Fema Event Plan

Table of Contents

TABLE OF CONTENTS

TABLE OF CONTENTS .................................................................................................................... II

PREFACE ......................................................................................................................................... VII

INTRODUCTION ...........................................................................................................................VIII
BACKGROUND............................................................................................................................ VIII
SCOPE ............................................................................................................................................. IX
SYNOPSIS ....................................................................................................................................... IX

ACKNOWLEDGEMENTS .............................................................................................................. XI

CHAPTER 1: PRE-EVENT PLANNING ..........................................................................................2
INTRODUCTION..............................................................................................................................2
DEFINITION OF SPECIAL EVENT AND MASS GATHERING .....................................................2
PLANNING MEETINGS FOR SPECIAL EVENTS/MASS GATHERINGS ...................................3
Planning Team Identification.........................................................................................................3
Pre-Event Planning Matrix............................................................................................................4
Promoter/Sponsor(s)......................................................................................................................8
Relevant Laws or Regulations........................................................................................................8
Site................................................................................................................................................10
Criminal and Terrorist Risks .......................................................................................................11
Extremist or Single-Issue Groups ................................................................................................11
CHAPTER 2: RISKS AND HAZARDS ANALYSIS ......................................................................14
INTRODUCTION............................................................................................................................14
HAZARD ANALYSIS.....................................................................................................................14
Typical List of Risks and Hazards................................................................................................15
Potential Consequences ...............................................................................................................16
Steps in Hazard Analysis..............................................................................................................16

STRUCTURAL MATTERS ............................................................................................................18
Stages, Platforms, and other Performance Facilities ..................................................................18
Temporary Structures ..................................................................................................................20
Load Capacity ..............................................................................................................................20
Seating..........................................................................................................................................20

SPECTATOR MANAGEMENT AND CROWD CONTROL........................................................21
General Issues for Consideration ................................................................................................22

Special Events Contingency Planning ii

Table of Contents

Entrances and Exits .....................................................................................................................23
Ticketing.......................................................................................................................................24
Barriers ........................................................................................................................................24
Defusing Crowd Tension..............................................................................................................25
Restricted Viewing Locations.......................................................................................................26
Video Screens...............................................................................................................................26
Panics and Crazes........................................................................................................................26

TRAFFIC AND TRANSPORTATION .............................................................................................27
Signage and Use of the Media .....................................................................................................29
Traffic Monitoring........................................................................................................................29
Public Transportation ..................................................................................................................30
Towing and Disabled Vehicles.....................................................................................................30
Parking.........................................................................................................................................30

PUBLIC HEALTH...........................................................................................................................31
Pre-event Public Health Survey ...................................................................................................32
Public Health Contingency Arrangements...................................................................................32
Monitoring Health Risks ..............................................................................................................33
Health Promotion.........................................................................................................................38
Water............................................................................................................................................38
Solid and Liquid Waste Management ..........................................................................................41
Animals, Rodents, and Vegetation ...............................................................................................42
Swimming and Water Safety ........................................................................................................42
Infection Control and Personal Hygiene Concerns .....................................................................43
Post-event Public Health Survey..................................................................................................44

MEDICAL CARE ............................................................................................................................44
Medical Care Provision ...............................................................................................................45
Main Concerns in Planning Medical Care ..................................................................................45
Medical Teams .............................................................................................................................48
Mobile Teams...............................................................................................................................49
Medical Aid Posts ........................................................................................................................49
Site Hospital.................................................................................................................................49
Documentation .............................................................................................................................50
Ambulance Vehicles .....................................................................................................................50
Medical Equipment ......................................................................................................................51
Other Medical Considerations.....................................................................................................51
Toxicity Laboratory......................................................................................................................51

ENVIRONMENTAL CONCERNS .................................................................................................52
Weather ........................................................................................................................................52
Site Hazards .................................................................................................................................53
Environmental Impact Concerns/Maintaining Compliance ........................................................54

Special Events Contingency Planning iii

Table of Contents

AIRCRAFT ......................................................................................................................................54
SPONTANEOUS EVENTS OCCURRING AT PLANNED EVENTS ...........................................55
CAMPING .......................................................................................................................................55
HAZARDOUS MATERIALS (HAZMAT).....................................................................................55
Gas Cylinder Anchorage..............................................................................................................56
Propane Leakage .........................................................................................................................56
Ability of Public Sector to Respond .............................................................................................56

ELECTRICAL UTILITY COORDINATION REQUIREMENTS .................................................56
FIRE SAFETY .................................................................................................................................57
COMMUNICATIONS SYSTEMS ..................................................................................................57
Two-Way Communication............................................................................................................58
Attendees’ Personal Emergencies................................................................................................58
Event Public Address System .......................................................................................................58
Event Emergency Warning System...............................................................................................59

RUMOR CONTROL .......................................................................................................................59
OCCUPATIONAL HEALTH AND SAFETY ..................................................................................59
ALCOHOL, DRUGS, AND WEAPONS ..........................................................................................60
SECURITY ......................................................................................................................................61
Pre-event Briefing of Security Personnel.....................................................................................62
Deployment ..................................................................................................................................63
Peer Security ................................................................................................................................63
Private Uniformed Security .........................................................................................................64
Police ...........................................................................................................................................64
Dignitaries and Celebrity Guests.................................................................................................64

LOST CHILD AND “MEET ME" LOCATIONS .............................................................................65
INFORMATION CENTER .............................................................................................................65
SAMPLE EVENT SITE MAP .........................................................................................................66

CHAPTER 3: INCIDENT COMMAND AND CONTROL............................................................68
INTRODUCTION............................................................................................................................68
INCIDENT COMMAND SYSTEM (ICS) ......................................................................................68
ROLES AND EXPECTATIONS .....................................................................................................70
Incident Commander....................................................................................................................70
Command Safety Officer ..............................................................................................................71
Command Information Officer.....................................................................................................71
Command Liaison Officer............................................................................................................72

Special Events Contingency Planning iv

Table of Contents

Operations Section Chief .............................................................................................................73
Planning Section Chief.................................................................................................................73
Logistics Section Chief.................................................................................................................74
Finance/Administration Section Chief ....................................................................................................... 74

INCIDENTS OCCURRING DURING A SPECIAL EVENT .........................................................75
TRANSFER OF COMMAND ..........................................................................................................76
UNIFIED COMMAND....................................................................................................................76
Policies, Objectives, Strategies ....................................................................................................77
Organization ................................................................................................................................77
Resources .....................................................................................................................................77
Operations....................................................................................................................................77

UNIFIED COMMAND ORGANIZATION ....................................................................................78
A Single Integrated Incident Organization ..................................................................................78
Collocated Facilities ....................................................................................................................79
A Single Planning Process and IAP.............................................................................................79
Shared Planning, Logistics, Finance/Administration Sections....................................................80
Unified Command Resource Ordering.........................................................................................81
Functioning in Unified Command................................................................................................81
Public Safety Roles in Unified Command ....................................................................................83

FEDERAL AND STATE RESOURCES...........................................................................................84

CHAPTER 4: SPECIAL PLANNING FOR HIGH-RISK EVENTS.............................................86
INTRODUCTION............................................................................................................................86
POWER BOAT RACES AND SIMILAR AQUATIC EVENTS......................................................86
Medical Support for Participants ................................................................................................86
Spectator Areas ............................................................................................................................86

AUTOMOBILE AND SIMILAR RACES ........................................................................................87
Medical Support for Participants ................................................................................................87
Spectator Areas ............................................................................................................................88
Pit Areas.......................................................................................................................................89

AIR SHOWS AND DISPLAYS ........................................................................................................89
Acrobatic Areas............................................................................................................................90
Safety............................................................................................................................................90
Parachute Jumps..........................................................................................................................90

FIREWORKS/PYROTECHNICS....................................................................................................90
Placement of Launch Site.............................................................................................................90

Special Events Contingency Planning v

Table of Contents

LASERS ...........................................................................................................................................91
SPONTANEOUS EVENTS.............................................................................................................92
EVENTS INVOLVING PRE-TEEN AND EARLY TEEN AUDIENCES ......................................93

CHAPTER 5: TERRORISM AND CRIMINAL ACTIVITIES.....................................................96
INTRODUCTION............................................................................................................................96
CONTEMPORARY TERRORISM .................................................................................................96
DOMESTIC TERRORISM..............................................................................................................96
THREAT ASSESSMENT................................................................................................................99
VULNERABILITY ASSESSMENT ...............................................................................................99
STATE ROLES IN READINESS AND RESPONSE........................................................................97
HIGH PROFILE/CONTROVERSIAL EVENTS ..........................................................................100
FEDERAL ROLES AND RESPONSIBILITIES ............................................................................100
B-NICE WEAPONS OF MASS DESTRUCTION (WMD)........................................................101
BIOLOGICAL................................................................................................................................103
NUCLEAR .....................................................................................................................................103
INCENDIARY ...............................................................................................................................104
CHEMICAL ...................................................................................................................................106
EXPLOSIVES................................................................................................................................106
MITIGATING ACTIONS..............................................................................................................107

CHAPTER 6: POST-EVENT ACTION .........................................................................................109
INTRODUCTION..........................................................................................................................109
EVENT CRITIQUE MEETING ....................................................................................................109
AFTER-ACTION REPORT...........................................................................................................110

REFERENCES AND BIBLIOGRAPHY .......................................................................................111

GLOSSARY ......................................................................................................................................119

Special Events Contingency Planning vi

Preface

PREFACE
The purpose of this manual is the prevention of injury, suffering, or death that may occur as a
result of poor planning or preventable incidents at public events.

This manual is intended to provide guidance for the management of risks associated with
conducting events that involve mass gatherings of people and assist planners and organizers
in making such events safe and successful.

Details of the development of the manual and other related matters are noted in the
Background section of the Introduction. The manual was sponsored, edited, and published by
the Federal Emergency Management Agency (FEMA).

FEMA has prepared this manual for use anyone planning or conducting a special event or
mass gathering. This manual is intended to enable these people to become proactive in the
planning for public events to ensure that adequate measures and systems are in place to
prevent, reduce, and provide care for injuries, illness, and suffering which may occur.

Many people, in addition to health personnel, contribute significantly to the success of a
public event. Therefore, FEMA anticipates that this manual will be distributed to event
promoters, managers, public and private organizations, emergency service personnel,
government bodies, and any individual or organization that contributes to the planning of
events. Wide distribution is encouraged, providing individuals understand that the detailed
contents of the manual are directed principally at managing the health and safety aspects of
the event for all participants, officials, and spectators.

The manual is not intended to override any existing legislation or local emergency
management procedures. Further, it does not seek to address the preparation of emergency
response plans, but rather identifies the elements which should be considered by those
responsible for planning and conducting events which attract large numbers of people.

Local governments and emergency services should be approached for more detailed advice
on other aspects of planning and for the necessary permits and licenses required.

Special Events Contingency Planning vii

Introduction

INTRODUCTION

BACKGROUND
Throughout the United States, at any given time of year, there are festivals, concerts, fairs,
sporting events, and many other large and small events that gather or have the potential to
gather large crowds. Under normal conditions, these events go on with little or no problems.
However, when something goes wrong either as a result of a natural hazard or a man-made
hazard, then local emergency management becomes involved.

Multiple deaths and injuries at large public events have occurred consistently and over a wide
spectrum of countries and types of events. Certain, highly competitive sports events,
particularly soccer, and rock concerts and festivals tend to produce spectator-generated
incidents, while air shows and auto races tend to produce more participant-generated
occurrences.

In some instances, advanced assessment of, and pre-planning for, these events failed to
occur, or when it did, failed to identify the potential for disaster, or mitigating or coping
strategies for a major incident.

With this in mind, FEMA conducted a focus group workshop in which participants discussed
real pre-event planning problems for an upcoming event. The workshop focused on a number
of major areas, which, either singularly or collectively, have intensified the problems
inherent in mass crowd-intensive events. These issues included such aspects as physical
layouts, spectator management, public safety, public health, and medical care.

The workshop was not geared toward large, often national events (though the planning
principles still apply), but toward the more “routine” special events that communities host,
such as parades, fairs, concerts, and air shows.

The participants focused on the impact an event, a non-routine activity, would have on a
community’s resources. They placed emphasis not on the total number of people attending,
but rather on the community’s ability to respond to the exceptional demands that the activity
places on response services.

The purpose of having a pre-event plan in place is to reduce response times and better enable
agencies to improvise because they have discussed contingencies beforehand. A pre-event
plan defines roles and responsibilities in advance and creates ownership of potential
problems for agencies involved in the process.

This manual is designed for a wide audience, encompassing the range of personnel with a
role to play in the development of a special event plan. Participants include those who have a
general awareness of their own roles but do not have a previous detailed or extensive

Special Events Contingency Planning viii

Introduction

knowledge of special event planning. For example, the audience might include relatively new
emergency managers, personnel from emergency operations organizations such as police,
fire, medical services, and public works, and representatives from other community
organizations—both public and private—for whom special event planning is not a regular
responsibility.

SCOPE
The suggested guidelines in this manual have been developed from a number of sources, and
most are applicable to a wide range of mass public gatherings. These sources focused on
youth audiences attending large rock concerts and competitive sporting events because of the
difficulties and major incidents historically associated with such events. Many of the
guidelines derived from such experiences are applicable to a broad range of other events that
present their own challenges.

Certain types of events have an inherent capacity for special management problems. While
the general guidance given in this document remains applicable to these events, additional
guidance is given for high-risk events in “Chapter 4: Special Planning for High-Risk Events”
and for terrorist and criminal activities in “Chapter 5: Terrorism and Criminal Activities.”

In certain situations, such as visits by high-profile political figures or controversial activists,
intensive security arrangements are necessary. Such procedures are outside the scope of this
manual, and it would be inappropriate and counter-productive to provide details herein, given
the wide and unrestricted distribution of this document. When such events occur, event
planners must create liaison between emergency service personnel, health professionals, and
appropriate security personnel to ensure that they address health, safety and security issues
for the event.

SYNOPSIS
This manual covers a number of major areas, which either singularly of collectively, have
historically exacerbated the problems inherent in mass crowd-intensive events. These areas
include such aspects as physical layouts (including site, structures, and access), spectator
management (including crowd organization, flow, and ingress/egress control), and public
safety (including security, public health, and medical care).

Historically, advanced assessment of and pre-planning for an event failed to occur, or when it
did, failed to identify the potential for disaster or mitigating or coping strategies in the event
of a major incident.

Experience has proven that certain high-risk events, such as auto races and air shows, require
particular planning in addition to the more generally applicable guidelines. This manual
provides guidance for the particular planning of these high-risk events, as well as guidance to
plan for terrorist and criminal activities.

Special Events Contingency Planning ix

Introduction

FEMA recognizes that no two events or situations are identical. While this document
provides an approach to planning for and coping with special events, it does not provide
guidelines that are universally applicable or without need of modification to the specifics of a
particular event.

CHAPTER OVERVIEWS

Chapter 1 contains information concerning selection of the planning team, ordinances,
regulations, and laws, and information concerning selecting a site for the event.

Chapter 2 concerns the risks and hazards that must be considered when planning an event.

Chapter 3 gives a basic overview of the Incident Command System (ICS) and how to use ICS
in both the planning stage and when an incident occurs.

Chapter 4 discusses some of the considerations when hosting a specialty event that may be
high risk.

Chapter 5 addresses terrorism and how to respond to terrorist threats and actions.

Chapter 6 explains the demobilization process and the importance of an After Action Report.

In the appendix at the end of the manual there are several checklists and tables to assist in the
planning process.

Special Events Contingency Planning x

Acknowledgements

ACKNOWLEDGEMENTS
The following agencies are gratefully acknowledged for their input to this manual:

FEMA Emergency Management

FEMA National Fire Academy

Virginia Department of Health

New York State Police

City of Keene Police Department, New Hampshire

Sarasota Fire Department, Florida

Washington D. C. Fire and EMS Department

Miami-Dade Office of Emergency Management, Fire-Rescue Department, Florida

Cabin John Park Volunteer Fire Department, Maryland

Marion County Emergency Management, Indiana

Weber County Emergency Management, Utah

Washington D. C. Office of Emergency Preparedness

Utah Division of Comprehensive Emergency Management

Columbia South Carolina Public Works

American Public Works Association

Acknowledgment is also made of the manual Safe and Healthy Mass Gatherings: A Health,
Medical and Safety Planning Manual for Public Events, prepared by Emergency
Management Australia, and of the paper Emergency Preparedness Guidelines for Mass,
Crowd-Intensive Events, prepared for Emergency Preparedness Canada by James A. Hanna,
M. SC.

Special Events Contingency Planning xi

Chapter 1
Pre-Event Planning

Special Events Contingency Planning 1

Pre-Event Planning

CHAPTER 1: PRE-EVENT PLANNING

INTRODUCTION

Planning any event is difficult. Planning for the potential risks and hazards associated with an
event is even more difficult but essential to the event’s success. If you want those who attend
an event to have positive memories of it, you need to keep several things in mind. This
chapter covers the issues that you should address in the very early stages of planning or even
when you are discussing promoting or sponsoring such an event. Before you schedule the
event, you should consider the scope of the event or mass gathering, the risks to spectators
and participants, community impact, and the emergency support required (personnel and
logistics). You should also identify the lead agency and members of the planning team.

DEFINITION OF SPECIAL EVENT AND MASS GATHERING

What does or does not constitute a special event or mass gathering is difficult to determine.
Instead, guidelines may be used to define it.

A focus group discussing special events and mass gatherings has identified a special event as

a non-routine activity within a community that brings together a large number
of people. Emphasis is not placed on the total number of people attending but
rather on the community’s ability to respond to a large-scale emergency or
disaster or the exceptional demands that the activity places on response
services. A community’s special event requires additional planning,
preparedness, and mitigation efforts of local emergency response and public
safety agencies.

The focus group then defined a mass gathering as a subset of a special event. Mass
gatherings are usually found at special events that attract large numbers of spectators or
participants. Both special events and mass gatherings require the kind of additional planning
identified in the previous quote. For example, an amusement park that attracts a large number
of people is not considered a special event because large crowds are expected. A mass
gathering does not imply that the event is a special event. Failure to prepare for all
contingencies can lead to disastrous consequences.

This manual is not intended to offer preparation planning for large national events, but for the
more traditional community events, such as parades, fairs, concerts, and air shows, and
festivals. However, both types of events require the same kind of careful planning.


Pre-Event Planning

The title of this manual is Special Events Contingency Planning. What do we mean by
contingency planning and where do we start? What distinguishes this level of planning from
traditional public safety planning?

The first concern with contingency planning is to identify times when the event may place
strains on the existing public safety agencies. Even in the earliest stages of planning, you
should begin also to make contingency plans. These plans should consider licensing and
regulations, emergency response issues, identifying persons responsible for particular types
of hazards and risks, resources and expenses, and jurisdictions. Planning ahead reduces stress
for organizers and promoters during the event, should an incident occur which requires
public agencies to work together.

During the initial planning stages, each agency should review resources to ensure all
necessary equipment is available. If the agencies determine any additional equipment is
needed then they may acquire the equipment or supplies and be ready for the event. One way
for communities to acquire equipment is to work together or pool equipment.

One way agencies work together is by adopting a program known as local mutual aid. This
program allows neighboring communities to pool resources and share liability for damages or
loss of equipment. If one community needs a particular piece of equipment, they may borrow
it from a neighboring community. It will become an asset of the borrowing community and
covered under their insurance until it is released and returns to its home organization. It is
important that those involved in planning the event know the agreements established between
neighboring communities and the assets available to assist in responding to any unforeseen
incidents.

PLANNING MEETINGS FOR SPECIAL EVENTS/MASS GATHERINGS

Planning Team Identification
In general, planning a special event or mass gathering should begin well in advance of the
event. One of the first steps to planning an event is to bring together those who are hosting
the event with those responsible for the public safety within the community. A
multidisciplinary planning team or committee should be comprised of the promoter or
sponsor and any agency that holds a functional stake in the event (e.g., emergency
management, law enforcement, fire and rescue, public works/utilities, health inspection, etc.).
With all these agencies present, a risk of confusion in matters of leadership is obvious. We
discuss the nature of this risk in Chapter 3: Incident Command and Control. Thus, the lead
agency should be identified early on. In some communities, the lead agency for public safety
planning is the emergency management agency. Consequently, emergency management
should typically lead the way in coordinating the event planning effort.

Some communities already have planning protocols or systems in place. If your community
has an existing plan that has already proved successful, do not start from scratch; simply
change or modify the plan where needed. The incident command system (ICS) is a


Pre-Event Planning

management system frequently used to effectively manage large events. As such, event
planners should consider using ICS throughout the planning process. It seems logical that the
“Incident Commander” be a representative of the lead agency. It also seems logical this
representative lead the planning team or committee.

All involved agencies need to participate on this Planning Team from the outset in order to
ensure a successful and safe event. At its initial meeting, the Planning Team should develop
its mission, objectives, and determine the necessary components of the public safety plan.
For example, what elements are within the realm of the promoter and what are within the
realm of the public safety agencies? The Planning Team should also develop its structure
using ICS as a model (that is, section chiefs, and/or subcommittees, as needed). Additionally,
the Planning Team should consider the promoter’s or sponsoring organization’s purpose and
experience, risks (including crowd, staffing, food and shelter, parking, transportation,
medical facilities), previous event concerns, relevant local concerns, weather, and community
impact.

Pre-event planning matrix
At subsequent meetings, the Planning Team should identify all of the major functions and
responsibilities required by the event and assign appropriate agencies to manage each
function or responsibility. Since responsibilities vary from jurisdiction to jurisdiction, it is
most effective to assign responsibilities consistently to avoid duplication and promote
efficient response to problems that may arise. The pre-event planning matrix (below) is
designed for you to choose the risks, hazards, or functions that are likely to be required by an
event, and assign each to a primary agency (P) or a secondary or support agency (S). The
functions and responsibility assignments must be discussed and decided in the planning
stages, not when an incident occurs. Additional room is provided in the matrix to add
agencies or risks/functions as they may apply.


Pre-Event Planning

PRE-EVENT PLANNING MATRIX
Since responsibilities vary from jurisdiction to jurisdiction, certain risks or hazards are not
consistently handled by one agency. This matrix is designed for you to chose the risks and
hazards your agency is accountable for handling and then go to the corresponding page in the
Job Aid manual. If more than one agency is tasked to respond to the risk or hazard, some
overlap of responsibility may occur. One way to handle this is to place a number 1 in the
primary agency position and a number 2 in the agency that provides support’s position. The
responsibilities of each agency must be discussed and decided in the planning stages, not
when an incident occurs. Additional room is provided in the matrix to add agencies or risks
as they may apply.
County Agency

State Agency
Public Health

Public Works
Management

Enforcement

U.S. Secret
Emergency

Service
Utilities
EMS

FAA

Law
Fire
FBI

Abandoned Vehicles
(p. 23)
Airspace
Encroachment (p. 47)
Assault on County
Official (p. 58)
Assault on Federal
Official (p. 58)
Assault on State
Official (p. 58)
Bomb Found (p. 101)

Bomb Threat (p.101)

Building Inspection
(p 12)
Cancellation of Event
(p. 63)
Civil Disturbance w/
Demonstration (p.15)
Communications
(p. 51)
Credentials


Pre-Event Planning

County Agency

State Agency
Public Health

Public Works
Management

Enforcement

U.S. Secret
Emergency

Service
Utilities
EMS

FAA

Law
Fire
FBI
Crowd Control (p. 15)

Demonstrations
(p. 48)
Dignitary Protection
(p. 58)
EMS (p. 44)

Environmental
Hazards (p. 45)
Evacuation of Area

Fire (p. 50)

First Aid Stations
(p. 42)
Food Handling (p. 28)

Food Waste (p. 34)

HazMat (p. 49)

Hostage w/o Terrorism

Human Waste (p. 34)

Kidnapping

Lost Child (p. 59)

Lost and Found (p. 56)

Media Relations (p 22)

Motorcades

Parking (p. 24)

Permitting (p. 5)


Pre-Event Planning

County Agency

State Agency
Public Health

Public Works
Management

Enforcement

U.S. Secret
Emergency

Service
Utilities
EMS

FAA

Law
Fire
FBI
Potable Water (p. 31)

Power Interruption

Security/Governor
(p. 58)
Security/State
Department
Security (p. 55)

Structural Collapse
(p. 12)
Terrorist act (p. 95)

Terrorist Threat (p. 95)

Ticketing (p. 18)

Traffic Control (p. 21)

Weapons of Mass
Destruction (p. 98)
Weather Hazards
(p. 45)


Pre-Event Planning

Promoter/Sponsor(s)

The promoter or sponsor must be involved in all phases of planning to ensure a successful
event. Often the promoter is interested in monetary gain more than he or she is interested in
public safety. If this appears to be his or her primary goal, local agency participation is
essential. You may encourage the promoter to cooperate by linking attendance at planning
meetings with the permit process and issuance. For example, the permit to host the event may
require the promoter’s presence at the initial planning meeting. Teamwork promotes
successful events.

One way to ensure public safety at an event is to follow relevant laws or regulations of the
community. Following these laws and regulations ensures that the promoter will keep the
public’s safety at the forefront of all plans. Some communities or states have public agency
regulatory oversight of the promoter built into the permit process. For example, the
community may have a requirement for the promoter to have adequate contingency plans in
place before approving an event.

Relevant Laws or Regulations
Event promoters must usually gain approval from local and sometimes even state, authorities
to hold public events. The following information should be available to the promoters before
beginning the permit-approval process:

• Identity of the approving authority and any other authorities actively involved in the
approval process;
• Relevant statutes, ordinances, codes, and standards existing for mass gatherings;
• Documentation required to support their application; and
• Relevant deadlines for the filing of applications.

Some communities offer a “One Stop Shopping” concept for permitting. The person
requesting an event completes applications at one place and the information is forwarded to
the appropriate agencies for their approval. The person requesting the event does not have to
track down the appropriate agencies to make a request. This also ensures all required
agencies are notified and considerations are made before the permit is issued.

Promoters should be aware of the approving authority’s timetable for approving events and
issuing permits and should include any potential delay in the event planning schedule.

As a condition of granting approval, promoters may be required to provide feedback on the
approval process and submit an evaluation before, during, and after the event, as needed.
Promoters may be required to give feedback in the form of a debrief or a report to relevant
authorities.


Pre-Event Planning

Legal Issues
Some form of legislation usually governs or restricts public events or aspects of them. Some
events, particularly extremely large or high-impact events, require special state or local
legislation. Local ordinances provide health and medical guidelines.

Promoters should consider obtaining legal advice early in the planning stage. Items that
warrant consideration include:
• Liability for injuries;
• Liability for acts or omissions;
• Liability for financial obligations incurred in responding to major emergencies
occasioned by the event; and
• Potential liability for the resultant effects of the event on normal emergency operations.

Permits will be required for parades, the sale and consumption of alcohol, and the sale of
food items. Fire safety inspections are also required. Permission may also be required if it
will be necessary to close certain adjacent or peripheral roads or streets. A permit may be
required for the mass gathering itself.

Most public sector agencies have adopted a “User Pays” policy for services provided at
sporting and entertainment events. The purpose of this policy is to improve the allocation of
statute resources in the general community by providing a means of charging for services
deployed to plan for, and respond to, sporting and entertainment events. Event promoters
should consult local and state authorities to determine relevant fee structures and charges for
services provided, including payment of overtime costs for personnel.

Promoters may be required to post a bond or provide liability insurance to cover the costs of
response to emergencies, subsequent venue clean up, traffic and crowd control, and other
policing functions.

The head of the planning team must monitor progress made in satisfying all legal
requirements throughout the planning stage of the event.

Political Issues
Often communities have to deal with local political considerations when they plan events. No
specific advice can be given to the promoter except to warn him or her that political
considerations are always important to the local community. Often a way to encourage
elected political officials to support an event is to show the monetary or quality-of-life impact
a successful event would have on their communities or careers. Explaining the positive
impact encourages them to support the public safety coordinators by providing adequate local
resources and funding.


Pre-Event Planning

EVENT CANCELLATION OR POSTPONEMENT

From time to time, you may need to cancel, postpone, or interrupt an event. If a crowd has
already gathered, these actions have the potential to create dangerous crowd reactions. Have
plans in place to appropriately manage an angry crowd and to address the possible
readmission of patrons to the venue.

One major area to consider is authority to cancel or postpone an event. During the planning
phase, the promoter and the planning team must discuss who has the authority to cancel or
postpone an event as well as when and under what conditions the event can be postponed or
cancelled. These decisions must be made before the event begins, and everyone must know
who has authority. ICS is an excellent command system to ensure chain of command and
proper approving authority.

Site
You may need to consider a number of alternative venues for an event. Emergency managers
may be able to recommend appropriate venues based on health and safety considerations.

Finding a suitable venue or set of venues can be difficult. Answering the following questions
during the planning stage can aid in the selection of an appropriate event site:

• Will staging the event require multiple venues?
• Is this kind of event normally conducted at a fixed facility?
• Will a fixed facility be used in ways that may not be considered normal for that facility?
• Is the event regularly conducted at a temporary venue?
• Is the event a “one of a kind” project at a temporary venue?
• What services/utilities are available at the venue?
• What additional services and utilities will be required at the venue?
• Is there a need for backup services or utilities?
• What shelter facilities are available at the following locations:

− Transport pick-up and drop off areas,
− Spectator and official viewing areas,
− Seated eating areas,
− Pedestrian thoroughfares,
− First aid and medical centers, and
− Competitor and officials marshaling areas?

• What is the duration of the event, and will it continue during the hours of darkness?
• Have you provided for the needs of people with disabilities?
• Does the date of the event conflict with other events to be conducted in the area?
• Will seasonal weather require any special contingency planning?
• Have you surveyed the proposed site (particularly outdoor sites) for inherent hazards
associated with location, and have any been identified? Do utility lines that could be


Pre-Event Planning

brought down by a severe storm traverse the sight? Is the site adjacent to a waterway
prone to flooding?
• Is the site layout such that, in the event of a mass casualty incident, space is available for
an onsite triage area to permit stabilizing medical treatment before critical patients are
transported to local health care facilities? Is such an area accessible to ambulances to
eliminate the need for carrying patients long distances?
• Does the site allow for adequate crowd regulation by means of, for example, existing
regimented seating areas or flow barriers?
• Are spectator overflow areas available to prevent crowd crush should spectator turnout
significantly exceed expectations, a common phenomenon at rock concerts?
• In an urban setting, as is characteristic of a stadium venue, could the adjacent streets on
all sides be closed to other than emergency, service, and resident vehicles, creating a
perimeter for access as well as a buffer zone?

Criminal and Terrorist Risks
Each city leader must view his or her community as a target for acts of terrorism and crime.
The threat is increasing daily. Often, the more unprotected sites become targets because of
their accessibility. For example, terrorists attacked the Federal Building in Oklahoma City
because it was vulnerable. Small communities may actually be attractive sites for terrorists
because the residents believe they are not at risk and so do not prepare themselves. However,
small communities can take steps to prepare for the same risks all communities face.

Prepare public safety personnel to protect themselves. In Tokyo, during the gassing incident
in the subway system, responders became ill as a result of their efforts to rescue the original
victims. Teach your community’s public safety personnel to protect themselves as they help
others.

Some events may appeal to terrorists for a number of reasons, including an anniversary date,
a particular location, the nature of the event, or those who will be included among the
participants. Communities can identify terrorist organizations that may be attracted to their
event for any number of reasons and can prepare accordingly. Knowledge is an advantage.
Know the possible risks the event poses and the audience such an event will attract. Ensure
that your public safety teams are prepared and have practiced their response to terrorism, and
suspected terrorism, and that they understand how to mitigate any potential terrorist
incidents.

When safety and security professionals formulate contingency plans for potential terrorist
incidents, they should work together with state or federal law enforcement intelligence units.
Local law enforcement professionals should consult the FBI and state law enforcement
intelligence specialists.

Extremist or Single-Issue Groups
If organizers anticipate that a mass gathering or special event will attract the attention of
organized groups, they should meet, if possible, with the leaders of these groups in advance.
The organizers and group leaders can discuss ground rules of acceptable behaviors and the


Pre-Event Planning

anticipated public safety response to criminal or disruptive behavior by local law
enforcement. Building rapport by gaining a mutual understanding of what to expect can
decrease the likelihood of disruptive behavior, or at least ensure that everyone knows what
will and will not be tolerated.


Chapter 2
Risks and Hazards
Analysis


Risks and Hazards Analysis

CHAPTER 2: RISKS AND HAZARDS ANALYSIS

INTRODUCTION

While planning an event, it is important to consider every possible risk and hazard that may
occur. This chapter covers most of the basic risks found at an event. The responsibilities for
these risks vary with each jurisdiction, and every community needs to have a plan listing who
or what organization will respond to the anticipated risks or hazards. Knowing the risks
ahead of time and planning for those risks are essential to successful planning. Planning for
the worst may help reduce the chance of “worst-case scenario” happening. If the responding
agency knows the risks ahead of time and is alert, it can reduce its response time, ensuring
the safety and security of those in attendance. Risks vary depending upon the type of event;
therefore, event organizers must tailor planning for each risk to the specific event.

The promoter is one source of information on potential risks faced at the event. The promoter
should be aware of the support services needed to respond to any incident and the availability
of those services in the community. If event organizers know the possible risks an event
poses and the nature of the audience likely to attend the event, they can analyze the hazards
and take necessary steps in planning a safe event.

HAZARD ANALYSIS

Hazard analysis provides planners with information about the kind of emergencies that may
occur and potential consequences. Analysis assists planners in deciding what steps to take to
prevent the possible hazard and how to respond if an incident occurs.

The best way to begin a hazard analysis is to list the possible risks present at the event. Every
community’s list will differ based on topographical and geographical features, weather
patterns, and other factors. (Tsunami, for example, would not be identified as a hazard in an
area that is far from a coastline.) Identifying hazards also includes considering the possibility
of a secondary hazard (for example, a tornado may lead to power failure, loss of water, and
other hazards).

The following table includes some of the more obvious risks and possible hazards that may
occur. Being prepared for the worst allows planners to have responders and supplies on hand
if a hazard does occur.



Typical List of Risks and Hazards
Abandoned vehicles Hazardous material release
Airplane crash Hurricane
Airspace encroachment Kidnapping
Assault on county official Landslide
Assault on federal official Loss of utilities (water, sewer, telephone)
Assault on state official Lost child
Avalanche Lost and found
Bomb threat Media relations
Bomb found Motorcades
Building inspection Mudslides
Cancellation of event Parking
Civil disturbance with demonstrations Permitting
Communications Power failure (sustained)
Credentials Radiological release
Crowd control Security
Dam failure Structural collapse
Demonstrations Subsidence
Dignitary protection Terrorism
Drought Ticketing
Earthquake Tornado
Epidemic or other public health concern Traffic control
Evacuation of area Train derailment
Fire Tsunami
First aid matters Urban conflagration
Flood Volcanic eruption
Food handling violations Weapons of Mass Destruction
Food waste disposal problems Wildfire
HazMat Winter storm
Hostage without terrorism
Human waste disposal problems



Event planners must identify characteristics of each possible hazard to determine the risk and
consequences. Characteristics to identify are:

• Frequency of occurrence—the frequency of occurrence (both historical and predicted) for
each hazard in the particular jurisdiction;
• Magnitude and intensity—the projected severity of the hazard’s occurrence;
• Location—the location of the hazard, if the hazard is associated with a facility or
landscape feature;
• Spatial extent—the geographic area expected to suffer the impact of the hazard (either
around the known location of a hazard or as an estimate for non-localized hazards such as
tornadoes);
• Duration—the length of time the hazard may be expected to last;
• Seasonal pattern—times of the year when the hazard threat exists (based on month-by-
month historical occurrence); and
• Speed of onset and availability of warning—the amount of time projected between first
warning (if any) and actual occurrence.

Potential Consequences
To determine potential consequences of a hazard, estimate the lives, property, and services at
risk. Evaluate the extent of the hazard by closely examining your community in terms of:

• People (deaths, injuries, and displacement),
• Critical facilities (days of service loss, repair time),
• Community functions (disruption),
• Property (damage, destruction, cost of replacement or repair), and
• Potential secondary hazards (dams, chemical processing plants).

When evaluating hazards, remember that hazards may occur in multiples and that one hazard
may cause a secondary hazard.

Steps in Hazard Analysis
1. Identify the Hazards
Determine what kinds of emergencies have occurred or could occur in the jurisdiction.

2. Profile Hazards and Their Potential Consequences
Compile historical and predictive information on each of the hazards and overlay this
information on community data to estimate the hazard’s potential impact on the
community.

3. Weigh and Compare the Risks
Determine the relative threat posed by the identified hazards, using qualitative and
quantitative ratings. This information enables the planners to decide which hazards merit
special attention in planning and other emergency management efforts.



4. Create and Apply Scenarios
For the top-ranked hazards (or those that rate above a certain threshold), develop
scenarios that raise the hazard’s development to the level of an emergency. This is a
brainstorming activity that tracks the hazard from initial warning (if any) to its impact on
a specific part of the jurisdiction and its generation of specific consequences.
Brainstorming provides information about what actions and resources might be required
for response.

After you identify hazards and assess risks, you should order the risks by priority and
develop strategies to deal with each hazard.

CONTINGENCY PLANS

Unfortunately, not every event runs smoothly. Often, incidents occur that are beyond the
control of the planning team. Therefore, contingency plans for every event should be in
place.

An emergency response plan requires a comprehensive hazard and vulnerability analysis.
Consultation among all parties who may respond to an emergency situation during the event
is essential.

Some important questions related to Incident Command System planning include:

• What weather conditions may require cancellation of the event?
• What weather conditions will postpone the event?
• How will storm warnings be monitored?
• What plans are in place for sudden, severe weather conditions, such as tornadoes? Will
shelters be available?
• Who has the authority to make these decisions, and at what point do they exercise that
authority?
• How is notification made of a cancellation or postponement?
• Are additional security personnel, including police, on standby or on call should an
immediate increase in these services be required?
• Have you advised ambulance services and local hospitals of the nature of the event,
provided an expected spectator profile, and estimated potential medical problems?
• Have you notified fire and rescue services of the nature of the event and identified the
services that might be required?
• Have you identified the types of heavy equipment that could be required in a catastrophe
(for example, a grandstand collapse)? Have you made plans to obtain that equipment at
any time, including off-business hours?
• Have you advised counseling services of the nature of the event and identified the
services that might be required?



• If the event is particularly dangerous, and deaths are a real possibility (for example, at
automobile or power boat races or air shows), have you formulated plans to support any
required coroner’s investigation?
• In order to permit responders to precisely identify the location of an emergency quickly,
address the following questions:

− Will a grid-type venue plan be available, which is common to all emergency
services, including access roads, pathways, major landmarks, spectator, performer
and vendor areas?
− Will vendor locations or booths be numbered and be included on the venue plan?

STRUCTURAL MATTERS

An area of great concern is the physical set up of the event. Planners need to consider what
performance facilities are needed, what special structures are needed for indoor or outdoor
events, and whether temporary structures can be used. These are just a few primary concerns.

Stages, Platforms, and other Performance Facilities
When setting up an event, stages, platforms, and the other performance facilities are an area
of major safety consideration. The type of event and its site affect the choice of performance
equipment and its stability requirements. Qualified inspectors should perform some type of
inspection to ensure the structure is appropriate for the event and that the structure is safe.

The expected behavior of the crowd is one of the principal factors determining stage
configuration. While classical music and ballet performances usually attract a mature and
orderly audience, teenage and pre-teen fans at rock concerts have been known to storm the
stage in order to touch their idols. Such incidents, apart from being disruptive, have caused
injuries. Therefore, event planners should understand the emotional and physical character of
the audience that a particular performance will attract.

There are three principal ways to gather information about the anticipated crowd:

• Review press reports and contact local public safety officials who were present at
previous performances;
• Speak with spectators who have attended adolescent entertainment events such as rock
concerts (in the past, spectators have provided valuable insights into what behavior
authorities might expect from audiences for different entertainers); and
• Check with the promoter to determine audience behavior at past events and the type of
crowd and their behavior that can be expected.

Stages are usually elevated to provide the audience a better view of the performance,
especially for spectators who are farther back. This elevation is itself a barrier to those who
would rush the stage in an attempt to touch a performer. In addition, this increased height can



create an area free of spectators at the base of the stage because the audience will position
themselves back from the stage so that their line of sight is not impeded.

At some venues first aid personnel are located under the stage to accept injuries occasioned
at the front of the spectator area. However, a stage or a platform alone is usually insufficient
to deter determined and agile spectators, and an additional physical barrier is needed in front
of the stage.

Indoor Events
During concerts held indoors, an effective practice is to erect a “V” shaped barrier in front of
the stage to deflect patrons away from the stage area should any surge come from behind.
The “V” shape also provides an additional barrier to prevent spectators from reaching the
stage. Security staff can position themselves in this spectator-free zone or should be able to
gain access to it quickly from either end of the stage.

Barrier posts must be securely anchored to the floor, not merely mounted to freestanding
bases. They should also have some padded protection. Such a fence construction is usually
engineered to provide a certain amount of “give” upon impact, thus reducing the potential for
crush injuries as occasioned in the 2000 Denmark, Pearl Jam concert tragedy.

Outdoor Events
Board fences similar to the “V” shaped barrier described for indoor concerts can be used in
an outdoor setting. Board fences have the added benefit of providing a walk space on the
spectator side of the fence as well as behind it. Because most outdoor concerts do not provide
seating, spectators in the front rows seated on the ground have to take a position several
yards back from the fence to permit them to see the stage over the top of the fence. This area
permits emergency access to the front rows of spectators.

Any stage protection barrier must be designed to sustain a certain amount of flex in order to
prevent the crushing of spectators in the front by a crowd surge from behind. At the same
time, it must be sufficiently solid so that it will not collapse and cause injuries. Fences
installed as stage barriers often fail to meet this two-fold requirement.

Break-Away Stage Skirts
The front skirt around the base of a stage can be constructed to break away under the
pressure of a crowd surge, thus allowing spectators to be pushed under the stage rather than
be crushed against its base. However, this idea is not practical where there is less than six
feet clearance beneath the stage because of the potential for head injuries should a spectator
collide with the leading edge of the stage.



It should be stressed that use of a breakaway stage skirt does not remove the requirement for
a barrier in front of the stage and should be considered only as additional security if barriers
fail.

Temporary Structures
Due to their transitory nature, many events require easily constructed temporary structures.
These include the stage platform itself, as well as towers to house speakers and floodlights,
temporary seating such as bleachers, dance platforms, roofs, towers and masts, viewing
platforms, marquees and large tents, and decorative items such as archways, overhead signs,
and even sideshows.

All such temporary structures must be designed and erected to include a margin for
safety and a view to potential hazards. A local government building-codes inspector
should supervise the erection of temporary structures and ensure that they conform to
local government building or engineering specifications.

Temporary structures are often hurriedly erected since access to the venue may be permitted
only a short time before the event opens and they are usually designed for rapid removal at
the conclusion of the event. In addition, these temporary structures are frequently neither
designed nor erected to withstand stresses other than from intended use and are therefore not
engineered to incorporate safety features. High winds or spectators climbing for a better
vantagepoint can overstress these structures. A number of accidents have occurred in the past
when such poorly designed or constructed structures are stressed in these ways.

Personnel should inspect temporary structures periodically during events of long duration.
They should post warnings on or close temporary structure whose intended purpose is being
violated.

Load Capacity
All structures have load capacities, and precautions should be in place to prevent misuse
through overloading. Any viewing platform or vantagepoint, such as a building verandah or
balcony, can cause a major incident if the number of spectators upon these structures is not
properly controlled.

The bases of temporary structures must be protected from damage by vehicular traffic
through the use of designated buffer zones.

Seating
Ideally, all seating should be reserved; however, this desire may be difficult to achieve at
outdoor events.

If most of the spectators are 16 years old or younger, provide seating to control surges and
crushing at the front of the stage. A security presence to ensure that audience members do not
stand on seats is also recommended. Seating should be adequately anchored to prevent its
movement.



Another area of concern is the spacing of the seats. The seating should be spaced far enough
apart to allow emergency crews access to patients. Often grouping the seats and providing
large walkways between the groups is a way to do this.

Temporary Seating and Anchorage
Seating in a community center, arena, or similar indoor location often combines fixed
perimeter seating with additional foldable or stackable seating on the central floor.

Temporary seats are often not secured to the floor or to one another. While this may not
present any problems with ordinary audiences, more enthusiastic spectators may pose the
following problems:

• Persons standing on the seats for a better view are prone to injury because they may lose
their balance or are jostled. In such instances, they can adversely affect other spectators,
sometimes causing a “domino effect” in closely spaced chairs. The potential for a
significant number of injuries exists; and
• If an audience becomes hostile, portable chairs can be used as dangerous missiles. It is
not uncommon for hostile fans to become aggressive and throw items. Seats not anchored
become dangerous projectiles.

Portable, folding, or stacking chairs should be secured to the floor. Where this is not possible,
attach the legs of each row of chairs to two long planks, one running under the front pairs of
legs and one running under the back, as an alternative solution.

SPECTATOR MANAGEMENT AND CROWD CONTROL

We have shown the hazards associated with structural design and integrity, but what about
the dangers created by the participants themselves? The aim of spectator management and
crowd control is to maintain order, prevent deviation from desired behavior, and re-establish
order should it break down, thereby ensuring maximum enjoyment for the assembled
gathering. Event organizers are responsible for spectator management and crowd control;
however, this function passes to local authorities, such as police, fire, and emergency medical
services, when the situation is beyond the resources and capability of the organizers.
Knowing what to expect can lessen risks and hazards from the crowd itself. Event organizers
must have an intelligence plan in place before the event happens.

Spectator management refers to planning and preparation issues, such as ticket sales and
collection, ushering, seating, parking, public announcements, toilets, and washrooms.

Crowd control refers to mechanisms used to re-instate order, such as limited access control,
admission control, and arrests.



A crowd is defined as any number of people coming together in any place for any reason.
Crowds gather daily in shopping centers, airport, and stadiums and occasionally in places not
designed specifically for large numbers of people.

In the planning process for a forthcoming event, organizers must have an understanding of
both individual and crowd dynamics and how these elements interrelate. We offer an
incomplete guide to crowd control problems that organizers most frequently encounter. The
issues need expansion for each crowd and venue. You may find additional information on
crowd control in other literature and press reports; from the promoter; private security
organizations; police, fire, and emergency medical authorities; and, for visiting dignitaries,
from personal security services and government agencies. All this information will assist in
predicting potential problems that you can then address in the planning process.

General Issues for Consideration
Major crowd issues you should address include:

• Size - Maximum numbers permitted are often established by regulation for safety
reasons;
• Demographics - Consider the composition of the audience, including age and gender mix.
If you identify in advance that young children will constitute a high proportion of the
audience, consider additional facilities, such as childcare, family bathrooms, and rental
strollers. Audiences made up of young children or elderly people tend to require
additional medical facilities, and children and the elderly are more susceptible to crush
injury than teens or adults.

Different kinds of events may attract certain types of spectators that require special
attention. Consider the following:

− Rock concerts may experience a higher incidence of problems with drug and alcohol
abuse, underage drinking, and possession of weapons than other concerts.
− Religious and “faith healing” events may attract a significant number of ill and infirm
people, which may increase the need for onsite medical care.
− Events for senior citizens may also require higher levels of health services.
− Certain sports events may attract over-reactive and violent supporters.
− Cultural events may require special arrangements, including the provision of
interpreter services, special food services, and multilingual signposting, brochures,
and announcements.

• Types - See Crowd Types in the appendix page 5;
• Catalysts - See Crowd Catalysts in the appendix page 7;
• Behavior - See Notes on human Behavior in the appendix page 1
• Densities - See Critical Crowd Densities in the appendix page 8;
• Metering - Control procedures used to prevent critical crowd densities from developing in
specific areas, especially useful in managing potential "bottlenecks;"



• Throughput Capacities - See Crowd Throughput Capacities in the appendix;
• Outdoor Concerts - additional considerations:

− Control and distribution of spectators in the field,
− Suggested minimum space allocation of 4 - 5 square feet per person on grounds with
no seats, and
− Some form of sectoring and barrier management by security is important.

Entrances and Exits
Important considerations for the entry and exit of spectators include:

Entrances
The primary function of entrances is to provide:

• For supervision, marshaling and directing crowds,
• Access for emergency services, and
• Egress and evacuation routes.

Entrances should also:

• Be clearly signposted,
• Be in working order,
• Provide access for wheelchairs, and
• Provide separation of pedestrian and vehicular traffic.

Entrance Management— Event organizers should:

• Permit flexible opening and closing times. (However, advertised times are
recommended.);
• Stagger entry times by providing supporting activities;
• Keep entrances clear of all other activities;
• Keep lines away from entrances;
• Ensure there are sufficient numbers of suitable barriers, fences, gates and turnstiles;
• Locate ticket sales and pick-up points in line with, but separate from entrances;
• Arrange to have a public address system or alternative communications system to provide
information and entertainment to the crowd waiting at the entrance;
• Provide sufficient numbers of personnel who are appropriately trained;
• Ensure that control points for searches to detect prohibited items, such as alcohol, social
drugs, glass, metal containers and weapons, are in place and do not affect movement;
• Provide a secure area for the storage of confiscated goods;
• Provide toilets, if lines are expected to be long; and
• Apply metering techniques as appropriate.



Exit Management —Event organizers should:

• Ensure that exit doors are not locked. If personnel are concerned about illegal entry, then
doors could be fitted with alarms.
• Ensure exit doors open in the direction of escape and are confirmed as operational;
• Check placement, function, and signposting of exits;
• Ensure that doors that do not lead to an exit are so marked, preventing “dead end”
entrapment and the potential for panic;
• Ensure that all exit corridors are free of all impediments to crowd movement;
• Ensure that turnstiles are freewheeling or can operate in reverse; and
• Ensure that cables, which can create trip hazards, do not cross exit corridors. (If this
precaution is unavoidable, the cord should be marked, insulated, and secured to the floor
to prevent damage and potential electrical risks.)

Escalator Management — Event organizers should provide for:

• Staff control at top and bottom, including an emergency stop button, and
• Metering of flow at both ends.

Stairway/Corridor Management — Event organizers should provide for:

• Control of both ends if the crowd is large, and
• Metering that may be required for safety.

Ticketing
Ticketing is the first means of achieving crowd control. Essential matters to address include
the following:

• If advanced ticketing is possible, it is preferred since it allows organizers to anticipate
audience numbers and plan accordingly. It also enables them to pass on information
about needed services (for example, parking, traffic patterns, first aid, water sources,
toilets, and personal needs) to ticket-holders before the event.
• When multiple entrances to the venue are provided, directing spectators to arrive via
specific entrances can reduce congestion.
• If it is feasible, stagger crowd arrival by specifying entry times. Again, this plan reduces
congestion at entrances.

Barriers
Effective use of barriers can prevent many problems, including congestion in thoroughfares
and walkways. Questions you should consider in the planning phase include the following:

• What types of barriers are required? Is a solid physical barrier required, or would a
psychological barrier, such as barrier tape, suffice? The use of psychological barriers is



suitable only for orderly crowds. Any physical barrier must be able to withstand crowd
surges.
• How will personnel respond if the barrier is breached?
• Can barriers be used to section the crowd and create passages for emergency personnel to
evacuate ill or injured spectators?
• Will barriers be used to create a “pit” between the crowd and the stage, which can be
used to facilitate the evacuation of injured spectators?
• Can barriers be easily dismantled by crowd and used for other purposes?

Defusing Crowd Tension
The tedium that is created by an extended wait in line for tickets or admission can be a
precursor for crowd control problems. Such boredom can create or magnify tempers,
particularly if, with little distraction, those in line perceive other doors being opened first or
other patrons getting in at the head of the line.

The following means of defusing anger have been used with success in different venues:

• Up-tempo music (of a type consistent with the age group of the crowd) played over the
public address system;
• Humorous, animal-costumed individual, such as a mascot, walking up and down the line
giving handshakes, pats, and waves;
• Large inflated beach ball, which is lobbed back and forth over, and by, the spectators;
• Food and beverage sellers moving through the group; or
• Cheerful security staff, passing up and down the line, talking to people.

Introducing some of these same distractions inside the event can calm a potentially agitated
crowd.

In addition, a mascot conducting a spectator sing-along to up-tempo music or a ticket or
program number draw on the field for the last ball used at a sporting event can alleviate
tension in a crowd.

Whenever possible, spectators should be informed before an event of any special conditions
or arrangements for the event, such as parking, clothing, food and drink, sunscreen, shelter,
and alcohol restrictions. Notice of special conditions or arrangements may be distributed
through advertisements or in leaflets accompanying tickets.

Outdoor events, sometimes spread over large areas, require further considerations, such as:

• Toilet facilities located outside gates and between disembarkation points and the venue,
• Shelter, and
• Telephone facilities.



The venue should allow adequate regulation of crowd movement, such as adequate exiting
from ticketed seating areas and sectoring and flow barriers, including barriers to separate
vehicles from pedestrians.

Spectator overflow areas should be available to prevent crushing. Contingency plans are
required in case spectator turnout significantly exceeds expectations. This phenomenon is
common at rock concerts.

Restricted Viewing Locations
Clear lines of vision for spectators are important to reduce the likelihood that crowds will
move to get a better view of the stage. Also, a wide angle of view helps to reduce crowd
densities in front of the stage.

Video Screens
Video or projection screens aid in management since they can provide:

• Entertainment before and between acts,
• Information concerning facilities and important messages including public safety and
traffic messages for both inside and outside the venue, and
• Close-up vision of on-stage action for spectators as a means of reducing crowd
movement toward the stage.

Panics and Crazes
While the word "panic" is associated with a number of human behavioral patterns, in a crowd
application, perhaps the definition by Fruin (5) is most appropriate. He defines panic as:

". . . group behavior involving flight from a real or perceived threat, in which personal
escape appears to be the only effective response. . ."

As Fruin emphasizes:

"[I]nitial flight from a real source of danger is a very normal human reaction. . . . [P]anic
behavior is really a result of frustration of that escape.”

While panic is normally a flight or escape reaction, a craze is an opposite, but equally
threatening, crowd reaction.

Fruin defines a craze as:

". . . group behavior in which there is a temporary, short-lived competitive rush by a
group toward some attraction or objective . . . ."

An alternate, but parallel definition is that a craze reaction exists:



". . . where no apparent danger is perceived [by numbers of a group] but [where] the
group is given direction . . . by an induced sense of urgency . . . ."

Group restraint is temporarily abandoned as a result of a short-term fixation on the objective.

Panics are usually associated with crowd egress (exiting), whereas crazes are associated with
crowd ingress (entering).

Often, absences of information, incorrect information, or perceptions are catalysts for the
panic or craze. Remember that, in a dense crowd, individual perception is limited to
interpretation of response behavior among surrounding persons in an individual’s immediate
view.

TRAFFIC AND TRANSPORTATION

Transportation presents one of the first impressions attendees will have about an event’s
organization, command, and control. Sitting in a line of cars for hours on the highway to gain
access to an event will undoubtedly create a negative impression. The traffic from the event
may not merely effect the local traffic but the traffic in the entire region. Planners should
ensure the surrounding communities are aware of the event and the potential impact on traffic
in their area.

Depending on the scope and size of the event, traffic may be a routine issue. For example,
many sports stadiums hire professional traffic planners to provide guidance on the most
efficient ways to facilitate access and egress to various parking lots, and have procedures in
place that adequately handle traffic flow on a regular basis.

The promoter is responsible for any traffic disruption that is associated with the event and
should be held accountable by the permitting authority. The permitting authority can require
the promoter to work with local public safety and traffic service providers to create
contingency plans to minimize negative traffic impacts on the community at large.

As a minimum, local law enforcement, departments of transportation and public works, the
local media, any existing public transportation authorities, and the promoter should comprise
a traffic management group who must begin traffic planning well in advance of the event.
Well in advance of the event, the group should use the local media to inform residents of the
expected impact the event will have on their mobility.

Being straightforward about anticipated problems or congestion areas with the local
community will minimize the negative impact on local traffic service agencies. Many
residents, when advised in advance to do so, will avoid certain areas or take alternate routes
so their movement is not impeded or prolonged.



Traffic and transportation concerns that traffic management must address include:

• Does the site have adequate access and staging area for large numbers of emergency
vehicles in the event of a major incident?
• What impact will weather conditions have on transportation?
• What type of road leads to the event? Paved? Gravel? Dirt?
• Is access to, and the road network within the site, adequate to prevent emergency respon-
ders from having to walk significant distances to the principal spectator areas(s)?
• Once on the site, is there sufficient room (that is, for staging, maneuvering) to permit
repositioning or redeployment of emergency vehicles as dictated by the incident?
• Due to the nature of road access, would early arriving vehicles, such as ambulances, be
prevented from leaving by gridlock produced by subsequently arriving equipment?
• Does an access road or street that could be closed to the public and used only for
expeditious emergency and service vehicle ingress and egress serve the site?
• If access roads are unpaved, would emergency vehicles become bogged down if heavy
rains occurred during, or just prior to, the event?
• Is the surrounding road network able to handle the anticipated spectator vehicular traffic?
• If spectator-parking areas are filled, will the road network allow continued vehicle flow,
thus preventing gridlock?
• Is signposting, including gate numbering, clearly established inside and outside the
venue?
• Are communications systems inside and outside the venue capable of providing public
announcements, marshaling instructions, and evacuation orders?
• Is a system in place to monitor crowd flow (as through the use of spotters or aviator
resources)?
• Does the organization have additional towing vehicles available?

Where there may be health and safety implications, efficient management of crowd
movement includes:

• Awareness of public transport congestion at road, rail, and water interchanges and, in
some cases, at airports;
• Use of coaches and buses to reduce private vehicle traffic and any potential problems
which large vehicles may present, for example access difficulties, parking requirements,
potential road blockages;
• Alterations to normal traffic and road use;
• Traffic control;
• Adequacy of the surrounding road network to handle the anticipated spectator vehicular
traffic before, during, and after the event;
• Communication between traffic management groups and other services, including the
local media; and
• Access and egress routes including:

− Arrangements for people with disabilities;



− Pedestrian access, including considerations of distance, terrain, surface, and lighting;
and
− Designated pick-up and set-down points.

Vehicle Access and Egress Routes
Consider the environmental hazards that may result if access and egress routes are not
established for:

• Portable toilet pump-out;
• Garbage removal;
• Water tankers;
• Car parking;
• Ambulances;
• Law Enforcement vehicles;
• Fire vehicles;
• EMS vehicles;
• Public Works and Utility vehicles; and
• Other essential service vehicles.

Signage and Use of the Media
If organizers anticipate that event traffic will have a major impact on community surface
streets, they should consider ordering the promoter to hire a professional traffic planner to
work in conjunction with law enforcement and public works to create alternate routing or
special signage to and from the event. Strategically placed, variable-message signs on the
highway that allow text messages to be changed by remote control are very useful devices to
inform the motoring public. Temporary, fixed signage can also be considered. The additional
signs must be the current industry standard and be easily understood by the public.

Additionally, using a local AM radio station or a specially designated frequency to broadcast
travel information and instructions from the Public Safety Incident Command Post to arriving
or departing patrons on the day of the event can help to lower their frustration. Broadcasting
is also a means for event command and control staff to provide patrons with useful guidance
and safety messages prior to their arrival. Much useful information, such as traffic routing
and the AM radio station channel that will carry event traffic information, can be included in
advance ticket-sales packets so spectators are informed before they even leave their homes.

Traffic Monitoring
Traffic monitoring should be carried out by periodic radio contact with ground forces in the
field of the event “footprint” and by surveillance from aerial observation platforms. Fixed-
wing aircraft can stay airborne for extended periods of time to obtain the full view of traffic
flow. Helicopters can be used to view both the full area and specific problem areas that may
warrant closer attention than can be provided by fixed-wing aircraft. Stationary, closed
circuit TV cameras in areas prone to congestion can also be considered for use.



Public Transportation
If public transportation is to be used by patrons for access to the event, a separate ticketing
and admitting area can be established to permit smooth drop-off and pick-up. If available,
public transportation should be encouraged by event organizers because it tends to lessen the
negative impact on local community street traffic. It also decreases the number of parking
attendants required at the event site. Another facet of public transportation for consideration
is event-only transportation. At many large-scale events that require off-venue parking,
promoters lease school or private busses to provide transportation from specific pick-up sites
within the community and from remote event-specific parking areas. If public transportation
is offered, planners must coordinate with law enforcement and public works for assistance.
Public works and law enforcement may choose to close lanes or streets for use only by the
public transportation.

Towing and Disabled Vehicles
Promoters should be required to hire towing companies to facilitate the removal of disabled
or illegally parked vehicles. At minimum, one tow truck per parking lot should be available
and readily observable as private vehicles arrive. The mere presence and active use of tow
trucks can act as a deterrent for those motorists who may consider parking illegally. As a
general rule, one tow truck for every 2500 anticipated vehicles can be considered adequate
for planning purposes. The size, type, and location of the event may change the needs.

Tow companies should establish a standard procedure for impounding and owner retrieval
and should set maximum fees per impounded/towed vehicle in advance of the event. Also, a
mechanism (database) for tracking where vehicles from certain areas have been towed and a
mechanism for informing motorists of how to find their cars should be in place (for example,
establish an 800 phone number). This information should be shared with the appropriate
authority and the command post, should owners of towed vehicles arrive there to ask about
their vehicles.

A consideration is for the promoter to be held accountable for any costs associated with
towing that are not covered by towing fees. Public safety agencies should handle regulation
and oversight of any towing arrangements made during the planning process.

Parking
With the crowd and the traffic risks also come the inevitable parking problems. A basic
formula for estimating parking requirements is to anticipate one vehicle for every three
persons in attendance. Areas of specific concern are:

• Public parking arrangements - Have you made arrangements for overflow parking,
signposting, and segregation of pedestrian and vehicular traffic? If spectator-parking
areas overflow, will congestion on surrounding roads result? Are shuttle buses desirable,
feasible, or necessary?
• Parking control - Should anticipated spectator parking areas be filled, are there nearby
areas for overflow parking? Are shuttle buses desirable, feasible, or necessary?



• Towing - Are towing policies established to determine where stalled or disabled vehicles
will be towed, or how the owners can find their vehicles, and who bears the cost of
towing and storage?

Auxiliary Parking Lots / Shuttles
If the event venue does not have established parking lots available, then temporary, auxiliary
lots need to be established. Considerations for these lots include:

Lighting for hours of darkness,
Compliance with the ADA,
Publicizing the location of the parking lots and the shuttles,
Toilet facilities, and
Public transportation (shuttle busses) to and from the event site.

Dedicating specific busses to certain lots aids attendees going to and from the event. These
lots should be clearly distinguished from one another and adequately marked. (Color-coding
is one effective method of distinguishing busses. For example, Red Line busses, marked with
a red dot in the window, only go to and from the red lot.) The location of these lots needs to
be determined well in advance so that traffic management can evaluate them in relation to the
overall incident traffic management plan. If these lots need to be rented or leased, the
promoter should be held accountable by the permitting authority for any costs associated
with their establishment.

Parking attendants in charge of the auxiliary lots are required to direct event spectators to
park their cars in the configuration recommended by the traffic planner. If event spectators
park their own cars, they may park in such a way that the capacity of the parking lot becomes
greatly diminished, and control of traffic in and out of the lot can be lost. Parking attendants
can be trained volunteers, paid promoter staff, or public safety personnel. A consideration is
for the promoter to be held accountable for any costs associated with providing parking
attendants.

PUBLIC HEALTH

Public health interventions are designed to prevent or minimize injury or ill health. Mass
gatherings present particular challenges for prevention of or at least minimizing harm to
participants, spectators, and event staff, especially when the event is held at a temporary
venue. Familiarity of the financial stakeholders of the event with each other’s roles and
responsibilities, and knowledge of the potential and actual public health issues, present a
common challenge.

This section provides guidance on the primary public health issues likely to arise during the
planning phase of a mass gathering event. If state or local legislation is in place, that
legislation takes precedence over advice contained in this manual.



Pre-event Public Health Survey
Event organizers should conduct a pre-event public health survey for any venue intended for
a mass spectator event. A pre-event survey form is included in the appendix.

Organizers should consult appropriate health authorities to ascertain the availability of:

• Running water (particularly for hand washing by food service and medical personnel);
• Sufficient public toilets (with provision for pump out of portables and servicing as
necessary during the event);
• Adequate refrigeration for perishable food stuffs;
• Recognized, approved suppliers of bulk food items delivered to the site food providers;
• Sufficient number of covered containers for the storage of food and solid waste, including
removal during the event; and
• Appropriate storage and removal of liquid waste.

Public health inspectors should be available on site during the event to monitor public health
compliance.

Public health authorities on site should have legislated authority to enforce "cease operation"
orders on onsite food providers who are in contravention of standards or are otherwise
operating contrary to the public interest.

Public Health Contingency Arrangements
The arrangements outlined in this chapter are designed to prevent an adverse event or
minimize the risk that an adverse event will occur. However, unforeseen circumstances that
may create a public health risk always exist. Some basic thought must be given to making
contingency arrangements and documenting these arrangements in the public health
emergency management plan. The plan should include the following details, as a minimum:

• Contact details, including after-hour information, for principal event personnel (for
example, event organizers, environmental health officers, trades persons, and emergency
service personnel, including health services personnel);
• Contact details for additional staff;
• Details for 24-hour contact of the food proprietors;
• Arrangements for alternative suppliers of equipment and utilities in the event of a failure
or loss of water or power;
• Arrangements to replace food handlers who become ill;
• Arrangements in case of product recall;
• Epidemiological tracking;
• Procedures for handling complaints; and
• A debriefing procedure.



Monitoring Health Risks
First aid posts and security personnel can provide information to help assess health and safety
risks. First aid posts can provide data by collecting gastrointestinal illness surveillance
information (see the appendix for a questionnaire form) or maintaining records of injuries,
incidents involving watercourses, and alcohol and drug issues. Security agencies can provide
information on safety hazards and alcohol and drug issues.

Food Safety
Food safety is a vital element of public health planning for public events. Unless personnel
apply proper sanitary practices to food storage, preparation, and distribution at mass
gatherings, food may become contaminated and present a danger to public health. Special
“one-of-a-kind” outdoor events in warm weather pose additional risks since they tend to have
less than ideal facilities for food handling, transport, and storage.

To ensure that adequate food safety standards are met and maintained, an environmental
health officer should initially assess food service proposals, including the authorization of
vendors, as part of the pre-event planning outlined in Chapter 1. The health officer should
base any assessment on current local and state food hygiene legislation and food safety
codes. The officer should follow this assessment with a pre-event audit as well as periodic
monitoring of food safety throughout the event.

This assessment should form part of a comprehensive food safety plan for the event,
including:

• Licensing/permit procedures and authorization of vendors,
• Quantities and types of food,
• Lines of supply,
• Premises where food is stored,
• Preparation techniques,
• Disposal of foods,
• Means of distribution, and
• Food safety documentation, including the Hazard Analysis Critical Control Point
(HACCP) approach and surveillance.

Food vendors must meet appropriate licensing and registration requirements of the
responsible health authority, including an “off-premises” food-catering license as
appropriate. During the event, onsite environmental health officers must have the authority to
close down any vendor who is contravening food hygiene legislation and public health
requirements. In some cases, this action may necessitate passing particular local laws or
ordinances.

A sample “Checklist for Food Vendors” form appears in the appendix.



Food Premises
Set up and construction of the food premises must be in accordance with state regulation and
codes of practice. The premises or areas to be used for food storage, preparation, and service
must be easily cleaned and neither promotes the harboring of rodents and insects nor the
build up of dirt and food particles.

Equipment
Equipment used in food preparation, distribution, and storage must be in a safe working order
and easily cleaned.

Safety
The safety of both staff and the public is always an important consideration, and you must
meet occupational health and safety standards. Some of the hazards to avoid include loose
power leads, trip hazards, inadequate refuse disposal, inappropriate positioning of equipment
(especially hot equipment), poor ventilation and extreme temperatures in the work
environment, badly stacked supplies, and unguarded equipment.

Waste Disposal
A regular disposal system should be put in place. Decayable refuse, in particular, can cause
problems arising from odor, insects or rodents, or other animals. Adequate disposal facilities
must be easily accessible to food handlers as well as removal contractors.

Organize a separate refuse collection for food premises and continually monitor it to ensure
that the frequency of collection is appropriate.

Where possible, encourage the separation of refuse into dry, wet, and hazardous disposal
units. For more information on refuse disposal, refer to the discussion under Waste
Management below.

Water Supply
Provision of a supply of potable water for sinks is essential. Those operators using water
stored in their own tanks must have access to facilities to refill diminished supplies. Ensure
that this access is organized before the event. If possible, at outdoor concerts in extreme heat
conditions, all potable water supply lines should be buried to avoid breakage and
contamination by concert attendees. Having a NO GLASS policy is wise to prevent hazards
caused by broken glass. (For more specific details on water supply, refer to the section on
Water below.)



Hand Washing
Hand-washing facilities must be provided for the exclusive use of food handlers. Potable,
running water must be used for hand washing, and, where possible, hot water should be
available. Soap and disposable hand towels should be provided in the hand washing area.

Sinks
Potable water must be supplied to all sink areas. Hot water should be used where possible.
An appropriate detergent and sanitizer should be used to adequately clean all sinks.

Food Supplies
Foods used should come only from registered outlets and should not be prepared in domestic
kitchens. Food proprietors must ensure that food supplies have been prepared and transported
in accordance with relevant standards.

Transporting Food
The time required for food transportation should be kept to a minimum. Temperature
requirements should be maintained, and the food should be protected from contamination at
all times.

Food transport vehicles should be clearly identified and subject to surveillance and
monitoring.

Food-Handling
Essential matters to address include the following:

Cross-Contamination — The following points apply:

• Every effort should be made to minimize the risk of cross-contamination during the food
handling process. Food utensils and surfaces used for the preparation of raw and ready-
to-eat food should be clearly distinguished. In cramped circumstances, this distinction
becomes more difficult to observe. Adequate cleaning and sanitizing of food utensils and
surfaces between uses plays an important role in reducing problems arising from cross-
contamination.
• Disposable, plastic gloves should be worn and changed frequently. The temptation to
continue to wear the same gloves exists, even after the work being undertaken has
changed. Encourage frequent hand washing.
• Appropriate food storage is critical to ensure there is no contamination between raw and
cooked or ready to eat foods. Raw foods should be stored separately if possible, or at a
minimum, stored below cooked or ready to eat foods.



• Equipment must be adequately cleaned and sanitized between each separate process. This
is particularly critical where equipment is used for preparing different food types.

Thawing, Cooking, Heating, and Cooling —The goal in monitoring temperature control is
to minimize the time potentially hazardous foods are in the danger zone of 10°F to 127°F.
Key points to remember include:

• Thaw food under refrigeration or in cold, running water.
• Cook food thoroughly to achieve a core temperature of 150°F.
• Minimize reheating of food. Where reheating is required, heat the food thoroughly and
store above 127°F.
• Cool food quickly under refrigeration.
• Portion food into trays not more than 4 inches deep.

Cleaning and Sanitizing — The following points apply:

• Regardless of the type of facility in which the food is prepared, regularly clean and
sanitize all food contact surfaces using an appropriate sanitizer. (Sodium hypochlorite,
100 - 200 ppm, is appropriate for this purpose.)
• Clean all other surfaces to minimize the risk of contamination of food products. Also be
aware of pest infestation and occupational hazards, such as slippery floor surfaces.
• Consider the provision of a designated wash up area for food outlets to reduce sullage
waste storage and pump out at each food outlet.

Chemical Storage—Store chemicals in areas separate from foods and clearly mark the
contents on chemical storage containers. Never use food containers to store chemicals.

Food Storage
Essential matters to address include:
• Storage Facilities—Provide facilities of adequate size and appropriateness for the
purpose.
• Temperature Control —The following points apply:

− Refrigerated or heated storage areas require a continuous power supply. You must
store potentially hazardous food at temperatures below 10°F or above 127°F at all
times.
− Refrigeration can pose a problem particularly in hot weather when refrigeration units
struggle to cope. In case of refrigeration failure, all proprietors should indicate
alternative refrigeration suppliers, or the organizer or authority could identify
alternative suppliers in the public health emergency management plan.



• Cross-Contamination —The following problems must be overcome:

− The less than ideal conditions that confront food handlers working in temporary
facilities may lead to a compromise in appropriate food handling practices.
− Space is often a major problem. Ensure that, at a minimum, raw and cooked or ready-
to-eat-foods are stored appropriately. Food handling staff must be aware of the
requirements for strict hand washing and for the cleaning and sanitizing of equipment
between handling raw and ready to eat foods.

• Dry Goods —Appropriate and sufficient storage conditions should be available to ensure
adequate protection of food from the elements and pests.
• Food Protection —Protect exposed food available on display from insect pests, dust, and
human contact.

Food Handling Staff Considerations
Important matters to address include:

• Training—Encourage proprietors to select staff with food handler training to work in
temporary facilities.
• Personal Hygiene—Selection of staff should include factors such as high personal
hygiene standards. Food proprietors should ensure that a non-smoking policy is
implemented in the workplace.
• Communications—Proprietors should be able to demonstrate that they have an efficient
reporting and communication system so that staff can identify public health problems and
deal with them promptly.
• Supervision—Encourage proprietors to provide appropriate supervision to ensure a team
approach to the provision of a safe food supply.
• Dress—Food handler’s dress should be appropriate to the task they are performing and
include some form of hair covering.
• Infectious Diseases—

− Proprietors should be reminded that food handlers must not work while they are in an
acute stage of any gastrointestinal illness or the common cold.
− Proprietors should remind food handlers who have open wounds to dress all wounds
with a waterproof dressing and to change the dressing regularly.
− Provide segregated toilet facilities exclusively for food handlers.
− Monitor these facilities for any signs of pest or rodent infestation.
− Proprietors should keep a register of any complaints that they may receive from food
purchasers.

A sample “Checklist for Food Vendors” form appears in the appendix.



Health Promotion
Consider the opportunities to promote health messages at public events and to encourage
event organizers and service providers, such as food vendors, to participate. Examples
include:

Sunsmart—Encourage the provision and use of shade areas. Encourage the use of sunscreen
creams and hats, and make them available for purchase by spectators.

No Smoking—Encourage the provision of non-smoking areas and ban the sale of cigarettes
at the event.

Nutrition—Encourage food proprietors to provide nutritious foods. Encourage event
organizers to select food vendors that provide nutritious food varieties.

Safe Sex—At certain events, the promoter may wish to convey safe sex messages and
consider providing free condoms.

Alcohol—Consider the designation of alcohol-free areas or restrictions on the sale of
alcohol. Also consider glass-free policies. Alcohol-free events will minimize aggressive
behavior of spectators and also minimize the use of restrooms and water supply needs.

Drugs—Consider opportunities to spread anti-drug abuse messages.

Hearing Protection—Consider providing advice about hearing protection and possibly free
ear plugs to spectators and participants. Providing hearing protection is especially applicable
at venues such as rock concerts and car races.

Water
An adequate supply of safe drinking water must be available. One guideline suggests making
available 21 quarts of potable water per person per day, of which 5 quarts is the drinking
water component. Consider event duration and location and the anticipated ambient
temperature in determining the quantity of potable water required.

All water provided must be tested to ensure its potability. In areas where non-reticulated
water is the only source for personal use, then consider the clarification and disinfecting of
the water supply to achieve a level greater than 1 ppm residual chlorine.

Some consideration must be made to ensure the water is safe from deliberate contamination.
Placing the water supply in a secure area or having someone guard the water supply are two
options available.

Appropriate access to drinking water must be available for spectators in a field or outdoor
venue or at events such as “raves,” where the activity produces an extreme heat environment.



Water pressure must be adequate to provide for all normal use and for use during peak
demands. Alternate water supplies must be available should existing supplies fail to meet
demand or should the supply be rendered unsafe or unusable.

Toilets
Where existing toilet facilities are judged inadequate, you must make available additional
portable units.

Toilet locations should be:

• Well-marked;
• Well-lit (including the surrounding area) if night use is anticipated;
• Serviced (including pump-out of portables) on a 24-hour schedule during the event
(vehicle access is obviously necessary);
• Located away from food storage and food service areas; and
• Secured to prevent tipping.

Toilets are a useful area in which to also make available facilities to:

• Provide for the safe disposal of needles, syringes, and other sharps; and
• If appropriate, provide condoms at some events.

The following considerations will determine the number of toilets to be provided for
particular events:

• Duration of the event,
• Type of crowd,
• Weather conditions,
• Whether the event is pre-ticketed and numbers known or unticketed,
• Whether finishing times are staggered if the event has multi-functions, and
• Whether alcohol will be consumed.

Calculating the number of toilets required for an event is a matter for conjecture. Where local
laws or regulations do not exist, the following guidelines can be applied. Better management
of events can be achieved by providing additional facilities. Assume a 50/50 male/female
split unless otherwise advised. The following tables should only be used as a guide.



Toilet facilities for events where alcohol is not available
Males Females
Patrons Toilets Urinals Sinks Toilets Sinks
<500 1 2 2 6 2
<1000 2 4 4 9 4
<2000 4 8 6 12 6
<3000 6 15 10 18 10
<5000 8 25 17 30 17

Toilet facilities for events where alcohol is available
Males Females
Patrons Toilets Urinals Sinks Toilets Sinks
<500 3 8 2 13 2
<1000 5 10 4 16 4
<2000 9 15 7 18 7
<3000 10 20 14 22 14
<5000 12 30 20 40 20

These figures may be reduced for shorter duration events as follows:

Duration of event Quantity required
More than 8 hrs 100%
6-8 hrs 80%
4-6 hrs 75%
Less than 4 hrs 70%

Toilets for the Disabled
At least one unisex toilet for the disabled is required. Check with your local ADA office for
further guidance.

Food Vendors’ Toilets
Separate toilet and hand washing facilities should be made available for food handlers.

General Considerations
In an outdoor setting, it is a relatively simple matter to provide additional toilets by hiring
temporary, portable toilets. This solution may not be suitable for indoor settings, for which
provision of additional toilets may be more difficult. One possible solution is to convert some
men's washrooms to women's for events where you anticipate a predominantly female
audience, or vice versa.



In order to avoid long lines, particularly at female toilets, organizers may identify some toilet
facilities as unisex toilets.

Maintenance and cleaning schedule for toilets and sinks should ensure:

• An adequate supply of toilet paper and soap,
• Clean toilets throughout the duration of the event,
• Provision for disposal and removal of sanitary napkins, and
• Availability of a plumber or appropriate maintenance person to repair or remove
blockages.

Organizers should ensure that adequate cleaning supplies are available for use by the
cleaning staff.

Showers
At an extended event, promoters and planners may decide to provide showers. If they do
provide showers, they must consider the additional demands for potable water and drainage.
If municipal water supplies and wastewater treatment plants cannot service the shower
facilities, providing shower facilities could prove to be a very costly and formidable task.
Ensure that showers are located on high ground so that muddy areas are not created.

Solid and Liquid Waste Management
Major considerations are as follows:

Food Waste

• Deposit food waste in covered containers placed strategically around the venue. Covers
are essential, especially in outdoor settings or if high temperatures are expected.
• Spectator density may prohibit access by garbage removal vehicles. To prevent
containers from overflowing, empty containers regularly and move waste to a temporary,
properly prepared holding area until bulk removal can be accomplished at designated
times or after the event. Removing food waste often and in a timely manner prevents
other diseases and pests.

Empty Containers
Make arrangements for the appropriate storage or disposal of empty containers, such as
cardboard boxes.



Hazardous Wastes
Special arrangements must be established for the collection and disposal of various forms of
hazardous waste, including waste from food preparation areas, medical sharps, and other
hazardous materials.

Clinical Waste
Ensure there is provision for the storage, collection, and disposal of clinical waste generated
from onsite medical and first aid facilities.

Sewage and Sullage
Provide and maintain adequate facilities for the ongoing storage and disposal of sewage and
sullage. As with all other wastes, this must be removed in a timely manner and on a frequent
basis.

Recycling
Where possible, consider providing specific containers for recyclable materials. Venders
should be encouraged to use recyclable packaging of foodstuffs. A sufficient number of
dedicated containers should be placed near the vendor area to further encourage recycling.

Animals, Rodents, and Vegetation
In outdoor settings, the control of rodents, snakes, spiders, mosquitoes, and insects of
significance to public health must be addressed. If particular hazardous species are known to
inhabit the area, or if carriers of particular diseases are prevalent in the area, alert the
attending first aid and medical personnel.

Alert medical and first aid personnel to the presence of potentially poisonous and noxious
plants and trees in the area.

If domestic animals are permitted into the venue, establish rules for the control of animals
and their waste. Check with your local animal control or shelter for more guidance
concerning animal regulations.

Also consider the potential effect of the event on nearby domestic or farm animals and native
fauna.

Swimming and Water Safety
Purpose-built swimming areas must comply with state requirements for water quality and
meet other local requirements, such as fencing. Assess the suitability of other watercourses in
the vicinity of the venue if spectators may use those watercourses for water recreation or
washing. If these watercourses do not meet requirements, fence them off and erect warning
signs against their use.



Address water quality in both designated swimming areas and areas that could be used for
swimming in hot weather. Experience has shown that where audiences attend an outdoor
concert in hot weather, particularly in overnight events without adequate or convenient
washing facilities, they will employ any nearby water area as a makeshift swimming,
bathing, or washing area.

Consider making available some form of trained supervision for:

• Families with small children;
• Spectator groups for which alcohol consumption, with subsequent judgment impairment,
is anticipated; and
• Areas of water that pose additional hazards such as steep, slippery sides; submerged
snags, or unusually variable depths.

Infection Control and Personal Hygiene Concerns
Infectious disease transmission through unsafe sexual practices or drug use may be a health
risk at some events, particularly for those at which spectators are camping at the venue
overnight. To reduce these risks, consider providing or making available condoms and a
properly licensed needle exchange/disposal mechanism. While these are sensitive and
controversial issues, and political issues in some areas, they are nevertheless important public
health concerns in contemporary society, and you should address them.

At events where the duration extends overnight or longer, provide hygienic washing
facilities. Suggested minimum requirements for facilities at campgrounds, based on two to
three nights’ camping, are as follows:

Sex Toilets Urinal Sinks Shower
M 1 per 50 1 per 100 1 per 75 1 per 100
F 1 per 25 N/A 1 per 75 1 per 100

Tattooing and Body Piercing
With a return in popularity of tattoos, body piercing, and branding, mobile operators have
begun to appear at certain types of public gatherings, such as carnivals, motorcycle races, and
auto swap meets. Where this activity is likely to occur, check the need for proper licensing or
registration of such service providers and their compliance with any health legislation.

Due to the potential of cross-infection, particularly of blood-borne diseases, inspect any such
operations to ensure, as a minimum, the use of:

• Disposable, single-use skin penetration items,
• Proper sterilization equipment and techniques,
• Clinical sharps containers for used needle disposal, and
• Sharps containers safely located away from children.



If the service providers do not use these minimum infection control procedures, do not allow
them to perform any skin penetration procedures.

Post-event Public Health Survey
Conduct a post-event survey to ensure that personnel have conducted a proper clean up,
particularly from a public health perspective. For example, check that all scrap foodstuffs and
discarded needles are properly disposed of. All involved in planning the event should return
the venue to its pre-event condition.

When the event includes fireworks, conduct a diligent search for any unexploded fireworks.
Before you allow public access to the area, safely collect and remove any unexploded
fireworks.

As an additional precaution, retain appropriate records of all service providers at the event so
that they may be traced should some subsequent outbreak of a notifiable disease occur or if a
claim is made for an injury or illness.

Health personnel should also be conscious of the need to introduce a monitoring or
surveillance system should they subsequently become aware of any particular health problem
arising from an event.

A formal public health debriefing should follow the event, and a public health representative
should participate in all agency debriefings.

MEDICAL CARE

Spectators and participants at mass gatherings may require medical attention in the event of
illness or injury. The incidence of illness will be greater at an event for spectators than that
expected to occur naturally in a population of comparable size.

The number of spectators who require, or avail themselves of, onsite medical care, and the
types of problems they present, will vary significantly depending on the nature of the event.
While high-risk events such as air shows have caused significant loss of life (for example, the
1988 Ramstein Air Base air show crash), statistically, rock concerts have generated large
numbers of casualties with less severe injuries and illness. Between 0.5% to 1.5% of concert
goers will require some form of medical assistance, regardless of the character, locale,
physical layout, and size of the concert.

Alcohol and drug use is common at most festivals and is the primary diagnosis in greater
than 10 per cent of the persons seeking medical care. Other common complaints include
lacerations, fractures and sprains, burns, sunburn, heat stroke, seizures, asthma, and
exposure.



Medical Care Provision
Planning for the provision of medical care for both spectators and participants is essential, for
both humanitarian and legal reasons. In addition, providing onsite first aid or medical care
will significantly reduce the demand made on the emergency departments at local hospitals
in the area of the event.

Event organizers may choose to contract with a health service provider, who may not be
associated with the normal local service provider. Check to ensure that the service provider
meets the local emergency standard. The provider must coordinate with the local health and
emergency services to plan a response to any emergency or significant medical problems
requiring further assistance. Notify local health authorities of the details of the event and
provide them with emergency plans for a major incident.

Main Concerns in Planning Medical Care
Main issues to address in medical care planning include:

Logistics
Some medical logistics questions to consider in planning an event include:
• Will medical personnel operate in a facility to which the injured must make their way, or
will clearly identified medical teams patrol spectator areas?
• Will vehicles be available to transport spectators to the medical facility?
• Will medical vehicles be appropriate to the terrain? Four-wheel-drive vehicles may be
required for off-road areas and golf carts or similar vehicles required for high-density
spectator areas.
• Where an ambulance is not required, will a “chauffeur system” be provided to transport
persons from the onsite medical facility to their own transport vehicle?
• How will medical personnel be notified of, or summoned to, spectators requiring
assistance in vast spectator areas?
• What means of communication will be available to permit attending medical personnel to
communicate with offsite medical personnel, event organizers, security, and other
support personnel?
• Are there any sponsorship conflicts between the event sponsor and any medical service
operators?
• What level of onsite medical care, if any, do you expect to be required, given the nature
of the event?
• What mix of medical personnel (first aid providers, paramedics, nurses, doctors) will you
require on site?
• Who will provide the personnel? How will the cost for their services be funded?
• Are the health service providers from the local area? If not, how will their services be
integrated with the local services?
• Are the selected personnel appropriately skilled to respond to anticipated medical
problems at the event? They may require additional training.



• Will medical personnel or vehicles need special credentials to allow them access to all
parts of the venue, especially to any restricted areas?
• Are medical personnel assigned for public safety workers at the event?
• Are air ambulances available?
• Where is the closest trauma center?
• Does the area hospital have adequate bed and personnel capacity to respond to the
emergency requirements of an event the size being planned?

Management and Planning (see the appendix for checklists):

• Determine which other organizations will be involved. Who will be the lead agency?
• Conduct planning meetings involving health personnel, emergency services personnel,
and event organizers.
• Determine what is expected of each organization involved in the provision of medical
care.
• Determine likely levels of care that will be required.
• Determine any local laws, rules, or regulations governing emergency first aid.
• Determine the budget for the provision of medical care services.
• Establish liaison with other emergency services (police, fire, and security).
• Identify equipment required and potential suppliers. Will the equipment be purchased,
hired, or borrowed?
• Will volunteers be used? What accreditation will they be required to possess? What
inducements will be offered?
• Ensure security of medical stations and safety of staff.

Planning Information
Obtain background information to assist with medical care planning available from:

• Reports from previous, similar events (medical and other specialist literature), and
• Lay literature (press).
• Medical literature that has information on risks and types of injury sustained at similar
events in the past.

Consider effects of weather conditions on the spectators, such as hypothermia and heat
stroke.

Consult medical literature for information on numbers of casualties from similar events in the
past. See the table below for anticipated percentages of patients against triage categories.
Consider variables that affect numbers, for example, alcohol consumption, psychosocial
behavior, and type of event.



Expected percentages of patients in triage categories
Categories 1 Description Vital Signs Mental State Percentage2
%
1 Critical Unstable Abnormal 0.02
2 Serious Potentially Potentially 1.1
Unstable Abnormal
3 Moderate Usually Normal 12
Stable
4 Minor Stable Normal 87

Notes: 1 Categories modified from disaster triage guidelines.
2
Percentages aggregated from events listed in the references.

Medical Access to Venue
Consider risks associated with venue, for example, water in the vicinity.

Agreements must be reached among medical service providers on the following:

• Medical teams must be able to easily locate individuals in need of attention. You should
agree on the use of a common reference map or grid system.
• How will medical teams reach or rescue individuals in distress, for example, in crowded
areas or through fixed seating?
• How will patients be transported on site?
• Will you provide a dedicated access route, or emergency service lane, to allow rapid
access to and from the venue for ambulances and other emergency vehicles?
• Will the event itself pose a barrier to medical teams, for example, community runs or a
parade?
• Will you need aero-medical services, and if so, what are the associated regulations
regarding their operation?

Medical Requirements

• Prepare for the most critical injury or illness foreseeable, such as cardiac arrest.
• Is there a need for a mobile team? This team may require pre-packed medical kits.
• Determine who will provide care for the audience, any VIPs, and performers.
• Define boundaries of care, for example, inside the venue and in the parking areas.



Level of Care

Categorized as follows:

• Basic—first aid;
• Intermediate—first aid plus IV therapy and oxygen;
• Advanced—Care and life support and early management of severe trauma; and
• Site Hospital—full monitoring and ventilation. A surgical facility may be required
depending on the level/type of event.

Other level-of-care concerns include:

• Consulting medical personnel with experience of similar events to determine appropriate
levels of care to provide;
• Considering the distance to, and accessibility of, the nearest hospital and its capability;
and
• Pre-establishing the coordination between venue medical services and those of the local
community emergency medical service responders (that is, establish how they will
provide mutual aid if required).

Further guidance on the establishment of medical care facilities and their equipment
requirements is available in the references and from local or regional disaster and health
plans.

Medical Teams
When deploying medical teams, consider the following:
• Event size;
• Location with regard to medical infrastructure;
• Available medical resources;
• Local ordinances;
• How many teams are needed? For example, is one ambulance per 10,000 people and 1-2
doctors per 50,000 too much or not enough?
• Who can see, treat, and discharge patients?
• Will there be peak periods or special circumstances requiring additional staff?
• How will medical staff be fed, watered, rested, and protected from the elements?
• Are work safety regulations established that cover occupational health and safety (for
example, protection from violence and crowd crushes)?
• Have medical teams been provided with maps of the venue?
• What arrangements are in place for movement of medical teams onto and off the site?
• Are medical team members appropriately dressed for the conditions?
• Is the dress of medical team members easily identifiable?
• Are interpreters required?
• Do medical teams understand the command structure and their role within it, and the
emergency activation system?



Mobile Teams
In tightly packed areas, particularly near the stage, First Aiders on foot, bicycles, or golf carts
may have the only access. Experience has shown that uniformed First Aiders on foot
circulating in dense spectator areas are quite effective, and patrons will readily summon them
in an emergency, even if the person requiring care is a stranger to them. Even if a clearly
marked field hospital is visible, spectators are often unwilling to make the sometimes long
trek to request assistance (since they may lose their seating position), particularly for a fellow
spectator whom they may not know or if they fail to appreciate the seriousness of the
patient’s condition.

Identification of mobile teams, where ambulance or clinical uniforms are unsuitable, can be
successfully accomplished by special “event uniforms.” Mobile teams need to have
communication equipment to keep EMS supervisors and the Command Post informed at all
times.

(NOTE: The Red Cross symbol is registered by the International Red Cross and its National
Societies. It should not be used as part of an “event uniform.”)

Medical Aid Posts
Important considerations in the establishment of medical aid posts require that they should:

• Provide easy ambulance access and egress;
• Be located within 5 minutes of all sections of the crowd;
• Have available a mode of transport to them;
• Be clearly sign-posted from all directions;
• Be clearly identified;
• Be clearly marked on maps of layout;
• Be in a position known by security and other event personnel;
• Be stocked and staffed for the duration of the event and for spectator arrival and
departure periods;
• Provide facilities for injured or sick patients to lie down;
• Ensure privacy in clinical areas;
• Provide some means of communication with the primary medical control point, venue
control, and with mobile medical teams in the venue; and
• Be located in as quiet a place as possible.

Site Hospital
Depending on the nature of the event, a site or field hospital may be needed to provide care
for the number of casualties anticipated. You should also make contingency plans in case of a
major incident, for which the resources of the field hospital may not be sufficient. Failure to
plan for large numbers of casualties or severely injured patrons can result in long delays in
providing medical treatment. It is important to provide a communication link between the site
hospital and local hospitals.



Site hospitals will require:

• Clean water;
• Electricity for medical appliances and adequate lighting in tent hospitals at night (this
installation should, if possible, include a backup power system);
• Washroom/rest facilities for the exclusive use of staff and patients;
• Meals for medical staff;
• Tents for hospital use that have flooring as part of the structure to contain the service and
to prevent ingress of water or insects;
• A landline telephone service for ordering of additional staff or supplies and for notifying
hospitals of patient transfers (note that cellular telephones should be used as backup
devices only);
• Reserved access roads for emergency vehicle use; and
• Dedicated disposal containers for ablutions, hazardous wastes, and sharps.

Documentation
Documentation should facilitate:

• Post-event review of medical assistance activities, and
• Tracking of biological, chemical, and infectious disease exposures should they occur.

Medical-legal issues, which must be addressed prior to the preparation of any documents, are
as follows:
• Who has access to records?
• Who keeps the data and for how long?
• Who can give consent for treatment?

Ambulance Vehicles
Organizers should consult ambulance services to determine ambulance requirements for the
event. Some considerations include:

• Will ambulances be pre-positioned on site or be called to the venue on an as-required
basis?
• Providing a mix of Advanced and Basic Life Saving ambulances at the event.
• If ambulances are on site for participants (for example, at sporting events), are these
ambulances exclusively for taking care of participants’ needs or emergencies, or will they
be available for injured spectators as well?
• Are air ambulances available? Who will pay for the service? Can the promoter be made
to provide the service?

While conventional ambulances are appropriate for patient transfers to offsite medical
facilities over good roads, such vehicles may be unsuitable for off-road use. Ad hoc
roadways and cross-country terrain may require four-wheel drive vehicles, particularly if
grounds are saturated by recent rainfall. Since four-wheel-drive ambulances are not available



in most areas, other four-wheel-drive vehicles, equipped with appropriate medical equipment
(including, but not limited to, resuscitation equipment, trauma kit, and spinal board) can
serve as ambulances over the short distances between spectator areas and medical care
facilities.

In denser spectator areas, any vehicle can have access problems. You should consider using
golf carts, either designed or modified to accept stretcher cases from these areas.

For these reasons the ambulance network may have to consist of a mix of First Aiders on
foot, golf-carts, four-wheel drive vehicles, ambulance buses, and conventional ambulances,
to best facilitate patient transport requirements. You should provide a magnetic-based
beacon, portable radio, and appropriate marking for these vehicles.

A communication network, designed to provide a coordinated response to requests for
assistance, is essential. You may base the network on existing service networks, or event
organizers may need to provide the network.

Medical Equipment
The requirement for basic or advanced life support equipment depends on the type of event
and the assessed risk of illness or injury. While standard lists of equipment will cover most
requirements, you should review literature, previous experiences, and current practices.

Further equipment considerations include:

• Mobile versus fixed requirements,
• Arrangements to re-supply aid posts as required, and
• Compatibility of onsite equipment with equipment used by ambulance and other health
care providers.

Other Medical Considerations
Further considerations include:

• Providing a separate facility and staff to counsel victims of sexual assault and also to
collect evidence;
• Ensuring sufficient water supplies;
• Providing sprinkler systems or misting tents for crowds in hot, open areas, if they are
suitable for the event;
• Providing welfare and information services (the helping and caring role);
• Assisting with forgotten medications;
• Providing a baby diaper-changing and caring facility; and
• Containing and disposing of clinical waste.
• How, and by whom, will medical supplies be obtained, including secure onsite storage of
drugs?



Toxicity Laboratory
Offering medical assistance to an overdose victim at a rock concert poses a major difficulty
in making appropriate field diagnosis when the caregivers do not know the drug, the dosage,
or the potency of the drug. Even when victims are coherent, they may believe they took a
particular drug when, in reality, they took a different drug or one that was adulterated. As is
well documented, there is no quality control, or ethics, in the dealing of street drugs.

To attempt to cope with onsite drug identification, medical staff at the Watkins Glen, New
York, rock concert (July 26-29, 1973, estimated attendance 600,000) established a mobile
toxicology laboratory on site in a trailer adjacent to the hospital tent. Apparently, this is the
first time such a lab was included as part of the medical facility at a rock concert.

The benefits of an onsite mobile toxicity lab include triage of drug overdose cases for
removal to hospitals, as well as reducing such numbers to be transported, which otherwise
would be necessary, without toxicological diagnosis confirmation in the field.

ENVIRONMENTAL CONCERNS

Weather
Weather is a variable that takes on a different significance depending on the event and its
location. For a major indoor event in a southern United States city, weather is seldom a major
concern, unless a natural disaster, such as a hurricane, is anticipated. If you were to move that
same event to a northern United States climate in February, you would be faced with
additional concerns, sometimes even for a predicted “normal” winter storm. Slow moving
traffic patterns, snow removal in parking areas, and safe movement of spectators from
parking areas to the venue are a few concerns. Extreme high and low temperatures must be
part of the contingency planning for an event. These extremes present hazards and risks not
normally present but which must be considered.

In outdoor events, many additional concerns may become apparent regardless of location.
Lightning strikes, severe thunderstorms and hail, high winds, and other undesirable weather
pose threats to event patrons. The influx of patrons may have a severe negative impact on the
jurisdiction’s mass evacuation and sheltering plan for local residents. Contingency plans
drawn up for the jurisdiction may not provide for a transient population (as in the case of
some rock concerts in the hundreds of thousands) that will negatively impact that
community’s ability to protect residents and visitors.

During the planning phase, event organizers must adequately consider all potential weather
conditions. For example, many concerns about weather were given consideration by planners
for the 1999 Woodstock Festival held at the former Griffis Air Force Base in Rome, New
York.

Two stages were to be erected at Woodstock, one in excess of five stories high, made from
steel construction staging. These stages were to be placed at opposite ends of the runways in



large flat open spaces, in an area prone to thunder and lightning storms in mid-July of any
given year. Electrical professionals were posed the scenario of a lightning strike to the main
stage by a swift moving thunderstorm, and asked worst case scenarios of what to expect.
These professionals predicted that not only could anyone on the stage or scaffolding be prone
to electrocution, but many spectators on the ground around the stage could also be in danger
(depending on the location of the strike with the scaffolding, any grounding mechanisms in
place, and the severity of the storm). Local contingency plans for sheltering also did not take
into consideration the additional 250,000 people (the estimated attendance at this festival)
that the city of Rome or county of Oneida would be expected to protect.

Some considerations planners may wish to make regarding the weather are:
• Monitoring the weather using a computer, radio, or television;
• Establishing a dedicated a phone line that was linked with the closest office of the
National Weather Service;
• Ensuring that ICS team consults with the Weather Service on a regular basis and that
consultation information is included in each operational period Incident Action Plan;
• Distribute weather information to the participants;
• Contract or partner with a private sector meteorological prediction service;
• Establishing agreements with the promoter to interrupt a performance and use the festival
sound equipment as a public address system to give information to patrons on protective
actions to take should severe weather be imminent; and
• Coordinating with the Red Cross and concert organizers to dedicate specific buildings as
evacuation shelters should the visiting public to the area require sheltering.

Developing severe weather contingency plans to ensure the safety of event attendees can
require a significant amount of time, equipment, planning, and multi-agency participation.

Site Hazards
In selecting a site, especially for an outdoor event, the planning team should identify the
potential hazards in the area, which include:

• Power lines that could be brought down by a severe storm;
• Structures and equipment prone to lightning strikes;
• Waterways that may be prone to flooding;
• Brushfires;
• High winds;
• Extremes of temperature;
• Pests, large animals, pollens, and poisonous plants, including:

− Rodents,
− Insects—ants, caterpillars, wasps, bees, mosquitoes, flies,
− Snakes,
− Spiders, and
− Noxious weeds;



• Marshes or swamps;
• Quarries, pits;
• Scrap piles;
• Cliffs and steep inclines;
• Water courses, depth of water, water currents, water temperature, water clarity;
• Pollution—dust, noise;
• Water quality (bacteriological), blue green algae;
• Darkness;
• Hazardous chemicals or underground tanks;
• Use of lasers;
• Alcohol, drugs, weapons, or potential weapons (for example, broken glass);
• UV radiation; and
• Neighboring land use.

Environmental Impact Concerns/Maintaining Compliance
To ensure compliance with public health requirements, carry out a public health audit just
prior to the commencement of the event. Also undertake subsequent periodic surveillance
during the event. These procedures are particularly important for outdoor events in hot
weather with transient food vendors who may not have sufficient sanitary or refrigeration
mechanisms available or established public health or safety protocols.

Environmental health officers should have access to resources to assist in early intervention
when any problem is noted (for example, toilet servicing, unsafe areas, fencing repairs, water
testing) rather than using their powers to stop the event or particular operation.

AIRCRAFT
If helicopter flights will be available for spectators or members of the media to view the
event from the air, the following concerns should be addressed:

• Will flights be prohibited directly over the event and spectators and confined, instead, to
circular paths around the perimeter?
• Will staging areas or heliports be confined to the periphery of the event, to avoid flights
directly above spectators during take-offs and landings?
• Does the proposed staging area or heliport comply with federal regulations governing
such use?
• Which public safety agency working the event will be designated as responsible for
interacting with the FAA if required?



SPONTANEOUS EVENTS OCCURRING AT PLANNED EVENTS

As the title for this section suggests, organizers cannot plan for or anticipate every crisis.
However, you can take certain measures to ensure personnel safety. For example, if a stand
collapses, the fire department uses an established, practiced procedure to remove the injured
and to cordon off the area. This procedure will not change because the stand collapses at a
spontaneous event. Contingency plans, modeled on established procedures, need to be in
place for demonstrations, protests, or picketing that may occur during a planned event. Train
for the worst and respond to your training. Plan for the worst, and you can handle even the
unexpected events in an orderly manner. Designate specific incident resources in advance to
respond to spontaneous events as they may occur. During event planning, brainstorm a list of
potential spontaneous events most likely to occur.

CAMPING

If you permit camping at the event, you should consider the following:

• Providing for the safety of the campers and their belongings,
• Disposing of solid and liquid waste,
• Clearly marking temporary streets,
• Clearly defining avenues of access for ambulances, law enforcement, and other
emergency vehicles,
• Controlling the building of fires’
• Removing fire hazards ahead of time, and
• Installing a public address system to communicate emergencies to campers.

Survey proposed camping areas to ascertain their safety, paying particular attention to:

• Low-lying areas subject to flooding,
• Areas adjacent to creeks or rivers,
• Areas near utility lines, and
• Trees that may drop branches, especially during a severe storm.

HAZARDOUS MATERIALS (HAZMAT)

The nature of some events causes concerns over hazardous materials and the ability of local
officials to handle such incidents (for example, propane gas cylinders used for cooking and
pyrotechnic lighting areas). In most communities the fire department is the agency set up to
respond to hazardous materials calls. The best way to plan for disposal of hazardous
materials is to inform the fire department ahead of time about potential hazards and their
locations. Providing a brief strip map with a description of the possible hazard reduces the
response time and allows the responder to be prepared. If the local fire company is not



adequately trained or equipped to handle the hazardous material, planners must identify in
advance the closest department that is equipped and consider staging them close by during
the event.

Gas Cylinder Anchorage
At many public events, portable pressurized gas cylinders are used to inflate children's
balloons, to carbonate beverages, or to provide cooking fuel. Frequently, such cylinders are
not secured, or are merely fastened to two-wheeled hand trolleys designed to transport them,
which are themselves not independently secured.

If such cylinders topple and the cylinder neck or valve cracks, the uncontrolled release of the
stored, pressurized gas can turn the cylinder into a deadly projectile. For this reason, all
portable gas cylinders must be secured.

Propane Leakage
Used incorrectly, propane can be deadly. Propane is a flammable material that is heavier than
air used for cooking at many large events. Tanks must be properly secured. Qualified
inspectors, usually from the fire service, should also make periodic inspections of the tanks to
ensure that the location is a safe distance away from heat sources or other possible sources of
danger.

Ability of Public Sector to Respond
During the planning stages of an event, it is very important that you discuss with your local
public safety providers exactly what agency is responsible for which response and know the
capabilities of the local responders. In some communities the fire department is responsible
for HazMat response; other communities have HazMat teams, and some use the state assets
for response. Learn your community’s capabilities and HazMat protocol before they are
needed and consider staging them close by for the event if the primary responders are not
associated with the local jurisdiction.

ELECTRICAL UTILITY COORDINATION REQUIREMENTS

Participants, spectators, and event staff are all affected by lighting, which is needed to setup,
tear down, and ensure the safety of the event. Make certain that lighting is adequate and that
the power supply to provide the lighting for the event, campgrounds, and parking areas is
adequate.

Even in venues that are darkened for performances, lighting should always be in use to
identify exits as well as the corridors and aisles leading to them. All temporary electrical
facilities should be inspected and approved by a local government inspector to ensure the
safety of all.



Install auxiliary battery power or generators to provide light and to power the public address
system in a power outage. You must be able to give information and directions to spectators
during a power failure to alleviate panic.

Because many concerts are performed with only stage lighting, event staff access to the main
lighting board or house lights console is essential in case of an emergency. Onsite personnel
responsible for dealing with emergencies must know the location of the controls for these
lights and how to operate them.

FIRE SAFETY

All states and territories have legislation governing fire safety. The local fire authority should
monitor fire prevention and preparedness plans to ensure that the measures taken meet
relevant standards. Organizers and health personnel should consider potential fire hazards in
the planning process and discuss any concerns they may have with the fire authority. Fire and
law enforcement should determine in advance how they will handle a civil disturbance or riot
involving fire-setting behavior and have contingency plans in place. For example, a team of
police officers may be assigned to accompany each engine sent out to quell a fire set by
rioters.

Site design should be such as to mitigate fire hazards. For example, clear storage areas,
timeliness in picking up trash, construction of metal rather than wood, no open flames, and
control of pyrotechnics, assist in fire mitigation.

COMMUNICATIONS SYSTEMS

A means of communicating with the crowd is essential at all events. Ideally, you should
establish multiple communications systems to enable messages to be directed at different
sections of the crowd, including crowds massed outside the venue. The Command Post
should have access to the central communications system.

Before the event begins, establish appropriate arrangements for communications should an
emergency arise. If emergency personnel will use a separate sound system, they need some
means of muting or silencing the stage sound system. Also, consider the use of signboards
throughout the venue as an enhancement to the public address system.

Because public announcements are an important element of the safety plan for an event,
consider the style and content of announcements, as follows:

• At what volume level can announcements be heard over spectator noise?
• Will the audience easily understand announcements?
• Are multiple language announcements required?
• What wording will lend credibility to the instructions?



If public address systems cannot be put in place outside the venue, personnel can use the
public address systems that form part of the electronic siren system in most emergency
vehicles.

Closed circuit television is another option available for organizers to provide visual
information to the public.

Two-Way Communication
While it goes without saying that the various emergency services (police, health, fire) must
be able to communicate with their own staffs, experience has shown that different services
must be able to:

• Communicate with each other;
• Communicate between staff outside and inside the venue to obtain a proper
understanding of the nature or scope of an emergency; and
• Communicate with senior event organizers, including security, who may be the first to
identify an incipient problem.

Some areas to consider are:

• Do not rely on cellular telephones;
• Ensure there is an integrated, multi-agency frequency for communications;
• Consider laying land lines for telephone service; and
• Using amateur radio operators for communications.

A central communications area (for example, a room or a trailer dedicated to this use) at the
Incident Command Post with a representative from each major agency may facilitate the
dissemination of vital information through the centralized monitoring of relevant radio
communications.

Since a single system can fail, the communication system should be multi-modal. It should
also be supplied with own backup power source.

Attendees’ Personal Emergencies
Some means should be established to contact spectators and for spectators to call outside the
venue if necessary. Some events provide small booths staffed with volunteers to assist in
message passing. Other events use the public address system. While yet others provide event
brochures with emergency information inside. Select the most effective way to send
messages at your event. If invited to, many phone companies often will provide a temporary
bank of pay or credit card phones on the venue.

Event Public Address System
Do not rely on the sound system used by the performers to serve the internal requirements
and release information to the public. Sometimes those responsible for it have refused to
authorize its use except during a change of performers so an alternate venue wide PA system



is necessary to prevent delays in messages. Informing the public of information reduces the
pressures on event staff. Reducing uncertainty among spectators defuses tension. A public
address system is important at any event.

Event Emergency Warning System
Some means to inform everyone of an emergency or dangerous weather condition should be
in place for every event, no matter the size. This emergency warning system must be able to
operate without benefit of the main power source and be operational at all times. Ensure that
the system can be heard clearly in all areas of the event. One person should be in charge of
emergency communication. The Incident Commander should authorize the release of
emergency messages. All involved agencies should be advised, in advance if possible, of the
anticipated release of an emergency message and allowed to inform their personnel to
prepare for the public’s response. Part of the planning process should be drafting sample pre-
scripted messages for use in an emergency. While drafting these messages, consider using a
code word or phrase to identify authentic emergency messages and to ensure that emergency
personnel respond only to true emergencies.

RUMOR CONTROL

Rumor Control is another area that is difficult to plan for but one that you must address. Most
communities have plans for rumor control during emergencies. You can respond in a similar
manner to rumors during an incident at an event. As discussed in Chapter 3, the lead agency
should designate a Public Information Officer. Upon designation the lead agency must
determine in advance both what is going to be said and who is authorized to release
information. For accuracy and to promote efficiency in rumor control, designate one source
of authority.

Internal rumor control is also needed. Personnel working the event need to be kept informed
through an official chain of communication, especially if an unanticipated incident occurs.
Information is best disseminated through daily shift briefings that include sharing of
operational objectives for the operational period.

OCCUPATIONAL HEALTH AND SAFETY

Since the promoter and authorities are obligated to provide for the safety of the audience, and
appropriate care, safety, and training of all personnel working at the event, they should be
familiar with state and local occupational health and safety legislation.

Many events rely on staff volunteers. While most public safety agencies are not allowed to
use volunteers because the agencies may be liable for them, the promoter will probably use
volunteers extensively and is liable for their safety. Emergency Medical Services (EMS) may
use volunteers provided that they are adequately trained and certified. If the public sector



uses volunteers, they must protect the volunteers as they would protect the occupational
health and safety of any other employee.

At events where noise levels are high, such as rock concerts, air shows, and motor racing
events, adequate ear protection must be provided to employees who will be exposed to high
noise levels for prolonged periods.

Noise pollution from events probably causes the majority of complaints to authorities from
the surrounding community, and some means of monitoring and reducing noise levels
should, if possible, be implemented. The permitting agency should mandate that the promoter
advises the community of what to expect well in advance of the event.

ALCOHOL, DRUGS, AND WEAPONS

Alcohol, drugs, and weapons are potential hazards the crowd can bring to any event. They
can be catalysts for, and can exacerbate, and unruly behavior in a crowd. Every community
has its own laws and regulations regarding alcohol, drugs, and weapons. The following
suggestions are merely guidelines.

A number of strategies that have been implemented, with varying degrees of success, in
reducing the problem include:

• The prohibition of the sale and use of alcoholic beverages at events where unruly
audiences are expected, or where a significant number of the patrons will be under the
legal drinking age.
• If alcohol is to be sold, then low alcohol content beverages can be made available.
Alcohol sale times can be controlled and beverages dispensed only in disposable cups.
• Establish an early “last call” for alcohol. For example, during major league baseball
games, alcohol is not sold after the seventh inning, and during professional basketball
games, it is not sold after the third quarter.
• If alcohol, weapons, and fireworks are lawful within the state, advance tickets and display
advertising should contain the message that they will not be permitted into the event.
Tickets and advertising should also state that purchase of tickets is deemed as
constituting the patron’s consent to be searched for prohibited material prior to
admission.
• Searches of personal belongings (such as jackets, purses, or bags) and confiscation of any
alcohol, drugs and weapons further reduces the risk of unruly behavior.
• Signs in event parking areas and at admission gates should also display a warning to
discourage patrons from bringing alcohol, drugs, or weapons into the event. There are,
however, possible negative consequences to such signage. Some patrons may attempt to
consume a quantity of alcohol intended for the entire event prior to entry, ultimately
causing problems for the event medical staff. Alternatively, signage could also have the
effect of causing spectators to leave alcohol in their cars, only to consume it in the



parking lot at the end of the event prior to departure. The most desirable action is to
discourage patrons from bringing prohibited materials to the event in the first place.

If you decide to confiscate prohibited goods, you must make arrangements for the storage
and disposal of these materials.

Two strategies which may be applied to handling all prohibited material:

• Give the spectator the option of returning it to his or her car, with a subsequent loss of
place in line; or
• Tag it with “peel and stick” numbered stickers for return to the patron following the
event. If, for any reason, you deem confiscation inappropriate, you can apply such a
solution to any weapons, or materials that are potential weapons that you may find.

SECURITY

Event organizers must decide what type of security to provide and the scope of their
jurisdiction. Providing security services and the stewarding function are vital to public safety,
particularly within the venue. There are essentially three types of security that you can
provide at large public events. These are:

• Peer security,
• Police officers in uniform, and
• Private security guards in uniform.

The composition of security services will vary according to the event; one or a combination
of the three types may better serve different events.

Clearly establish the roles and responsibilities of security personnel prior to the event.
Decisions and actions taken by security personnel may affect the way emergency services
and health personnel respond to a crisis. In planning and throughout all stages of the event,
maintain a close working relationship between:

• Security personnel,
• The promoter,
• Health and medical services,
• Other police and emergency services, and
• Other security services for example those who are responsible for the performers’
personal safety.

Special security considerations include:

• Will the event organizers or promoters use police officers for onsite security, or will they
hire private security officers?



• If you use private security officers, what will their role and functions be, and how will
their services be integrated with the police? Are they permitted to work outside the
venue?
• What policies will security personnel enforce for minor offenses on site to assure that
policy is enforced consistently during the event and throughout the venue?
• Will there be areas on site for the collection and storage of significant sums of money,
and what security will be established to protect these areas, as well as offsite transfer or
banking? Are these areas positioned near road access to avoid the risks associated with
carrying large sums of money on foot through spectator areas?
• How will security personnel move high-profile persons through crowded areas?
• How will security personnel handle lost or stolen property?
• How will security personnel detect forged credentials?
• How will security personnel deal with lost children and missing persons?

You should clearly define the responsibilities and roles of security personnel before the
event. These may include:

• Crowd management, including measures taken to prevent crushing;
• Control of access to stage or performance areas;
• Security control at entrances and exits;
• Minimizing risk of fire by patrolling area;
• Control of vehicle traffic and marshaling;
• Searches for alcohol, drugs, and weapons;
• Security of large sums of money and confiscated goods; and
• Assisting emergency services if necessary.

Pre-event Briefing of Security Personnel
To enable security personnel to perform their duties effectively, you must brief them
appropriately prior to the event. This briefing should provide security personnel with:

• Details of the venue layout, including entrances, exits, first aid points, and any potential
hazards;
• Clear direction on the management of unacceptable behavior;
• Basic information about the event such as location of first aid, lost person station,
information, parking, transportation matters, and other pertinent spectator information;
• Details of emergency and evacuation plans, such as raising alarms, protocols for
requesting assistance, and evacuation procedures;
• Instructions for the operation, deactivation, and isolation of any onsite machinery and
utility supply in case of emergency; and
• Details of the incident communications plan and the equipment to be used.

The attitude of security personnel has a major influence on crowd compliance. Security
personnel are charged with not only controlling a crowd, but also with making them feel
welcome. Every individual staff member who comes into contact with the spectators plays a



role in crowd control. The dress, demeanor, and actions of staff may set behavioral
expectation levels, and you should consider this fact in planning and pre-event briefing of
staff.

Deployment
You should consider strategic deployment of security staff. All venues will have areas
particularly suited to crowd monitoring and problem areas where particular attention is
required. The type and size of venue may control what method of transportation the security
personnel use. Are bicycles or golf carts more practical than vehicles or on foot. Indoor
events are usually patrolled on foot, whereas a large outdoor area may be patrolled using
bicycles, golf carts, or automobiles. The amount of time the personnel must patrol also may
play a factor. Deployment considerations include:

• Identification of strategic deployment points, such as entrances and exits, barriers, and
general thoroughfares;
• Establishment of strategic observation points to monitor crowd movements and behavior
(a central control room with video surveillance may be required);
• Use of video “pole cameras” in densely populated areas.

Peer Security
Experience has shown that, in general, you can promote security for events attracting youth
audiences better and more simply through the use of “peer security” - security personnel of
the approximate age of the spectators who can relate to and be accepted by the youthful
patron. Usually wearing brightly colored T-shirts plainly marked SECURITY. Peer security
personnel provide a less confrontational security presence by avoiding the posture of rigid
authority and the force that often accompanies it. As one concert organizer commented on his
experience with peer security:

They do not carry weapons and do not attempt to fill a police function. They serve as
crowd monitors, people movers, and troubleshooters. Such personnel are not there to
reform or catch the alcohol or drug user. . . . They concentrate on maintaining orderly
crowd flow for the safety of the patrons.

You should provide appropriate guidelines for peer security personnel and stipulate limits to
their authority. Duties for security at the historic Woodstock concert in 1969, which attracted
500,000 spectators, were:

. . . keeping the peace, helping people in distress, assisting the staff of doctors and nurses,
clearing paths for ambulances, seeing that areas were cleared for helicopter take-offs and
landings, and guarding the stage, the performers, and all the land we hadn't rented. They
did not include busting people, whether for drug offenses, nudity, obscene gestures, or
sex acts. People on bad drug trips were to be handled gently until someone with
experience could be found to assist.



Private Uniformed Security
Private uniformed security are probably better suited to events which attract more docile
spectators, such as religious rallies, charitable dinners, and art shows, and usually will be less
costly than a police presence. At events attracting crowds of more youthful exuberance, or
volatile sports spectators, private uniformed security are probably more appropriately utilized
in non-confrontational roles, such as ticket taking and parking cars.

Care needs to be taken to ensure that private uniformed security personnel are recruited only
from reputable sources with competent and suitably trained personnel. You should discuss
any special requirements for the event with the security firm.

In certain circumstances, private uniformed security can lead to problems. A uniform gives
an authoritative appearance that is often not supported either by adequate training or
authority in law. As a result, private uniformed security provide neither the power of police
nor the rapport achieved by peer security.

Police
At many events, uniformed police perform functions, such as traffic control, and leave
internal event security to private personnel employed by the organizers.

A typical crowd composed mainly of families needs 1 police officer per 1000 spectators. In a
more active crowd (for example, at a sporting event where alcoholic beverages are sold), 2
police officers for every 1000 spectators are commonly employed.

Certain spectator groups may not, however, be amenable to either peer or private uniformed
security, such as crowds who have historically seen violence as part of the event “culture.”
While various diffusing techniques are available and should be employed, often nothing less
than a contingent of uniformed police will dissuade a spectator group that enters with the
expectation and intent of violence. These groups are in marked contrast to rock concert
audiences who enter in a peaceful frame of mind, but may be induced to rowdiness by
alcohol, shortcomings in the event, or other catalysts.

Dignitaries and Celebrity Guests
Events with invited dignitaries or in which dignitaries participate create an entirely new
group of hazards and difficulties. A dignitary presence may change the level of jurisdiction
and the type of security needed at the event. The planning team may not know in advance if a
dignitary or celebrity is coming, therefore it is important to have contingency plans involving
local agencies such as law enforcement, fire, and other to coordinate with the, state and
federal agencies should a special guest arrive. Many dignitaries have their own security
service which travels with them. Providing special seating for dignitaries may be necessary.
Discuss the possible difficulties and hazards before allowing the promoter or sponsor to
extend invitations to dignitaries.



LOST CHILD AND “MEET ME" LOCATIONS

Due to the size of an event and the number of spectators at the venue, children will inevitably
be separated from their adult supervisors. Planners must designate a place for lost children to
be rejoined with their guardians and have a checklist to allow information to be disseminated
quickly and accurately.

Other useful areas include “meet me” locations. These are designated locations throughout
the site, which are well marked and easily spotted. Patrons can plan to meet at these locations
at a predetermined time, or they may use these locations should they become separated.

INFORMATION CENTER

A well-identified, well-publicized information center on site, staffed with knowledgeable
persons, can reduce pressures on security, medical, and other event staff, by providing a full
range of informational services to patrons. Reduction of uncertainty among spectators
defuses the kind of tension that can lead to behavioral problems. To ease the burden on the
public sector, the promoter should be required in the permit application process to provide
this service.



SAMPLE EVENT SITE MAP


Chapter 3
Incident Command
and Control


Incident Command and Control

CHAPTER 3: INCIDENT COMMAND AND CONTROL
INTRODUCTION

Chapter One stresses the importance of pre-event planning, organization, and leadership. It
suggests a Planning Team using the Incident Command System (ICS) to effectively manage
the event planning process. In a large-scale event involving numerous agencies, people can
become confused as to who is in charge, what role everyone plays, and what responsibilities
everyone has. ICS is an excellent tool that can resolve these issues. This chapter discusses
ICS, how it can be applied to special events, and the concept of Unified Command.

Unfortunately, even the best-planned special events may not run entirely smoothly. During
any special event, you must be prepared to respond to one or more incidents that may occur
during the event. The way these incidents are managed has a great deal to do with the
ultimate success of the special event. Everyone must know his or her role and tasking, as well
as, where to seek information. This chapter also discusses the use of ICS during these
situations.

INCIDENT COMMAND SYSTEM (ICS)

The Incident Command System (ICS) dates back to the early 1970s. Responding to a series
of wildland fires in Southern California, municipal, state, county, and federal resources
worked together to achieve a single goal. Because agency differences in communications,
control, strategy management, and other leadership concerns, as well as the use of
nonstandard terminology, caused many difficulties, the agencies produced a plan called
FIRESCOPE to combat these problems and create centralized control. The National Fire
Academy adopted this program, and the International Association of Chiefs of Police
endorsed it in 1987. The federal government eventually endorsed this plan and now requires
its use in any operation involving hazardous materials.

Using ICS is an excellent means of determining how resources are going to be used, who will
coordinate them, and how information will be communicated using common terminology in
response to a variety of matters relating to any special event. ICS is designed to assist event
planners in the areas of:

• Basic management of resources,
• Organization,
• Delegation of authority,
• Coordination,
• Communication, and
• Evaluation.

Use of ICS optimizes communication and coordination, and facilitates the protection of life
and property. ICS achieves this goal by establishing a protocol command structure for any



event or incident and using common terminology that ensures everyone will understand what
is being said and how to acknowledge it properly. The command organization consists of an
incident commander, command staff, and general staff. In some small events, the Incident
Commander (IC) may handle all functions; in larger events, the IC may delegate tasks to
other persons. Five functional components of ICS are implemented, as needed:

• Command,
• Planning Section,
• Operations Section,
• Logistics Section, and
• Finance/Administration Section.

In addition to the type, location, size, and expected duration of the event, the following
information will help event planners develop an organizational structure to meet the
management needs of the planned event:

• Does the event involve a single agency or multiple agencies?
• Does the event involve a single jurisdiction or multiple jurisdictions?
• What command staff needs exist?
• What kind, type and amounts of resources are required by the event?
• Are there any projected aviation operations?
• Are there any staging areas and other required facilities?
• What kind and type of logistical support needs are required by the event?
• Are there any known limitations or restrictions of local resources?
• What kind and type communications resources are available?

ICS can be expanded as the event demands increase in volume or complexity, and then
contracted as demands diminish.

Applying ICS to special events is logical and relatively straightforward. As discussed in
Chapter One, the representative from the special event’s lead agency is a likely candidate for
Incident Commander. The Incident Commander or Planning Team leader could divide the
event into operational periods (e.g., the day before, day of, or first 12-hours, second 12-
hours, etc.). An incident action plan (IAP) is then developed for each operational period. The
IAP identifies the objectives and actions of all involved agencies for that particular
operational period. Planners can precisely establish what is required before and during the
event. Applicable ICS IAP forms are found in the appendix of this manual.



Incident Command System

Incident Commander
Safety
Information
Liaison

Operations Planning Logistics Finance/
Section Section Section Administration
Section
Staging Areas Resources Services Branch
Unit Communication Time Unit
Air Unit
Branches Situation
Procurement
Operations Unit Medical Unit
Branch Unit
Divisions Demobilization Food Unit
& Groups Compensation/
Air Support Unit
Support Branch Claims Unit
Group
Strike Teams Documentation
Air Tactical Unit Supply Unit
& Group
Technical Cost Unit
Task Forces Specialist Facilities Unit

Single Ground Support
Resources Unit

ROLES AND EXPECTATIONS

The ICS chart above shows the five major sections that may be required to manage any event
and/or incident. Branches of these sections that may also be needed are identified as well.
Some events/incidents require very few functional areas, while others require activation of
more. As you can see from the chart, ICS designates positions for every contingency. The job
descriptions below detail what is required of persons filling the major positions.

Incident Commander
As discussed in Chapter 1, the event Incident Commander (IC) is responsible for the overall
management of the special event. For most events, a single IC carries out the command
activity. Certain incidents occurring during a special event may dictate the need for a specific
incident commander to manage that incident. This IC should report to the overall event IC.

The overall event IC may have a deputy from his or her agency or from an assisting agency.
Deputies may also be used at section and branch levels of the ICS organization. Deputies



must have the same qualifications as the persons for whom they work because they must be
ready to take over those positions at any time.

Responsibilities—The overall event Incident Commander must:

• Ensure that all appropriate pre-event risk analyses, plans, checklists, and forms (see
appendix) are completed and available to event personnel.
• Develop the mission, objectives, strategies, and command structure for the event;
• Establish immediate priorities;
• Establish an appropriately located event Command Post (CP);
• Develop an effective operational period schedule;
• Ensure that planning meetings are scheduled as required;
• Approve and authorize the implementation of an Incident Action Plan (IAP) for each
operational period;
• Ensure that adequate safety measures are in place;
• Coordinate activity for all command and general staff;
• Coordinate with key people;
• Approve requests for additional resources or for the release of resources;
• Keep agency administrators informed of event/incident status;
• Approve the use of trainees, volunteers, and auxiliary personnel;
• Authorize release of information to the news media; and
• Ensure that an order the demobilization of the event/incident when appropriate.

Safety Officer
The Safety Officer’s function is to develop and recommend measures for assuring personnel
safety and assess or anticipate hazardous and unsafe situations. Only one Safety Officer will
be assigned for each event. The Safety Officer may have assistants as necessary, and the
assistants may also represent assisting agencies or jurisdictions. Safety assistants may have
specific responsibilities, such as air operations or hazardous materials.

Responsibilities—The Safety Officer should:

• Participate in all planning meetings;
• Identify hazardous situations associated with the event;
• Review the IAP for safety implications;
• Exercise emergency authority to stop or prevent unsafe acts;
• Investigate accidents that have occurred during the event;
• Assign assistants as needed; and
• Review and approve the medical plan.

Information Officer
The Information Officer is responsible for developing and releasing public information
regarding safety matters of the event to the news media, to incident personnel, and to other
appropriate agencies and organizations. Typically, the event promoter or sponsor releases



most public information and advertisements. In the case of a major incident occurring during
the event including those operating under Unified Command, the Information Officer should
become the sole spokesperson. The Information Officer may have assistants as necessary,
and the assistants may also represent assisting agencies or jurisdictions.

Participating agencies may have conflicting policies and procedures concerning the
dissemination of public information. The following major responsibilities assigned to the
Information Officer apply generally to any event.

Responsibilities—The Information Officer should:

• Determine from the Incident Commander whether there are any limits on information
release;
• Develop material for use in media briefings;
• Obtain the Incident Commander’s approval of media releases;
• Establish a media briefing area;
• Inform the media and conduct media briefings;
• Arrange for tours and other interviews or briefings that may be required;
• Obtain media information that may be useful to event planning; and
• Maintain current information summaries and/or displays on the event and provide
information on the status of any incidents to assigned personnel.

Liaison Officer
Special events that are multi-jurisdictional or that involve several agencies may require the
establishment of a Liaison Officer position on the Command Staff.

The Liaison Officer is the contact person for agency representatives assigned to the event
from assisting or cooperating agencies. These representatives are personnel other than those
on direct tactical assignments or those involved in Unified Command.

Responsibilities—The Liaison Officer should:

• Be a contact point for agency representatives;
• Maintain a list of assisting and cooperating agencies and agency representatives;
• Assist in establishing and coordinating interagency contacts;
• Keep agencies supporting the event aware of event/incident status;
• Monitor event operations to identify current or potential inter-organizational problems;
• Participate in planning meetings, providing current resource status, including limitations
and capability of assisting agency resources.



Operations Section Chief
Responsibilities—The Operations Section Chief should:

• Manage tactical operations;
− Interact with next lower level of the Operations Section (Branch, Division/Group) to
develop the operations portions of the IAP, and
− Request resources needed to implement the Operation’s tactics as a part of the IAP
development;
• Assist in developing the operations portion of the IAP;
• Supervise the execution of the IAP for Operations;
− Maintain close contact with subordinate positions, and
− Ensure safe tactical operations;
• Request additional resources to support tactical operations;
• Approve release of resources from assigned status (not released from the event/incident);
• Make or approve expedient changes to the IAP during the operational period as
necessary; and
• Maintain close communication with the IC.

Planning Section Chief
The Planning Section collects, evaluates, processes, and disseminates information for use
throughout the event. When activated, the Planning Section Chief who is a member of the
command staff manages the section.

Responsibilities—The Planning Section Chief should:

• Collect and process situation information about the event;
• Establish information requirements and reporting schedules for Planning Section units
(Resources and Situation Units);
• Supervise preparation of the IAP;
• Provide input to the Incident Commander and Operations Section Chief in preparing the
IAP;
• Establish special information collection activities (for example, weather, environmental,
and toxic substances) as necessary;
• Compile and display event status information;
• Report any significant changes in the status of the event;
• Assemble information on alternative strategies;
• Provide periodic predictions on event/incident potential;
• Determine need for any specialized resources in support of the event;
• Reassign out-of-service personnel already onsite to ICS organizational positions, as
appropriate; and
• Oversee preparation of event/incident demobilization plan.



Logistics Section Chief
Typically, the promoter and/or sponsor provide resources to execute the event. However,
certain necessary resources and support needs may not be provided (e.g., command post,
communications equipment, medical supplies, etc.), and therefore, must be procured. The
Logistics Section, with the exception of aviation support, provides support needs for the
event command infrastructure. The Air Support Group (in the Air Operations Branch of the
Operations Section) handles aviation support. The Logistics Section Chief, who may assign a
Deputy, manages the Logistics Section. A Deputy is most often assigned when all designated
units within the Logistics Section are activated.

The Logistics Section Chief will determine the need to activate or deactivate a unit. If a unit
is not activated, responsibility for that unit’s duties will remain with the Logistics Section
Chief.

Responsibilities—The Logistics Section Chief should:

• Manage all event command infrastructure logistics;
• Provide logistical input to the Incident Commander in preparing the IAP;
• Brief Branch Directors and Unit Leaders as needed;
• Identify anticipated and known event service and support requirements;
• Request additional resources as needed;
• Review and provide input to the Communications Plan, Medical Plan and Traffic Plan;
• Supervise requests for additional resources; and
• Oversee demobilization of Logistics Section.

Finance/Administration Section Chief
The Finance/Administration Section is responsible for managing all financial aspects of the
event command infrastructure. Here again, typically, the promoter and/or sponsor manage the
financial aspects of most special events. However, when certain necessary resources and
support needs are not provided, some means of maintaining financial accountability should
be established. As such, not all event/incidents will require a Finance/Administration Section.
Only when the agencies involved in responding to the event/incident have a specific need for
Finance/Administration services will the section be activated.

Responsibilities—The Finance/Administration Chief should:

• Manage all financial aspects of an event’s command infrastructure;
• Provide financial and cost analysis information as requested;
• Gather pertinent information from briefings with responsible agencies;
• Develop an operating plan for the Finance/Administration Section to fill supply and
support needs;
• Determine need to set up and operate an event/incident commissary;
• Meet with assisting and cooperating agency representatives as needed;



• Maintain daily contact with agency administrative headquarters on
Financial/Administration matters;
• Ensure that all personnel time records are accurately completed and transmitted to home
agencies, according to policy;
• Provide financial input to demobilization planning;
• Ensure that all obligation documents initiated at the event/incident are properly prepared
and completed; and
• Brief agency administrative personnel on all event/incident-related financial matters
needing attention or follow-up.

INCIDENTS OCCURRING DURING A SPECIAL EVENT

As discussed above, certain incidents occurring during a special event may dictate the need
for a specific incident commander to manage that particular incident (e.g., isolated structure
fire, vehicle crash, HAZMAT incident, structure collapse, multiple casualty incident, etc.).
When an incident occurs within a special event, immediate action must be taken to control
and manage the incident. As the incident grows, the issues that must be considered will grow
as well. The Incident Commander of the special event may assign command of the
emergency incident to a ranking responder. This responder must take initial steps to bring
order to the incident as in situations requiring more traditional applications of ICS. The
Incident Commander of the special event may authorize the responder to implement their
own command structure and/or call upon the resources of the event command structure. This
responder must:

• Assess the situation;
• Determine whether human life is at immediate risk;
• Establish the immediate priorities and objectives;
• Determine whether there are adequate and appropriate resources on-scene or ordered;
• Establish an appropriately located on-scene Command Post (CP), if needed;
• Establish an appropriate initial command structure, if needed;
• Develop an action plan;
• Ensure that adequate safety measures are in place;
• Coordinate activity for all command and general staff;
• Consider whether span of control is approaching or will soon approach practical limits,
taking into account safety of personnel;
• Determine whether there are any environmental concerns that must be considered;
• Monitor work progress – coordinate with key people;
• Review and modify objectives and adjust the action plan as necessary.
• Approve requests for additional resources or for the release of resources;
• Keep the overall event Incident Commander informed of incident status;
• Authorize release of information to the news media; and
• Order the demobilization of the incident when appropriate.



TRANSFER OF COMMAND

In prolonged events, it is likely that a change of command may take place. When transfer of
command is necessary, the transfer must be made as efficiently as possible and in person,
whenever possible. To transfer command, the person being relieved must brief the incoming
Incident Commander to provide information about:

• The incident conditions including:
− Event history (what has happened so far),
− The IAP and its current status,
− Priorities and objectives,
− Current event organization,
− Current resource assignments,
− Resources ordered/needed,
− Status of communications
− The IAP and its current status.
• Safety considerations and concerns.
• Deployment and assignment of operating units and personnel.
• Constraints or limitations on response agencies, and
• Incident potential.

ICS Form 201 is well designed for briefings (a copy of this form is provided in the
appendix) because it contains a place for a sketch map, a place to write a summary of
current actions and organizational framework, and a place to summarize resources.
Sections of the form can be separated from the document and given to ICS sections to
complete as needed.

Be aware that changes may cause disruptions and should be implemented at the start of
operational periods whenever possible. Finally, once command has been transferred, ensure
that all personnel and communications centers are notified of the transfer of command.

UNIFIED COMMAND

ICS is built from the Unified Command concept. Unified Command is a term referring to
shared responsibility for event management using either single agency multi-jurisdiction or
multiple agencies. A clear line of authority for decision-making must always be in place.

ICS offers two options for command, as follows:

• Single Command, in which there is no overlap of jurisdiction or when the agency in
charge designates Single Incident Command; or



• Unified Command, when more than one agency shares responsibility for responding to,
or participating in, the event/incident. Unified Command means that all agencies
contribute to the command process by determining goals and objectives, jointly planning
activities, conducting integrated tactical operations, and maximizing all resources.
Unified command is also used when an event/incident is multi-jurisdictional or when
more than one individual shares overall management responsibility.

Unified Command is a team effort process, allowing all agencies with responsibility for an
incident, either geographical or functional, to establish a common set of incident objectives
and strategies to which all can subscribe. This set of objectives and strategies is
accomplished without losing or abdicating agency authority, responsibility, or accountability.
Unified Command is not a new organization; the U.S. military has used similar command
structures in joint operations for years.

There are four elements to consider when applying Unified Command to an event/incident:

Policies, Objectives, Strategies
In joint military operations, setting the policy, objectives, and strategy is the responsibility of
the coalition of countries operating within the United Nations mandate. In ICS, this
responsibility belongs to the various jurisdictional and agency administrators who set policy
and are accountable to their agencies. This activity is accomplished in advance of tactical
operations, and it may be coordinated from some location other than the one where the direct
action takes place.

Organization
In joint military operations, Unified Command organization consists of the unified Force
Command established at the scene. In ICS, Unified Command organization consists of the
various jurisdictional or agency on-scene senior representatives (agency Incident
Commanders).

Resources
In joint military operations, resources include of all of the U.S. armed services, plus various
service elements from other countries. In ICS Unified Command, resources are the personnel
and equipment supplied by the jurisdictions and agencies that have functional or
jurisdictional responsibility for the IAP.

Operations
In joint military operations, after the objectives, strategies, and interagency agreements are
decided, a single Force Commander is designated to develop tactical action plans and to
direct tactical operations. In ICS/Unified Command, that person is the Operations Section
Chief.

In both joint military operations and ICS Unified Command, resources remain under the
administrative and policy control of their agencies. However, they respond operationally to



mission assignment under the coordination and direction of the Force Commander or
Operations Section Chief, depending upon the requirements of the action plan.

Unified Command represents an important element in increasing the effectiveness of multi-
jurisdictional or multi-agency events/incidents. As events/incidents become more complex
and involve more agencies, the need for Unified Command becomes even greater.

The advantages of using Unified Command include:

• A single set of objectives developed for the entire event/incident;
• A collective approach made to develop strategies to achieve event/incident goals;
• Improved information flow and coordination among all jurisdictions and agencies
involved in the IAP;
• An understanding among agencies of respective priorities and restrictions regarding
responsibility for the IAP;
• No compromise or neglect of an agency’s authority or legal requirements;
• An awareness among agencies of respective plans, actions, and constraints;
• An optimized combined effort of all agencies performing their respective assignments
under a single IAP; and
• A reduction or elimination of duplicative efforts, thus reducing cost and chances for
frustration and conflict.

Using Unified Command is practical and cost effective. Agencies can improve incident
management and achieve goals in a timely, cost-effective manner.

UNIFIED COMMAND ORGANIZATION

Five important features of a Unified Command organization include a single, integrated
incident organization; collocated facilities; a single planning process and IAP; shared
planning, logistical, and finance sections; and unified resource ordering.

A Single Integrated Incident Organization
Under Unified Command, the various jurisdictions or agencies are blended together into an
integrated, unified team. The resulting organization may be a mix of personnel from several
jurisdictions or from a single agency, each performing appropriate functions and working
toward a common set of objectives. The proper mix of participants in a Unified Command
organization will depend on:

• The location of the event/incident, which often determines the jurisdictions which must
be involved; and
• The kind of event/incident, which dictates the functional agencies of the involved
jurisdiction(s), as well as other associated agencies.



In a multi-jurisdictional response to an event/incident, a Unified Command structure could
consist of a single responsible official from each jurisdiction. In other cases, Unified
Command may consist of several functional department managers or assigned representatives
from within a single political jurisdiction.

Co-located Facilities
By bringing the responsible officials, command staffs, and planning elements together in a
single Incident Command Post, a coordinated effort can be maintained for as long as the
Unified Command structure is required.

One base or command post can serve the needs of multiple agencies. Similarly, resources
from several agencies can be brought together in staging areas.

A Single Planning Process and IAP
Electing participants to work in Unified Command depends on the location and the type of
event/incident. A Unified Command structure may comprise one principal official from each
jurisdiction or representatives from several responders. Since the Operations Section is the
agency with greatest involvement, the Operations Section chief usually implements the IAP.
In a Unified Command, all agencies involved contribute to the command process.

Every event needs an IAP. Action plans may be written or verbal, although best if written.
Either type must cover strategic goals, tactical objectives, and needed support. If an event is
prolonged, it may require more than one action plan.

If the gathering is large and multiple events are taking place simultaneously, one feature of
the IAP may be an event/incident timeline showing the sequence of events and their
locations.

The planning process for Unified Command is similar to that used in Single Incident
Command. However, one important distinction is the need in Unified Command for every
jurisdictional or functional agency’s Incident Commander to participate in a Command
Meeting before creating the joint IAP in the first operational meeting.

This initial Command Meeting provides the responsible agency officials with an opportunity
to discuss and concur on important issues before the joint IAP is created.

Command Meeting requirements include the following:

• The Command Meeting should include only agency Incident Commanders.
• The meeting should be brief, and important points should be documented.
• Prior to the meeting, the respective responsible officials should have reviewed the
meeting’s purposes and agenda items (described above) and be prepared to discuss them.

Officials attending the initial Command Meeting should:



• State jurisdictional/agency priorities and objectives;
• Present jurisdictional limitations, concerns, and restrictions;
• Develop a collective set of event/incident objectives;
• Establish and agree on acceptable priorities;
• Adopt a general, overall strategy or strategies to accomplish objectives;
• Agree on the basic Unified Command organizational structure;
• Designate the best-qualified and most acceptable Operations Section Chief;
• Agree on General Staff personnel designations and planning, logistical, and finance
agreements and procedures;
• Agree on the resource ordering process to be followed;
• Agree on cost-sharing procedures;
• Agree on informational matters;
• Designate a single agency official to act as the Unified Command spokesperson.

Incident Action Planning meetings will use the results of the Command Meeting to
determine:

• Tactical operations for the next operational period;
• Resource requirements and resource availability and sources;
• Resource assignments;
• The unified Operations Section organization; and
• Combined Planning, Logistics, and Finance/Administration operations, as needed.

The result of the planning process will be an IAP that addresses multi-jurisdictional or multi-
agency priorities and provides tactical operations and resource assignments for the unified
effort.

Shared Planning, Logistics, Finance/Administration Sections
The Unified Command incident organization can also benefit by integrating multi-
jurisdictional and/or multi-agency personnel into various other functional areas.

For example, in the Operations and Planning Sections, Deputy Section chiefs can be
designated from an adjacent jurisdiction which may, in future operational periods, have the
primary responsibility for these functions.

By placing other agencies’ personnel in the Planning Section’s Situation, Resources, and
Demobilization units, significant savings in personnel, and increased communication and
information sharing will often result.

In the Logistics Section, a deputy Logistics Section Chief from another agency or jurisdiction
can help to coordinate event/incident support as well as facilitate resource-ordering activities.
Placing other agencies’ personnel into the Communications Section helps in developing a
single event/incident-wide Communications Plan.



Although the Finance/Administration Section often has detailed and agency-specific
procedures to follow, cost savings may be realized through agreements on cost sharing for
essential services. For example, one agency might provide food services, another fuel, and a
third security.

Unified Command Resource Ordering
An important advantage of Unified Command over Single Incident Command is the ability
of commanders to establish resource-ordering procedures before the Incident Action
Planning meeting. During the Command Meeting, commanders can designate specific kinds
and types of resources to be supplied by certain jurisdictions or agencies in the resource-
ordering procedures. This designation depends upon the previous commitments of the
responsible agency officials.

Following the Command Meeting, the Incident Action Planning meeting will determine
resource requirements for all levels of the organization. The nature and location of the
event/incident will, to some extent, dictate the most effective offsite resource-ordering
procedure.

These resource requirements established at the Incident Action Planning meeting are given to
the Logistics Section, which then creates a single resource order that is transmitted to a single
agency responsible for filling the order. (Some situations may require multiple resource
orders to be transmitted to multiple agencies. However, multiple resource orders are
generally less desirable than a single resource order, and they should be avoided when
possible.) The agency then fills the order from the closest available resource.

Having resource-ordering procedures in place before the Incident Action Planning meeting
determines resource requirements ensures that the agency filling the resource order can do so
quickly and effectively.

Functioning in Unified Command
It is essential to understand how an Incident Command System (ICS) Unified Command
functions. Knowledge of ICS principles of organization will enable managers to accept and
easily adapt to a Unified Command mode of operation when it is required. Lack of
knowledge about ICS can limit the willingness of some jurisdictions or agencies to
participate in Unified Command incident organization. It is impossible to implement Unified
Command unless all affected agencies have agreed to participate in the command structure.

Establishing a single Incident Command Post is essential to success. Other facilities where all
agencies can operate together may be established as needed. Avoid the confusion created by
separate command, planning, and logistics setups.

Begin action planning as early as possible after the notification of an event/incident. Initiate
Unified Command as soon as two or more agencies having jurisdictional or functional
responsibilities participate in, or respond to, the event or incident. Where conflicting



priorities based on agency responsibilities exist, early initiation of Unified Command is
especially important.

The Operations Section Chief will normally be chosen from the jurisdiction or agency that
has the greatest involvement in the event/incident, although this association is not essential.

However, the Operations Section Chief should be the most qualified and most experienced
person. The selection of the Operations Section Chief must be agreed upon by the Unified
Command because he or she will have full authority to implement the operations portion of
the IAP. The Unified Command must also agree on other General Staff personnel who will
be implementing their portions of the IAP.

If necessary, the Unified Command may designate one of the Incident Commanders to act as
a spokesperson. The Incident Commanders may see the need to identify one among them to
act as an Operational Period Duty Officer and/or spokesperson for the Unified Command.

Designating a spokesperson can provide a channel of communications from the General and
Command Staff members into the Unified Command structure. The spokesperson does not
make Unified Command decisions, but does provide a point of contact as necessary for the
General and Command Staffs.

Finally, it is important to conduct discussions of Unified Command with adjacent
jurisdictions and functional agencies whenever possible.

Individually and collectively, the designated agency Incident Commanders (ICs) functioning
in a Unified Command have the following responsibilities at an event/incident:

• They must clearly understand their jurisdictional or agency limitations. Any legal,
political, jurisdictional, or safety restrictions must be identified and made known to all.
• They must be authorized to perform specific activities and actions on behalf of the
jurisdiction or agency they represent. These actions could include:

− Ordering of additional resources in support of the IAP;
− Loaning or sharing the resources of other jurisdictions; and
− Agreeing to cost-sharing arrangements with participating agencies.

The agencies ICs have the responsibility to manage the event/incident to the best of their
abilities. This responsibility includes:

• Working closely with the other ICs in the Unified Command;
• Providing sufficient qualified staff and resources;
• Anticipating and resolving problems;
• Delegating authority as needed;
• Inspecting and evaluating performance; and



• Communicating with their own agencies to establish priorities, plans, problems, and
progress.

The members of the Unified Command must function together as a team, ensuring effective
coordination of the IAP. In many ways, this is the most important function they perform in
Unified Command.

Manageable span or control is another aspect of ICS. Manageable span is defined as the
number of subordinates one supervisor can manage effectively. Guidelines suggest from
three to seven persons, with five persons being the optimum number.

The Command Post (CP) is the center for directing all operations, and only one Command
Post operates during an event. Usually the Incident Commander, the Planning Section, the
communications center, and all agency representatives have offices there.

A joint news center may be helpful during an event/incident. At a joint news center, the local
media may congregate to receive information and use the area as a workspace. Providing the
media with information, rather than making them track it down, ensures the dissemination of
accurate information and prevents difficulties arising from rumors. Depending on the size
and type of event, the Incident Commander may appoint a liaison.

Public Safety Roles in Unified Command
After the Incident Commanders (ICs) determine a command structure, they should identify
the roles of public safety personnel. They must bear in mind that all public safety
organizations must also be able to answer their normal responsibilities as well as to provide
staffing for the event. The promoter must cover the cost for any public safety personnel
responding to an event/incident.

The role of emergency management is to complement and support local first responders and
to coordinate and facilitate the flow of required responses to the Incident Commander as
needed.

The role of law enforcement may be to provide:

• Crowd management, including measures to prevent crushing;
• Control of access to stage or performance areas;
• Security control at entrances and exits;
• Patrol to minimize risk of fire;
• Control of vehicle traffic and marshaling;
• Searches for drugs, alcohol, and weapons;
• Security for large sums of money and confiscated goods; and
• Assistance for emergency services, as needed.

Depending upon jurisdiction, the role of fire fighters may vary. Tasking to the fire
departments and department capabilities differ for every community.



Emergency medical services may be called upon to render first aid to personnel attending the
event. They may also work in cooperation with public health to provide more in-depth, onsite
medical care in the form of site and field hospitals or to transport people to local medical
facilities.

FEDERAL AND STATE RESOURCES

If an incident occurs that is beyond the capability of the local authorities, a community may
have to request the assistance of state or federal assets through the Emergency Management
Agency. The event planners should be prepared to discuss the event and the locations of all
the risks with the state and federal authorities as needed. Providing a strip map to state or
federal responders will help them locate areas in the event, especially if smoke or debris
make locating areas difficult. Research your support and your capabilities at every level; the
Emergency Management Agency may be of assistance in locating the agency or assistance
for the community.

One way of sharing resources is through local mutual aid agreements. These agreements
allow local agencies to borrow equipment and resources from neighboring communities.
They also allow the lending community to be covered under the borrowing community’s
insurance. For example, if a community needs to borrow a pumping unit from a community
three towns away and the pumping truck is damaged or is involved in an accident, the
borrowing community’s insurance will be responsible for damages, repairs or replacement to
equipment. Sharing of resources is especially useful in smaller communities where budgets
may not allow for extensive equipment.

Depending on event size and needs, the Incident Command System can be very simple or
complex. For more information on ICS, contact the Emergency Management Institute or visit
the FEMA website, www.FEMA.gov/EMI.


Special Planning for High-Risk Events

CHAPTER 4: SPECIAL PLANNING FOR HIGH-RISK EVENTS

INTRODUCTION

Some events contain more risks than others, and they require special planning well in
advance of the event. This chapter provides some examples of high-risk events and
suggests ways to prepare for emergencies that may occur during those events. Planners
should ensure personnel are trained and equipped for the unique nature of these events.
Another way to learn of these risks is to check with other agencies to gain additional
information. For each of these high-risk events, weather is a critical factor you must
consider.

POWER BOAT RACES AND SIMILAR AQUATIC EVENTS

Before any outdoor event begins, check with the proper agencies such as the Coast
Guard, natural resources, or other applicable agencies.

Medical Support for Participants
Aquatic events, particularly those involving motorized watercraft, require careful
planning. A dedicated medical response boat should be available in the water with
appropriately trained personnel and equipment, including a spinal board and resuscitation
equipment. The medical boat should be linked by two-way radio to the rescue boats and
ambulance/medical services. For offshore boat racing, consider a helicopter with rescue
capabilities.

A rescue boat should be in attendance with experienced divers, equipped with scuba gear,
to remove personnel trapped underwater.

Identify landing locations appropriate for the transfer of patients on stretchers from boats
to land ambulances.

Spectator Areas
Appropriate buffer walls or “run off” areas should be established to prevent out-of-
control vessels from entering spectator and pit areas.

Where spectators are permitted to line piers and breakwaters along areas of deep water,
observe the following practices:

• In the absence of some physical barrier, mark a line to warn spectators away from the
edges fronting deep water.
• In addition to any vessel committed to assisting event participants, a dedicated boat
should constantly patrol the spectator area. It should be equipped with a loud speaker



to warn spectators who venture too close to the edge. The boat should also be suitably
equipped to provide water rescue and the resuscitation of injured people.

All boats intended for rescue, or designated to provide medical attention, should be
clearly marked and equipped with some form of hazard lighting to warn other vessels off.
Any boats used for participant or spectator control should be staffed with personnel
trained in appropriate lifesaving and emergency medical practices, including CPR.

Any boat intended for medical assistance or water rescue should contain sufficient clear
space to resuscitate the prone human form and be equipped, at a minimum, with the
following:

• Automatic External Defibrillator (AED);
• A spinal board for full-body immobilization, plus cervical collars and restraint straps;
• Ventilation equipment, which should ideally be a positive pressure oxygen ventilator,
or as a minimum, a bag-valve-mask unit, preferably with oxygen assist
(oropharyngeal airways and suction should also be included);
• A supply of large pressure dressings;
• Personnel trained and experienced in the use of the equipment identified above; and
• Personnel trained and attired to perform water rescue and removal.

AUTOMOBILE AND SIMILAR RACES

While aquatic events present hazards to participants and spectators, and difficulties to
event planners and incident responders not faced in other events, some types of auto
racing also present unique areas of concern.

Sponsors of organized auto races conducted by professional racing organizations at
permanent facilities normally meet the safety guidelines required for participants as
outlined in this document. Similarly, professional racing organizations using temporary
facilities follow very strict guidelines.

However, for racing events conducted by local clubs, no formal safety guidelines exist to
cover the health and safety of participants and spectators. Motor Cross races, bicycle
races, and specialized automobile rallies are a source of great concern because of the very
limited control exercised over spectators and the often-remote locations. Spectators
invariably position themselves in remote, almost inaccessible, areas where the action is
expected to be spectacular. The entire course should be monitored as well as possible,
and a suitable communications system should be in place.

Medical Support for Participants
In the event of a crash, an ambulance with a trained staff should be available
immediately. The medical support staff must understand the racing rules and be trained to
recognize the various flags and special warning lights used by race officials.



Understanding the racing rules and the signals ensures that the staff knows how soon
another racing vehicle will arrive at the accident scene, whether or not the crashed
vehicle remains on the track.

At smaller club events, having an ambulance on stand-by may be cost prohibitive, and
other suitable arrangements must be made. In such circumstances, a dedicated vehicle
with appropriate equipment and trained personnel should be available to serve as the
ambulance. The vehicle should not be merely a van with basic equipment provided as an
ad hoc measure.

The standby ambulance or other emergency vehicle should be positioned for controlled,
rapid access to the track. An appropriate communications system and acknowledged
procedures should be in place to activate an immediate ambulance response to a track
emergency, while track officials modify racing.

Guidelines should be established in advance to determine:

• Whether the race will continue if the ambulance leaves to transport a patient and no
back-up ambulance is available to take its place; and
• Whether the ambulance will be dedicated strictly to the participants, and if so, what
means are available to assist with medical emergencies among the spectators.

If possible, the race should be stopped when an ambulance or other emergency vehicle is
on the track, even though some races continue to run under the caution flag.

Suitable “first attack” fire fighting and rescue equipment should also be available at the
track. If onsite resources are not able to successfully respond to an emergency,
procedures to obtain additional rapid fire and rescue service must be in place.

If you expect great risk to participants and spectators, large numbers of spectators, or if
the nearest hospital is very far, consider providing a site hospital.

Spectator Areas
Barriers should be in place to isolate spectators from out-of-control vehicles. Further
enhance safety by posting a compulsory “no man’s land” to keep spectators away from
the barrier fence. Experience shows that these barriers can be moved or broken by out-of-
control vehicles, resulting in injuries to spectators who are leaning against the barriers.

When personnel design barrier height and strength, they should take into account the
possibility that one vehicle may mount another or somersault end over end. A barrier
intended to retard penetration by a single impacting vehicle is insufficient.

In addition, parts of automobiles involved in collisions can become projectiles, and
wheels can come loose and bounce into spectator areas. To protect spectators, affix a



strong wire-mesh debris screen to the barrier fencing and to the tops of retaining walls.
The wire-mesh screen permits spectator visibility while serving as a trap for projectiles.

Carefully monitor spectator access, if you permit any spectators to the track and pit areas
at any time, including after the race. Participants often test vehicles after the event, with
neither drivers nor spectators anticipating each other’s presence on the track.

Spectators invading the track after the winner has passed the finish line, but while other
competitors are still racing, have caused major problems including injuries at a number of
events. All officials should be briefed on ways to control spectators who intend to invade
the track and how to respond should those control measures fail.

Pit Areas
In-race refueling of cars in pit areas creates a potential for fire if fuel inadvertently
contacts hot parts or is ignited by a spark. To counter this threat, appropriate and
sufficiently large fire extinguishers, or some other suitable equipment for extinguishing
fire, must be available at refueling sites for use by trained personnel. Remind personnel
that some racing fuels burn with an invisible flame.

The combination of vehicles entering the pit lane at high speed and the drivers’ vision
being obstructed by barriers increases the risk to both drivers and pit crews. Organizers
should consider introducing speed limits in pit lanes and enforcing suitable penalties for
transgressions by drivers. Ideally, organizers should also implement a system of notifying
pit personnel when vehicles are entering the pits, such as a siren or horn.

Because spectators are generally unfamiliar with pit environments and procedures,
organizers should restrict access to the pits to officials and members of the race crews. If
you permit spectators in the pit area, you must properly control them, taking into
consideration the need to protect them from pit hazards, such as moving vehicles, hot
engine parts, and sharp metal.

If possible, organizers should not permit spectators to cross the racetrack. If you allow
spectators to cross the track, then restrict all spectator crossings to designated crossing
points that are strictly controlled by race officials. Officials should be equipped with an
efficient communication system connected to the race control area, which can provide
information about upcoming race traffic.

AIR SHOWS AND DISPLAYS

The hazards presented by air events are similar to those already discussed, with a few
hazards being unique to these events.



Although air shows are usually staged in accordance with aviation rules and regulations,
event organizers, emergency managers, and health personnel should take specific steps to
reduce the risk of a serious incident.

Acrobatic Areas
Acrobatic maneuvers should not take place over built-up areas, but over fields, water,
airstrips, or other uninhabited areas. Aircraft should not fly over spectator areas. Where
aircraft exit a maneuver laterally (parallel to the ground) the direction of exit should be
away from, or parallel to, the spectators, not towards or over them.

Safety
Onsite fire services should be capable of delivering fire-suppressing foam onto a crashed
or burning aircraft. If the air show does not take place at an airport with foam-equipped
trucks, consider alternate arrangements for their provision, because water-delivering fire
apparatus is unsatisfactory.

Organizers should clearly understand the requirements of the coroner and air crash
investigators and be prepared to assist in the event of a mishap.

Contingency plans should state how personnel will interact with spectators following an
incident (that is, cancel the show, hold closest spectators as witnesses, or request home
video cameras which might have recorded the incident).

Parachute Jumps
Parachute jumps should designate landing zones that are safely away from spectators and
create no obvious hazards to the jumpers. Parachutists can be blown off course and suffer
injury or death as a result. Spectators can also be injured in the scramble to avoid a
descending jumper.

FIREWORKS/PYROTECHNICS

Shows involving fireworks or pyrotechnics also present specific risks. When event
organizers plan public displays of fireworks, they should notify and consult with the local
authorities, including police, fire, and emergency medical services prior to the event.
Most pyrotechnic providers or contractors follow OSHA safety standards for the
placement of spectator seating and fireworks launch sites.

Placement of Launch Site
Most major incidents involving fireworks can be avoided through careful design of the
launch site.

In establishing a launch site, organizers must pay close attention to the anticipated or
prevailing wind direction and strength, both of which may affect the flight path of
fireworks and the area where debris will fall. In addition, when you establish site



placement and design, prepare for the possibility of abandoning the display in an
emergency.

Where possible, the launch site should be on water (for example, on a barge or pier),
enabling personnel to easily abandon the site if an accident occurs and the pyrotechnic
supply ignites.

A barrier must be erected between the crowd and the launch site in order to protect the
crowd if fireworks tip over after ignition, resulting in a lateral, rather than vertical,
projection.

Fireworks must not be projected over the heads of spectators because debris is often hot
and can injure spectators if it falls into their eyes or onto their heads. Another concern is
health effects due to the smoke. Anticipate potential respiratory difficulties, especially in
those spectators prone to breathing problems such as asthma and allergies.

If you launch fireworks over water, do not project them over flammable trees, bush areas,
buildings, or boats.

Store unused fireworks in covered metal containers to prevent accidental ignition, either
by staff or by descending hot particles from previously ignited fireworks.

Fire equipment, including fire extinguishers appropriate to the location, and trained
firefighters should be immediately available at the launch site.

Personnel deploying and igniting fireworks should wear protective clothing, including
face shields, helmets, and heavy gloves, in case of explosion or premature or delayed
ignition.

After the event, personnel should carefully inspect the launch site and surrounding area to
ensure that no incipient or rekindled fires are possible. All used fireworks should be
soaked in water and removed from the site, along with any securing spikes, wires, or
other potentially hazardous objects.

LASERS

Laser light shows are now frequently included as a form of entertainment at many special
events. Prior to the laser light show, health care personnel on site should understand the
kinds of accidents that can occur and identify potential hazards when lasers are used.
They also should know the kind and type of laser that will be used.



SPONTANEOUS EVENTS

Occasionally an event occurs without planning. Local emergency management and public
safety agencies need to be aware that spontaneous events create the same need for
emergency response contingencies as planned events and that safety plans or agreed-upon
roles and responsibilities for participants will be established. Such spontaneous events
present unique difficulties to public safety personnel because they offer no warning and,
therefore, no time to plan.

Types of spontaneous events include those which:

• Are planned without official input or permits as a result of an oversight;
• Are planned without official input or permits on purpose;
• Result from other events:

− Planned local spin off, such as a victory parade for a local sports team,
− Local focal point, or
− Response to an "under-planned" primary event; and

• Are demonstrations, protests, or picketing:

− Civil disobedience,
− Planned disorderly behavior, or
− Spontaneous violence.

Pre-existing mutual aid agreements, response plans, training, and resource lists will assist
communities that are confronted with a spontaneous event. To develop these pre-existing
response aides, the local emergency management agency may act as a catalyst to promote
cooperation among local response agencies. Local emergency management can also fill
its role in the Emergency Operation Center (EOC) if the spontaneous event is large
enough to require the EOC activation.

Because they are dynamic, a well-timed and appropriate response is critical to safe
outcomes of these spontaneous events. However, in many instances, the local or county
public safety officials on duty are initially charged with all the roles and responsibilities
of managing the spontaneous event. At the same time, they are faced with other non-
event incidents in the community. If communities train to respond to the various incidents
associated with a spontaneous event, they can more effectively respond in times of
emergency.

Staffing, response, and public safety requirements for spontaneous events are the same or
greater than those for a planned event of the same nature. Essential to the successful
outcome of a spontaneous event is implementing the Incident Command System (ICS) of
management for an orderly and coordinated deployment of resources and personnel.



Identifying a staging area where additional personnel and resources will be gathered is
necessary. Briefing all personnel and establishing an appropriate span of control is
critical to pre-deployment of personnel and resources in response to a spontaneous event.
Establishing a situation unit in the Planning Section of the ICS designed to keep the
incident commander informed of changes in the nature of the event may be necessary.

Another essential element in anticipation of and pre-planning for a spontaneous event is a
continuing evaluation of other events, either locally or nationally, that may be catalysts
for a spontaneous event in your community. Many spontaneous events occur with some
level of expectation by public safety officials. The significant difference between an
organized special event and a spontaneous event is that no planning time exists before a
spontaneous event.

If a spontaneous event or unplanned mass gathering occurs in your community, time is
critical and should not be wasted trying to determine how the event happened and who
will be held responsible. After-action reports and investigations can fulfill that role.
Critical time management requires that all energy be focused on response and activation
of pre-existing plans and cooperation among participating agencies.

EVENTS INVOLVING PRE-TEEN AND EARLY TEEN AUDIENCES

Concerts that attract younger audiences (for example, pre-teens and early teens) can
create a number of difficulties. These spectators can become lost or separated from
friends, miss scheduled return transportation, or lack sufficient funds to pay for alternate
transportation.

Parents will often take young spectators to such events and then have difficulty finding
them at the conclusion. If parents are using their cars to pick up children, traffic jams may
prevent close access to the venue. Prior to entering the venue, parents and their children
should identify a specific place to meet at the conclusion of the event.

One method to alleviate difficulties is to create a “Parents' Oasis” adjacent to the venue to
provide parents with a waiting area during the concert. Coffee, soft drinks, snacks, and
newspapers can be available to help parents pass the time they spend waiting.

The concept of a “Parents' Oasis” is one that is particularly well-suited to concert events
that parents would not want to attend and that their children would not want them to
attend. The additional cost and effort devoted to providing such a facility are more than
offset by the reduction in efforts needed to deal with the young audiences at the
conclusion of the event.

Information booths with access to the public address system and clearly identified event
staff can assist lost children and their parents. Also consider the compounding effect of a
major incident exacerbated by the problems of parents attempting to gain access to the



area in order to be re-united with their children or, in the worst-case scenario, trying to
find out where their injured children have been taken.

As you have seen, events may pose hazards and risks unique to their activity or audience.
This unit presented some of the particular hazards and high-risks that event planners need
to be aware of. By no means are these all the risks to which a response must be prepared.
Careful planning and expecting the unexpected helps make the special event memorable
and safe for sponsors, participants, and spectators.


Chapter 5
Terrorism and
Criminal Activities


Terrorism and Criminal Activities

CHAPTER 5: TERRORISM AND CRIMINAL ACTIVITIES

INTRODUCTION

Unfortunately, every event planner must consider the risks arising from terrorism and
criminal activities. The planner must view the event as a potential target and be prepared
for any incident. This chapter provides some basic information on terrorism and criminal
activities.

Although terrorist and criminal attacks may seem remote possibilities and quite unlikely
to occur in the community, event planners and public safety personnel must, nevertheless,
plan for their occurrence. Special events and mass gatherings are a perfect target due to
the large number of people, media coverage, and the high profile impact if a terrorist hits.

CONTEMPORARY TERRORISM

Prior to the beginning of this decade, terrorism was thought to be something that
happened outside the United States and was committed by left-wing extremists to
promote ethnic, religious, or socio-economic causes. Before 1993, the United States
essentially viewed terrorism as an international event occurring outside this country that
sometimes affected U.S. interests. Terrorist acts affecting the United States were
primarily directed against United States interests in foreign countries (for example,
businesses, military installations, and embassies). The FBI has determined that
contemporary terrorists generally:

• Are politically motivated;
• Have sought and used publicity to gain recognition and public sentiment;
• Have most often viewed, trained, and equipped themselves as an army at war;
• Have sought to cross jurisdictional lines to further confound law enforcement
detection and apprehension;
• Had the support and funding of national governments from outside the United States;
and
• Invited public scrutiny in order to put law enforcement on trial by effective use of the
media.

DOMESTIC TERRORISM

The bombing of the World Trade Center in February 1993 led to a new awareness of
terrorism in this country - domestic terrorism. This event was eventually tied to left-wing
extremists of the Palestine Liberation Army who acted in retaliation for American



political, economic, and military support of Israel. With the shift to terrorist events
occurring within U.S. borders, a new challenge was created for American law
enforcement. The FBI now defines terrorism as:

“. . . the unlawful use of force or violence against persons or property to intimidate
or coerce a government, the civilian population, or any segment thereof, in furtherance of
political and social objectives.”

Since the World Trade Center bombing, the responsibility for a majority of domestic
terrorist activity in the U. S. has shifted from the contemporary international terrorist to
the domestic terrorist. For the most part, domestic terrorists can be identified as
extremists with strong anti-government feelings. Some are:

• Associated with hate groups;
• Opposed to taxes;
• Defined by religion;
• Ardent believers in a strong constitution; and
• Radical, issues-oriented groups.

Between January 1997 and July 1, 1998, domestic incidents identified as the
responsibility of these extremist groups occurred almost daily. The actual number of
terrorist acts is probably much larger than the daily count because many law enforcement
agencies have not been trained to recognize this activity and probably reported many of
these terrorist acts as ordinary crimes.

THREAT ASSESSMENT

Planning and intelligence gathering are necessary activities for law enforcement during
event planning. The level of commitment to these anti-terrorist activities influences the
level of response capabilities that should be maintained.

Two terms that event planners should understand are anti-terrorism and counter-
terrorism:

• Anti-terrorism is a term used to define actions taken to mitigate potential effects of
terrorist activity.
• Counter-terrorism is best defined as operational actions taken or activities planned to
prevent a terrorist activity or event.

Targets
Most targets singled out by terrorist groups fall into one of five areas:

• Cosmetic or public message targets,



• Non-military government targets,
• Military targets,
• People targets, and
• Cyber-terrorism and information warfare targets.

Each of these targets is usually identifiable within a jurisdiction. Agencies must also keep
in mind that the emerging issue of cyber-terrorism allows perpetrators to strike from
remote areas anywhere in the world. In 1997 alone, the Pentagon computer system was
the target of 6,000 infiltration attempts by computer hackers. The success rate by those
hackers was ten percent. This country’s air traffic control system and the state’s power
grid system are vulnerable to terrorist groups who are sufficiently knowledgeable to
infiltrate these systems.

Motives
The motives of extremist groups can generally be identified as:

• Political,
• Religious,
• Racial,
• Environmental, or
• Special interest.

Weaknesses in Measuring Threat
Terrorist threats are often difficult to measure because they are:

• Dynamic,
• Mobile,
• Difficult to recognize (lone offenders, splinter groups),
• Ease and availability of creating a WMD device, and
• Difficult to quantify-subjective (open to interpretation, tendency towards inflating
results).

Dangers of information sharing (outside the law enforcement community) also make it
difficult to measure the extent of the threat because unauthorized disclosure of
information may:

• Lead to violation of operational security;
• Create unnecessary panic; and
• Produce unintended media attention.



Basis of the Assessment Process

Capability and Intent = Threat
Threat and Vulnerability = Risk
Risk and Capabilities = Needs

The United States Congress based their decision largely on advice from the U.S. General
Accounting Office, who opined that the particular assessment process look at the
capabilities and intentions of specific subject groups and / or individuals when assessing
the threat. This represents the foundation of the threat process well known to the law
enforcement and intelligence communities.

Based on this foundation, the assessment process was developed. This process looks at
the capability to produce and deploy a WMD and the intent of a specific threat element to
do so. Without the mutual existence of capability and intent, no imminent threat can be
said to exist. Once relative threat levels have been established, an assessment team may
assess the risk to a particular jurisdiction. This involves the evaluation of existing
vulnerabilities to safeguard and prevent an attack in a particular jurisdiction against the
existing threat.

VULNERABILITY ASSESSMENT

In the cases of the jurisdictional domestic preparedness strategy development process, it
is the selection of your critical infrastructure and applying seven factors to that
infrastructure to determine weaknesses in your jurisdictional capability to respond to the
incidents covered by your Jurisdiction Emergency Response / Operations Plan. These
vulnerabilities are specifically directed at WMD terrorism or WMD incident response.

This assessment is a critical part in the development of the jurisdiction strategy and
determines an internal environmental factor for the jurisdiction to improve their
capability to respond to a WMD terrorism or WMD incident. This focuses the
jurisdiction’s ability to take care of its citizens.

The outcomes of this assessment will be an inventory of the critical infrastructure within
the jurisdiction and a assessment of how easily it can be disrupted.

STATE ROLES IN READINESS AND RESPONSE

An integrated approach between the local, state, and federal government makes a logical
clearinghouse for intelligence on the movement and activities of terrorist groups and the
collection, interpretation, and dissemination of that information to the proper enforcement
agencies. A proactive role in planning and intelligence gathering will lessen the
likelihood of a surprise emergency incident, which improperly handled can make or



break a department and its administrators at all levels of government. Descriptive
intelligence with predictive interpretation that forecasts the probability of threat and
target can enhance operational readiness in training, equipping, and practicing to respond
to emergency incidents. If nothing else is done by law enforcement in the intelligence
area, threat assessment must be considered, at a minimum. Planners must have
appropriate contacts and phone numbers at hand before the event.

State law enforcement agencies should take the lead in pre-incident threat forecasting and
planning. Roles and responsibilities of the various stake-holding agencies for the event
being planned need to be determined and an incident chain of command put in place, so
that, should a terrorist threat materialize, confusion and duplication of response can be
diminished.

HIGH PROFILE/CONTROVERSIAL EVENTS

Due to the nature of the event, the crowd composition, or for other reasons, certain events
cause more controversy and create greater risks than others do. For example, events
involving groups which holds controversial beliefs, present a greater risk for criminal or
terrorist behavior. Events involving high level officials are also at a greater risk for
terrorist activity because of the significance of the official and the high-profile visibility
of the participants and those in attendance. On some occasions, if the date of the event
coincides with the anniversary of another terrorist event, the date of the event itself may
be considered controversial. Planners must consider every reason why an event may
promote controversy or attract special attention.

Conflicts will exist between public safety, recovery, and criminal investigation agencies
during terrorist incidents. Rescue and recovery issues and actions must be separated from
criminal investigation issues and actions before the event occurs, and non-law
enforcement workers should be given training on matters of evidence. Evidence teams
should be created to practice and train with local emergency responders to promote
mutual understanding of one another’s roles.

FEDERAL ROLES AND RESPONSIBILITIES

One of the best ways to combat terrorism and criminal activities is to identify ahead of
time the potential threats and prepare for them. The FBI is the lead agency in addressing
terrorism and providing information about terrorist groups in the United States. The FBI
may request assistance from federal agencies if needed. The Nunn-Luger-Domenici
legislation passed in 1996 funded efforts to assist communities in the preparation against
WMD terrorism.



Under Presidential Decision Directive (PDD) 39, the FBI is the lead-agency for crisis
management and response to terrorist incidents while FEMA is the lead agency for
consequence management. However, the first response to any of these events will
always be the local response. The FBI can summon extensive federal resources for use
at an event, but local responders will be on their own until the FBI arrives.

The FBI has created internal specialized terrorism units with responsibility for:

• Domestic terrorism,
• Weapons of Mass Destruction (WMD),
• Special events,
• WMD countermeasures,
• Computer investigations/operations, and
• Field multi-agency Joint Terrorism Task Forces to work with state and local
enforcement.

Develop a relationship with the FBI WMD coordinator to learn about terrorist groups and
whether your date or event holds a special significance that may put your event at excess
risk.

B-NICE

The B-NICE threat of weapons of mass destruction is currently a much-discussed topic in
this country. The Federal government is prepared to assist communities in the event of a
terrorist attack. The U.S. Government states that it will use all means to deter, defeat, and
respond to terrorist attacks. It will make no concessions to terrorists; it will identify
terrorists and punish them, and it will work closely with other agencies to carry out U.S.
policies and to combat threats.

Since 1990 the U.S. Government has passed the Biological Weapons Anti-terrorism Act
(President Bush, 1990), and the Use or Attempted Use of Weapons of Mass Destruction
Federal Statute to combat WMD and to provide appropriate penalties for individuals
caught possessing or using these weapons. These statutes were tested in this country for
the first time following the Oklahoma City bombing.

The Department of Defense has created Weapons of Mass Destruction Civil Support
Teams to assist the FBI and communities facing terrorist attack. These teams are made up
of National Guard members who assist in the detection and identification of WMD. Since
these teams are composed of National Guardsman, governors may also deploy teams to
assist communities. The local community’s first responders will still assist, but if the
attack is beyond their capability, they may seek assistance from the state or federal
government.

Intelligence gathering, threat assessment, containment of potential threats, and effective
planning for crisis and consequence management prior to a mass gathering or special



event are of central importance to a jurisdiction having the ability to effectively prevent
or counter these threats.

A Weapon of Mass Destruction (WMD) is:

• Any weapon that is designed or intended to cause death or serious bodily injury
through the release, dissemination, or impact of toxic or poisonous chemicals, or their
precursors;
• Any weapons involving a disease organism; or
• Any weapon that is designed to release radiation or radioactivity at a level dangerous
to human life.

Other terms associated with WMDs are:

Secondary Device
A secondary device is usually explosive and designed to injure first responders when they
arrive at an incident. Following the arrival of the first responders, a second device
explodes in the responder area. A secondary device was recently used at an abortion
clinic explosion.

Anti-personnel Devices
Anti-personnel devices are used to injure people and may or may not be considered
secondary devices that target responders.

Specific Threat
A specific threat explains what will occur, for example, “A bomb will go off in one hour
in the parking garage.”

Non-specific Threat
A non-specific threat does not explain what may occur, for example, “Everyone in the
building is going to die.”

Capability
Capability refers to credible information that a specific group possesses the requisite
training, skills, financial means, and access to resources necessary to develop, produce, or
acquire a particular type of WMD in a quantity or potency sufficient to produce mass
casualties, combined with information substantiating the group’s ability to safely store,
test, and deliver the same.



Projected National Threat
Interest in WMD material will continue to increase. Explosives, shootings, and
kidnappings will remain the most likely terrorist options. The threat of hoaxes, blackmail,
and mass disruption is high.

BIOLOGICAL

Biological terrorism is not a new type of warfare. Biological agents are by far the most
dangerous of the three types of weapons of mass destruction. Agents include bacteria,
fungi, viruses, or toxins that induce disease or death in any living thing.

The difficulty in countering biological terrorism begins with identifying it. Another
serious concern arising from the use of all biological agents is the time that can elapse
before their use by terrorists is discovered. Biological attacks can be slow acting, with the
symptoms not showing up until as many as 10 days after exposure. The further
contamination of additional population by those initially exposed multiplies
exponentially as time from the initial exposure increases. The best defense against the
spread of the biological element is accurate documentation and tracking of this kind of
WMD by medical personnel to contain the exposure.

One case highlights the importance of intelligence sharing between federal, state, and
local authorities. The Minnesota Patriots Council in 1990 is known to have created the
biological agent Ricin and plotted to use it against a Federal marshal. The plot was
thwarted when a county sheriff arrested the wife of one member of the group on
unrelated charges, and she revealed the plot and the location of the biological agent. At
the time the biological agent was taken as evidence, the group had enough powdered
Ricin to kill 125 people relatively easily.

With many countries facing economic difficulties at the end of the Cold War, experts fear
that they may be selling their biological weapons to the highest bidder. However, the lack
of an effective delivery system to deploy a biological agent currently limits the ability for
widespread impact upon the population.

NUCLEAR

Nuclear terrorism refers to the use of nuclear or radiological materials as weapons or to
cause damage. This threat creates the largest challenge for law enforcement into the new
millennium.

Although the use of a crude nuclear weapon makes the threat of nuclear terrorism
possible, FBI intelligence suggests that it would be difficult for a group to construct such
a weapon without weapons-grade uranium or plutonium, which are currently strictly
regulated in this country. Nuclear terrorism, then, does not pose a credible immediate
threat.



Since nuclear weapons are more easily detected, responders know what they are dealing
with. As with the other WMD, the best defense is to have a plan and practice it.

INCENDIARY

Incendiary devices have been used by terrorists for many years since it is a flexible tool
capable of causing property damage, loss of life, and panic. Incendiary devices continue
to spread until fuel is gone or it is extinguished.

Information from the FBI Bomb Data center reports that incendiary devices were used in
approximately 20-25 percent of all bombing incidents in the United States and that when
used, incendiary devices ignited approximately 75 percent of the time.

They also reported that less than 5 percent of actual or attempted bombings were
proceeded by a threat. The lack of prior notification makes casualties more likely than if a
notice is given.

Incendiary devices can be classified as:

• Chemical reaction (including burning fuse)
• Electronic ignition
• Mechanical ignition

The type and construction is only limited to the creativity of the builder.

Incendiary devices may be stationary (placed), hand-thrown (Molotov cocktail), or self-
propelled such as rockets or rifle grenades.

The components of an incendiary device are the ignition source, combustible filler
material, and housing or container.

The device may be made of:

• Roadway flares,
• Gasoline and motor oil,
• Light bulbs,
• Common electrical components and devices,
• Matches and other household chemicals,
• Fireworks,
• Propane and butane cylinders, and
• Plastic pipes, bottles, and cans.



DETECTION

To detect an incendiary device combustible gas meters, flame ionization detectors,
trained dogs, photoionization detectors, and calorimetric tubes may be used.

The clues are similar to detection clues for arson. The clues should be a signal for the
responder to take appropriate actions to safeguard himself and the public and treat the
area as a potential crime scene. The signs include:

• Prior warning (phone calls),
• Multiple fire locations,
• Signs of accelerants,
• Containers from flammable liquids,
• Splatter patterns indicating a thrown device,
• Fusing residue,
• Signs of forced entry to the area, and
• Common appliances out of place for the environment.

EXPLOSIVES

Explosives seem to be the weapon of choice for terrorists. The explosives can deliver an
assortment of destruction and provide a vehicle for dispersal of chemical, biological,
incendiary, and nuclear agents.

Explosives produce four effects when detonated:

• Blast pressure-There are two different phases of blast pressure. Positive blast pressure
(overpressure) move rapidly away form the explosion center (ground zero) due to the
expansion caused by the release of energy. After the positive pressure phases, a
vacuum is created at the explosion site. This creates a negative pressure that moves
toward the original center of the detonation at hurricane speed. It is less sudden, but
last approximately three times as long as the positive pressure wave.

• Fragmentation-An explosive device may propel fragments at high speed for long
distances. This often accounts for many injuries or casualties.

• Thermal effect- Sometimes referred to as the incendiary effect, heat produced by the
detonation of either high or low explosives varies according to the ingredient
materials. High explosives generate greater temperatures than low explosives.
However, the thermal effects from low explosives have a longer duration then those
of high explosives. The thermal effect is visible in the bright flash or fireball
temporarily produced by an explosion. Thermal effects vary as to type of explosive,
container, addition of fuel/accelerants, shielding, and proximity.



• Ground Shock-Ground, or seismic shock, is possible but usually will only be
generated by a large detonation.

Explosives are defined as materials capable of violent decomposition. This
decomposition often takes the form of extremely rapid oxidation (burning). Explosions
are the result of sudden and violent release of gas during the decomposition of explosive
substances. High temperature, strong shock, and a loud noise follow this release.
Explosives are classified according to the speed of their decomposition.

CHEMICAL

Chemicals may be used as weapons or to deliver an attack. Originally, the military
designed chemical weapons to use in wartime. The results of chemicals used as weapons
were so devastating in warfare that many countries rejected their future use and created
treaties to forbid their future use and manufacture. In 1995 terrorists attacked a Tokyo
subway. Twelve persons died, 4500 were injured, and over 700 required extended
hospital stays. The ease of access to chemical agents and the amount of damage they
cause make chemical warfare very appealing to radical groups. Directions for the creation
and use of chemical weapons can be found on the World Wide Web.

Chemical agents include nerve agents, blood agents, choking agents, and blister agents.
These chemical weapons have been used in the recent past both within the United States
and abroad. These agents do create a credible threat for use by extremist groups in this
country, and there is a high probability that chemical agents are likely to be encountered
by state and local law enforcement of this country in the future.

Responders must be prepared to manage a terrorist attack involving a chemical agent. To
prepare, they should become knowledgeable of the range of chemical agents used by
terrorists in the recent past. Knowledge of chemicals and their effects assists in the first
stages of treatment. Each community should establish chemical weapons attack response
plans and review them regularly.

EXPLOSIVES

Since they are readily available, explosives are the most common weapons of mass
destruction. When you plan an event, find out who the responder is for possible
explosives or suspicious packages. Does your community have a bomb squad? Do you
have dogs that are trained to identify explosives? What is the community policy on
explosive devices? Plan ahead and know who to call in an emergency.



MITIGATING ACTIONS

Unattended Packages
At every event, people will leave some items unattended. Public safety officials must
decide beforehand how to handle these items. Who will respond? Does the community
have dogs trained to identify explosives? Will the area be evacuated? Decide these issues
ahead of time and have a written plan for all public safety personnel to follow.

Concealment Areas
Concealment areas are areas where persons may hide, or where someone may hide
packages or other weapons. The best way to avoid problems in these areas is to map the
event grounds and identify the areas that could be used as hiding spots. The venue staff
could assist police in this matter.

Security Sweeps
How often is security going to go through the event site? What are they looking for? How
do they handle incidents? Who is going to do the sweep? Venue personnel and security
personnel should work together. These are a few areas to address in advance. Once a
sweep of the area has been done the area must be secured.


Chapter 6
Post-Event
Action


Post-Event Action

CHAPTER 6: POST-EVENT ACTION

INTRODUCTION

The after action must be done in a timely manner and shared with the rest of the team. The
after action report focuses on both the positive and negatives which occurred at the event.

DEMOBILIZATION

Demobilization should be planned just as carefully as the event itself. Demobilization
actually begins during the planning stages of an event and continues during the event.
Planners must decide upon a logical order in which to release response agencies and other
resources, and they must authorize a point of contact to release resources. Impact on the
community and its resources must also be considered in the demobilization process. The
Incident Commander using the demobilization unit in the Planning Section should direct the
demobilization process.

EVENT CRITIQUE MEETING

Following the event, all members of the planning committee and those in charge of resources
should meet to critique the event. For persons unable to attend, providing a survey may be an
option. The purpose of the Event Critique Meeting is to allow open discussion of what went
well and what could have gone better and to lay the groundwork for future events.

Prior to the meeting, planners should establish guidelines for discussion and select a
facilitator for the meeting. Guidelines should emphasize that the meeting is intended to be a
positive learning experience for all agencies, not a session to assign blame for problems that
occurred during the event. The facilitator may come from Emergency Management or the
lead agency, or planners may bring in a neutral third party that will maintain order if conflicts
arise and agencies begin to find fault with one another. Problems should be discussed in
generic terms as much as possible to avoid singling out specific agencies for criticism.

The lessons learned during one event can be used in planning for later events. The agenda
items discussed at the meeting, both successes and failures, should take the form of a report
to be examined and discussed by officials later. If serious incidents occurred, such as a death
or mass arrests, then writing the final report may have to wait until after litigation is
completed. The facilitator is typically assigned responsibility for documenting the meeting.

A log of checkout policy and procedures (which is created during the planning stage) ensures
that everything is complete and that all agencies are satisfied with the outcome of the event.
Finalize one event before planning another.


Post-Event Action

The Event Critique Meeting is the final gathering of the event planning committee before
releasing response agencies or resource personnel. Before the event planners allow response
or resource personnel to leave, they should ensure that the responders have sufficient rest as
well as means to return to their home bases safely. Often the personnel working the event are
busy taking care of others and forget to take care of themselves.

Also at this meeting the promoter and planners should conclude any outstanding matters such
as financial obligations or matters concerning supplies and equipment. Planners and
promoters should prepare a detailed statement of expenditures and outstanding bills as a part
of the After-Action Report.

AFTER-ACTION REPORT

The facilitator or Emergency Management may be tasked to prepare the after-action report.
This report is a vital document. The After-Action Report is composed following the critique
meeting. The main purpose of an After-Action Report is to identify and document what
worked, what did not work, and what could be improved. A useful After-Action Report
should prevent the same kinds of mistakes and incidents from occurring at the next event.
The report can also include any additional data, such as crowd control measures that were
especially successful, that may be useful in planning similar future events. Everyone
involved in the event should contribute to this important document. After-Action Reports
have no established formats. Most communities have a sample report to guide planners. If an
incident occurred during the event, the planning committee must prepare a critique sheet to
show how personnel responded to the incident should questions of legal liability arise later.
After-Action Reports are also excellent ways to document events for historical or legal
purposes.

While this manual focuses mainly on planning a special event, an After-Action Report
focuses on improving the next event.


References and Bibliography

REFERENCES AND BIBLIOGRAPHY
American College of Emergency Physicians Publications. Provision of Emergency Medical

Care for Crowds. American College of Emergency Physicians Publications, 1989-90.

Australian and New Zealand Food Standards Authority. Food Standards Code. Canberra:

Australian Government Publishing Service, Australian and New Zealand Food

Standards Authority, 1987.

Australian National Health and Medical Research Council. Australian Guidelines for

Recreational Use of Water. Canberra: Australian Government Publishing Service,

National Health and Medical Research Council, 1990.

Australian Uniform Building Regulations Coordinating Council. Building Code of Australia.

Australia: Australian Uniform Building Regulations Coordinating Council, 1990.

Barbera, J. A., et al. “Urban Search and Rescue.” Emergency Medicine Clinics of North

America May 1996.

Berlognghi, Alexander E. “Understanding and Planning for Different Spectator Crowds.”

Engineering for Crowd Safety. Ed. R.A. Smith and J.F. Dickie. Elsevier Science

Publications B.V., 1993.

Billie, P., et al. “Public Health at the 1984 Summer Olympics: The Los Angeles

County Experience.” American Journal of Public Health June 1988.

Bock, H. C., et al. Demographics of Emergency medical Care at the Indianapolis 500 Mile

Race (1983 - 1990) October 1992.

Canadian Government. Aid of the Civil Power: Chapter N, Sections 274-285, in Revised

Statutes of Canada. Canada: Canadian Government, 1985.



Chapman, K.R., et al. “Medical Services for Outdoor Rock Music Festivals.” CMA Journal

15 April 1982: 935-938.

City of Fremantle. Concerts in Fremantle. Western Australia: City of Fremantle, 1996.

City of Keene. “Special Event Planning Checklist.” New Hampshire: City of Keene.

“Controlling the Rock Festival Crowd.” Security World June 1980: 40-43.

Curry, Jack. Woodstock—The Summer of Our Lives. New York: Weidenfeld & Nicolson,

1989.

Defense Threat Reduction Agency. Weapons of Mass Destruction Handbook. Washington:

Defense Threat Reduction Agency, 1 July 1999.

Department of the Treasury: Bureau of Alcohol, Tobacco and Firearms. “ATF Vehicle Bomb

Explosion Hazard and Evacuation Distance Tables.” Washington, 22 Dec. 1999.

<http://www.atf.treas.gov/pub/154001.htm>.

Donald, Ian. “Crowd Behavior at the King's Cross Underground Disaster.” Easingwold

Papers No. 4: Lessons Learned from Crowd-Related Disasters. Yorkshire: Emergency

Planning College, 1992.

Emergency Management Australia. Australian Emergency Management Manual—Disaster

Medicine. Australia: Emergency Management Australia, 1995. (Second edition due

1999.)

Emergency Management Australia. Australian Emergency Manual—Disaster Recovery.

Australia: Emergency Management Australia, 1996. (Second edition due 2000.)

Emergency Management Australia. Australian Emergency Manuals Series: Part III, Volume

1, Manual 1—Emergency Catering. Australia: Emergency Management Australia,

1998.




2, Manual 1—Evacuation Planning. Australia: Emergency Management Australia,

1998.


2, Manual 2—Safe and Healthy Mass Gatherings. Australia: Emergency Management

Australia, 1998.


3, Manual 1—Multi-Agency Incident Management. Australia: Emergency

Management Australia, 1998.


3, Manual 2—Community and Personal Support Services. Australia: Emergency

Management Australia, 1998.

Emergency Management Australia. Australian Emergency Manuals Series: Part IV, Manual

2—Operations Centre Management. Australia: Emergency Management Australia,

1996.

Emergency Management Australia. Australian Emergency Manuals Series: Part IV, Manual

9—Communications. Australia: Emergency Management Australia. 2nd ed. 1998.

“Emergency Medicine: Rock and Other Mass Medical.” Emergency Medicine. June 1975:

116-129.

Federal Emergency Management Agency, Emergency Management Institute. The

Emergency Planning Process: Self Instruction. Emmitsburg, Maryland: Federal

Emergency Management Agency, June 1997.



Federal Emergency Management Agency, Emergency Management Institute. Tools for

Emergency Planning. Emmitsburg, Maryland: Federal Emergency Management

Agency, Emergency Management Institute, June 1997.

Federal Emergency Management Agency, National Fire Academy. Emergency Medical

Services: Special Operations. Emmitsburg, Maryland: Federal Emergency

Management Agency.

Franaszek, J. “Medical Care at Mass Gatherings.” Annals of Emergency Medicine May

1986: 148-149.

Fruin, John J. “Causes and Prevention of Crowd Disasters.” Student Activities Programming.

Oct. 1981: 48-53.

Goldaber, Irving. “Is Spectator Violence Inevitable?” Auditorium News April 1979: 4-7.

Great Britain Health and Safety Commission, Home Office and the Scottish Office. “Guide

to Health, Safety and Welfare at Pop Concerts and Similar Events.” London: Great

Britain Health and Safety Commission, Home Office and the Scottish Office, 1993.

Hanna, James A. Emergency Preparedness Guidelines for Mass, Crowd-Intensive Events.

Canada: Emergency Preparedness Canada, 1995.

---. “Rock and Peace Festivals—The Field Hospital.” Disaster Planning for Health Care

Facilities. 3rd ed. Ottawa: Canadian Hospital Association, 1995. 247-256.

---. “Special Events Management—Health, Safety and Emergency Planning.” Lecture notes.

Humber College, Toronto, 1989.

Health Department of Western Australia. “Operational Guidelines for Rave Parties, Concerts,

and Large Public Events.” Western Australia: Health Department of Western

Australia, 1995.



Herman, Gary. Rock 'N' Roll Babylon. London: Plexus Publishing, 1982.

Hillmore, Peter. Live Aid. Parsippany, N.J.: Unicorn Publishing, 1985.

“Hillsborough: Inquiry Highlighted Differing Approach to Operational Messages.” Fire.

Great Britain, Aug. 1989: 7-8.

“Hillsborough: An Earlier Call Would Probably Not Have Saved Lives.” Fire. Great Britain,

Sept. 1989: 7.

Hopkins, Jerry. Festival. New York: Macmillan, 1970.

James, S.H., et al. “Medical and Toxicological Aspects of the Watkins Glen Rock Concert.”

Journal of Forensic Sciences, n.d. (circa 1974): 71-82.

Leonard, R.B. “Medical Support for Mass Gatherings.” Emergency Medicine Clinics of

North America May 1996.

Lewis, J. M. “A Protocol for the Comparative Analysis of Sports Crowd Violence.”

International Journal of Mass Emergencies and Disaster 1988: 221-225.

Lewis, J.M. “Theories of the Crowd: Some Cross-Cultural Perspectives.” Easingwold Papers

No. 4: Lessons Learned from Crowd-Related Disasters. Yorkshire: Emergency

Planning College, 1992.

Lichtenstein, Irwin. “EMS at Rock Concerts.” Fire Chief Magazine Nov. 1983: 44-46.

Mariano, J. P. “First Aid for Live Aid.” JEMS Feb. 1986.

Miami-Dade County Office of Emergency Management. Concept of Operations Plan,

SuperBowl XXXIII. Florida: Miami-Dade County Office of Emergency

Management. Jan. 1999.

National Domestic Preparedness Office. “WMD Threats: Sample Guidelines Reissue.”

Special Bulletin. Washington: National Domestic Preparedness Office, 12 Jan 2000.



National Interagency Fire Center. “ICS Glossary.” In Incident Command System National

Training Curriculum. Boise, Idaho: National Interagency Fire Center, Oct. 1994.

National Interagency Fire Center. “ICS Position Descriptions and Responsibilities.” In

Incident Command System National Training Curriculum. Boise, Idaho: National

Interagency Fire Center, Oct. 1994.

National Interagency Fire Center. “Organizing for Incidents or Events, Module 8.” In

Incident Command System National Training Curriculum. Boise, Idaho: National

Interagency Fire Center, Oct. 1994.

Ounanian, L. L. “Medical Care at the 1982 U.S. Festival.” Annals of Emergency Medicine

May 1986: 25-32.

Parrillo, S.J. “Medical Care at Mass Gatherings: Considerations for Physician Involvement.”

Prehospital and Disaster Medicine Oct.-Dec. 1995.

Parrillo, S. J. “EMS and Mass Gatherings”

<http://www.emedicine.com/emerg/topics812.htm>. 16 Nov. 1999.

Pauls, J.L. Observations of Crowd Conditions at Rock Concert in Exhibition Stadium.

Ottawa: National Research Council of Canada, April 1982.

Pennsylvania Emergency Management Agency. “First Responder’s Guide: Terrorism

Incidents.” Pennsylvania Emergency Management Agency. <

<http://www.state.pa.us/PA_Exec/PEMA/ema/plans/terguide.htm>. 7 Jan. 2000.

Queensland Police Service: Drug and Alcohol Co-ordination. Alcohol, Safety and Event

Management: A Resource to Assist Event Managers to Conduct Safer Public Events.

Queensland: Queensland Police Service, 1997.

Rosenman, Joel, et al. Young Men With Unlimited Capital. New York: Harcourt 1974.



Ryan, S., and M. Carey. “Key Principles in Ensuring Crowd Safety in Public Venues.”

Engineering for Crowd Safety. Ed. R. A. Smith and J. A. Dickie. Elsevier Science

Publications, 1993.

Sanders, Arthur B., et al. “An Analysis of Medical Care at Mass Gatherings.” Annals of

Emergency Medicine May 1986: 17-21.

Schlight, Judith, et al. “Medical Aspects of Large Outdoor Festivals.” The Lancet 29 April

1972: 948-952.

Taylor, Derek. It Was Twenty Years Ago Today. New York: Simon & Schuster, 1987.

Thompson, James M., et al. “Level of Medical Care Required for Mass Gatherings.” Annals

of Emergency Medicine April 1991: 78-83.

“Unified Command: Module 13.” Incident Command System National Training Curriculum.

National Interagency Fir Center. Boise, Idaho. Oct. 1994.

Wardrope, J., et al. “The Hillsborough Tragedy.” British Medical Journal. Nov. 1991.

Weiner, Rex, et al. Woodstock Census. New York: Fawcett Columbine, 1979.

Wertheimer, Paul L. Crowd Management - Report of the Task Force on Crowd Control and

Safety. Cincinnati: City of Cincinnati, July 1980.

Whitehead, J. “Crowd Control Can Be Critical In Emergencies.” Emergency Preparedness

Digest Oct.-Dec. 1989: 12-15.

Wyllie, R. “ Setting the Scene” Easingwold Papers No. 4: Lessons Learned from Crowd-

Related Disasters. Yorkshire: Emergency Planning College, 1992.


Glossary of Terms


Glossary

GLOSSARY

A

Action Plan See Incident Action Plan.

Administrative/Finance The section responsible for all incident costs and financial
considerations. Includes the Time Unit, Procurement Unit,
Section
Compensation/Claims Unit, and Cost Unit.

Agency A division of government with a specific function or a non-
governmental organization that offers a particular kind of
assistance. In the Incident Command System (ICS), agencies are
defined as jurisdictional (having statutory responsibility for
incident mitigation) or assisting and/or cooperating (providing
resources and/or assistance). (See Assisting Agency,
Cooperating Agency, and Multi-agency.)

Agency Executive or Chief Executive Officer of the agency or jurisdiction that has
responsibility for managing the incident.
Administrator

Agency Dispatch The agency or jurisdictional facility from which resources are
allocated to incidents.

Agency Representative An individual assigned to an incident from an assisting or
cooperating agency and who has been delegated full authority to
make decisions on all matters affecting that agency’s
participation at the incident. Agency Representatives report to
the Incident Liaison Officer.

Air Operations Branch The person primarily responsible for preparing and
implementing the air operations portion of the Incident Action
Director
Plan (IAP). Also responsible for providing logistical support to
helicopters operating at the incident.

Allocated Resources Resources dispatched to an incident.


Glossary

Area Command An organization established to 1) oversee the management of
multiple incidents that are each being handled by an Incident
Command System (ICS) organization; or 2) oversee the
management of a very large incident that has multiple Incident
Management Teams assigned to it. Area Command has the
responsibility to set overall strategy and priorities, allocate
assigned resources based on priorities, ensure that incidents are
properly managed, and ensure that objectives are met and
strategies followed.

Assigned Resources Resources checked in and assigned work tasks on an incident.

Assignments Tasks given to resources to perform within a given operational
period, based upon tactical objectives in the Incident Action Plan
(IAP).

Assistant Title for subordinates of the Command Staff positions. The title
indicates a level of technical capability, qualifications, and
responsibility subordinate to the primary positions. Assistants
may also be used at other positions in the ICS organization.

Assisting Agency An agency directly contributing tactical or service resources to
another agency.

Available Resources Incident-based resources that are available for assignment within
3 minutes.

B

Base The location at which primary logistics functions for an incident
are coordinated and administered. There is only one base per
incident. (An incident name or other designator will be added to
the term base.) The Incident Command Post may be collocated
with the base.


Glossary

Branch The organizational level having functional or geographic
responsibility for major parts of incident operations. The branch
level is organizationally between section and division/group.
Branches are identified by the use of Roman numerals.

C

Cache A predetermined complement of tools, equipment, or supplies
stored in a designated location and available for incident use.

Camp A geographical site within the general incident area but separate
from the Incident Base, and equipped and staffed to provide
sleeping, food, water, and sanitary services to incident
personnel.

Check-in The process whereby resources first report to an incident.
Check-in locations are as follows: Incident Command Post
(Resources Unit), Incident Base, Camps, Staging Areas,
Helibases, Helispots, and Division Supervisors (for direct line
assignments).

Chain of Command A series of management positions in order of authority; see
Unity of Command.

Chief The ICS title for individuals responsible for command of
functional sections: Operations, Planning, Logistics, and
Administration/Finance.

Clear Text The use of plain English in radio communications transmissions.
No Ten Codes or agency-specific codes are allowed when using
Clear Text.

COBRA Chemical, Ordinance, Biological, Radiological; Domestic
Preparedness reference.


Glossary

Command The act of directing or controlling resources by virtue of explicit
legal, agency, or delegated authority. May also refer to the
Incident Commander.

Command Staff Consists of the Information Officer, Safety Officer, and Liaison
Officer. They report directly to the Incident Commander. They
may have an assistant or assistants, as needed.

Communications Unit An organizational unit in the Logistics Section responsible for
providing communication services at an incident. A
(Comm. Unit)
Communications Unit may also be a facility (for example, a
trailer or mobile van) used to provide the major part of an
Incident Communications Center.

Compensation Unit/ Functional unit within the Administration/Finance Section
responsible for financial concerns resulting from injuries or
Claims Unit
fatalities at the incident.

Complex Two or more individual incidents that are located in the same
general area and are assigned to a single Incident Commander or
Unified Command.

Consequence Management The Federal Emergency Management Agency (FEMA) is the
lead agency for consequence management.

Contingency Plan A documented scheme of assigned responsibilities, actions, and
procedures to be followed should an emergency situation
develop.

Cooperating Agency An agency supplying assistance other than direct tactical or
support functions or resources to the incident control effort (for
example, the Red Cross or telephone company).

Coordination Center Term used to describe any facility that is used for the
coordination of agency or jurisdictional resources in support of
one or more incidents.


Glossary

Cost Unit Functional unit within the Administration/Finance Section
responsible for tracking costs, analyzing cost data, making cost
estimates, and recommending cost-saving measures.

Credential A letter or other testimonial attesting the bearer’s right to
confidence or authority

Credible Threat A threat with sufficient credibility that would cause the FBI to
begin a threat assessment. The FBI would notify law
enforcement authorities within the affected state and the
appropriate federal agencies of a significant threat of terrorism.

Crisis Management The Federal Bureau of Investigation (FBI) is the lead agency for
responding to acts of domestic terrorism.

Critical Crowd Densities A common characteristic of crowd disasters. Critical crowd
densities are approached when the floor space per standing
person is reduced to about 4-5 square feet.

Crush Load Overwhelming the capacity of a given area that results in
gridlock, limited access, and hazards incompatible to life safety.
This may apply to both inside and outside venues and parking
areas.

Cues A signal, hint, or guide.

D

Debrief A meeting held during or at the end of an operation with the
purpose of assessing the conduct or results of an operation.


Glossary

Deputy A fully qualified individual who, in the absence of a superior,
could be delegated the authority to manage a functional
operation or perform a specific task. In some cases, a Deputy
could act as relief for a superior and therefore must be fully
qualified in the position. Deputies can be assigned to the
Incident Commander, General Staff heads, and Branch
Directors.

Demobilization Unit Functional unit within the Planning Section responsible for
ensuring orderly, safe, and efficient demobilization of incident
resources.

Director The ICS title for individuals responsible for command of a
branch.

Dispatch The implementation of a command decision to move a resource
or resources from one place to another.

Dispatch Center A facility from which resources are directly assigned to an
incident.

Division Divisions are used to divide an incident into geographical areas
of operation. A division is located within the ICS organization
between the Task Force/Strike Team and the branch. (See also
Group.) Divisions are identified by alphabetic characters for
horizontal applications and, often, by floor numbers when used
in buildings.

Documentation Unit Functional unit within the Planning Section responsible for
collecting, recording, and safeguarding all documents relevant to
the incident.

E

Emergency Medical A healthcare professional with special skills and knowledge in
pre-hospital emergency medicine.
Technician (EMT)


Glossary

Emergency Operating A designated facility established by an agency or jurisdiction to
coordinate the overall agency or jurisdictional response and
Center (EOC)
support to an emergency.

Emergency Management A range of measures to manage risks to communities and the
environment.

Emergency Management Refers to the individual within each political subdivision who
has coordination responsibility for jurisdictional emergency
Coordinator
management.

Emergency Management A formal record of agreed emergency management roles,
Plan responsibilities, strategies, systems, and arrangements.

Emergency Operations The plan that each jurisdiction has and maintains for responding
appropriately to hazards.
Plan (EOP)

Endemic Constant presence of a disease or infectious agent within a given
geographic area or population group.

Environmental Health Terminology used which includes Health Inspectors/Surveyors,
Officer Public Health Officers, Sanitary Inspectors/Engineers, Hygiene
Officers, and Preventative Health Officers.

Event In this curriculum, an event is a planned, non-emergency
activity. ICS should be used as the management system for a
wide range of events (for example, parades, concerts, or sporting
events).

Event Footprint The area impacted by the event. This includes the event site(s)
and any surrounding area impacted.

F

Facilities Unit Functional unit within the Support Branch of the Logistics
Section that provides fixed facilities for the incident. These


Glossary

facilities may include the Incident Base, feeding areas, sleeping
areas, or sanitary facilities.

Field Operations A pocketsize instruction manual on the application of the
Incident Command System.
Guide

Food Unit Functional unit within the Service Branch of the Logistics
Section responsible for providing meals for incident personnel.

Freelance Term used to describe resources performing assignments on
their own and not under direct ICS supervision.

Function Term often used in reference to the five major activities in the
ICS (that is, Command, Operations, Planning, Logistics, and
Administration/Finance). The term function is used when
describing the activity involved (for example, the planning
function).

G

Gastric Illness An inflammation of the stomach and the intestinal tract, often
described as food poisoning.
(Gastroenteritis)

General Staff The group of incident management personnel reporting to the
Incident Commander. They may each have a deputy, as needed.
The General Staff consists of an Operations Section Chief,
Planning Section Chief, Logistics Section Chief, and
Administration/Finance Section Chief.

Goal The end toward which incident efforts are directed.

Ground Support Unit Functional unit within the Support Branch of the Logistics
Section responsible for the fueling, maintaining, and repairing of
vehicles, and for the transportation of personnel and supplies.


Glossary

Group Groups are established to divide the incident into functional
areas of operation. Groups are composed of resources assembled
to perform a special function not necessarily within a single
geographic division. (See Group, under Division, above.)

H

Hazard Analysis Identifies potential hazards, estimates how serious they are, and
establishes planning priorities. Provides a factual basis for
planning and the necessary documentation for planning and
response efforts.

Helibase The main location for parking, fueling, maintenance, and loading
of helicopters operating in support of an incident. It is usually
located at or near the Incident Base.

Helibase Crew A crew of individuals who may be assigned to support helicopter
operations.

Helispot Any designated location where a helicopter can safely take off
and land. Some helispots may be used for loading of supplies,
equipment, or personnel.

I

Incident An occurrence caused either by humans or by natural
phenomena that requires action by emergency service personnel
to prevent or minimize loss of life or damage to property and/or
natural resources.

Incident Action Plan (IAP) Contains objectives reflecting the overall incident strategy and
specific tactical actions and supporting information for the next
operational period. The plan may be oral or written. When
written, the plan may have a number of forms as attachments
(for example, traffic plan, safety plan, communications plan, or
map).


Glossary

Incident Base Location at the incident where the primary logistics functions are
coordinated and administered. (An Incident name or other
designator will be added to the term base.) The Incident
Command Post may be collocated with the base. There is only
one base per incident.

Incident Commander (IC) The individual responsible for the management of all incident
operations at the incident site.

Incident Command Post The location at which the primary command functions is
executed. The ICP may be collocated with the incident base or
(ICP)
other incident facilities.

Incident Command The combination of facilities, equipment, personnel, procedures,
and communications operating with a common organizational
System (ICS)
structure, with responsibility for the management of assigned
resources to effectively accomplish stated objectives pertaining
to an incident.

Incident The location of the Communications Unit and the Message
Center.
Communication Center

Incident Management The Incident Commander and appropriate General and
Command Staff personnel assigned to an incident.
Team

Incident Objectives Incident objectives provide the needed guidance and direction
necessary for the selection of appropriate strategy(s) and for the
tactical direction of resources. Incident objectives are based on
realistic expectations of what can be accomplished when all
allocated resources have been effectively deployed. Incident
objectives must be achievable and measurable, yet broad enough
to allow for strategic and tactical alternatives.

Information Officer A member of the Command Staff responsible for
communicating with the media or other appropriate agencies
requiring information directly from the incident. There is only
one Information Officer per incident.


Glossary

Initial Action Resources initially committed to an incident.

J

Jurisdiction Refers to the range or sphere of authority. Public agencies have
jurisdiction at an incident related to their legal responsibilities
and authority for incident mitigation. Jurisdictional authority at
an incident can be political/geographical (for example, city,
county, state, or Federal boundary lines) or functional (for
example, police department or health department). (See Multi-
jurisdiction, above.)

Jurisdictional Agency The agency having jurisdiction and responsibility for a specific
geographical area or for a mandated function.

L

Leader The ICS title for individuals responsible for a Task Force, Strike
Team, or functional unit.

Liaison Officer A member of the Command Staff responsible for interacting
with representatives from cooperating and assisting agencies.

Logistics Section The section responsible for providing facilities, services, and
materials for the incident.

Life-Safety Highest incident priority refers to the joint consideration of both
the life and physical well-being of individuals.

M

Managers Individuals within ICS organizational units who are assigned
specific responsibilities (for example, Staging Area Manager or
Camp Manager).


Glossary

Management by In ICS, this is a top-down management activity that involves a
three-step process to achieve the incident goal. The steps include
Objectives
establishing the incident objectives, selecting appropriate
strategy(s) to achieve the objectives, and taking the tactical
direction associated with the selected strategy. Tactical direction
includes selecting tactics, selecting resources, assigning
resources, and monitoring performance.

Mass Gathering Medicine The management of the health and medical requirements of mass
gatherings.

Medical Unit The functional unit within the Service Branch of the Logistics
Section responsible for the development of the Medical
Emergency Plan and for providing emergency medical treatment
of incident personnel.

Message Center Part of the Incident Communications Center and collocated with
or placed adjacent to it. It receives, records, and routes
information about resources reporting to the incident, resource
status, and administration and tactical traffic.

Metering Term applied to the control procedures used to prevent critical
crowd densities from developing in specific areas.

Mobilization The process and procedures used by all organizations—Federal,
state, and local—for activating, assembling, and transporting all
resources that have been requested to respond to or support an
incident.

Mobilization Center An off-incident location at which emergency service personnel
and equipment are temporarily located pending assignment,
release, or reassignment.

Moshing A practice carried out at concerts in which a person is supported
by the upheld arms of a crowd of people. This practice is carried
out in the moshpit area where the crowd is the densest.


Glossary

Multi-agency Incident An incident in which one or more agencies assist a jurisdictional
agency or agencies. May be single or unified command.

Multi-agency A generalized term that describes the functions and activities of
representatives of involved agencies or jurisdictions who come
Coordination (MAC)
together to make decisions regarding the prioritizing of incidents
and the sharing and use of critical resources. The MAC
organization is not a part of the ICS and is not involved in
developing incident strategy or tactics.

Multi-agency The combination of personnel, facilities, equipment, procedures,
and communications integrated into a common system. When
Coordination System
activated, MACS enables the coordination of assisting agency
(MACS) resources and support in a multi-agency or multi-jurisdictional
environment. A MAC Group functions within the MACS.

Multi-jurisdiction An incident requiring action from multiple agencies that have a
statutory responsibility for incident mitigation. In ICS, these
Incident incidents should be managed under Unified Command.

Mutual Agreement Written agreement between agencies or jurisdictions in which
they agree to assist one another upon request, by furnishing
personnel and equipment in an emergency situation.

N

NBC Nuclear, Biological or Chemical Weapon.

O

Officer The ICS title for the personnel responsible for the Command
Staff positions of Safety, Liaison, and Information.

Operational Period The period of time scheduled for execution of a given set of
operation actions as specified in the Incident Action Plan.
Operational Periods can be of various lengths, although usually
not over 24 hours.


Glossary

Operations Section The section responsible for all tactical operations at the incident.
Includes branches, divisions or groups, Task Forces, Strike
Teams, and Single Resources.

Out-of-Service Resources assigned to an incident but unable to respond for
mechanical, rest, or personnel reasons.
Resources

P

Planning Meeting A meeting held as needed throughout the duration of an incident
to select specific strategies and tactics for incident control
operations and for service and support planning. On larger
incidents, the planning meeting is a major element in the
development of the Incident Action Plan.

Potable Water Water which is safe for human consumption.

Procurement Unit Functional unit within the Administration/Finance Section
responsible for financial matters involving vendor contracts.

Putrescible Waste which will decompose, such as food waste.

R

Radio Cache A radio cache may consist of a number of portable radios, a base
station and, in some cases, a repeater, all stored in a pre-
determined location for dispatch to incidents.

Recorders Individuals within ICS organizational units who are responsible
for recording information. Recorders work in Planning,
Logistics, and Administration/Finance Units.

Reinforced Response Those resources requested in addition to the initial response.


Glossary

Reporting Locations Location or facilities where incoming resources can check in at
the incident. Refers to staging.

Resource Status Unit Functional unit within the Planning Section responsible for
recording the status of resources committed to the incident and
for evaluating resources currently committed to the incident, the
impact that additional responding resources will have on the
incident, and anticipated resource needs.

Resource Gap Analysis In pre-event planning the analysis of what public safety
recourses the event will require versus what is locally available.

Resources All personnel and major items of equipment available, or
potentially available, for assignment to incidents. Resources are
described by kind and type (for example, ground, water, and air).

Reticulated Distribution or collection network for drinking water or sewage.

Risk Analysis Assesses the probability of injury or damage due to a hazard and
estimates the actual damage that may occur.

Risk Assessment The process used to determine risk management priorities by
evaluating and comparing the level of risk against pre-
determined standards, target risk levels, or other criteria.

S

Safety Officer A member of the Command Staff responsible for monitoring and
assessing safety hazards or unsafe situations and for developing
measures for ensuring personnel safety.

Sanitation Measures taken for the promotion of public health.


Glossary

Section That organizational level with responsibility for a major
functional area of the incident (for example, Operations,
Planning, Logistics, Administration/Finance). The section is
organizationally located between branch and Incident
Commander.

Sector Term used in some applications to describe an organizational
level similar to an ICS division or group. Sector is not a part of
ICS terminology.

Segment A geographical area in which a Task Force/Strike Team Leader
or supervisor of a single resource is assigned authority and
responsibility for the coordination of resources and
implementation of planned tactics. A segment may be a portion
of a division or an area inside or outside the perimeter of an
incident. Segments are identified with Arabic numbers.

Service Branch A branch within the Logistics Section responsible for service
activities at the incident. Includes the Communications, Medical,
and Food Units.

Sewage Waste matter that passes through sewers.

Single Resource A piece of equipment and personnel complement, or a crew of
individuals with an identified work supervisor, that can be used
in a tactical application on an incident.

Situation Status The functional unit within the Planning Section responsible for
the collection and organization of incident status information
Unit
and for analysis of the situation as it progresses. Reports to the
Planning Section Chief.

Slam Dancing A spontaneous form of dancing where people deliberately throw
themselves against people they are dancing with.

Span of Control The supervisory ratio of from three to seven individuals, with
five-to-one being established as optimal for control.


Glossary

Special Plan A plan, complete in itself, for the emergency management of
special or high-risk hazards.

Staging Area A temporary on-incident location where incident personnel and
equipment are assigned on a 3-minute available status. Staging
Areas are managed by the Operations Section.

Strategy The general plan or direction selected to accomplish incident
objectives.

Strike Team Specified combinations of the same kind and type of resources,
with common communications and a leader.

Sullage Waste water from sinks, showers, and hand-washing basins.

Supervisor The ICS title for individuals responsible for command of a
division or group.

Supply Unit Functional unit within the Support Branch of the Logistics
Section responsible for ordering equipment and supplies
required for incident operations.

Support Branch A branch within the Logistics Section responsible for providing
personnel, equipment, and supplies to support incident
operations. Includes the Supply, Facilities, and Group Support
Units.

Support Materials Refers to the attachments that may be included with an Incident
Action Plan (for example, communications plan, map, safety
plan, traffic plan, and medical plan).

T

Tactical Direction The term includes the tactics appropriate for the selected
strategy, the selection and assignment of resources, and
performance monitoring for each operational period.


Glossary

Task Force Any combination of single resources within the span of control
that is assembled for a particular tactical need and have common
communications and a leader.

Technical Specialists Personnel with special skills who are activated only when
needed. Technical Specialists can be used anywhere within the
ICS organization.

Temporary Flight Federal Aviation Regulation 91.137 provides for the
establishment of temporary airspace restrictions for non-
Restrictions (TFRs)
emergency aircraft. TFRs can be requested for incidents and/or
events generating a high degree of public interest, and are
normally limited to a 5-nautical-mile radius and 2,000 feet above
the surface.

Time Unit Functional unit within the Administration/Finance Section
responsible for recording time for incident personnel.

Topography Physical features of place or locality.

Type The type of any kind of resource refers to its capability
compared to another type. Type 1 provides a greater overall
capability due to power, size, or capacity than a Type 2 resource.
Assigning type provides resource managers with additional
information in selecting the best resource for the task.

U

Unified Command In ICS, Unified Command is a unified team effort that allows all
agencies with responsibility for the incident, either geographical
or functional, to manage an incident by establishing a common
set of incident objectives and strategies. This is accomplished
without losing or abdicating agency authority, responsibility, or
account-ability. An Operations Section Chief is responsible for
implementing the Incident Action Plan.


Glossary

Unit The organizational element having functional responsibility for a
specific incident planning, logistics, or administration/finance
activity.

Unity of Command Each person within an organization reports to one designated
person.

V
Vulnerability The degree of susceptibility and resilience of the community and
environment to hazards.

W

WMD Weapon(s) of Mass Destruction.


Glossary


Job Aids

These are meant to be reference materials to assist in creating a
contingency plan and should be used in the planning meetings. Not all
situations are covered in these documents. You may wish to modify the
forms for your particular event or your community.

Job Aids
TABLE OF CONTENTS
Tab 01: Notes on Human Behavior ....................................................................... 1
Tab 02: Stages of Behavior ................................................................................... 2
Tab 03: Crowd Notes............................................................................................. 3
Tab 04: Crowd Types ............................................................................................ 5
Tab 05: Crowd Composition .................................................................................. 6
Tab 06: Crowd Catalysts ....................................................................................... 7
Tab 07: Critical Crowd Densities ........................................................................... 8
Tab 08: Crowd Throughput Capacities .................................................................. 9
Tab 09: The Planning Process .............................................................................. 10
Tab 10: Special Event Planning Checklist ............................................................. 12
Tab 11: Promoter’s Checklist ................................................................................ 17
Tab 12: Approving Authority Checklist................................................................... 30
Tab 13: Food Vendor Information Sheet ............................................................... 40
Tab 14: Catering Checklist for Food Vendors........................................................ 43
Tab 15: Utilities Department Venue Assessment Checklist................................... 47
Tab 16: Pubic Works Department Checklist .......................................................... 49
Tab 17: Building Department Venue Assessment Checklist.................................. 51
Tab 18: Public Health Department Venue Assessment Checklist ......................... 53
Tab 19: Fire Services Venue Assessment Checklist ............................................ 55
Tab 20: Law Enforcement Venue Assessment Checklist ...................................... 57
Tab 21: Emergency Medical Services Venue Assessment
Checklist .................................................................................................. 59
Tab 22: Identifying Your Jurisdiction’s Vulnerabilities............................................ 61
Tab 23: Lost Child Information Sheet .................................................................... 65
Tab 24: Gastrointestinal Illness Questionnaire ...................................................... 66
Tab 25: Guide to the Provision of First Aid ............................................................ 68
Tab 26: Incident Action Plan Schedule.................................................................. 69
Tab 27: ICS Form 201 - Incident Briefing .............................................................. 70
Tab 28: ICS Form 202 - Incident Objective ........................................................... 76

Job Aids
Tab 29: ICS Form 203 - Organization Assignment List ......................................... 78
Tab 30: ICS Form 205 Communications Plan ....................................................... 80
Tab 31: ICS Form 206 - Medical Plan ................................................................... 83
Tab 32: ICS Form 207 – Organization Chart ......................................................... 84
Tab 33: ICS Form 213 – General Message........................................................... 86
Tab 34: ICS Form 214 - Unit Log........................................................................... 87
Tab 35: Expense Report........................................................................................ 88
Tab 36: HAZMAT/B-NICE Data Collection Report................................................. 89
Tab 37: Response Guide to WMD Terrorist Incidents ........................................... 92
Tab 38: ATF Bomb Threat Checklist .................................................................... 96
Tab 39: First Response to a Terrorist Incident ...................................................... 97

Job Aids

TAB 01: NOTES ON HUMAN BEHAVIOR

1. People are action or goal-orientated. Their reason for being there guides behavior.

2. Behavior takes place within existing roles. These roles may be part of the crowd or that of
ticket collector or security guard.

3. Role-related rules guide behavior. The rules guide behavior of the person in the role and also
how people will react to them.

4. People actively interpret their surroundings. Behavior is based on this interpretation.

5. Behavior is “setting defined.” The nature and purpose of the place influence what goes on
and what is deemed appropriate behavior.

6. Behavior is guided by expectations and understanding. People use understanding of the usual
behavior for the place and expectations about people in particular roles to interpret what is
going on about them and to guide their actions. For example, running in an underground
railway does not signify a fire.

7. Behavior is guided by its organized context. Simply, this relates to how the system functions
normally. If it is unable to cope normally, then it will not cope during a disaster.

8. Behavior is guided by its historical context. Over time, people establish a view of the place
and relationships with people there. These relationships and experiences play a role in
shaping action and interaction.

9. Stages of behavior. (See Tab 03.)

Modified from Donald, Ian. “Crowd Behavior at the King's Cross Underground Disaster.”
Easingwold Papers No. 4: Lessons Learned from Crowd-Related Disasters. Emergency Planning
College,Yorkshire, 1992.

Appendix - 1

Job Aids

TAB 02: STAGES OF BEHAVIOR

For ease of understanding, we divide individual behavior into four stages. With each input, we
include an analysis of the information leading to the response. This process is a feedback loop
that is in action continuously.

STAGES FACTORS
Environmental inputs
SENSE Ambiguous or specific input
Source of input
Content analysis
INTERPRET Source analysis (validity)
Knowledge, experience and expectation analysis
Knowledge and experience considerations
Goal and objective considerations
DECIDE Alternative considerations
Consequence considerations
Mental/emotional considerations
Personal response
ACT Venue physical characteristics response
Temporal changes to characteristics response

INDIVIDUAL
BEHAVIOR

Confirm warning
CROWD Gather information
DECISIONS Establish common belief in threat
Assess risk

COLLECTIVE
BEHAVIOR

Crowd responses are thus sequences of individual and collective behavior, where individuals
communicate with one another to affiliate (for example, family or friendships), reduce confusion,
and evaluate emotional responses.

Special Events Contingency Planning Appendix-2

Job Aids

TAB 03: CROWD NOTES

1. Crowds are complex social structures.

Social ROLE is the behavior set we carry out in a given context.
Social NORM is the guideline set we use to deal with others in their role.

Crowd Roles:

• Active Core: carry out action of crowd.
• Cheerleaders: verbal support for leaders.
• Observers: follow actions but rarely take part.

Gatherings are organized into roles that have differing behaviors and are spatially distributed.

Phases in Culture Development -- Vocalization -- Verbalization -- Gesticulation.

Significance of crowds:

• Increase probability of a dangerous occurrence.
• Increase potential number of victims.
• Make communication slower and more difficult.
• Make changes in action slower and more difficult.
• Diffusion of responsibility (someone else will do it).

2. Panics and Crazes

Panic in a group is the flight from a real or perceived threat in which escape appears to be
the only effective response. What appears to be panic is usually the result of poor inputs
(especially communications or the lack of) and previous knowledge and experience.

Craze in a group is the temporary, short-lived competitive rush by a group toward some
attractive object. Tends to occur on entering, exacerbated by the lack of information.

3. Deindividualization

Deindividualization is defined as a loss of self-awareness and evaluation apprehension in
group situations that foster anonymity. While obviously related to individual behavior, you
must consider it closely with Crowd Composition (see Tab 06). Behavior may be:

• Mild lessening of restraint, for example, screaming during a concert;
• Impulsive self-gratification, for example, theft, vandalism, molestation; and
• Destructive social explosions, for example, group violence, rioting and torturing.


Job Aids

4. Defusing

The tedium created by waiting and/or the perception that other gates are being opened first or
later arrivals are being admitted first can create problems. Such things as appropriate music,
use of humor, food and beverage services moving through the group, cheerful security staff
moving through the group, and good communication including a public address system, can
help defuse the situation.


Job Aids

TAB 04: CROWD TYPES

CROWD TYPE COMMENT

AMBULATORY Walking, usually calm

DISABILITY/LIMITED Crowd has limited or restricted movement; requires additional
planning
MOVEMENT

COHESIVE/SPECTATOR Watching specific activity

EXPRESSIVE/REVELOUS Emotional release, for example, cheering movement in unison

PARTICIPATORY Involved in actual event, for example, community fun runs

AGGRESSIVE/HOSTILE Initially verbal, open to lawlessness

DEMONSTRATOR Organized to some degree, for example, pickets, marches

ESCAPE/TRAMPLING Danger may be real or imaginary

DENSE/SUFFOCATING Reduction of individual physical movement

RUSHING/LOOTING Attempt to acquire/obtain/steal something, for example,
tickets
VIOLENT Attacking/terrorizing

Table modified from Berlognghi, Alexander E. “Understanding and Planning for Different
Spectator Crowds.” Engineering for Crowd Safety. Ed. R.A. Smith and J.F. Dickie. Elsevier
Science Publications B.V., 1993.

One crowd may exhibit all or part of the above types; therefore, you must consider each
category, or at the least the most likely categories, in your plan.


Job Aids

TAB 05: CROWD COMPOSITION

ASSESSMENT COMMENT
HOW ORGANIZED For example, walking to venue versus demonstrators
LEADERSHIP Normal crowd has no leadership; they are spontaneous.
COHESIVENESS Degree of bonding
UNITY OF PURPOSE Some may be focused; others have own agenda, for example,
moshing or slam dancing.
COMMON MOTIVE FOR Note distinction between performing same action (for example,
cheering) versus motive for same action (for example, leaving the
ACTION
venue).
PSYCHOLOGICAL UNITY Crowds at benefits are psychologically united for good; however,
demonstrators could pose problems if antagonized.
EMOTIONAL INTENSITY Much of this depends on the event and or special effects
taking place.
VOLATILITY To what degree has crowd reached an explosive point?
INDIVIDUAL BEHAVIOR How much individual control and responsibility is being exercised?
The more this is evident, the more restrained the crowd.
GROUP BEHAVIOR To what degree are individuals dominated by the group? The more
this is evident the closer to “mob mentality.”
DEGREE OF How much criminal behavior is taking place?
LAWLESSNESS
LEVEL OF VIOLENCE Can be assessed historically and/or by current observations
LEVEL OF PROPERTY How much is likely to occur and where, for example, parking area,
DAMAGE toilets, walkways, etc.? Assessment is historical for venue, event,
and crowd, plus current assessment.
LIKELIHOOD OF INJURY Certain places at certain times, for example, major sporting event
OR DEATH and certain events, for example, motor races
NEED FOR CROWD How important is a detailed plan? Must be discussed with experts
CONTROL and experienced persons because the more detailed and complex the
plan, the more expensive and resource-intense the commitment.

Table modified from Berlognghi, Alexander E. “Understanding and Planning for Different

When you understand what you are dealing with, then brief ALL personnel on what to look for
and how they should respond while they are performing their duties.


Job Aids

TAB 06: CROWD CATALYSTS

CATALYST EXAMPLE
OPERATIONAL Parking, no show performers, cancellations

EVENT ACTIVITIES Smoke, fire, lasers, noise

PERFORMER(S) ACTIONS Sexual/violent gestures, challenges/song lyrics

SPECTATOR FACTORS Drugs, alcohol, rush for seats

SECURITY FACTORS Excessive or unreasonable force, abuse of authority

SOCIAL FACTORS Racial tensions, team rivalries

WEATHER Heat, humidity, rain, lack of ventilation

NATURAL DISASTER Earthquake, deluge of rain, flash flood

MAN MADE DISASTER Structural failure, toxic substance

Table modified form Berlognghi, Alexander E. “Understanding and Planning for Different


Job Aids

TAB 07: CRITICAL CROWD DENSITIES

The objective should be to prevent the build-up of large accumulations of patrons, particularly
within short time periods, in confined spaces especially if they are frustrated by the inability to
see what is happening.

A study by Fruin (1981) identifies critical crowd densities as a common characteristic of crowd
disasters. Critical crowd densities are approached when the floor space per standing person is
reduced to about 5.38 sq. ft.

Considering the various movements or positions spectators will occupy, approximate minimal
mobility requirements have been empirically identified by Fruin (1981) as follows:

• Pedestrians moving in a stream require average areas of 24.73 sq. feet per person to attain
normal walking speed, and to pass and avoid others.
• At 10 sq. feet per person, walking becomes significantly restricted, and speeds noticeably
reduced.
• At 4.95 sq. feet per person, the maximum capacity of a corridor or walkway is attained with
movement at a shuffling gait and movement possible only as a group. This would be
characteristic of a group exiting a stadium or theater.
• At less than 4.95 sq. feet per person average, individual pedestrian mobility becomes
increasingly restricted.
• At approximately 3 sq. feet per person, involuntary contact and brushing against others
occurs. This is a behavioral threshold generally avoided by the public, except in crowded
elevators and buses.
• Below 2 sq. feet per person, potentially dangerous crowd forces and psychological pressures
begin to develop.

Fruin (1981) contended that "the combined pressure of massed pedestrians and shock-wave
effects that run through crowds at critical density levels produce forces which are impossible for
individuals, even small groups of individuals, to resist."

The above information shows that you may need to provide a monitoring system, such as closed
circuit television monitoring of crowd movements, that will provide warning to the services that
they must take necessary action to prevent a major incident.


Job Aids

TAB 08: CROWD THROUGHPUT CAPACITIES

In his writings on crowd disasters, Fruin (1981) identifies several areas regarding spectator
throughput in entry to a performance. For planning purposes, he suggests:

1. Ticket Collectors
Ticket collectors must be in a staff uniform or otherwise identifiable. Ticket collectors faced
with a constant line can throughput a maximum of:

• One patron per second per portal in a simple pass-through situation.
• Two seconds per patron if the ticket must be torn and stub handed to patron; and
• More complicated ticketing procedures (and/or answering the occasional question) will
protract time per patron.

2. Doorways
Free-swinging door, open portal, or gate can accommodate up to one person per second with
a constant queue.

Revolving doors and turnstiles would be half this rate of throughput, or less.

3. Corridors, Walkways, Ramps
Have a maximum pedestrian traffic capacity of approximately 25 persons per minute per 1
foot of clear width, in dense crowds.

4. Stairs
Have a maximum practical traffic capacity of approximately 16 persons per minute in the
upward direction. Narrow stairs (less than 5 feet) will lower the maximum flow.

5. Escalators and Moving Walkways
A standard 3.94-ft. wide escalator or moving walkway, operating at 118 feet per minute can
carry 100 persons per minute under a constant queue.


Job Aids

TAB 09: THE PLANNING PROCESS

Team Approach
Special Event Contingency Planning development should be the joint effort of a planning team –
a group of people who represent a cross-section of the organizations that are involved in the
emergency response effort. Although each jurisdiction’s team will vary somewhat, the
Emergency Manager usually serves as the team’s planning coordinator. Team members may
include representatives of the groups listed below:

• Office of the Chief Executive.
• Promoter/Sponsor.
• Emergency services agencies (law enforcement, fire/rescue, emergency medical services, and
public health and safety, and others).
• Public works/Utilities.
• Planning agencies and individuals (for example, community development, city planning
commissions, and hazard mitigation planner).
• Local Emergency Planning Committees, for hazardous materials information.
• Public works agencies and utility companies.
• Social service agencies and volunteer organizations (including the American Red Cross and
Salvation Army).
• Medical community representatives (for example, area hospitals, EMS agencies, medical
examiner, coroner, mortician).
• Key education personnel (including administrators).
• Communications representatives (Public Information Officer, local media, radio/CB groups,
and others).
• Aviation and coastal authorities (including State aviation authority, other air support
representatives, port authorities, U.S. Coast Guard station).
• Chief Financial Officer, auditor, and heads of any centralized procurement and resource
support agencies.
• The jurisdiction’s legal counsel.
• Industrial and military installations in the area.
• Labor and professional organizations.
• Animal care and control organizations.
• Emergency Managers and agency representatives from neighboring jurisdictions, to
coordinate mutual aid needs.
• State and/or Federal representatives, as appropriate.
• Private sector.

A team approach to planning offers many advantages, including:

A Sense of Ownership – The plan is more likely to be used and followed if the tasked
organizations have a sense that the plan is “theirs.”


Job Aids

Greater Resources – More knowledge and expertise are brought to bear on the planning
effort when more people are involved.

Cooperative Relationships – Closer professional relationships that are developed during the
planning process should translate into better cooperation and coordination in emergencies.


Job Aids

TAB 10: SPECIAL EVENT PLANNING CHECKLIST

Name of Event: _____________________________________________
Name of Applicant: __________________________________________
Address:______________________________ Phone: ______________
City:____________________________ State: __________ Zip: _____
Name of Organization: _______________________________________
Address:______________________________ Phone: ______________
City:____________________________ State:__________ Zip: ______
❏ For Profit Organization
❏ Not for Profit Organization ID Number: __________________
❏ Insurance for event (attach a copy to this document)
❏ Bond for event (attach a copy of conditions)

Date(s) of Event: _____________________________________________

Type of Event

❏ Arena sporting event
❏ Competitive road-race
❍ Foot
❍ Bicycle
❍ Motor vehicle

❏ Convention
❏ Festival
❏ Live performance
❏ Music
❏ Non-competitive on public way
❏ Political rally
❏ Sales
❏ Speaker
❏ Other: ________________________________________________

Expected attendance ___________________________________________

Number of similar events previously sponsored __________ (attach summary documents)


Job Aids

Marketing

❏ Local
❏ Regional
❏ Multiple states
❏ National

Public Access

❏ Open event
❏ Spectators limited to first _______ arrivals
❏ Tickets will be required for all events
❏ Tickets will be required for certain venues

Name of Location Venue: ____________________________________________

❏ Indoor
❏ Outdoor
❏ Considered an alcohol-free event
❏ Advertised an alcohol-free event
❏ Alcoholic beverages will be sold or served at venue
❏ Alcoholic beverages will be sold outside of venue

Location venue capacity: _____________________________________________________

Seasonal weather concerns: ___________________________________________________

Food Service

❏ None
❏ Multiple vendors
❏ Single concessionaire
❏ Water provided

Health and Safety Inspection

❏ Issued permit(s)
❏ Fire inspection
❏ Waste disposal plan


Job Aids

Health and Sanitation Plan

❏ Number of toilet facilities __________
❏ Number of trash facilities __________
❏ Disposal plan (attach a copy to this document)
Medical Plan (Complete and attach ICS Form 206)

❏ Sponsor responsibility
❏ Public provided
❏ Medical services and facilities notified
❏ First Aid or rehab stations on site

Transportation Plan

❏ None
❏ Public Transportation
❍ Special routes
❍ Extra capacity
❍ Contract transportation
❍ Emergency routing
❍ Peak period capacity time frame

❏ Private Transportation
Street or highway access: ____________________________________________________

Vehicle capacity factor: _____________________________________________________

Peak traffic period factor: ____________________________________________________

Parking Plan

Number of lots: ____________________________________________________________

Total available spaces____________

❏ Public parking spaces ____________
❏
❏ Private parking spaces ____________ (attach private parking agreements)
❏
❏ Parking attendants ___________


Job Aids

Traffic Patterns

❏ Public Works signing
❏ Event will require traffic flow or street closures (if checked, attach complete list)
❏ Temporary traffic code or parking restrictions (if checked, attach list)
❏ Traffic direction and control restrictions (if checked, attach list)
❏ Tow truck service (if checked, attach agreements)
❏ Abandoned and/or illegally parked vehicle recovery (if checked, attach agreements)

Public Safety Plan

Attach ICS Forms 201, 202, 203 and 205

Risk / hazard analysis

❏ Criminal response
❏ Fire response
❍ Structure
❍ At site
❍ Vehicle

❏ Hazardous materials
❏ Electrical hazards
❏ Medical emergencies
❍ Food-related illnesses
❍ First Aid
❍ Heat / cold exposures
❍ Trauma
❍ Overdoses

❏ Structure collapse
❏ Crowd rush
❏ Mass casualty
❏ Mass fatality
❏ Lost or missing persons / children
❏ Unattended packages
❏ Crowd disbursement
❏ Offender identification
❏ Public notification process (ICS Form 205 required)
❏ Access control
❏ Evacuation routes
❏ Evacuee assembly areas
❏ Shelters


Job Aids

Event Logistics

❏ Support
❏ Facilities
❏ Food Unit
❏ Communications
❏ Ground Support
❏ Air Support
❏ Medical Unit

Demobilization Plan

❏ Traffic or pedestrian egress from site
❏ Secondary transportation plan
❏ Sanitation removal
❏ Venue clean-up
❏ Traffic pattern normalization
❏ Contractual evaluation

❍ Organizer commitments
❍ Other public or private contracts

❏ Debriefing


Job Aids

TAB 11: PROMOTER’S CHECKLIST
Event Details

Name of event:

Day(s) of event: From: ___/___/___ To: ___/____/____

Event time: Start: Finish:

Site:

Site address:

Promoter:

Event manager:

Address:

Contact: Phone: Fax:

A/Hours: Cell:

E-mail: Pager:

Site preparation start date: / / Site vacated date: / /

Brief details of function (including entertainment and main attractions):


Job Aids

PROMOTER’S CHECKLIST

Sponsorship details (including any restrictions) ____________________________________

What Legislative, Regulative, and Legal Issues Need to be Addressed?
State legislative/regulative requirements: _____________________________________________

_________________________________________________________________________________

Local legislative/regulative requirements:

______________________________________________________________________________

______________________________________________________________________________

_____________________________________________________________________________

Permits required: (for example, liquor, pyrotechnics, fire, laser, food): _________
______________________________________________________________________________

______________________________________________________________________________

______________________________________________________________________________

_____________________________________________________________________________

Engineering approvals:

______________________________________________________________________
Insurance required: ____________________________________________________
______________________________________________________________________________

Site Details

NOTE: Include detail such as - indoor/outdoor, normal use, permanent structure, temporary site,
multiple sites, site boundaries, temporary structures, natural features, likely hazards [including
weather], historic sites, environmental issues, parking arrangements, access and egress, and
facilities, for example, water, toilets, food preparation, waste removal (attach diagram or site
map).


Job Aids


___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

Estimated total attendance:

Estimated age composition of audience:

0 - 12 years: ______ % of total audience

12 - 18 years: % of total audience




55 years and above: % of total audience

Admission will be by: ______ pre-sold ticket ____free ____other: (Please specify)

___________________________________________________________________________

Has this event been conducted previously? YES / NO

If yes, when ? ______________________________________________________________

Where ? ___________________________________________________________________

Event Manager: _____________________________________________________________

Contact phone: __________________ Fax: _______________________________

Is the proposed event to be the same? YES / NO


Job Aids


If no, please detail the changes: ________________________________________________

What effects will the changes have? _____________________________________________

Will alcohol be served/consumed? YES / NO

Key Stakeholders

NAME PHONE
State Government Dept(s):

Local Council(s):

Neighboring Councils:

Police:

Ambulance Service:

First Aid Service:

Fire Service:

Hospital/Medical Services:

State Emergency Service:

Security Personnel:

Liquor Licensing:

Local Hotel and
Businesses:

Transport Authority:


Job Aids


Neighbors:

Other:

Other:

Time frame necessary for contact with stakeholders:
___________________________________________________________________________

___________________________________________________________________________

A full briefing of all the above stakeholders is planned for _______________________(date)

at _______________________ (venue).

Event Communications

During the event what form of communication systems will be available/provided/ required for:

Event management: __________________________________________________________

Public address (internal): ______________________________________________________

Public address (external): _____________________________________________________

Emergency services: _________________________________________________________

Coordination requirements:
____________________________________________________

Event Promotion and Media Management

Can the promotion ticketing and publicity for the event include messages that clarify the focus of
the event (for example, family fun, sporting contest, musical entertainment)?

The focus of the event is ______________________________________________________


Job Aids


The event promotion and publicity will promote:

Safe drinking practices YES / NO

Don’t drink and drive YES / NO

Intoxicated and underage persons will not be served alcohol YES / NO

Bags may be searched or restricted YES / NO

Glass containers are not permitted YES / NO

Water will be freely available YES / NO

Availability of “wet” and “dry” areas YES / NO

Location of facilities included on ticketing YES / NO

Health care advice included on ticketing YES / NO

Smoke free environment YES / NO

Security

Which type of security will be appropriate for the event? _____________________________

Who will be the appropriate security firm to be contracted? ___________________________

Event security would commence on ____/____/____ and conclude on ____/____/____

What will be the role of security? ________________________________________________

___________________________________________________________________________

Have Police been contacted in relation to security? YES / NO

If yes, what will be required of the police? ________________________________________

When would a briefing/debriefing be held involving police, security, bar staff and licensing
personnel?

(Date before Event) (Date after Event)


Job Aids


Will a briefing of all personnel and officials be provided regarding helping patrons with
amenities and services? YES / NO

Signage

What signage, including those required under the local liquor laws, will need to be developed
and obtained?
___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

Will there be signage in languages other than English? YES / NO

Transport

Does a transport strategy need to be developed? YES / NO

List the departments, councils and/or agencies that are likely to be involved in developing this
strategy.

Name: Organization:

Name: Organization:

Name: __________________________ Organization: ______________________________

Name: __________________________ Organization: ______________________________

Access and Egress for Patrons

What provisions can be made for patrons to access, move around and leave the event venue
without excessive queuing, or crushes (for example, gate control, pathways, free space)?

___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________


Job Aids


Will patrons be able to access toilets, food and bar areas, and entertainment sites without
difficulty? YES / NO

In an emergency, will patrons be able to leave the venue or move to other areas within the venue
in reasonable safety? YES / NO

Comment:
___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

Access for Persons with Disability

What provisions need to be made for persons with a disability to access and move around the
event venue?

__________________________________________________________________________

__________________________________________________________________________

Will persons with a disability be able to access toilets, food and bar areas, and entertainment sites
without difficulty? YES / NO

In an emergency, will persons with a disability be able to leave the venue without significantly
impeding the movement of other patrons? YES / NO
Comment:

__________________________________________________________________________

__________________________________________________________________________

__________________________________________________________________________

__________________________________________________________________________

__________________________________________________________________________


Job Aids


Noise

What provisions can be made to minimise the level of noise at and around the event?

a) ________________________________________________________________________

b) ________________________________________________________________________

c) ________________________________________________________________________

d) ________________________________________________________________________

e) ________________________________________________________________________

Management of Alcohol

Are there any standard conditions of the Licensing permit? YES / NO

If YES, what are they?

___________________________________________________________________________

How will event personnel, specifically bar and security personnel, be trained and informed of the
state and local statutes/ordinances and made aware of the responsibilities and penalties?
__________________________________________________________________________

__________________________________________________________________________

What types of alcohol (for example beer, wine, and liquor) and other drinks will be available at
the event?

__________________________________________________________________________

__________________________________________________________________________

In what type of containers will alcohol and other drinks be available (for example, glass, can or
plastic containers)?

__________________________________________________________________________

__________________________________________________________________________


Job Aids


What provisions will be made for the collection of drink containers during and after the event?
__________________________________________________________________________

__________________________________________________________________________

What will be the pricing structure for alcoholic and non-alcoholic drinks?

__________________________________________________________________________

Is it anticipated that the pricing structure will discourage patrons from becoming unduly
intoxicated? YES / NO

Can the event publicity, ticketing, and signage inform patrons of the restrictions on alcohol
including that alcohol will not be served to minors and intoxicated people? YES / NO

Can some, if not all, bars be shut prior to the end of the entertainment? YES / NO

If the event is “Bring Your Own Bottle” BYO, what provisions can be made to prevent glass
related injuries, underage drinking and excessive intoxication?

___________________________________________________________________________

___________________________________________________________________________

If the event is not BYO, what provisions can be made to prevent alcohol from being brought into
the venue?
___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

If there are to be designated drinking areas, will they be adequate in size and number and
supported by toilet facilities to cope with the expected size of the crowd? YES / NO

Will there be dry areas for families, entertainment, and food? YES / NO

Will the event provide the following facilities to encourage responsible
drinking by patrons?

Free drinking water YES / NO

Cheap non-alcoholic drinks YES / NO


Job Aids


Range of quality food YES / NO

Shade or cover YES / NO

Safe drinking information YES / NO

Quality entertainment YES / NO

“Wet” and “Dry” areas YES / NO

Other Drug Use

Is it possible that drugs, including marijuana and amphetamines, may be
available and used at this event? YES / NO

List any drugs and related information known from previous experience:

__________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

What provisions can be made to address this drug use?

___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

Medical

What level of medical service is considered necessary and for what duration?

___________________________________________________________________________

___________________________________________________________________________

Who can provide this service? __________________________________________________

What will be the cost of the service? _____________________________________________


Job Aids


If it is not a local provider, what arrangements have been made to coordinate with the local
ambulance service?

What facilities will the medical service require (including helipad)?

___________________________________________________________________________

How can these be provided? ___________________________________________________

Animals
If the event involves animals, what arrangements will be necessary for their management, care
and well being?

___________________________________________________________________________

If the event may affect animals, what arrangements will be necessary for their management, care
and well being?

___________________________________________________________________________

__________________________________________________________________________

__________________________________________________________________________

__________________________________________________________________________


Job Aids


Briefing/Debriefing

A final briefing of stakeholders is planned for weeks prior to the event.

A debriefing will be conducted with all stakeholders within __________ days of the event.


Job Aids

TAB 12: APPROVING AUTHORITY CHECKLIST
Event Details

Name of event: _______________________________________________________

Requested date(s) of event: From: / / To: / /

Requested event time: Start: Finish: ____________________________

Requested site: _______________________________________________________

Site address: __________________________________________________________

Promoter: ____________________________________________________________

Event manager: ________________________________________________________

Address: _____________________________________________________________

Contact: Phone: Fax: ______________________________

After Hours:

Requested site preparation start date: / /

Suggested site vacated date: / /

Brief details of function (including entertainment and main attractions):

Legal Requirements

Does the application:

Comply with State and Local legislation/regulations? YES / NO


Job Aids

APPROVING AUTHORITY CHECKLIST

Provide for adequate general public liability insurance? YES / NO

Provide for adequate liability insurance for a major incident? YES / NO

Need to post a bond to cover contingencies? YES / NO

Licenses/Permits

Does the application require:

Liquor licensing? YES / NO

Road closures/restrictions? YES / NO

Food outlet licenses? YES / NO

Fire Inspection permits? YES / NO

Any other: ______________________________________________________________

_______________________________________________________________________

Site

Is it appropriate for the type of event? YES / NO

Are there multiple sites involved in the event? YES / NO

Comment: _________________________________________________________________

Indoor/outdoor: _____________________________________________________________

Permanent structure or temporary site: ___________________________________________

Normally used for this type of event? YES / NO

Normally used for large crowds? YES / NO

Topography: _______________________________________________________________

__________________________________________________________________________


Job Aids


__________________________________________________________________________

__________________________________________________________________________

__________________________________________________________________________

Any effect on neighboring councils? YES / NO

Suitability for camping facilities? YES / NO

List any environmental issues (green, flora, fauna, historic site): _______________________

___________________________________________________________________________

List any natural features likely to be hazardous (river, dam, long grass, forest):

___________________________________________________________________________

Anticipated crowd number: ____________________________________________________

Is site large enough for expected crowd? YES / NO

Tickets being pre-sold? YES / NO % Of Attendance

Tickets sold at the gate? YES / NO % Of Attendance

Other means of limiting crowd: _________________________________________________

___________________________________________________________________________

___________________________________________________________________

Type of crowd expected (young, old, family, unruly):

______________________________________________________________________________

Is water available at site? YES / NO

Quality of water: ___________________________________________

Quantity of potable water: ____________________________________

Probability of sabotage of water? YES / NO


Job Aids


Comment: _________________________________________________________________

______________________________________________________________________________

Fixed sewerage? YES / NO

Adequate sewerage capacity? YES / NO

Comment: _________________________________________________________________

Other utility supplies (power, gas):_______________________________________________

Will they be adequate? ________________________________________________________

Will emergency water supplies be required? YES / NO

Will emergency water supplies be supplied? YES / NO

Will emergency water supplies be available? YES / NO

Comment: _______________________________________________________________

__________________________________________________________________________

__________________________________________________________________________

Will emergency electricity supplies be required? YES / NO

Will emergency electricity supplies be supplied? YES / NO

Will emergency electricity supplies be available? YES / NO

Comment: __________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

___________________________________________________________________________

Will emergency gas supplies be required? YES / NO

Will emergency gas supplies be supplied? YES / NO


Job Aids


Will emergency gas supplies be available? YES / NO

Comment: _________________________________________________________________

__________________________________________________________________________

Emergency Services/Key Stakeholders

Has applicant consulted and gained support/approval from:

State/Local Government Departments YES / NO

If yes, list by abbreviation: _________________________________________________

Police YES / NO

Ambulance YES / NO

First Aid Service YES / NO

Fire YES / NO

Medical/Hospital YES / NO

State Emergency Service YES / NO

Transport Authorities YES / NO

Liquor Licensing Court YES / NO

Neighboring Councils YES / NO

Neighbors/Community Association YES / NO

Other: _____________________________________________________________________

___________________________________________________________________________

Have emergency management plans been prepared? YES / NO

Have contingency plans been prepared? YES / NO

If no, are they necessary? YES / NO


Job Aids


If they are necessary, who will coordinate the preparation? ___________________________

Security

Is special security being provided? YES / NO

If YES who is providing it? ___________________________________________________

If NO is it considered necessary? YES / NO

Is the provider licensed to provide the service? YES / NO

Event Safety Issues

Natural

Weather (rain, wind, heat, and cold): ________________________________________________

Terrain (cliffs, creeks, reclaimed land): ______________________________________________

Environmental

Animals, forests, pollens, pests, flora, fauna, historical:

______________________________________________________________________________

Technological

Utility lines, noise, lighting, access and egress: ________________________________________

______________________________________________________________________

Human

Alcohol, hysteria, nuisance, neighbors, fire: __________________________________________

______________________________________________________________________________

Event

Pyrotechnics, lasers: _____________________________________________________________


Job Aids


Access/Egress—Parking

Is road access and egress suitable? YES / NO

Is road access and egress suitable in all weather? YES / NO

Is road access and egress adequate? YES / NO

Will special traffic control be required? YES / NO

Is sufficient suitable off road parking available? YES / NO

Will emergency services have continual access and egress? YES / NO

In the event of a major emergency, does access and egress allow for
emergency services? YES / NO

Food
See Tabs 14 and 15.

Toilets

What is the anticipated crowd mix of male and female attendees?

MALE FEMALE

What is the fixed toilet facility numbers?

MALE TOILETS

URINALS

MALE SHOWERS

FEMALE TOILETS

FEMALE SHOWERS

DISABLED

Will separate toilet facilities be available for food vendors? YES / NO

Will separate toilet facilities be available for medical attendants? YES / NO


Job Aids


Are there sufficient toilet facilities? YES / NO

If no, what additional requirements? MALE TOILETS

URINALS

MALE SHOWERS

FEMALE TOILETS

FEMALE SHOWERS

DISABLED

Will current sewerage system cope with the extra demand? YES / NO

If no, what additional requirements will there be?

____________________________________________________________________

__________________________________________________________________________

Where additional requirements are unserviced, can service trucks gain
easy access? YES / NO

What servicing of toilets will be provided during the event? ___________________

__________________________________________________________________________

__________________________________________________________________________

What, if any, plumbing maintenance will be available onsite? ________________________

__________________________________________________________________________

Garbage and Waste Removal

Number of garbage bins available Public Use

Food Outlet Use

Medical Facility Use


Job Aids


Type of garbage bins (including for sharps, wet, dry, hazardous): ______________________

___________________________________________________________________________

__________________________________________________________________________

Program for emptying garbage bins: _____________________________________________

__________________________________________________________________________

Program for removal of site garbage: ____________________________________________

__________________________________________________________________________

__________________________________________________________________________

Restoration After Event

Arrangements for site clean up: ________________________________________________

__________________________________________________________________________

Arrangements for clean up of surroundings (including access and egress roads):

__________________________________________________________________________

__________________________________________________________________________

Arrangements for refund of bond money if applicable: ______________________________

__________________________________________________________________________

Camping Areas (where applicable)

What is the proximity to property boundaries?

NORTH yards SOUTH yards

EAST yards WEST yards

What is the requested population density of the camp? Persons per acre

What is the requested maximum Site population for each site? maximum______ persons per site


Job Aids


What separation is planned between sites?
minimum______ yards between rows

What emergency access and egress will be available? _______________________________

___________________________________________________________________

What toilet and personal hygiene facilities will be available within campsite?

MALE TOILETS FEMALE TOILETS

MALE SHOWERS FEMALE SHOWERS

DISABLED TOILETS DISABLED SHOWERS

URINALS

What water supply is available? _______________________________________________

Is it potable? _______________________________________________

Can you estimate whether this is sufficient? YES / NO

Comments: ____________________________________________________________________
______________________________________________________________________________

What garbage bins are available? __________________________________________________

Can you estimate whether this is sufficient? YES / NO

What waste disposal arrangements are being made (including wet, dry, sharps, sewage)?

Site Plan
Camp site plan available (including access and egress for emergency vehicles, access and egress
for service vehicles, parking areas camping areas, numbered camp sites, toilet and personal
hygiene facilities, water points, trash bins, food venues, First Aid/Medical facilities, any other
related facilities). YES/NO


Job Aids

TAB 13: FOOD VENDOR INFORMATION SHEET

(To be provided to the local health authority)

Name of Operator: ________________________________________________________

Address: ________________________________________________________________

Phone: ________________ Fax: _________________ Mobile: ____________________

Trading as: ______________________________________________________________

Business address: _________________________________________________________

Main purpose of business: __________________________________________________

Is a menu attached, indicating the full range of food to be provided? YES / NO

Indicate which of the following foods you sell directly or will be using as ingredients:

Milk/milk products YES / NO

Poultry YES / NO

Salads/rice dishes YES / NO

Egg products YES / NO

Fish/fish products YES / NO

Raw meat YES / NO

Ice cream YES / NO

Shellfish YES / NO

Cooked meat YES / NO

Other(specify)

Type of operation:

Stall YES / NO

Mobile unit YES / NO


Job Aids

Stand YES / NO

Tent YES / NO

Other (specify): _____________________________________________________________

Indicate the type of facilities to be provided on site:

Refrigeration YES / NO

Freezer YES / NO

Oven YES / NO

Deep fryer YES / NO

Microwave oven YES / NO

Sink YES / NO

Wash hand basin YES / NO

Other (specify): ________________________________________________________

Indicate power sources:

LPG YES / NO

Electrical generator YES / NO

Other (specify): ________________________________________________________

Is the food to be prepared or stored in premises other than the temporary
food premises or vehicle? YES / NO

If yes, please state the address: _______________________________________________

________________________________________________________________________

Will food be delivered to the site by a separate supplier? YES / NO

If yes, what arrangements will be made for receipt of those goods? __________________

________________________________________________________________________


Job Aids

Have you or any of your staff completed a food handler hygiene course? YES / NO

If yes, when and where: ____________________________________________________

________________________________________________________________________

Vendor’s Name: __________________________________

Date: ___________________________________________

Venue: _________________________________________


Job Aids

TAB 14: CATERING CHECKLIST FOR FOOD VENDORS

The establishment of a temporary catering facility can mean working in less than ideal
conditions. The following checklist will provide guidance on minimum requirements for this
type of event catering.

Setting Up

Food service operation is licensed or registered in accordance with state requirements.
YES / NO

The appropriate permit has been obtained from the local authority where the event is to be held.
YES / NO

The area for which the permit is valid is clear, that is, where can I set up? YES / NO

Staff Training

Staff are trained in food handling and food safety. YES / NO

Staff has been instructed on machinery operation, food preparation routines and occupational
health and safety matters. YES / NO

There are clear guidelines for staff about what to do if problems occur (who to contact and
appropriate contact numbers). YES / NO

Food Handling

All food handlers carry out hand washing thoroughly and regularly, particularly:

Before commencing work and after every break YES / NO

After visiting the toilet YES / NO

After handling raw food YES / NO

After using a handkerchief or tissue or touching nose, hair or mouth YES / NO

After handling trash YES / NO

After smoking YES / NO

Correct food temperatures can be, and are, maintained. YES / NO

Food is cooled rapidly under refrigeration in trays not more than 4 inches deep. YES / NO


Job Aids

CATERING CHECKLIST FOR FOOD VENDORS

Tongs are provided and used where possible for food handling. YES / NO

Gloves, if used, are changed regularly. YES / NO

Food is thoroughly cooked. YES / NO

Food is protected from dust, insect pests, and other contaminating matter. YES / NO

Staff wear suitable, clean clothing and have long hair tied back. YES / NO

Food on display on counters is protected from contamination from the public by use of covers or
guards. YES / NO

Condiment area is checked and cleaned regularly. YES / NO

Food Storage

Sufficient refrigeration space is provided to cope with peak demand. YES / NO

Refrigerated storage temperatures can be maintained during peak loads. YES / NO

Raw foods are stored below cooked or ready to eat foods. YES / NO

Food containers are covered. YES / NO

Frozen food is thawed on the bottom shelf in the refrigerator or under cold running water.
YES / NO

Dry food storage space is adequate for peak loads. YES / NO

Dry foods are protected from dust and insect pests and rodents at all times. YES / NO

Hot food storage is above 127º F. YES / NO

Cold food storage is below 10º F. YES / NO

Food Transport

Transport times are kept to a minimum. YES / NO

Food temperatures are met at all times during transport. YES / NO

All foods are protected from dust, pests, chemicals, and other contaminating matter.
YES / NO


Job Aids


Cleaning and Sanitizing

Cleaning cloths are replaced frequently. YES / NO

Equipment and surfaces used for the preparation of raw foods are cleaned and sanitized before
further use. YES / NO

Sanitizers are appropriate for use in the food industry and are used in accordance with the
manufacturers’ directions. YES / NO

Packaging and Labeling

All prepackaged foods are labeled in accordance with United States Standards Code.
YES / NO
Waste Management

Waste is removed regularly from food preparation areas. YES / NO

Putrescible waste removed from food preparation areas is placed in bins with tight fitting lids.
YES / NO

Capacity to store sullage waste is adequate or connection to the sewer is maintained without
leakage. YES / NO

Infectious Diseases

All staff are required to report any gastrointestinal type illness to the supervisor. YES / NO

A register of staff illness is kept by the supervisor. YES / NO

Staff are not permitted to work while they have symptoms of gastrointestinal illness or in the
acute stage of a cold or flu-like illness. YES / NO

Safety

The workplace is safe, that is, there are no trip hazards, no unprotected hot zones, and no
unguarded equipment. YES / NO

Fire precautions are followed and fire safety devices are to the satisfaction of the fire authority.
YES / NO

Food handlers have contact details for all necessary personnel in case of problems occurring.
YES / NO


Job Aids


A list of appropriate contact details is maintained and accessible. YES / NO

For example,

Event organizer YES / NO

Environmental health officer YES / NO

Plumber YES / NO

Electrician YES / NO

Refrigeration mechanic YES / NO

Alternative refrigeration suppliers YES / NO


Job Aids

TAB 15: UTILITIES DEPARTMENT VENUE ASSESSMENT CHECKLIST

Electrical—Ground Fault Interrupter and National Electrical Code (NEC)
Standards

❏ Back-up generator with fuel supply
❏ Emergency lighting and exit signs
❏ Clearly marked distribution and disconnect
❏ Key personnel ID (photo and briefing)
❏ System security
❏ Alternate electrical sources

Alternative Fuels

❏ Valves and emergency shutoff
❏ Pilotless ignition
Isolation of Subsections of System

❏ Hood
❏ Carbon monoxide (CO) monitors
❏ Waste oil storage
❏ No interior storage of, or use of, unapproved systems

HVAC

❏ HVAC engineer on duty
❏ Reversible system?
❏ Back-up power for system
Telecommunications—E-911

❏ Emergency system access (coded)
UPS

❏ Adequate number of lines, with locations clearly marked
❏ Amplified receivers (ADA)
❏ System priority lines


Job Aids

Water

❏ Fire water system – Fire Department Connection (FDC)
❏ System grid established
❏ Potable water – locations, security, markings identified
Sanitary Sewer

❏ Adequacy
❏ Pre-event inspection
❏ Potty parity (see Job aid manual)
❏ Portable units, as needed, with servicing established


Job Aids

TAB 16: PUBLIC WORKS DEPARTMENT CHECKLIST

Street / Drainage Division

❏ Barricades, traffic cones and jersey barriers.
❏ Transport water tankers as necessary.
❏ Assure sidewalks are clean and in safe condition.
Traffic Engineering Operations Division

❏ Review the traffic event management plan submitted by the event manager.
❏ Coordinate with the Police Department the traffic flow patterns.
❏ Timing of signals changes to maximize traffic flow.
❏ Regional traffic management plan.

Animal Control Division

❏ Back up program to respond to the event as necessary.
Solid Waste Management Division

❏ Collection of site debris.
❏ Sweeping of site and adjacent roadways.
❏ Litter control and disposal.
❏ Coordination with the Health Department concerning debris removal and food serving
areas.

Parking Operations / Enforcement Division

❏ Review parking program and offer assistance.
❏ Coordinate with mass transportation organization of pick up point parking.
Engineering Division

❏ Coordinate with organizations involved in the event to review the site and the lay out of
the various program.
❏ Work with the Building Inspections Division to coordinate the planning for the event.
Regional Mass Transportation Division

❏ Establish timely schedules for shuttles.
❏ Review the fees and charges for providing services.


Job Aids

Forestry / Horticulture Division

❏ Protect the landscaping in year round planter areas for public damage.
❏ Inspect tress and large shrubbery for trimming to respond to event security and the public
welfare of the guest at the event.

Parks and Recreation Division

❏ Schedule personnel to support activities in the event area.
❏ Work with vendors in supplying the needed support for the event.
❏ Arrange for special events coordination with the children’s area.


Job Aids

TAB 17: BUILDING DEPARTMENT VENUE ASSESSMENT CHECKLIST

Occupancy

Type: __________________________________________________________________

Overload: _______________________________________________________________

Seating: ________________________________________________________________

Adequate Exits
Number: _____________________________________________________________

Capacity: ____________________________________________________________

__________________________________________________________________________

Parking

Spaces: _____________________________________________________________

Location: ___________________________________________________________

Storage

Square feet: __________________________________________________________

Location: _______________________________________________________________

__________________________________________________________________________

Hazardous Materials

Use: ___________________________________________________________________

Storage: ________________________________________________________________

Auxiliary Power

Type: _______________________________________________________________

Capacity: _______________________________________________________________


Job Aids

FACILITY USE
Type: __________________________________________________________________

History: ________________________________________________________________

Building Inspection History

Date of last building inspection: _____________________________________________

Date of last fire inspection: _________________________________________________

Correction of Violations: ___________________________________________________

Documentation/Monitoring

__________________________________________________________________________

HVAC Adequacy

Tons per square feet: ______________________________________________________

Plan Review and Walk-Through Inspection with Fire Department Code
Enforcement Officer

Building Suppression Systems: ___________________________________________

ADA Compliance: ________________________________________________________

Coordinate Security of Structurally Vulnerable Areas with Law Enforcement

Catwalks, balconies, and stages: ___________________________________________
Building Owner Concerns

Name: ______________________________ Phone: ____________________________

Address: _______________________________________________________________

Billing address: __________________________________________________________

Liability insurance: _______________________________________________________

Concerns: _______________________________________________________________


Job Aids

TAB 18: PUBLIC HEALTH DEPARTMENT VENUE ASSESSMENT CHECKLIST

Buildings and Facilities

❏ Seating – quality, quantity, state of repair, fixed, and portable
❏ Stairs / Ramps
❏ Handrails – size and capacity
❏ EMS stretchers, wheelchairs, and carts
❏ HVAC
❏ Inspections – security, filters, water
❏ ADA Compliance

Sanitation ________________________________________________________________

Waste Disposal

Type: __________________________________________________________________

When: __________________________________________________________________
Water

Quality: ________________________________________________________________

Quantity: _______________________________________________________________

Hot Water

Quality: ________________________________________________________________

Quantity: _______________________________________________________________

Cleaning Agents

❏ Types, use, quantity
❏ Toilets – fixed, portable, quantity, cleaning, inspection, and servicing
❏ Floors – nonslip, drains, and clean-up
❏ Clean-up – trash, sweeping, mopping, grass, and dust control

Food—General

❏ Licenses – fixed and temporary
❏ Fire extinguishers


Job Aids

Food—Ice and Water

❏ Vector control
Food—Refrigeration

❏ Inspection – cleanliness and temperature
Food—Cooking

❏ Devices – fuel, temperature, hot/cold, thermal, exhaust
Food—Power Supplies

❏ Power Cord – ground fault interrupter
Food—Generators

❏ Fuel
❏ Refueling
❏ Exhaust
❏ Operators

Sneeze Shields/Covers
__________________________________________________________________________

First Aid Kits
__________________________________________________________________________


Job Aids

TAB 19: FIRE SERVICES VENUE ASSESSMENT CHECKLIST

Exit Doors

❏ Appropriate number
❏ Appropriate locations
❏ Appropriate size
❏ Appropriate operation

Avenues of Egress

❏ Sufficient width
❏ Adequate accessibility
Exit Route Markings

❏ Sufficient size
❏ Sufficient numbers
❏ Understandable
❏ Emergency lighting

Notification Systems

❏ Smoke
❏ Heat detectors
❏ Pull boxes
❏ Fire watch

Automated Fire Protection

❏ Sprinklers
❏ Zones
❏ Grids
❏ Hoods

Manual Fire Protection

❏ Extinguishers
❏ Hose lines
❏ Connections
Fire Department Connections

❏ Sprinkler
❏ Standpipe


Job Aids

Fire Department Response

❏ Time
❏ Size of assignment
Fire Spread Ratings of Stage Materials

___________________________________________________________________________

Pyrotechnic Safety Used in the Show

___________________________________________________________________________

Need for On-Duty Inspector and Technical Expert for HVAC System

___________________________________________________________________________

Review and Update Pre-Plan

___________________________________________________________________________

Ensure Occupancy Load is not Exceeded

___________________________________________________________________________

Fire Lane Kept Clear

___________________________________________________________________________


Job Aids

TAB 20: LAW ENFORCEMENT VENUE ASSESSMENT CHECKLIST

Crowd Control/Site Security

Access by the public: __________________________________________________________

Access by VIP’s: _____________________________________________________________

Access by Emergency Services: _________________________________________________

Secondary Route: ____________________________________________________________

Security Concerns: ___________________________________________________________

Demographics of Spectators and Participants

Age: _________________________________________________________________

Mobility: ______________________________________________________________

Numbers: ______________________________________________________________

Attitude: _______________________________________________________________

VIP’s: _________________________________________________________________

Patrols

Uniformed: ________________________________________________________________

Non-uniformed: ____________________________________________________________

Other security: _____________________________________________________________

Traffic

Control: _________________________________________________________________

Concerns: ________________________________________________________________


Job Aids

Alcohol

❏ None
❏ Limited access (such as beer gardens): __________________________________
Onsite Command Post

Location: _______________________________________________________________


Job Aids

TAB 21: EMERGENCY MEDICAL SERVICES VENUE ASSESSMENT CHECKLIST

Event Type

Hazards: ________________________________________________________________

Vulnerabilities: ___________________________________________________________

Environment

Indoor / Outdoor: _________________________________________________________

Climate: ________________________________________________________________

Alcohol / Drugs: __________________________________________________________

Demographics of Spectators and Participants

Age: ___________________________________________________________________

Mobility: _______________________________________________________________

Numbers: _______________________________________________________________

Attitude: ________________________________________________________________

VIP’s: __________________________________________________________________

Transportation

Access / Egress: __________________________________________________________

Americans with Disabilities Act (ADA) Compliance:

________________________________________________________________________

Internal / External:
________________________________________________________________________


Job Aids

Facility

Visibility / Lighting: ______________________________________________________

Fixed or Festival Seating: __________________________________________________

Layout: ________________________________________________________________

ADA Compliance: ________________________________________________________

Communications

Internal: ________________________________________________________________

External: ________________________________________________________________


Job Aids

TAB 22: IDENTIFYING YOUR JURISDICTION’S VULNERABILITIES
(see hazard analysis section in chapter 2)

Recording the Information

HAZARD PROFILE WORKSHEET

Hazard_______________________________________________________

Potential Magnitude
❏ Catastrophic: Can affect more than 50 percent of the jurisdiction.
❏ Critical: Can affect between 25 and 50 percent of the jurisdiction.
❏ Limited: Can affect between 10 and 25 percent of the jurisdiction.
❏ Negligible: Can affect less than 10 percent of the jurisdiction.

Areas Likely to be Most Affected (by sector)

______________________________________________________________

Probable Duration ________________________________________

Potential Speed of Onset
❏ More than 24 hours’ warning probably will be available.
❏ Between 12 and 24 hours’ warning probably will be available.
❏ Between 6 and 12 hours’ warning will be available.
❏ Minimal (or no) warning will be available.

Existing Warning Systems_________________________________

Complete Vulnerability Analysis?* YES/NO

* Note that some hazards may pose such a limited threat to the jurisdiction that additional
analysis is not necessary.


Job Aids

Ranking the Hazards
Based on a review of the Hazard Profile Worksheet, it may be possible to eliminate certain
hazards from consideration as threats that require a potential response. Focusing the list of
hazards under consideration at this point will make the overall hazard analysis easier to
complete.

A sample Hazard Rating Worksheet format is shown below.

HAZARD RATING WORKSHEET
Potential Impact Potential Impact Level of Coverage
Hazard Likelihood on Population on Property in EOP

0 = None 0 = None 0 = None 0 = None
1 = Rare 1 = Rare 1 = Rare 1 = Rare
2 = Occasional 2 = Occasional 2 = Occasional 2 = Occasional
3 = Frequent 3 = Frequent 3 = Frequent 3 = Frequent

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3

0 1 2 3 0 1 2 3 0 1 2 3 0 1 2 3


Job Aids

Assigning Severity Ratings
The planning team should use historical and analytical data to assign a severity rating to each
type of hazard. The severity ratings selected should quantify, to the degree possible, the damage
to be expected in the jurisdiction as a result of a specific hazard. An example of severity ratings
is shown in the table below.

Level of Severity Characteristics
Catastrophic Multiple deaths.
Complete shutdown of critical facilities for 30 days or more.
More than 50 percent of property is severely damaged.
Critical Injuries and/or illnesses result in permanent disability.
Complete shutdown of critical facilities for at least 2 weeks.
Limited Injuries and/or illnesses do not result in permanent disability.
Complete shutdown of critical facilities for more than 1 week.
Negligible Injuries and/or illnesses are treatable with first aid.
Minor quality of life lost.
Shutdown of critical facilities and services for 24 hours or less.
No more than 1 percent of property is severely damaged.


Job Aids

Creating Frequency Distributions
After assigning a severity rating, the planning team should create a frequency distribution for
each type of hazard. A frequency distribution categorizes the jurisdiction’s exposure to each
hazard (that is, the likelihood of occurrence for each type of hazard). Exposure can be assessed in
terms of cycles, hours, or years. An example of exposure expressed in terms of years is shown in
the table below.

Exposure Meaning

Highly likely (H) The potential for impact is very probable (near 100
percent) in the next year.
Likely (L) The potential for impact is between 10 and 100 percent
within the next year.
or
There is at least one chance of occurrence within the
next 10 years.
Possible (P) The potential for impact is between 1 and 10 percent
within the next year.
or
There is at least one chance of occurrence within the
next 100 years.
Unlikely (U) The potential for impact is less than 1 percent in the
next 100 years.

To prioritize the overall potential threat to a jurisdiction, the frequency distribution for each type
of hazard should be cross-referenced with the severity rating and characteristics for each type of
hazard. When the frequencies of distribution are cross-referenced with the severity ratings, the
planning team should have a completed hazard analysis that gives a good picture of hazards that
pose the greatest threat to the jurisdiction. Note, however, that after completing the hazard
analysis, the planning team might have to take a long view that uses historical data to identify the
most costly recent hazard(s) (that is, in terms of lives lost and values of property damage) to
focus the planning effort on that hazard.


Job Aids

TAB 23: LOST CHILD INFORMATION SHEET

Date and time of report: _____________________________________________

Case Number (if needed): ___________ Officer Assigned: __________________

Date and time of assignment: __________________________________________

Resolution

❏ Child was found. Location: _______________ By whom: ____________
❏ Parent left and did not return to CP after being advised to stay.
❏ Child was not found. Report was filed. Complaint number: ____________
Information About the Child

Name: ____________________________________________________________________
Address:___________________________________________________________________
DOB:_____________________________ Phone Number: __________________________

Description of Child

Height: ________ Weight: _________ Hair Color: ___________ Eye Color: ____________
Clothing: __________________________________________________________________
__________________________________________________________________________
Unique physical features: _____________________________________________________
__________________________________________________________________________
Other individuals with missing child: ____________________________________________
__________________________________________________________________________

Parental Information

Name: ____________________________________________________________________
Address:___________________________________________________________________
Phone Number: ____________ DOB: _______________
Social Security #: __________________


Job Aids

TAB 24: GASTROINTESTINAL ILLNESS QUESTIONNAIRE
(For use at first aid posts during gatherings)

Date: _____/_____/_____ Interviewed by: __________________________

Name: _____________________________________________________________

Address: ___________________________________________________________

Phone Number: ___________________________

Symptoms: What symptoms have you had?

Diarrhea YES / NO

Nausea YES / NO

Vomiting YES / NO

Abdominal cramps YES / NO

Headache YES / NO

Fever YES / NO

Blood in feces YES / NO

Joint or muscle aches YES / NO

Other: ________________________________________________________

When did the symptoms first start?

Date: _____/_____/_____

Time: ______ a.m./p.m.

Do you know of others who have been ill with similar symptoms? YES / NO

(Include names and contact details for others for further follow-up on reverse side of form.)

What have you eaten since being at this event and where was it purchased or obtained from?


Job Aids

(List the food history reverse side of the form, include all food, drinks, confectionery and any
other snacks. It is important to list where the food was obtained from.)

Have you been swimming since being at this event?

Pool YES / NO

Spa YES / NO

River YES / NO

Lake YES / NO

Other: __________________________________________________________________

Do you suspect anything, which may have caused your illness? YES / NO

Explain:
________________________________________________________________________

________________________________________________________________________

NOTE: Keep this form for review or collection by the supervisor or public health official.
Report anything suspicious or, if several cases, similar illness within a short period of time.
Provide report to local emergency rooms and those in surrounding communities for statistical
analysis and distribution.


Job Aids

TAB 25: GUIDE FOR THE PROVISION OF FIRST AID

The number of first aid personnel and posts will vary with the type of event. As a guide, use the
following formulation:

First Aid First Aid
Patrons Personnel Posts
500 2 1
1000 4 1
2000 6 1
5000 8 2
10000 12 2
20000 22+ 4

The number of first aid posts required would depend on what first aid room facilities are
available. Every venue should have at least one climate controlled facility with electrical service
and running potable water.

First aid providers are generally not required for events smaller than 500 patrons and which are
held in close proximity to central ambulance/hospital services.

First Aid Posts
These should be conspicuous and identified by an illuminated sign at night. Ideal locations are
near the main entrance, and for large concerts, provision should be made behind the stage barrier.

Casualties
Experience from other events has shown that most casualties are from:

• Heat-stroke, dehydration;
• Cuts from broken glass and drink can ring pulls;
• Injuries from missiles, usually bottles and cans;
• Fainting and exhaustion from a combination of hysteria, heat and alcohol, and at concerts,
this often occurs at or near the stage barrier;
• Trampling or crushing from crowd pressure;
• Crowd “surfing” and stage diving;
• Illicit drug and alcohol abuse;
• Respiratory problems (asthma and emphysema)
• Epilepsy attacks brought about from strobe lighting; and
• Age-related illness.


Job Aids

TAB 26: INCIDENT ACTION PLAN SCHEDULE

Operational Period:

Date:

Form Responsibility Time Needed By
Cover
Incident Objectives 202
Organization Assignment 203
Division Assignment 204
Communication Plan 205
Medical Plan 206
Traffic Plan
Weather Forecast
Fire Behavior Forecast
Air Operations Summary 220
Safety Message
Tool and Equipment Plan
Finance Message
Rehabilitation Plan


Job Aids

TAB 27: ICS FORM 201 – INCIDENT BRIEFING

Purpose: The Incident Briefing form provides the Incident Commander (and the Command and
General Staffs assuming command of the incident) with basic information regarding the incident
situation and the resources allocated to the incident. It also serves as a permanent record of the
initial response to the incident.

Preparation: The briefing is prepared by the Incident Commander for presentation to the
incoming Incident Commander along with a more detailed oral briefing. Proper symbology
should be used when preparing a map of the incident.

Distribution: After the initial briefing of the Incident Commander and General Staff members,
the Incident Briefing is duplicated and distributed to the Command Staff, Section Chiefs, Branch
Directors, Division/Group Supervisors, and appropriate Planning and Logistics Section Unit
Leaders. The sketch map and summary of current action portions of the briefing form are given
to the Situation Unit while the Current Organization and Resources Summary portion are given
to the Resources Unit.

Instructions for Completing the Incident Briefing (ICS Form 201)

ITEM
ITEM TITLE INSTRUCTIONS
NUMBER

1. Incident Name Print the name assigned to the incident.
2. Date Prepared Enter date prepared (month, day, year).
3. Time Prepared Enter time prepared (24-hour clock).
4. Map Sketch Show perimeter and control lines, resources assignments,
incident facilities, and other special information on a
sketch map or attached to the topographic or orthophoto
map.
5. Prepared By Enter the name and position of the person completing the
form.
Resources Ordered Enter the number and type of resource ordered.
Resource Enter the agency three-letter designator, S/T, Kind/Type
Identification and resource designator.
ETA/On Scene Enter the estimated arrival time and place the arrival time
or a checkmark in the “on the scene” column upon
arrival.
Location/Assignment Enter the assigned location of the resource and/or the


Job Aids

actual assignment.
6. Summary of Current Enter the strategy and tactics used for the incident and
Actions note any specific problem areas.
7. Current Organization Enter on the organization chart the names of the
individuals assigned to each position. Modify the chart
as necessary.
8. Resources Summary Enter the following information about the resources
allocated to the incident. Enter the number and type of
resources ordered.
*NOTE Additional pages may be added to ICS Form 201 if
needed.


Job Aids

INCIDENT 1. INCIDENT NAME 2. DATE PREPARED 3. TIME PREPARED
BRIEFING

4. MAP SKETCH

ICS 201 PAGE 1 5. PREPARED BY :
(NAME AND POSITION)


Job Aids

6. SUMMARY OF CURRENT OBJECTIVES AND ACTIONS

CURRENT OBJECTIVES

CURRENT ACTIONS

ICS 201 PAGE 2


Job Aids

7. CURRENT ORGANIZATION

INCIDENT COMMANDER

PLANNING OPERATIONS LOGISTICS

DIV./GROUP___ DIV./GROUP___ DIV./GROUP___ AIR

ICS 201 PAGE 3


Job Aids

8. RESOURCES SUMMARY

RESOURCES RESOURCE ETA ON LOCATION/ASSIGNMENT
ORDERED IDENTIFICATION SCENE

ICS 201 PAGE 4


Job Aids

TAB 28: ICS FORM 202—INCIDENT OBJECTIVES

Instructions for Completing the Incident Objectives (ICS Form 202)

ITEM ITEM TITLE INSTRUCTIONS
NUMBER
NOTE: ICS Form 202, Incident Objectives, serves only
as a cover sheet and is not considered complete until
attachments are included.
4. Operational Period Enter the time interval for which the form applies.
Record the start time and end time and include date(s).
5. General Control Enter short, clear, and concise statements of the
Objectives objectives for managing the incident, including
(Include alternatives) alternatives. The control objectives usually apply for the
duration of the incident.
6. Weather Forecast for Enter weather prediction information for the specified
Operational Period operational period.
7. General Safety Enter information such as known safety hazards and
Message specific precautions to be observed during this
operational period. If available, a safety message should
be referenced and attached.
8. Attachments The form is ready for distribution when appropriate
attachments are completed and attached to the form.
9. Prepared By Enter the name and position of the person completing the
form (usually the Planning Section Chief).
10. Approved By Enter the name and position of the person approving the
form (usually the Incident Commander).


Job Aids

INCIDENT 1. INCIDENT NAME 2. DATE PREPARED 3. TIME PREPARED
OBJECTIVES

4. OPERATIONAL PERIOD (DATE/TIME)

5. GENERAL CONTROL OBJECTIVES FOR THE INCIDENT (INCLUDE ALTERNATIVES)

6. WEATHER FORECAST FOR OPERATIONAL PERIOD

7. GENERAL SAFETY MESSAGE

8. ATTACHMENTS (IF ATTACHED)

ORGANIZATION LIST (ICS 203) MEDICAL PLAN (ICS 206) ___________________________

ASSIGNMENT LIST (ICS 204) INCIDENT MAP ___________________________

COMMUNICATIONS PLAN (ICS 205) TRAFFIC PLAN ___________________________

ICS 202 9. PREPARED BY 10. APPROVED BY
1-97 (PLANNING SECTION CHIEF) (INCIDENT COMMANDER)


Job Aids

TAB 29: ICS FORM 203—ORGANIZATION ASSIGNMENT LIST

Purpose: The Organization Assignment List provides ICS personnel with information on the
units that are currently activated and the names of personnel staffing each position or unit. It is
used to complete the Incident Organization Chart (ICS Form 207) which is posted on the
Incident Command Post display.

Preparation: The list is prepared and maintained by the Resources Unit under the direction of
the Planning Section Chief.

Distribution: The Organization Assignment List is duplicated and attached to the Incident
Objectives form and given to all recipients of the Incident Action Plan.

Instructions for Completing the Organization Assignment List (ICS Form 203)


NUMBER
An Organization Assignment List may be completed any
time the number of personnel assigned to the incident
increases or decreases or a change in assignment occurs.
4. Operational Period Enter the time interval for which the assignment list
applies. Record the start time and end time and include
date(s).
5 Enter the names of personnel staffing each of the listed
through positions. Use at least first initial and last name. For
10. Units indicate Unit Leader and for Division/Groups
indicate Division/Group Supervisor. Use an additional
page if more than three branches are activated.
Prepared By Enter the name of the Resources Unit member preparing
the form. Attach form to the Incident Objectives.


Job Aids

ORGANIZATION ASSIGNMENT LIST 1. INCIDENT NAME 2. DATE PREPARED 3. TIME PREPARED

5. INCIDENT COMMANDER AND STAFF 4. OPERATIONAL PERIOD (DATE/TIME)
INCIDENT COMMANDER 9. OPERATIONS SECTION
DEPUTY CHIEF
SAFETY OFFICER DEPUTY
INFORMATION OFFICER a. BRANCH I - DIVISION/GROUPS
LIAISON OFFICER BRANCH DIRECTOR
6. AGENCY REPRESENTATIVES DEPUTY
AGENCY NAME DIVISION/GROUP
DIVISION/GROUP
DIVISION/GROUP
DIVISION/GROUP
DIVISION/GROUP
b. BRANCH II - DIVISION GROUPS
BRANCH DIRECTOR
7. PLANNING SECTION DEPUTY
CHIEF DIVISION/GROUP
DEPUTY DIVISION/GROUP
RESOURCES UNIT DIVISION/GROUP
SITUATION UNIT DIVISION/GROUP
DOCUMENTATION UNIT DIVISION/GROUP
DEMOBILIZATION UNIT c. BRANCH III - DIVISION GROUPS
TECHNICAL SPECIALISTS BRANCH DIRECTOR
DEPUTY
DIVISION/GROUP
DIVISION/GROUP
DIVISION/GROUP
DIVISION/GROUP
8. LOGISTICS SECTION DIVISION/GROUP
CHIEF d. AIR OPERATIONS BRANCH
DEPUTY AIR OPERATIONS BR DIR
a. SUPPORT BRANCH AIR TACTICAL GROUP SUP
DIRECTOR AIR SUPPORT GROUP SUP
SUPPLY UNIT HELICOPTER COORDINATOR
FACILITIES UNIT
GROUND SUPPORT UNIT AIR TANKER FIXED-WING CRD
10. FINANCE SECTION
b. SERVICE BRANCH CHIEF
DIRECTOR DEPUTY
COMMUNICATIONS UNIT TIME UNIT
MEDICAL UNIT PROCUREMENT UNIT
FOOD UNIT COMPENSATION CLAIMS
COST UNIT
ICS 203 PREPARED BY (RESOURCES UNIT)


Job Aids

TAB 30: INCIDENT RADIO COMMUNICATIONS PLAN

Purpose: The Incident Radio Communications Plan provides in one location information on all
radio frequency assignments for each operational period. The plan is a summary of information
obtained from the Radio Requirements Worksheet (ICS Form 216) and the Radio Frequency
Assignment Worksheet (ICS Form 217). Information from the Radio Communications Plan on
frequency assignments is normally placed on the appropriate Assignment List (ICS Form 204).

Preparation: The Incident Radio Communications Plan is prepared by the Communications
Unit Leader and given to the Planning Section Chief. Detailed instructions on preparing this
form may be found in ICS 223-5, Communications Unit Position Manual.

Distribution: The Incident Radio Communications Plan is duplicated and given to all recipients
of the Incident Objectives form including the Incident Communications Center. Information
from the plan is placed on Assignment Lists.

Instructions for Completing the Incident Radio Communications Plan (ICS Form 205)


NUMBER

2. Date/Time Prepared Enter date (month, day, year) and time prepared (24-hour
clock).

3. Operational Period Enter the date and time interval for which the Radio
Date/Time Communications Plan applies. Record the start time and
end time and include date(s).

4. Basic Radio Channel Enter the radio cache system(s) assigned and used for the
Utilization incident (e.g., Boise Cache, FIREMARS, Region 5,
System/Cache Emergency Cache, etc.).

Channel Enter the radio channel numbers assigned.

Function Enter the function each channel number is assigned (i.e.,


Job Aids
command, support, division, tactical, and ground-to-air.)

Frequency Enter the radio frequency tone number assigned to each
specified function (e.g., 153.400).

Assignment Enter the ICS organization assigned to each of the
designated frequencies (e.g., Branch I, Division A).

Remarks This section should include narrative information
regarding special situations.

5. Prepared By Enter the names of the Communications Unit Leader
preparing the form.


Job Aids

1. INCIDENT NAME 2. DATE/TIME 3. OPERATIONAL PERIOD
INCIDENT RADIO COMMUNICATIONS PLAN DATE/TIME

4. BASIC RADIO CHANNEL UTILIZATION

SYSTEM/CACHE CHANNEL FUNCTION FREQUENCY ASSIGNMENT REMARKS

ICS 205 5. PREPARED BY (COMMUNICATIONS UNIT)


Job Aids

TAB 31: ICS FORM 206—MEDICAL PLAN

Incident Name: Date Prepared: Time Prepared: Operational
Medical Plan Period:

5. Incident Medical Aid Stations

Medical Aid Stations Location Paramedics?
Yes — No

6. Transportation

A. Ambulance Services

Name Location Phone Paramedics?
Number Yes — No

B. Incident Ambulances

Name Location Paramedics?
Yes — No

7. Hospitals

Name Address Travel Time Phone Helipad Burn Center
Number
Air Ground Yes N Yes No
o

8. Medical Emergency Procedures

ICS 206


Job Aids

TAB 32: ICS FORM 207—INCIDENT ORGANIZATION CHART (ICS FORM 207)

Purpose: The Incident Organization Chart is used to indicate what ICS organizational elements are
currently activated and the names of personnel staffing each element. The attached chart is an example of
the kind of organizational chart used in the ICS. Personnel responsible for managing organizational
positions would be listed in each box as appropriate.

Preparation: The organization chart is prepared by the Resources Unit and posted along with other
displays at the Incident Command Post. A chart is completed for each operational period and updated
when organizational changes occur.

Distribution: When completed, the chart is posted on the display board located at the Incident Command
Post.

Wall Size Chart: The ICS 207 WS is a large chart that is primarily used to post on the command post
display board for better visibility.


Job Aids


Job Aids

TAB 33: ICS FORM 213—GENERAL MESSAGE


Job Aids

TAB 34: ICS FORM 214—UNIT LOG

INCIDENT NAME DATE
UNIT LOG PREPARED
OPERATIONAL
UNIT NAME UNIT LEADER
PERIOD

ACTIVITY LOG
TIME MAJOR EVENTS

7. PREPARED BY (NAME AND POSITION)
ICS 214


Job Aids

TAB 35: EXPENSE REPORT
Prepared by:
Date / time:
Incident:
Name: Title: SS#:

DATE:
TOTAL

LOCATION:

T Regular Hours
I
Overtime Hours
M
E

T Vehicle Mileage
R
Common Carrier
A Transportation Cost
N Vehicle
S Fuel/Oil Cost
P Tolls
O
Vehicle
R
Repair Cost
T
A
T
I
O
N

O Lodging Cost
T
Meals Cost
H
Equipment Repair
E Cost
R
Miscellaneous
EXPENSE TOTAL

NOTE: Attach copies of travel vouchers, meal receipts, hotel bills, lodging requests, toll receipts, and/or
repair bills. Copy of time sheet and copy of vehicle cost record and gas or repair receipts must be
submitted at end of month.


Job Aids

TAB 36: HAZMAT/ B-NICE DATA COLLECTION REPORT

Reported by: ___________________________________________________

Phone Number: _________________________________________________

Agency or Home Address: ________________________________________

Date and Time of Incident: ________________________________________

Incident Location and Description

Neighborhood and occupancy: _____________________________________________

Topography: Urban Rural Suburban

Describe: ___________________________________________________________

Population sensitive areas (for example, nursing homes, schools, or hospitals):

______________________________________________________________________

Reason for Report
❏ Unusual liquid droplets ❏ People becoming sick
❏ Unusual odors ❏ People dying
❏ Unusual cloud or vapor ❏ Dead/discolored vegetation
❏ Unusual metal debris ❏ Dead/dying or sick animals

❏ Other (describe): __________________________________________________
Weather
❏ Clear ❏ Cloudy
❏ Misty ❏ Rain
❏ Temperature: ______________ ❏ Snow
❏ Relative humidity: ___________

❏ Other (describe): ______________________________________


Job Aids

Wind
Direction (to/from): __________________________________________

Speed (none, mild, gusts, high winds): ___________________________

Other (describe): ____________________________________________

Odor
❏ None ❏ Flower
❏ Irritating ❏ Forest
❏ Garlic/Horseradish ❏ Almond/Peach
❏ Sweet ❏ Fresh Hay
❏ Pepper ❏ Rotten Eggs
❏ Fruity
❏ Changing

❏ Other (describe): ___________________________________________
Visible Emission

❏ Cloud or Vapor
❏ Mist
❏ Smoke
❏ Liquid

❏ Other (describe): ___________________________________________
Signs and Symptoms
❏ None ❏ Stinging of skin
❏ Tightness in chest ❏ Reddening of skin
❏ Dizziness ❏ Welts/blisters
❏ Blurred Vision ❏ Nausea/Vomiting
❏ Difficulty breathing ❏ Choking
❏ Fever ❏ Diarrhea
❏ Runny nose

❏ Other (describe): _______________________________________________


Job Aids
Date and Time of Onset: ____________________________________________

Duration of Symptom(s): ____________________________________________

Number of Casualties: _______________________________________________

Explosion/Fires
❏ None ❏ Structure
❏ Air ❏ Underground
❏ Ground
❏ Other (describe): _________________________________________________________
Describe device: _____________________________________________________________

Describe container / condition / size: _____________________________________________

Describe location where device was found: ________________________________________

Describe structures involved / estimated damage: ___________________________________

___________________________________________________________________________

Report filed by:

Federal Chemical/Biological Hotline: (800) 424-8802


Job Aids

TAB 37: RESPONSE GUIDE TO WMD TERRORIST INCIDENTS

Provided by the New Jersey State Police

Types of Threats

1. Biological—living organisms, or the materials derived from them, that cause disease and
sickness in humans.
2. Nuclear—includes the application of a conventional nuclear device or the inclusion of
radioactive materials as part of a “dispersal” type device.
3. Incendiary—any mechanical, electrical or chemical device used to intentionally initiate
combustion.
4. Chemical—compounds which, through their chemical properties, produce lethal or damaging
effects to people, animals, plants or materials.
5. Explosive—any substance, mixture, item or device designed to function by the instantaneous
release of gas and heat usually accompanied by light, loud report, and possibly a shock wave.

Basic Response Methodology

1. Protect yourself / use a safe approach;
2. Identify and recognize the hazard;
3. Isolate the area / secure the scene; and
4. Set up command / request additional help.
Remember: Unsubstantiated rumors or opinions can generate panic.

Key to Self-Preservation

1. Time—Minimize any exposure time.
2. Distance—Maximize the distance between yourself and the item that is likely to cause harm.
3. Shielding—Use cover as protection. Wear appropriate personal protective equipment and
respiratory protection if possible.

Crime Scene Procedure

1. Be aware of people arriving or departing the scene. Note license numbers and other
descriptive information.
2. Advise witnesses and bystanders to remain at the scene in a safe location until law
enforcement personnel can interview them.
3. Be alert to physical evidence, such as footprints, wrappers, or matches, and notify
authorities of such findings.
4. If possible, sketch, photograph, or videotape the scene.
5. Document victims’ statements and any other evidence they may possess.
6. Use evidence-saving techniques whenever possible (for example, fog spray or
containment).


Job Aids

Golden Rule

Do not touch, disturb, or remove anything without the knowledge and approval of law
enforcement.

INCIDENT HAZARDS NA ERG GUIDEPAGE PERSONAL SAFETY
Incendiary Thermal, mechanical, Guide #'s 118, 127, 134, For incendiary and
chemical, asphyxiative, 136 & 139. Improved explosive: remove people
ambush materials may be extremely from potential threat, do
sensitive, reactive & not touch suspect items, do
unpredictable not disturb or change
Explosive Mechanical, thermal, Guide #'s 112, 114. environment, do not use
chemical, etiological, Improvised materials may two-way radios, beware of
radiological, ambush be extremely sensitive, booby traps and/or
reactive & unpredictable secondary devices

Biological Etiological/biological Guide #158 For biological and
Chemical Chemical, thermal, Guide #'s 123, 153. chemical: evacuate
asphyxiative, Improvised materials maybe upwind, use PPE &
mechanical sensitive, reactive & respiratory protection if
unpredictable possible, if incident is
outside then seal doors and
windows and turn off air
conditioners, when clear of
contaminated area start
decon by removing all
apparel and aggressively
wash skin and irrigate eyes

Nuclear Radiological, thermal, Guide #163. Improvised All of the above apply
chemical, mechanical, materials may be extremely
ambush sensitive, reactive &
unpredictable


Job Aids

SCENE MANAGEMENT
Park vehicles and position responders Establish an isolation distance (hot zone)
upwind/upgrade and not to close. and prohibit traffic from passing through
the incident. This distance will depend on
Immediately notify your agency dispatcher the types of hazards and the location of the
that you are involved in a possible terrorist incident. In explosive incidents, emphasize
incident and establish the incident the possibility of secondary devices.
command system.
Do not remain in the path of a vapor cloud
Provide your dispatcher with the following or leaking materials. Be alert to signs of
information: escaping materials or agents. Note sounds
of escaping gas, odd smells, etc.
a) incident description
b) exact location of incident The incident is a crime scene. Preserve
c) location of command, i.e., Main Street suspected evidence wherever possible.
Federal Building Command
d) type or types of structure involved Use the D.E.C.I.D.E. process:
e) type or types of vehicles involved
f) type of substance(s) released or D - detect the presence of a terroristic
involved incident
g) presence of fire, spilled liquids, vapor E - estimate likely harm without
leaks intervention
h) known injuries or causalities C - choose the response objectives
i) alert hospitals to imminent mass (terroristic incidents require assistance
injuries (many may arrive in their own from other agencies)
car) I - identify the action options (based on
j) public evacuations? How much public your training and personal protective
exposure? equipment
k) Request necessary resources D - do the best option
immediately: DEP/bomb E - evaluate your progress
squad/HAZMAT unit/urban search &
rescue/medical teams/etc.
l) Route of approach for other responders,
i.e., wind direction

EMERGENCY SELF-DECONTAMINATION
(1) Blot off the agent (3) Flush the affected area with large
amounts of water
(2) Strip off all the clothing (4) Cover the affected area


Job Aids

TAB 38: ALCOHOL, FIREARMS, AND TOBACCO (ATF) AGENCY
BOMB THREAT CHECKLIST
Place by each telephone. Duplicate as necessary.

Exact date and time of call: ______________________________________________________

Exact words of caller: _______________________________________________________________
_________________________________________________________________________________

Questions to ask

1. When is the bomb going to explode?________________________________________________

2. Where is the bomb? _____________________________________________________________

3. What does it look like? ___________________________________________________________

4. What kind of bomb is it? _________________________________________________________

5. What will cause it to explode? _____________________________________________________

6. Did you place the bomb? _______________________________________________________

7. Why? _________________________________________________________________________

8. Where are you calling from? _______________________________________________________

9. What is your address? _____________________________________________________________

10. What is your name? _______________________________________________________________

Caller’s Voice (Please circle appropriate terms.)

calm disguised nasal angry broken
stutter slow sincere lisp rapid
giggling deep crying squeaky excited
stressed accent loud slurred normal

If voice is familiar, whom did it sound like? _________________________________________

Were there any background noises? ___________________________________________________

Remarks: ________________________________________________________________________

Person receiving call: ____________________________________________________________________

Telephone number where call was received: ____________________________________________

Report call immediately to: __________________________________________________________
(Refer to bomb incident plan.)


Job Aids

TAB 39: FIRST RESPONSE TO A TERRORIST INCIDENT

The following are some guidelines developed by the Pennsylvania Emergency Management
Agency for responders on the scene of a terrorist incident.
The Ten “Ates”
1. Evacuate the area as quickly and safely as possible.
2. Isolate the site to restrict access by all personnel.
3. Hesitate, Fools Rush In. Don’t be one. Do not enter the scene until you-
4. Evaluate the situation and your potential response actions.
5. Communicate your conclusions and call for assistance as necessary (because of bomb
danger, use NO radios or cellular phones closer than 300 yards). Notify hospitals as
appropriate.
6. Infiltrate Go in carefully, only when it’s time to do so.
7. Procrastinate Take no action until it is as safe as possible, and necessary.
8. Investigate Remember, this is a crime scene. Do not exceed your authority but support and
assist the investigation as appropriate.
9. Cooperate with other responders (teamwork!) and with those in charge.
10. Decontaminate and clean up carefully to avoid accidental removal of evidence and to
avoid endangering others.

Golden Rule for First Responders
Do not touch anything at a crime scene or remove anything from a crime scene unless 1) it is
absolutely necessary for the performance of your official duties, or 2) it is done with the
concurrence of the appropriate law enforcement personnel.
REMEMBER
THIS IS A CRIME SCENE. It is the scene of a deliberately violent and lethal act. THERE MAY
BE MORE ACTS.

Words to Live By

• Do not create more casualties “rescuing” the dead.
• Life safety -- of 1) responders and 2) victims -- is first priority.
• Second priority is preservations of evidence.
• Examine victims for injuries and weapons. A perpetrator may have been injured, too.


Job Aids
Chemical Incident

• Approach from upwind if possible.
• Use personal protective equipment.
• Stay clear of spills, vapors, fumes, and smoke.
• Exclusion zone: 1,500 feet.
• Use fog streams instead of solid streams where possible to preserve evidence.
• Contain runoff where possible.
• Cover all entries with charged lines to prevent flare-ups.

Bomb

• Assume there are more! Responders may be terrorist targets, too.
• Establish 300 yard exclusion zone.
• Do not use radios or cellular phones within 300 yards of the site.
• Remove the injured as quickly and carefully as possible; leave the dead for coroners.

Biological/Nerve Agents

• Watch for numbers of people or animals exhibiting similar symptoms of illness.
• Watch for human or animal remains with no apparent trauma.
• IMMEDIATELY don respirator and leave area if situation is suspicious.

Nuclear/Radiological

• Not detectable without monitoring equipment.
• Distance is best immediate protection; enforce bomb exclusion zone.
• Remember: “Time, Distance, Shielding.”


Fema Event Plan

More Related Content

What's hot (18)

Viewers also liked (10)

Similar to Fema Event Plan (20)

More from Ishraq Dhaly (20)

Fema Event Plan