions
• training in awareness of risk for crime, for example closing down an event is a high risk time for theft
• responsibilities for contacting and liaising with the emergency services

Establish precise job descriptions, expectations and authority of all working personnel and inform them of all the rules, regulations and emergency procedures.

Consider getting feedback from staff and volunteers on the training they have received and establishing a central training register. The register could be used to keep a record of the training courses attended, qualifications individual members of staff and volunteers have obtained and any results and assessment reports from supervisory staff.

Managing the crowd

Checklist for managing the crowd

Download the Checklist for managing the crowd  (PDF 9kb)

Where to go for more information

Health and Safety Executive 1996, Managing crowds safely, HSE Books, London.

Au, S. Y. Z., Ryan, M. C. & Carey, M. S. 1993, 'Key principles in ensuring crowd safety in public venues', in R. A. Smith & J. F. Dickie (eds), Engineering for crowd safety (pp. 133-143), Elsevier Science Publishers.

College, T. E. P. (ed) 1992, Lessons learnt from crowd related disasters, (Easingwold Papers No 4, pp. 8-14), Home Office, Home Emergency Planning College, York.

Health and Safety Executive 1996, Managing crowds safely, (1st ed.), HSE Books, London.

More information on managing dispersal of crowds is available from relevant organisations such as security firms, police, local councils or liquor licensing authorities.

Section 5: Managing the crowd

5.1 Anticipating the crowd

Most people attend an event with the purpose of peacefully enjoying themselves. However, there are sometimes antisocial elements in a crowd such as criminals in search of victims, and people with psychological problems or social agendas.

It is important to anticipate and resolve problems before they occur, rather than after the event. Different types of events can have their own issues, for example:

• rock concerts can create problems with abuse of alcohol and/or drugs, and in some cases, even weapons
• religious or 'healing' events can attract an inordinate number of ill or infirm, thus increasing the potential for on-site medical or health related emergencies
• certain sports events can attract over-reactive supporters and anti-social behaviour
• events for senior citizens can often increase the number of medical incidents

5.2 Getting the crowd to the event

Getting a large number of people to and from an event can be a daunting task and a number of issues need to be considered:

• the type of crowd expected and how this will affect access/exit
• how the type of event will affect access/exit
• how the event will affect the routine functioning of the city or town
• whether there is more than one event occurring at the same time
• how people with disabilities will get to the event
• whether the surrounding road network is able to handle the anticipated spectator vehicular traffic
• if spectator parking areas are filled, whether the road network will allow continued vehicle flow

When considering whether the site has adequate access, and a staging area, for large numbers of emergency vehicles in a major incident include:

• whether there is an access road or street that could be closed to the public and used only for emergency and service vehicles
• if such an area is accessible to ambulances
• if access roads are unpaved, whether emergency vehicles could have problems
• whether the external and internal access roads are adequate, providing easy access/exit to spectator areas
• once on site, if there is sufficient room for easy movement of emergency vehicles

Means of arrival and departure

Use of public transport should be encouraged instead of private cars. Transport operators should be informed so that they can cope with peak demand and perhaps run special services. For some events it may be possible to issue combination bus or rail tickets that include a reduced admission price and, possibly, direct visitors to a particular entrance.

Excess arrivals

For very popular events the crowd outside the venue, as well as within the venue, may need to be controlled. If there is any possibility that the number of people arriving at the venue will come near to or exceed the overall capacity of the venue, crowd movement should be monitored. Perhaps a system can be put in place for restricting the number of people who arrive at the venue as well as those who enter it. This would need close liaison with the police and transport operators at the planning stage and during the lead-in period before the event.

To deal with the possibility of excess arrivals:

• consider making the event an all-ticket one, even if it is free
• plan the advertising campaign to emphasise that it is ticket-only
• include in the advertising that the ticket-only rule will be strictly enforced
• discuss with the police how crowds could be reduced before reaching the venue
• discuss with the transport operators the possibility of announcements at stations and terminals advising the public of crowd problems at the venue
• consider using local radio to advise on the current situation at the venue

5.3 Parking

It will help to avoid congestion and aggression if:

• staff are available to direct drivers to parking spaces or alternative parking areas
• drivers are forewarned by advance publicity about any limitations on parking space and about parking arrangements in general
• parking areas are signposted well before the venue
• pedestrian routes are separated from vehicle routes as far as possible
• staff directing traffic wear distinctive tabards or other clothing to distinguish them from other staff
• bus drop-off, pick-up points and parking places are positioned away from the area immediately around the entrance(s), to reduce the risk of congestion

Any areas where parking is potentially dangerous should be physically cordoned off and the penalties for illegal parking prominently signposted and enforced.

5.4 Getting the crowd into and out of the event

Before working out the best way to let people in and out of the venue, first work out how many people will be arriving and when.

Ticketing

A ticketing system could be put in place so that the venue will not be overcrowded or people turned away. Tickets can be a useful tool to control the crowd flow even when an event is free. They can also be used to provide information on arrival times and gate numbers. Staggering arrivals could lessen the likelihood of crowd congestion at entrances. Ticketing may also help reduce the likelihood of people waiting at the event overnight in hope of obtaining entrance.

Tickets are an important crowd management information factor. Reserved section and seat tickets determine specific area occupancy, and routes of entry and exit. Tickets also provide a means of instructing patrons on rules of conduct expected within the venue. Major art exhibitions have managed crowding by arrival time ticketing, valid only during a specific time period.

Metering

If there is no ticketing system in place, you could set up a metering system in order to prevent overcrowding. Examples could include stairs, narrow corridors, escalators, ticket gates, convergence points, or other locations where excessive arrivals will cause waiting lines and crowding on the approaches to the metered facility. The approach area should be large enough to accommodate expected demands and to establish formal queue lines. Communication is a critical aspect of metering control. Personnel involved in the metering operation should be in constant communication and alert to any interruptions in flow.

Early opening and delayed closing

Early opening of a venue to extend the time period during which the crowd can enter, entertainment after the event or other strategies to lengthen the time over which the crowd can leave, reduces crowding within the venue and traffic pressures on external transit, road and parking facilities.

Some risks increase when crowds are moving into or out of a venue. To reduce these risks:

• make sure there are sufficient entrances, spaces and routes inside and outside the venue to cope with the expected numbers; these should be sufficient to cope with patrons even if they don't arrive in an even flow but in a sudden rush, such as from buses or trains
• check for potential trouble spots, such as routes which become narrow or areas in which people could congregate, as these are going to cause congestion; bear in mind that people tend to use the most direct route even if it means walking on the road and endangering themselves or using an already crowded entrance
• check the effectiveness of these measures by monitoring arrival routes and parking areas to identify any potential problems
• engage enough staff to direct crowds and to deal with any minor problems, and equip them with adequate means of communication in case of major problems

Crowding of entrances and exits

To encourage orderly movement through entrances and exits insist on proper queues to avoid crowd pressure. Don't let visitors move forward until entrance doors or gates are fully open; fix entrance doors or gates in the open position once you have started to let people in or out. Reduce the number and speed of persons converging upon a massed crowd or other obstacle. This is a case where funnelling (usually to be avoided) may be desirable as long as:

• it is controlled
• the crowd is not likely to build up
• there is more than sufficient open space in front of the funnel for people who are held up
• the funnel is staffed all the time it is in use
• it can be quickly removed in an emergency

5.5 Monitoring the crowd

Monitoring crowd behaviour is an essential aspect of any crowd management system because it indicates whether the systems in place are working and enables detection of potential problems at an early stage.

When thinking about monitoring requirements consider the following:

• how quickly crowding could develop to a dangerous level in various areas inside the venue
• how quick the response could be to crowding problems, such as by preventing more people coming in or by dispersing people from overcrowded areas
• if a crowding incident occurred, how quickly it would be known and acted upon to prevent any escalation

Other issues to consider are:

• whether there are enough staff within the venue to monitor all the areas where there are potential crowding problems
• if there are enough good vantage points for staff to monitor all the areas effectively
• if information from different areas of the venue can be communicated to a central location quickly

There may be some areas where crowds are likely to build up. Problem areas might include:

• bottlenecks, such as on stairs, escalators, bridge links between halls
• areas where people queue, such as pay desks, ordering and information points
• popular stalls, attractions or exhibits
• refreshment areas

The likelihood and consequences of any sudden crowd movements need to be established. Instances of this behaviour could include invasions of the stage or pitch, mobbing of celebrities, or running between various vantage points. In each case, it is important to monitor and control this sort of behaviour. This might involve:

• training staff to look out for certain types of behaviour
• establishing rules for visitors on acceptable behaviour, together with penalties for unacceptable behaviour
• drawing up procedures for dealing with unacceptable behaviour

Staff within the crowd

Position staff in the crowd so that they can:

• sense atmospheres, tensions, moods
• look out for signs of distress
• respond quickly to incidents and accidents
• address, and discourage, any dangerous behaviour quickly before it spreads, such as jumping on seats or climbing up scaffolding for a better view
• help people and deal with queries

Patrolling the venue

Where crowding problems are likely to develop slowly at particular points within the venue, staff may be given specific areas to check at regular intervals.

Closed circuit television (CCTV)

This may range from a few fixed cameras at key locations to the use of a large number of remote-control cameras with zoom lenses. CCTV allows an overview of sections such as entrances, departure routes and problem areas to be relayed to a central control point.

Watching crowds from a fixed point

This can be carried out as a specific task or, where staff are few, at the same time as the performance of other duties such as checking tickets; good vantage points are needed.

Counting systems

Hand counters, for use at entrances to avoid double counting, have the disadvantage of tying users to the task. Turnstiles can record numbers automatically and computerised systems linked to sensors at entrances can provide information on how quickly people are entering and when an area is expected to become full. Pressure detectors are sophisticated monitoring systems available for monitoring crowd pressure against fixed barriers or fences.

5.6 Measures for crowd management

Distribution of the crowd inside the venue

In a ticketed, all-seated event, organising the distribution of crowds within the venue does not generally create a problem. Where seating is not allocated, the positioning of visitors will need to be managed. If popular events are planned, where several attractions may be taking place at the same time, consider having staff specifically monitoring crowd flow and build-up around the most popular attractions. In general, avoid placing popular attractions:

• close together
• near entrances and exits
• where traffic will slow down

At all events have enough staff to direct the crowd in appropriate directions, especially as they first enter the venue. Consider using techniques such as:

• one-way pedestrian traffic systems to control the movement of people
• creating special viewing areas for people who want to stand and watch
• blocking the view to prevent people from standing about in groups and obstructing others
• scheduling events so that popular ones are spread throughout the day or evening
• using signs and posters to indicate directions to attractions which are not obvious, in languages other than English if required
• making aisles and areas around attractions wide enough for people to stop and look at them without getting in the way of people moving through the venue
• emphasising that certain routes should be kept clear, by colour coding, putting up signs and/or making announcements over the public address system

Very popular performers may need to be protected from being mobbed when they arrive, leave, perform or move about the venue. It will help if there are separate players' and performers' entrances. Attention could be diverted from arriving or departing performers by arranging for other attractions to be in progress at the same time.

Crowd response

There will need to be arrangements to deal with any surges and consequent injuries and damage. Standing areas are particularly vulnerable to danger from excess pressure or overcrowding due to pushing or surging. Large surges can be anticipated at main events when the action becomes particularly exciting. Consider:

• monitoring standing areas particularly carefully at times when there is likely to be a big response from the crowd, such as when performers first come on or during the finale of a display
• looking for signs of distress on the faces of people in the crowd, especially physically weaker members such as children
• making sure that spectators, particularly children, are not cramped for space, especially at the front of each area where they are next to fixed barriers
• taking action at an early stage to ask people to move back and ensuring that staff open gates if it is likely that people will need to be moved from affected areas

5.7 Measures to help prevent violence and crime in the crowd

Enforcing rules

The venue rules, such as for bringing in alcohol, drugs and offensive weapons should be enforced firmly and clearly to demonstrate to everyone what will and will not be tolerated. It is advisable to:

• discuss arrangements with the police and think about inviting a special police presence
• make sure there are enough staff to enforce the rules
• use licensed security staff at the event as liability for security staff may fall with the organiser of the event
• consider introducing some form of penalty for certain types of particularly dangerous behaviour; penalties could include delayed entry, exclusion from the venue, and/or banning from future events
• publicise the consequences of dangerous behaviour in terms of the possible outcome such as accidents, injuries, or structural collapses

Group separation

If there is a likelihood of rival or opposing sub-groups attending the event, such as political factions or soccer fans, make sure that the different groups interact as little as possible. If necessary, stipulate different entrances, exits and seating arrangements for each sub-group in order to reduce the potential for conflict.

5.8 Dispersal of the crowd

Duty of Care requires a plan to safely disperse the crowd from the event site. Duty is to both patrons of the event and the surrounding communities. Some strategies to consider are:

• notifying neighbouring councils and appropriate authorities likely to be affected by a dispersing crowd, especially if it is likely to disrupt residential community traffic, pedestrians or businesses
• identifying potential areas of convergence and bottlenecks such as narrow bridges and walkways and planning strategies to address these, which could include the deployment of staff or closing roads to incoming traffic for a period of time
• notifying patrons before and during the event of any dispersal strategies or procedures to be followed
• staging the dispersal of attendees using sequential departures, such as Car Park 1 then 2 or Stand 1 then Stand 2
• placing of appropriate signage indicating drink-drive or other penalties in force
• use of non-antagonistic crowd dispersing strategies such as use of a street sweeper at an appropriate hour if the crowd needs to be dispersed by a certain time
• courtesy buses and shuttle buses to move people from the area as quickly and safely as possible
• specially designated pick-up zones where parents and friends can collect patrons
• reminding patrons to take care when leaving, such as observing litter or noise restraints

Emergency services, planning and procedures

Checklist for emergency services, planning and procedures

Download the Checklist for emergency services - planning and procedures  (PDF 10kb)

Where to go for more information

Your local state or territory emergency services are a valuable source of further information. The St John's website address is www.stjohn.org.au.

Emergency Preparedness Canada 1995, Emergency preparedness guidelines for mass, crowd-intensive events, EPC, Ottawa.

Section 6: Emergency services, planning and procedures

Despite taking all the precautions possible to prevent the occurrence of violence and crime at the event, emergencies can occur, so plans and procedures need to be developed.

The term emergency is taken to mean situations where the emergency services become actively involved or an urgent evacuation is required. Broadly speaking, they will be situations with the potential for serious injuries requiring immediate and specialist action beyond the capabilities of venue staff.

Emergencies may include:

• fires
• explosions
• bomb threats
• collapse of a structure such as seating, staging, or a lighting pylon
• release of hazardous substances such as a gas leak
• unanticipated hostile weather conditions such as flooding or high winds

Depending on the type of event, incidents involving machinery such as aeroplane crashes or animals such as horses stampeding into the crowd, must also be considered.

The main concern in an emergency situation at a large event is crowd control. The significance of crowd control for emergency planning is that crowd disorder and overcrowding can be factors in the creation of emergencies. Problems can occur with overloading of barriers or staging, and behavioural problems such as violence or panic.

6.1 Responding to an emergency

Any response to crowd incidents must be rapid and authoritative. There needs to be clear and unambiguous information about the emergency and required group actions. In consultation with appropriate authorities (eg. fire brigade, police, ambulance, licensing board) establish and communicate policies and emergency procedures and regulations on:

• fire
• drinking and possession of alcoholic beverages
• possession or use of drugs
• medical emergencies
• lost and found articles
• lost persons
• bringing food, beverages, radios and tape decks into the venue
• bomb threats
• alternatives in case of score clocks, lights or other failures
• transportation problems

Plans should ensure that there are multiple routes through which the crowd can disperse, rather than limiting the number of exit points.

In the event of an emergency, summon the emergency services immediately, and don't wait to assess the impact of the incident before doing so.

6.2 Planning

Plans for dealing effectively with these contingencies need to be drawn up well in advance of the event so that those involved in the response can be trained. Initial training is important, but so is regular reinforcement of that training. This will help staff to act confidently and efficiently in an emergency.

In drawing up emergency plans it may be helpful to consult other bodies who will be involved in dealing with the situation, such as:

• the authorities who enforce the relevant legislation, such as the local authority, fire authority and any relevant government departments
• the emergency services, including nearby hospitals and on-site first aid providers
• all those involved in the operation, such as the event organiser, security firms and concessionaires operating at the venue
• nearby sites which could be affected by an emergency or subsequent evacuation

Any discussions need to include the safety of the emergency services as well as that of the public, staff associated with the event and others on site.

Examples of emergency procedures to be included in a plan are:

• what information should be passed on to the emergency services and by whom
• communications with the public
• communications with staff and outside bodies
• management of the emergency, or dealing with the occurrence itself
• crowd management in an emergency situation
• evacuation procedures
• assistance to the emergency services
• criteria for re-opening the venue and allowing the return of the public

Copies of the emergency plan should be made available to all interested parties. Other people besides event staff need to be familiar with the action to take in an emergency. Producing an emergency plan in languages other than English may be appropriate.

6.3 Staff training

Staff training for emergencies should include:

• the vital importance of good communications
• the command and communication structure to be followed during an emergency
• exactly what staff have to do and why
• how each individual's responsibilities fit into the overall plan
• relationship with emergency services
• the layout of the venue, locations of emergency equipment, alarm call points, first aid facilities, emergency exits and access routes for emergency services

The training plan could also identify other more specific training needs such as first aid, response to fires, use of communication equipment, and recognition of hazardous situations.

6.4 Informing emergency services

Once an emergency is identified, the police and other relevant emergency services need to be told as soon as possible. It may be helpful if permanent checklists of information to be passed on are kept near staff telephones. Checklists should include:

• the exact official address of the venue
• the nature of the emergency/accident/incident and its extent, if known
• suggested access routes and meeting points if previously agreed arrangements have to be changed
• relevant information about any hazards

6.5 Communications within the venue

Staff need to be kept informed about any emergencies within the venue. This could be done by two-way radio, or by coded public address messages. The latter can also be used to signal staff to listen to radio messages or to contact the control room through their internal telephone system.

It is important to decide what to tell staff. They could be told the nature of the emergency, the location of the affected areas, the procedures to follow, and any special information about which escape routes or exits should not be used.

It is also important to decide what to tell the public about the emergency, and when. Whether the whole venue is told at once will depend on the nature of the emergency.

6.6 Evacuation

The public could be informed by recorded or live public address messages, word-of-mouth by staff, including the use of loud hailers, and alarms.

Instructions to the public

The manner of giving instructions will influence the speed of public response. It will help to give short, clear instructions, repeat important information, phrase instructions positively: 'use the green door' not 'do not use the red door'; and be polite, firm and calm.

Information to be given to the public might include:

• which exits to use and how to get there
• where to assemble, if appropriate
• the reason for the instructions, for example 'to avoid overcrowding in Area A, please use...'
• an assurance to people that arrangements will be made to compensate them, to refund or reschedule the event
• telling people where the meeting point(s) are for the friends or relatives who have got separated
• providing information on any transport arrangements that are available
• stating which authorities are in control of the evacuation

Arrangements will need to be in place to monitor the evacuation closely and ensure that all available exits are used; overcrowding of one or two exits needs to be avoided as far as possible.

If the layout of the venue is complex or the area to be evacuated is particularly large or distant from the exits, it may be more practicable to ask people to gather at various safe points in the venue and then escort them in groups to the exits.

Barriers and signs will need to be set up and help given to staff and police to turn would-be visitors away as quickly as possible. Special arrangements will need to be made for coping with the disabled and parents with pushchairs.

Uncooperative visitors

Staff need to have clear guidance on what to do if someone refuses to cooperate:

• try to find out what the problem is if time permits; they may have a problem that can easily be solved
• if their refusal to follow instructions is likely to endanger the safety of others, staff should seek help from a supervisor or police officer; if danger is not involved, don't waste time on it but turn to more urgent tasks

6.7 Assembly areas

Safe assembly areas are vital to an emergency plan and when considering their safe use:

• publicise the location of assembly areas by marking them on any venue maps or programmes, prominent signage, and inclusion in staff training so it will be easier to direct the crowd to them when an evacuation is necessary
• ensure that there are enough of them and that they are big enough to accommodate the crowd
• site them away from vulnerable areas such as flammable or chemical stores or car parks in a bomb threat situation
• take police advice on whether or not people really need to be kept there or allowed home and, if so, whether names and addresses need to be taken
• if an evacuation of the venue is likely to lead to congestion of departure routes or hamper emergency services, make sure that there are sufficient staff to control a phased departure
• provide people waiting in assembly areas with updated information on what is happening at regular intervals

6.8 When to re-open the venue

If the venue is physically safe to re-open, consider:

• whether there will be transport to take people home at a time which is later than the original closing time
• whether you can move that number of people safely in a short time
• anticipated crowd reaction to closure or re-opening
• refund arrangements

6.9 Emergency medical facilities

There will need to be sufficient emergency room space and equipment to handle routine accidents and larger crowd incidents. Lives have been unnecessarily lost in large crowd incidents by the lack of simple equipment such as stretchers and oxygen.

If this is a large event the medical centre should be equipped to provide skilled response to cardiac, spinal injury cases and other emergencies.

It is important to communicate with local emergency medical services, to establish their response times and whether they can handle a mass crowd disaster.

The extent of the on-site medical facilities required is dependent on:

• the number of people likely to come
• the temperature
• the density of the crowd
• the length of the programme
• the level of audience participation
• w the type of audience expected; they might be disabled or elderly and therefore not in the best of health; young audiences bring their own problems in that they may be excitable and vulnerable to dehydration, hyperventilation and crushing

For the big venues, a large room or marquee might be used as a casualty station. Additional first aid posts could be dispersed strategically throughout the venue and staffed by trained personnel. These posts need to be kept in a hygienic condition and contain adequate medical equipment and supplies, hot and cold or sterile water and a supply of drinking water. It is likely to be helpful in an emergency if they have an external telephone line and an internal telephone or radio link to the control room.

Logistics

When planning on-site medical care for the event the following need to be considered:

• the medical facilities available should be easily identifiable to the public
• the means by which medical supplies are to be obtained, including secure on-site storage of drugs
• whether ambulances will be positioned on site, or will be called to the site on an as-required basis
• if ambulance(s) are on site for participants, such as racers etc, whether these ambulances are to be dedicated only to participants, or be available for spectator injuries
• whether medical staff will be confined to a hospital room to which the injured must make their way, or whether clearly identified field medical teams will patrol dense spectator areas
• if there will be vehicles to transport spectators to the on-site medical facility
• whether the medical vehicles are appropriate to the terrain, for example, regular ambulances for road networks, 4-wheel-drive vehicles for off-road areas, golf carts or similar vehicles for densely packed or widespread spectator areas
• means of notification for ambulances of spectators requiring assistance in widespread spectator areas

6.10 Security and law enforcement on-site

Security aspects of the event need to be planned. Consider:

• whether police officers are to be used for on-site policing, or private security officers engaged
• whether the police will service only public areas outside the event perimeter, or on site as well; establish the split in role between police and private security
• the enforcement policies to be exercised for minor offences on site, so that discretion will be exercised consistently throughout the event (for example, the definition of disruptive behaviour and how it will be dealt with, and dealing with any property damage)
• whether there will be areas on site which collect and store significant amounts of money, and if so, how security and off-site transfer and banking will be carried out

Reducing the impact of alcohol

Checklist for reducing the impact of alcohol

Download the Checklist for reducing the impact of alcohol  (PDF 9kb)

Where to go for more information

Further sources of information include:

• Alcohol and Drug Agencies
• Community Health Centre
• State or Territory government Departments of Health and/or Community Services and Departments of Justice
• Salvation Army (for temporary care centres)

Australian Drug Foundation 1995, Hosting better parties: practical tips for managing alcohol at parties, ADF, South Melbourne.

Australian Drug Foundation 1997, Developing a responsible alcohol policy, ADF, South Melbourne.

Alcoholic Liquor Advisory Council 1996, Good times: managing a successful public event, ALAC, Auckland.

Lander, A. 1995, Preventing alcohol-related violence: a community action manual, Eastern Sydney Area Health Service and St Vincent's Alcohol & Drug Service, Sydney.

Section 7: Reducing the impact of alcohol

If alcohol is to be served or to be used at the event, the potential risk of aggression, accident or injury is considerable. There is also the possibility that patrons may be using other drugs which could cause aggression, agitation, disorientation, dehydration, or in extreme situations overdose.

There are certain precautions which can be taken to minimise the effect of alcohol-related harm.

7.1 Licences

Liquor can only be served in certain circumstances. It is possible to hold the event on premises that are already licensed, for example in a nightclub, hotel or registered club. Alternatively arrangements can be made for the liquor to be supplied by a local hotelier near the proposed event venue. The hotelier must first get approval from the licensing authority.

An approval from the local council must be held for registered clubs, hotels and licensed premises where entertainment is provided. Statutory regulations require licensed premises to minimise the harm connected with the misuse or abuse of liquor, such as violent and anti-social behaviour. Licensees must ensure that practices are put in place so that liquor is sold, supplied and served responsibly. As well, all reasonable steps should be taken to prevent intoxication on the premises.

7.2 Food and drink

• Ensure a good range of low and non-alcohol drinks is available and promoted, and that it is substantially cheaper than regular strength
• Ensure glasses are regulation size and discourage consumption of double or triple strength drinks
• A range of snacks or meals should be available whenever the venue is open
• Alcohol should not be sold in glass or breakable containers

7.3 Special promotions

• Discounting of regular strength alcohol should not be encouraged as this is associated with binge drinking and high levels of intoxication
• Promotional materials, happy hours and other activities, which encourage excessive alcohol consumption, should be discouraged in favour of other activities that encourage responsible drinking

7.4 Staff

• Responsible serving practices should be encouraged and communicated through written information, house policies and responsible server training for bar staff
• No staff should drink alcohol at the venue, particularly before or during their rostered hours
• Recruitment, communication, management, training and support should all focus on responsible hospitality
• Presentation, recruitment, demeanour and training of staff should all foster maintenance of a courteous and professional security team who are vitally involved in the responsible venue strategy; security staff numbering, registration and appropriate rostering should be undertaken along with recording and reviewing of all incidents

7.5 Policies

Event organisers need to establish policies to protect the health and safety of all participants and consider publicly displaying or advertising these prior to and during the event. These policies may include, for example, provision of drug information and sharps containers.

• Signage should feature responsible drinking messages, legal requirements and standard drinks information.
• Ensure instructions are given and enforced for identifying underage patrons and refusing their admission and service in places where alcohol is served.
• Ensure intoxicated patrons are refused entry or not served.
• Ensure a firm but respectful approach is used for dealing with problem drinking patrons who are referred on for possible assistance.
• A clear policy regarding the entry of intoxicated people and the importation of alcohol into the event should be advertised prior to the event, and the rules enforced by security staff.
• Facilitate transport for intoxicated patrons regardless of time of day or night; particular care should be taken in the case of intoxicated patrons who are alone and therefore more vulnerable to attack, falls and other pedestrian injuries.

7.6 Venue

• Establish temporary centres or chill-out zones where underage and intoxicated drinkers can go to be safe or sober up; use youth workers, health workers, or people with drug and alcohol expertise to staff the centre; ensure responsible guardians are contacted to pick up underage patrons as necessary.
• Internal venue layout should provide adequate and unhindered patron movement between key parts of the facility such as entrance, bar and dance floors.
• Within the venue there should be clearly designated areas where alcohol can be consumed as well as alcohol-free areas.

7.7 Community relations

• Venue managers must recognise the standards sought by the surrounding community and maintain good links with other community organisations and facilities; venue managers should collaborate with relevant departments and community organisations in strategies to minimise harm related to alcohol and the licensed environment.
• Signage, entertainment and promotions should be culturally sensitive; good relations should be maintained with key cultural group leaders.

Further sources of information include Alcohol and Drug Agencies, Community Health Centres, Government Departments of Health and/or Community Services, Government Departments of Justice, Salvation Army (for temporary care centres).

Other considerations

Checklist of other considerations

Download the Checklist of other considerations  (PDF 9kb)

Section 8: Other considerations

Some events need well-advertised rules on what is excluded from the venue, and therefore what may not be brought in to the venue. This prohibition may also be a factor in the licensing authority's decision to license the event. It is likely to imply searching visitors on arrival and the removal of prohibited items. If so, it is important to check the legal position, including who may search.

Admissions, ticket sales, and car park personnel can observe and screen people for possession of alcoholic beverages, weapons, abnormal or suspicious behaviour, and intoxication.

Additional controls will be needed at official and unofficial access points (such as around the perimeter) to prevent gatecrashers. If fans are likely to be a problem, then arrange for additional staffing in popular areas such as the players' enclosure.

Other measures to take:

• look out for people throwing objects, setting off firecrackers, flashing laser pens, etc, to prevent the creation of panic and violent behaviour
• try to reduce the impact of situational factors such as the incidence of groups of spectators converging in confined areas or gaining access to balconies which may overhang the event
• adequate first aid and medical staff must be deployed to deal with fainting and consequent injuries if visitors are likely to get hysterical
• immediately retrieve individuals who have fainted to avoid further injury
• ensure that safety measures are implemented so that that any special effects such as lasers or fireworks are activated safely

8.1 Responsibilities of performers

Actions by performers such as late cancellation, walking off stage, encouraging fans to move closer, offensive language or gestures, throwing souvenirs to the audience, have precipitated inappropriate or hazardous group reactions. Entertainers should be fully informed of their responsibilities for maintaining order, and the problems associated with inciting potentially dangerous group behaviour.

Performers must provide advance notice of cancellation, before patrons begin entering the venue. Communication with the crowd should not be delayed if cancellation occurs after entry. Announcements should clearly establish refund policies, exit routes, and need for orderly movement.

8.2 Street activities

A street activity or parade has particular problems for crowd control:

• there are usually no entrances or boundaries to the venue, so in addition to the expected number of visitors and participants, there will be people who live and work in the area to be considered
• there may be friction between those taking part in the parade and residents who feel that their territory, privacy, peace and quiet and freedom of movement are being compromised
• there may be practical difficulties in getting visitors and residents to and from the area because of the limited capacity of public transport, the absence or suspension of parking facilities, together with road closures and diversions
• they offer opportunities to pickpockets and petty criminals which can lead to a disturbance

The feasibility of holding any street event should be discussed at an early stage with the police, emergency services, residents' representatives, local authorities and any other interested parties. If the event is to go ahead, plans will need to include arrangements for effective monitoring of overcrowding at the venue and at associated areas such as approach roads and bus/train stations, and crowd behaviour, as well as ad hoc occurrences such as accidents and injuries.

It may also be necessary to consider closing the bus/train station for the venue. Where access to certain streets is controlled, residents could be encouraged to carry some form of identification to allow them into the area.

Where the event is a moving one, such as a parade, procession, or a fun run, choose a route which will minimise possible trouble, and not place additional demands on police and security resources.

8.3 Food and drink

At all events there should be, at least, readily accessible drinking water available at no cost, even if no other drinks are on-site. At events lasting longer than a few hours there should be some provision of food.

Where possible, drinks sold at the venue should be in plastic containers or in plastic or paper cups, rather than in cans or bottles.

8.4 Litter management

Litter, especially broken glass, can cause major problems at events. Not only is it unhygienic to leave litter lying around but serious injuries can occur from broken glass and it may even be used as a weapon or missile. In order to minimise these problems it is important that:

• adequate litter receptacles are provided
• a 'no glass' policy is considered
• a container is provided specifically for the disposal of glass and sharp objects
• a separate syringe disposal unit is considered
• litter is collected regularly throughout the event

8.5 Media

Media representatives will need access to the venue to provide good coverage of the event. They will also need facilities provided for operation of equipment such as power points. Good relations between organisers and the media should be encouraged and a method of accurate information dissemination put in place. How the media portray the event both before and after the event is crucial in determining public perception of the event. Appointing a public relations or media officer and sending out media releases can create a positive image for the event.

8.6 Independent stall holders

If the event incorporates stalls run by independent operators they must comply with the appropriate health and safety regulations. Power cables and leads should be safely installed, and away from hazards of pedestrian movement or water sources.

8.7 Fireworks and flares

If there is to be a fireworks display, check on the following:

• how fireworks arrive at the venue
• what happens to them while they are there
• the types of fireworks and the safety distances for operating them

The operator will need to obtain the necessary permit from the appropriate regulatory authority, police and fire brigade. Permits generally stipulate that the fire brigade must be informed that a fireworks display is being held, and ideally a firefighter should be in attendance whenever fireworks are being let off. The fire brigade must receive a list of fireworks beforehand so that they know what precautions are required.

Fireworks have to be set up at the ground itself as it is illegal to transport fireworks in a trailer when they are fused.

Once the fireworks are at the venue:

• when the fireworks are set up they need to be locked away for safety
• establish a security cordon to prevent people from coming into the area where the fireworks are stored since cigarette butts or sparks could set them off
• establish whether any security arrangements that may have been made for the fireworks impinge on any other arrangements made, for example the arrival of teams
• make sure that fireworks are out of the way before people arrive
• check that everyone knows what to do in the case of an accidental fireworks explosion
• check if there is anything combustible in the area where the fireworks are to be kept prior to the show, such as gas pipes
• place metal water buckets filled with sand at regular intervals around the venue in case of fire

Flares can be an issue at some types of events. You could:

• check State government legislation on carrying and/or igniting flares
• advertise in the media the penalties for carrying a flare inside the venue
• have large temporary signs at the entrances to the venue highlighting the penalties associated with flares

After the event

Checklist for after the event

Download the Checklist for after the event  (PDF 8kb)

Section 9: After the Event

An important part of the risk assessment of crowd safety and security is the regular review of safety measures.

9.1 Timing

It might be helpful to include the timing of the review in the risk assessment. You can also decide who should be involved, how the review is to be carried out and what information needs to be collected.

One-off events need to be reviewed as soon as possible after they have taken place. If many of the staff are likely to disperse, a rapid debriefing should be carried out as soon as practicable. The information from the review, including any recommendations for improving crowd safety, will be helpful in planning the next event.

Consider when to carry out reviews, which might be:

• annually
• after any accident
• after a 'near miss'
• after any significant change to venue or event
• after any serious incident at a similar venue

A review needs to assess how far the safety and security objectives have been met and the performance levels achieved. It might:

• identify any changes to the venue, such as temporary changes due to building work, changes in the staffing structure
• identify any current or potential problems, including, if possible, the reasons for them
• include liaison with other agencies
• suggest ways of improving the system
• include feedback from staff

It may be helpful if the conclusions from the review are passed on to everyone involved in ensuring crowd safety in the venue. Consider inviting representatives of all the bodies who were involved in the event to take part in the review. Specific training for staff involved in the review process can help to improve its effectiveness. If there is a large number of people involved it might be more manageable to have a number of separate reviews examining particular issues, which can then be combined.

Near misses will need to be considered, not just accidents, as well as any evidence of good and bad features of the safety system. Think about setting up a (confidential) reporting system to record specific problems, as well as the concerns of individual members of staff.

9.2 Recording issues

Performance of safety and security measures can be tested against predetermined standards and the achievement of the objectives in safety plans. This may be helpful in identifying when and where action is needed to improve performance.

There are several types of information that can be collected when measuring performance. These include:

• the number of people
• the crowd density levels
• the crowd flows in various areas during the event
• the good and bad features of the venue's design
• the effectiveness of plans and procedures

It is useful to record problems such as:

• rule violations
• arrests
• injuries to the public
• sudden crowd movements
• areas of crowd build-up
• difficulties in communications
• complaints from the public

If causes of the problems can be identified, it will help to improve the crowd safety and security system.

When measuring performance, assess all the available information, such as incident report forms, staff observations and injury statistics. One way of conducting the measurement is to compare each aspect of the running of the event with the relevant plans and procedures. If this shows, for example, that the current crowd safety system is not working properly, target dates could be set for achieving the necessary improvements.

9.3 Revising plans and procedures

Once performance has been reviewed, consider what changes are needed to the arrangements for ensuring crowd safety and security in the future.

Additional Guidelines for Dance Parties

Additional guidelines for preventing violence and crime at dance parties

Although the generic guidelines provide a comprehensive list of how best to prevent violence and crime at public events, there are certain additional issues to consider when holding a dance party.

People intending to hold a dance party should first read the general guidelines in the previous sections.

Checklist for dance parties

Download the Checklist for dance parties  (PDF 14kb)

Where to go for more information

New South Wales Draft Code of Practice for dance parties 1998, Dept of Local Government, Bankstown.

Operational guidelines for dance parties in South Australia, 1998, Drug and Alcohol Services Council, South Australia.

Section 1: Planning

Some things that may characterise a dance party are that:

• it is a pre-arranged event
• amplified music is played for the enjoyment of the patrons
• the music may be live
• it often starts late in the evening and goes until early morning

Attendance numbers are not relevant because the main causes of concern apply equally to a group of 50 people as to 5,000, although the degree of control will vary.

Before addressing the specific issues associated with staging such a party, it is important to think about:

• concept and purpose of the event
• consultation with key stakeholders
• event promotion and media management
• quality and type of entertainment
• security and crowd controls
• signage
• entry and exit logistics
• weather, venue and facilities
• management of alcohol and provision of food

When determining how best to manage the event, collaborating with key stakeholders not only makes life easier, but will also result in:

• a well supported and sustainable quality event
• reduction in crime, violence, accidents and injury
• reduction in costs relating to cleaning, damage, insurance and security
• increased potential for long-term sponsorship
• increased government and community support
• effective management and movement of patrons
• more forgiving and flexible patrons

Planning will need to include and cover:

• checking with the local council on planning controls which may affect the venue for the party
• consultation with the police at least six weeks before the event
• consultation with the fire brigade at least two weeks before the event
• notifying the ambulance service at least two to three weeks before the event
• if the promoter is contactable at all times
• adequate parking arrangements which do not inconvenience neighbouring properties
• if public transport is available, whether the event time coincides with public transport times
• whether any money received in advance has been put in trust to cover refunds in case of cancellation
• if conditions of entry have been stipulated, such as refusing entry due to intoxication, etc
• to prevent overcrowding, whether the event is to be attended just by those with pre-paid tickets
• whether there is an adequate and safe water supply available for fire fighting, hygiene and for dousing heated patrons during summer events
• food and drinks to be only provided in unbreakable containers
• whether there is an adequate insurance policy covering this type of event
• if all viable steps have been taken to minimise noise pollution
• whether the noise restrictions put in place by the relevant authority have been met
• if fireworks are to be used, a permit has been obtained
• whether adequate arrangements have been made to ensure toilets are kept clean and serviceable during the event

Section 2: Administration

Event applications must be lodged with local authorities at least two months prior to the event. Some will require more notice. The application should contain as much information as possible about the type of event and the way that it will be run. A deed of agreement between the promoter and local authority and/or building owner should be entered into, so that both parties are bound by a legal document.

Most local authorities will charge a fee. In addition to the set fee, local authorities and/or building owners may elect to hold a bond to make sure that any conditional requirements are met. The extent of the bond will relate to the type of conditions. Bonds are often used to ensure that:

• noise limits are not exceeded
• clean ups are completed on time
• venue floors are protected
• damage is made good

The patrons must be covered by a comprehensive public liability insurance policy and the building should be adequately insured. Policy holders should be sure that their policy conditions cover this type of event. Proof of public liability insurance and details of who holds the building's insurances should be included with the initial application.

The promoter or his agent must be contactable at all times by the local authority or police prior to and during the event. This person must be responsible for the event and have the authority to order the venue to be evacuated in an emergency. As well, a complaints hot line should be attended throughout the event.

Briefing meeting

A briefing meeting should be held when all of the final arrangements are known, between 7 and 14 days before the event. The purpose of the meeting is to get all major parties together so they all know each other and so that any concerns can be addressed.

It is important that there is an agenda so that everyone knows, in advance, what will be discussed. It is also an ideal time to distribute required documentation, such as:

• standing orders and procedures
• emergency evacuation procedures
• insurance cover notes, etc
• electrical and structural certification
• event and control personnel contact numbers for the event

Anyone who has a critical role in the operation of the event or venue approval should attend the briefing:

• promoter and any deputies
• chief security officer
• police
• if alcohol is to be consumed at the event, a representative of the relevant authority
• local authority representatives
• transport operator
• noise pollution officers
• parking controller
• fire brigade representative
• first aid representative
• ground facility manager
• representatives from the local area that may be adversely affected by the event
• health department representative
• representative(s) of the patrons attending the event

Items for discussion at the briefing should include:

• what conditions will cause the event to be cancelled or postponed, such as excessive rain or wind, insufficient ticket sales, main performers unavailable
• contingency plan if more than the anticipated number of patrons arrive
• what noise limitations have been set and by whom; how and where these will be monitored
• access route for emergency vehicles
• contact numbers and radio frequencies and channels to be used during the event
• location of crowd control command post and first aid posts
• time, date and location of debriefing meeting

Debriefing meeting

A debriefing meeting should be held after each event so that the experience gained from the event is not lost, and improvements can be recorded for future events. This meeting should be held within fourteen days of the conclusion of the event.

Anyone who has a critical role in the operation of the event, or venue/event approval, should attend the meeting as well as anyone who experienced any operational deficiencies or can offer suggestions to improve future events. Those listed previously as attending the briefing should attend the debriefing.

Section 3: Police/security

The police must be notified at least six weeks before each event. They require:

• details of the promoter's hotline for complaints
• name of the crowd control/security company
• contact number for the crowd control officer responsible for staff
• the number of security staff
• names of all security staff
• operational procedures
• emergency procedures, including an evacuation plan

The roles and function of the security staff are crucial in the prevention of violence and crime at dance parties. At these events their major function is crowd control, as the crowd is likely to be made up of mainly younger people and there is no structured seating.

The security staff who will be in direct physical contact with patrons need to be properly licensed and registered, physically fit and over 18 years of age. They need:

• good communication skills
• basic training in fire fighting
• basic training in evacuation procedures
• a basic knowledge in first aid and the ability to recognise distress
• some knowledge of self-defence and how to control violent or unruly behaviour and intoxicated persons
• to know their limitations on removing patrons and refusing entry to patrons
• to know lawful search techniques

Security staff members must be issued with unique identification, such as a number on their uniform, so that they can be easily identified by the patrons. It is important that they be issued with some sort of noise protection, have a torch if the event is held at night, and have communication equipment that is effective under noisy concert conditions.

3.1 Crowd control

If the event is for under 18s, the staff being hired need to have particular experience in supervising a younger crowd.

The purpose of crowd control is to:

• avoid personal injury due to crushing, overcrowding and unruly behaviour
• enable injured or distressed patrons to be identified and moved to safety
• prevent overloading of structures whether or not for spectator use, such as seating stands, advertising hoardings, stages, lighting and sound mixing towers

Experience indicates that dance party crowds are generally not aggressive, and hysteria and crushing do not occur. The most common problem is dehydration.

At large events where popular performers attract young audiences, additional crowd control measures need to be taken:

• patrons must be prohibited from the stage unless arrangements are made with the authority prior to the event
• at least one security staff member per metre of stage, including the length of side extensions of the main stage must be provided; their principal duties are to prevent patrons climbing onto the stage and to remove injured or distressed patrons from the crowd
• patrons must be prohibited from climbing onto any structures within the venue
• stage barriers of suitable design must be provided
• exits from the audience area must be provided at either end of the stage
• additional staff may be required for backstage, perimeter and for performer security

There should be at least one member of staff at each exit point from the venue. Their principal duty is to ensure that the gates are open when required and that both sides are free from obstructions. Where an exit point also serves as an entry there must be at least two members of staff.

All staff must be briefed before each event on general procedures, routine orders and evacuation procedures. The names of staff and the roster must be submitted to the local authority prior to the event and no later than the pre-event briefing. Crowd control/security companies must be registered.

The promoter must restrict the number of patrons to the number nominated on the Certificate of Approval for the venue. Provision must be made for patrons to queue once the venue is filled to capacity. The promoter must know the number of patrons in the venue at any time.

It is important to make sure that doors and exits remain clear of obstruction and are never locked.

3.2 General security

A register should be maintained of the names and identifying numbers of the security staff.

Each security staff member should be given a written summary of all they are expected to know and do, including securing clear passage for all emergency vehicles and staff.

Staff will need to record incidents involving:

• disorder
• violence
• other crime
• ill health
• all other relevant occurrences

Security staff are expected to:

• assist in identifying patrons who are banned from the venue, such as people who
  - are intoxicated by alcohol and other drugs
  - attempt to sell or distribute drugs
  - are being aggressive or anti-social
  - are underage at an adult dance party
  - do not possess tickets
  - are in possession of forged tickets
• refuse entry or remove from the party persons known to the promoters and security staff to be drug dealers, and notify the police immediately
• check identity documents to keep out minors from adult dance parties and to help stop underage drinking; identity documents include a driver's licence, a passport and, for licensed premises, a proof of age card
• patrol toilet areas (male and female), preferably every 30 minutes
• prevent overcrowding by making sure the number of patrons does not exceed the venue's legal crowd limits in the various parts of the venue
• prevent patrons, as far as possible, from climbing fences and other structures such as light towers, advertising hoardings, speaker columns and mixing towers; if the size of the problem means the security staff cannot prevent it from happening, they should immediately report the matter to the Security Controller
• make sure all parking area entrances and emergency exits are kept clear and that vehicles are correctly parked
• make sure that gangways and exits are kept clear
• control all exits including openings in a boundary fence
• assist in the diversion of patrons to other parts of the venue, including the closing of turnstiles, when the capacity for any area is about to be reached
• identify and investigate any incident, such as violence, amongst the patrons, and report the findings to the Security Controller
• know the location of, and be able to operate, the fire-fighting equipment at the venue
• know the location of the first aid posts
• direct distressed or unwell patrons to first aid posts
• fully understand any methods or signals used to alert staff that an emergency has occurred
• be capable of recognising potential fire hazards and suspect packages, reporting such findings immediately to the Security Controller
• immediately follow any instruction given in an emergency by a police officer or the Security Controller, or in the case of fire, instructions from the commander of the fire brigades
• report to the Security Controller any damage or defect which is likely to be a threat to patron safety
• assist as required in the evacuation of the venue, in accordance with the evacuation plan
• assist in the prevention of breaches of venue regulations

The greater the cooperation between security firms, club owners and promoters, and the police, the better; and the larger the event the closer the liaison required. Details will vary from one event to the next, and what follows is the minimum provision from the point of view of security.

• Notices must be strategically placed at the entrance to the venue, informing customers that the police will be informed in the event of individuals being found in possession of controlled substances or offensive weapons. Company policy on non-entry and ejection must also be stated to reduce the likelihood of arguments with staff.
• Everyone entering the event (including guests) should be subject to a search of outer clothing, pockets and bags, to be carried out by a security officer of the same sex.
• Body searches should ideally be complemented by the use of metal detectors to deter the carrying of weapons, and to reassure customers.
• Staff do not have the right to insist on performing a body search; consent must be established.
• Staff must not perform strip searches under any circumstances.
• Drugs or offensive weapons that are seized must immediately be handed over to the manager for storage in a secure place until they can be taken by the police.
• The discreet and appropriate use of CCTV is recommended particularly for surveillance outside the venue, and the entrance. CCTV may deter or detect the sale of drugs inside the venue, although care must be taken to minimise the discomfort that the presence of CCTV can present to the vast majority of customers who are neither selling drugs nor causing a disturbance.
• At larger venues staff should be equipped with radio communication systems for added security.
• It is good practice to have an attendant in the toilets to discourage an unacceptable build up of people, and to discourage the selling and use of drugs in this area. Where no attendant is present, toilets should be regularly patrolled by staff.
• A policy should be agreed with police about what should happen in the event of disturbances and persons being found possessing or selling drugs. Customers should be warned, by way of notices, that covert police surveillance may be in operation.
• The manager must be aware of which staff are on duty on any particular night and this information must be recorded in case individuals need to be identified for any reason.
• The manager or promoter must be present at all times during an event and readily contactable by the police.
• Records must be kept of any accidents that occur. They must contain as much detail as possible and be kept for reference purposes for at least a year. Similarly, it is good practice to record all incidents that occur on the premises, such as persons ejected from the venue.
• Regular patrols of the surrounding area are advisable for extra security and to reassure local residents.

Section 4: Staff training

It is good practice for the manager to arrange for staff training by the appropriate organisations in the following topics:

• first aid - a recognised course
• fire regulations and precautions
• health and safety legislation
• dealing with aggression
• customer care
• police and legal requirements
• environmental issues
• drugs awareness
• crowd control

A minimum requirement is that the manager ensures that all in-house staff are fully aware of the following:

• licensing laws
• relevant company policies
• procedures for evacuating the premises in an emergency
• the position of all fire exits and escape routes
• the need to ensure that all exits are fully functional and free from obstruction in case of a fire or other emergency
• the location and means of operation of all fire fighting equipment
• the procedures that are in place for dealing effectively and responsibly with a fire or other emergency
• the need to inform the manager of all incidents or accidents which take place on the premises, and to log all details for future reference
• the need to be alert to the possibility of illness or drug induced distress in patrons, and how to deal effectively and responsibly with such an occurrence (for instance, recognising heat exhaustion)
• how to respond appropriately to all forms of assault, including sexual assault

In addition to the above:

• sufficient club employees must be trained in first aid to allow a minimum of two such individuals to be on the premises at all times during opening hours
• relevant staff should be trained in responsible serving of alcohol and harm minimisation (see section in these guidelines on Alcohol)

4.1 Clean up

Cleaning staff need to be trained in the dangers of used syringes, including on the steps to follow should they be pricked or scratched with a discarded needle. They also need to be informed about the advantages of being immunised against hepatitis B.

Needle disposal containers must be provided for collecting used needles and syringes.

Section 5: First aid

At dance parties the majority of casualties tend to be:

• heatstroke, dehydration, respiratory distress
• cuts from broken glass and drink can ring pulls
• fainting and exhaustion from a mixture of hysteria, heat and alcohol
• trampling or crushing from crowd pressure at the stage barrier
• illicit drug and alcohol abuse, or misuse of legal drugs
• patrons not knowing how to handle the effects of drug use
• epilepsy attacks brought on by strobe lighting

Through careful consideration and planning, the event manager can help prevent many of these cases from occurring.

5.1. Prevention measures

Air conditioning and ventilation

Because of the frenetic nature of dance events, controlling ambient temperatures and humidity in venues used for such events is of paramount importance for the comfort and safety of patrons.

Ideally ventilation systems should be supplemented by sufficient air conditioning to maintain the temperature at a reasonable level. There is no legislation stipulating 'reasonable', so a decision must be made to determine a comfortable temperature. All air conditioning systems must be fully functional.

Overcrowding

The maximum capacity of a venue must not be exceeded. The number of customers entering the venue can be recorded by means of an electronic clocking system, a clicker, a till, or by means of the sale of a finite number of tickets. It is recommended that staff operating any counting mechanism inform the manager when 75 per cent capacity is reached. It is also necessary to record the number of people leaving the venue during the evening.

When a guest list is in operation, or when VIP passes are issued, the number of tickets available to the public must be adjusted accordingly in order to keep the number of occupants within the fire limits.

Staff must take care to prevent overcrowding of specific areas of the venue, particularly thoroughfares, stairways, and chill-out areas. Particular care must be taken when certain areas of a club prove more popular than others and localised overcrowding takes place.

Adequate water

There must be free and unrestricted access to cold drinking water at all times, including drinking water supplies in toilets. At all dance venues, drinking water and ice must be available free of charge at the bar, and it is good practice to inform patrons of this availability by way of signs. Some clubs provide paper cups and jugs of water on the bar.

Prevention of overheating

Wherever possible, space should be set aside for dancers to rest and cool down. Such areas, or chill-out zones, should be cooler, quieter, and altogether less frenetic than the main dance area(s), and adequate seating must be provided. Each area should have low profile, non-threatening supervision so that patrons are not scared away, and so that patrons with health problems can be spotted and treated. Chill-out zones should be positioned for easy vehicular access in case of emergency.

Where the space available within a venue does not allow for the provision of a separate chill-out area, adequate pr