managing crowds

ALSO BY LARRY B. PERKINS

Crowd Safety and Survival, Practical Event

and Public Gathering Safety Tips (2005)

Jake the Cowhand

Jasper Rabbit

Crowd Management; In the Eye of the

Storm

Day of Event Cancellation Procedures

Crowd Safety Tips ®

Staying Cool in Hot Situations (2005)

Mirror, Mirror: Reflections of the Soul,

Spirit, and Will (2007)

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EIGHT POINT CROWD MANAGEMENT

AND EVENT PLANNING MODEL®

Larry B. Perkins, CFE, CPP, CMP

Lulu Press, Inc Morrisville, North Carolina www.lulu.com/Crowd Safety

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7/3/2007 10:15 AM

EIGHT POINT CROWD MANAGEMENT AND EVENT PLANNING MODEL® EIGHT POINT CROWD MANAGEMENT AND EVENT PLANNING MODEL®, PUBLISHED BY LULU PRESS, INC Copyright © 2007 by Larry B. Perkins, CFE, CPP, CMP Library of Congress Control Number: Pending ISBN Pending Cover Design by Larry B. Perkins MyBook, MB, and Band of Writers are trademarks of Band of Writers Coalition Publishers. “A three in One Project” and the “PERC System, Crowd Safety Tips,” “Staying Cool in Hot Situations”, “Day of Event Cancellation Procedures” and Eight Point Crowd Management and Event Planning Model® are protected by copyright ALL RIGHTS RESERVED No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording, or otherwise, without the prior permission of the author. While every precaution has been taken in the preparation of this book, the publisher/author assumes no responsibility for errors or omissions, or for damages resulting from the use of information For Information: Band of Writers Coalition, 510 Berlin Way, Suite 1, Morrisville, NC 27560 or visit www.lulu.com/CrowdSafety

Printed in the United Sates of America First Edition

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WARNING

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WARNING When life is imperiled or a dire situation is at hand, safe

alternatives may not exist. To deal with the worst case

scenarios presented in this book, we highly recommend-

insist, that the best course of action is to consult a

professionally trained expert.

While every effort has been made to ensure the accuracy of

the contents, suggestions, recommendations, and

information contained herein, we are not responsible and

assume no liability for any damages caused or alleged to be

caused, directly or indirectly, incidentally or consequentially,

to any person, firm, or third party using the information

contained in this book. The information is provided without

warranty.

WARNING

Eight Point Crowd Management and Event Planning Model

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The author is not attempting to provide legal, medical, or

other professional services or advice in this book. The

techniques, illustrations, and data contained herein are

strictly informational. It is strongly recommended that legal,

medical, and other expert assistance—and/or the services of

a competent professional—be sought prior to engaging in

any of the acts, or circumstances, referred to within this

book. Further, some facilities prohibit certain objects, foods,

materials, and personal items—such as cameras, weaponry,

certain types of shoes, cell phones, sticks, video and audio

recording devices, backpacks, bags, containers, plastic,

chains, noise makers, and beverages.

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EIGHT POINT CROWD MANAGEMENT AND EVENT PLANNING MODEL®

The following model will help you identify crowd management and event planning variables, gather and analyze information, plan specific actions based upon the information gather and your facility’s and personnel abilities to execute the event being considered or Being by defining which crowd management concepts are critical for our facility? In what areas do you see room for improvement? At the conclusion of an event, it’s important to conduct a post event audit of your plan. This audio is invaluable as it identifies weakness in the thinking and approach to the program developed, methods of analyzing data collected, sub-por planning and executing. It’s a road map that identifies needed repairs.

LAR R Y B. PE R K IN S

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EIGHT POINT CROWD AND EVENT ENGINEERING MODEL

Risk Management Components Section “A” Shaping Crowd Behavior Section “B” Developing an Event Plan Section “C”

Eight Point Crowd and Event Planning Model 1. Investigation

i. (Data collection) 2. Analyzing

i. (Data collected and identify variables)

3. Plan i. (a written plan that list goals and

objectives for the event and which sets counteract measures to curtail unwanted variables that maintains a desired event environment)

4. Communication i. Meetings, briefings through

various forms; written, radio, town hall, promoters, stakeholders, external interest groups, etc.)

5. Execution i. Putting the plan in motion, and

directing the show. 6. Supervising the Plan

i. The role of each manager/supervisor in the plan. And the chain of command for making adjustments to the plan as needed?

7. Crisis Management Program a. Should something happen what’s the

plan? Who will respond, who’s in


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charge? (Suggested reading – “Day of Event Cancellation Procedures” and “The Manger on Duty” and other emergency preparedness books)

8. Assessing the Plan a. Debriefings, walk-through facility,

review incident, guest complaints, financial, medical and reports

The Four Critical Periods for Injures and Death

(Times and Hotspots ) Section “D” Design Training for Crowd Managers

Section “E” Facility/Event use Policies & Procedure

Section “F” Action Plan Section “G”

OBJECTIVE: Provide “structure” to Crowd Management and Event Planning for the protection of life and property DUTY OF CARE, BREACH OF DUTY, ACTUAL CAUSE, PROXIMATE CAUSE AND DAMAGES Here, you have a duty to protect. However you invite guests into your facility, there is an encumbered duty placed upon you and the facility. Again, I am not providing legal services, but merely sharing information I’ve discovered by providing expert testimony in court involving Crowd Management and Event Planning, and knowledge I’ve gained from nearly 30 years of industrial experience, teaching and study. DUTY OF CARE AND BREACH OF DUTY: For this section, we will focus on the duty of care and breach of duty for as it relates to Crowd Management and Event Planning.


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One of the first things you will want to ask yourself is if something happens at your facility is: “Was this reasonably foreseeable and could this incident/accident could have been avoided?” Looking at the Eight Points Planning Model below will help you answer those questions. That is, did you investigate fully (collect all the available data pertaining to this even—called other buildings, questioned the promoted, looked at the history, etc.) and did you analyze the data properly and did you plan, execute the plan and supervise accordingly? If a tragedy was the result of negligence, you may be help accountable. As the representative of the owners, facility management and operators, you owe the very same duties to investigate, plan and supervise the activities to the number of guests that have been invited to the facility are duties imposed on all those in responsible charge. Good and accepted planning practices require that venue management, who anticipates opening his/her property for sports and entertainment, to know who many spectators the facility is expected to draw. Thus they must conduct a thorough investigation of the nature of the activities expected to take place at their venues to determine whether the facility is adequate for the proposed functions and physical layout is appropriate. Furthermore, such investigation is required to establish safe and adequate plans for supervision, and discharge of the patrons as they leave the facility, to include late hours after the venue has closed and that the crowd of has not yet departed from the property Such an investigation would include, at the very least, determining the number of guest anticipated. This information is necessary so that the landowner can judge the number and type of guests to expect; and make other plans and arrangements for the safety of the expected


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guests such as determining the proper number and positioning of security personnel; and assure that the means of egress to the night club is safe and adequate in light of the numbers expected and activities. Good and accepted practice requires careful monitoring of guests throughout the venue—inside and out— for signs of adverse crowd behavior activities. This is not a "police" function but rather a duty imposed on the facility management, who must be trained in crowd management. Can you prevent all incidents? The answer is no. However, what other measures did you take to deter incidents, or to find assistance if need. One thing to not over look in the planning phase is the deterrence of “Uniformed” personnel. The uniform is sign of deterrent to the casual person, not those who are intend on committing harm or causing problems. Additionally, security personnel may be able to provide a description of the person committing the offense even if they are unable to stop or prevent it at the moment. Have you received appropriate training in Crowd Management as required by the National Fire Protection Association, NFPA Crowd Managers, Assembly Occupancies 31-2.1, A 31-2.1, SFPE Handbook of Fire Protection Engineering, Section, Chapter 15: There shall be trained Crowd Managers or Crowd Manager Supervisors . . . who shall have received appropriate training in crowd management techniques with emphases on time, space, energy and information. Have you conducted an assessment of appropriateness of security services as they relate to the needs of your venue?


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This is separate from the duty of such security personnel to discharge their duties. Facility management must be sure that those providing security have the required training and expertise, and that they are able to communicate, and that they are aware of the rules and policies of the facility they have been retained to protect as well as its physical layout. Have you provided proper written and verbal instructions the management of the company you’re employing and security assigned work at the venue? Again, the answer to these questions will help determine if you are meeting the duty of care requirement.


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Risk Management Components- Section A Your risk management program should include these at least these components. This book does not cover these elements. I suggest establishing a risk management committee and developing a comprehensive program the focus in the following:

Risk avoidance, reduction, transfer and assumption

Emergency Evacuation Procedures & drills Polices and Procedures Crisis Management Life Safety Evaluations conducted at least

annually or earlier upon facility alterations or other changes

Bomb Threat Procedures Day of Event Cancellation Procedures Alcohol Management SSTF “Best Practices” Safety Program Emergency Evacuation Procedures Mutual Aide Agreements Facility Maintenance program Crowd Management Crowd Control procedures Emergency Vendor Service Agreement (supplies

& parts) Medical and Hospital services Public Relations (reputation & image) Event Cleaning Services Annual Maintenance Program Training Program; Annual In-Service and ongoing

Training Facility & Property Usage Rules and Regulations Air Space Regulations Labor Relations


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Operating Procedures Rental Agreements Annual Life Safety Evaluation Waste Management & Sanitation Program


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SHAPING CROWD BEHAVIOR According to John J. Fruin, Ph.D., there are four elements which shape crowd behavior, as it relates to serious crowd incidents. These four elements are time, space, energy and information. TIME Dr. Fruin states that crowds rarely become a problem when there are sufficient facilities to handle their needs. The more people to be served, or the shorter the time period in which they must be served, the more facilities are needed, i.e. access and exit points, wider corridors, rest rooms, seating capacity, etc. Crowds can build quickly and overwhelm the facility’s flow points and other areas. Rapid accumulation of people queuing at a facility can outstrip its capacity to handle the load. A crowd is most dangerous when it is moving. This includes when the crowd is arriving, leaving, protesting or celebrating. Anything that causes a sudden rush in or out could send a crowd out of control. The best solution for facilities to implement is to prevent the masses from reaching a gate at the same time. Thus, patrons may be redirected to a different entrance. Facilities may also set up turnstiles or barricades to help defuse and spread the crowd out in order to control entry. SPACE As people are pressed closer and closer together, they actually move slower and slower. Crowds of people can generate huge and powerful compression waves. The waves can create movement of up to 10 feet and can be too powerful for an individual to resist. A large number of people trying to go through a narrow exit might actually be slower than spreading the crowd out so they can move faster. One major space concern is crowd density, which refers to how many people can safely move into, or through, a space


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at one time. Be aware of the critical density level as defined by Fruin. He believes that when a minimum of 8 people are pressed together and have less than 1.5 ft. per person, the crowd has reached a critical density level. At this point there is no space between people. In this situation, shock waves; which cause individuals to move involuntarily, can be seen moving through crowds. As crowds begin to pack in, the danger potential grows rapidly. When guests cannot avoid contact with other guests and there is unwanted touching, then you know that the area is at or near capacity. When individual guests cannot control their own movement, you are at the critical level. What should you do? Watch areas of potential crowding and act early to keep away. Ask to be relocated if possible and listen to security and/or announcements regarding safety. ENERGY The energy level of the crowd has a huge influence on its behavior. High-energy crowds are much more likely to press into small spaces, creating the potential for trampling or crushing. High-energy crowds are often a sign of fun. They are also a reason to worry. Once crowds get moving, they are often difficult to stop. Like a freight train or oil tanker, the crowd develops momentum that is difficult to harness. Reports of persons being literally lifted out of their shoes and clothing being torn off are common in uncontrolled crowd situations. In tightly packed crowds, this can happen without the knowledge of other people standing only a few feet away. Survivors of crowd disasters report difficulty breathing because of crowd pressures. Asphyxia, very likely accentuated by fear, is a more common cause of crowd deaths than trampling.


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The pressure of a crowd is very forceful. The failure of a steel railing that was under crowd pressure was noted in the Glasgow, Scotland soccer stadium disaster is just one indication of the forces involved with crowd pressure. A bent steel railing was also observed at the Cincinnati Who concert 1979. The force required to bend a 2-inch diameter steel railing 30 inches above the base, is estimated at 1,000 pounds. This amount of force can be created by less than ten people. Competitive rushing away from something by a crowd is termed “panic” by Fruin. Competitive rushing toward some objective (as with the Cincinnati incident) is termed as a “craze.” Be cognizant of high energy crowds. The energy level of a crowd can be good or bad. Energy is noted to be particular high at the beginning of a popular performer and/or popular song. While high energy music boosts a crowd, slow music will actually slow a crowd. INFORMATION Situations may happen so fast that the facility manager is not be able to get the appropriate information to you in a timely fashion. Many times guests will speculate on the issues and then pass this information on to those around them, even if it is totally false. If the event must be cancelled, chances are you will not receive a refund that evening. There are many reasons for this to happen. The event may have been sold out and the facility might not have enough funds on hand to refund all of the patrons the night of the event. The performer, promoter and facility may be trying to reschedule the event for the next day, or as soon thereafter as possible. Traffic may still be arriving that the facility must deal with or the facility may be preparing for the exiting.


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If you purchased your tickets at an outlet, broker or source other than at the venue, then you will have to go to the point of purchase to seek a refund. Caution: refunds most likely will not include service fees. That’s a convenience fee you paid. The facility/service centers have done their jobs by providing you with a service, much like a postal service. Look for announcements in area newspapers or listen to local radio and TV stations for information on refund and the re-scheduled performance. In most states, however, you are entitled to a refund for up to one year following the original date of the scheduled event. Should an event be cancelled the venue parking and traffic staff will most likely begin to turn guests away and not allow you on the property. STANDARDS OF BEHAVIOR Many facilities, including the major leagues, have developed “Standards of behavior” guidelines. Serious crowd management problems can occur if there are no clear standards of behavior. While you may have the right of free speech, those attending the event have also paid for the right to enjoy the event without “undue” interruption. Take for instance if the person seated in front of you stands up for the entire event, blocking your view, screaming and spilling their drink. All you want to do is sit and enjoy the performance. Another person may be unable to stand for long periods. They may have just had surgery, guests with a disability, or may be tired, any number of reasons. Thus, facilities generally have adopted the “Mode of the Crowd” standard. This is the “majority rules” approach. If most people are standing during a particular song, to watch a scoring drive, or to see a shot, then standing is permissible.


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Should a person remain standing after this period of time, this action is considered outside the standard. The “Wait” rule is another standard or etiquette that is found at events such as tennis, hockey, and theatrical performances. It is customary to wait until there’s a stoppage in play before going in and out of the seating area. The same is true with the “Quiet” rule. That is, you wait until the end of a scene or match point to show your appreciation with applause and other gestures of approval. Standards of behavior are found in other areas as well; such as a required dress code to enter certain areas of a facility like a restaurant or private reception. Certain attitudes and activities are also governed by these standards. Most facilities will not tolerate large groups or gangs who roam about the facility at will, contributing to an uncontrolled atmosphere, or showing a general lack of respect for authority.


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ADDITIONAL FACTORS THAT INFLUENCE BEHAVIORAL PROBLEMS TIME OF EXPECTED ARRIVAL

Demographics History of crowd Age group Ticket demand

PUBLIC SETTING

Type of assembly and capacity Location of event Purpose and nature of event Community conflicts

GROUP INVOLVEMENT

Support of entertainers Group's regard for safety Persuasive power and influence of group History of act and/or event

ONE-ON-ONE COMMUNICATION DIFFICULTY

Person does not speak the language of your country What is that person’s customs?

CHARGED UP ATMOSPHERE

Emotions of the crowd Will there be a delay in opening the gates on time

(delayed gate opening at the WHO concert in Cincinnati in 1979, caused 12 patrons to be stampeded to death)

UNINHIBITED CUSTOMERS

Unchallenged and uncontrolled patrons Clusters of groups are free to move about at will

throughout the facility Gangs and gang activity


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NO STANDARD OF BEHAVIOR Patrons are not informed or aware of policies Policies are not enforced Prohibited items are secretly brought into the venue Patrons are standing in the aisles and on the chairs Lack of respect for authority

CONFLICT OF VALUES

A patron's principle on an issue could make them feel as though a wrong has been inflicted upon them, i.e. babes-in-arms policy, in which they're unwilling to pay admission for their child)

ALCOHOL CONSUMPTION How much alcohol is being consumed over a given

period of time? The type of crowd consuming alcohol and/or other

drugs. Average age of patrons.

Other Influences on Crowd Behavior

crowd Situation Public Setting Group Involvement One on One Communications Difficulty Uninhibited customers No Standard of Behavior Alcohol Consumption Safety and Security Role


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Developing an Event Plan – Section C Investigate

Gather Information Who’s coming Who’s the promoter What are our needs What are their needs Who will need to be involved What issues or problems that occurred in the past How many are expected to attend Where will they be coming from Any special requirements First Time/Infrequent Visitors What happened the last time they were here or at

another facility Early/Later Arrivals Prohibited Items Special Events in the Area Permits required Staging areas

Analyze

Capacity to Put on the Event – Seating needs, parking spaces, and distances, rain plan, special tickets and pricing

Shuttle Services needed Handicap needs Time of day, Day of week, Month of Year – will

weather play a role History of Event - The good, Bad and ugly Demographics - Age group and issues related to

each type Expertise of Staff – Are they capable of handling

the expected audience


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Resources and Equipment - rain gear, lights, flashlights, bullhorns, signage, stanchions

What’s at stake –Risks Special Interest groups

Plan

Plan in advance, testing your theories and emergency procedures, and what will you do should an adverse condition occurs

Written Procedures – Do you have written procedures for this event

Chain of Command Assess staffing levels – is the staff adequate for

this event and event type Assess Vulnerability – Has each and every area

you are responsible for been addressed Are re-locations planned properly Identify Critical areas and operational

components. Develop disciplines to counteract unwanted event environment and other conditions

Communicate

To the decision makers - what will you communicate and when will you communicate with the decision makers

To staff; meeting, pre-event briefings – what will you provide to them and where will you brief them

To promoter – any need to interact with the promoter

To neighbors - Are there any issues to communicate to neighbors or other interested parties, i.e. News media, area businesses

To community and emergency Services To Highway and Road Authorities


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Execute

Determine the Facility, Event and Staff Readiness Put the plan in motion

Supervise

Monitor the crowd dynamics and traffic conditions throughout the event

Look for negative variances in the plan Observe the Staff Execution – are they

responding as plan – was the plan effective communicated to them

Are they asking questions on the radio and was covered

Are supervisors intoned to these variations Adjust

Respond to those negative variables and take corrective measures to counteract those negative disciplines

Critique

Assess the plan applied and set new disciples where needed.


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The Four Critical Periods for Injures and Death - Section D

Ingress Egress Protest Celebration

Design Training for Crowd Managers – Section E

1/250 NFPA ratio Who are Crowd Managers? IAAM Crowd Assembly Facilitator (CAF)

The Nine Training Components

1. Training 2. Assist guests 3. Implement facility/event policies and procedures 4. Risk management 5. Crowd dynamics management 6. Knowledge of event and facilities 7. Conflict identification & mitigation 8. Perform communication function 9. Major emergency response

Example - Crowd Dynamics Management Adjust to crowd demographics Anticipate crowd activities and behavior Maintain the usability of means of egress Make guests aware of their responsibilities Observe crowd for potential problems Monitor flow of crowd for duration of event Recognize potential crowd crush Report potential crowd problems to supervisor Identify changing crowd behavior and demeanor


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Training Topics and Levels Crowd Assembly Facilitators - Level I A. Classroom Orientation & Training Components

Alcohol management Crowd management and crowd control Event planning Crowd assembly facilitator Disabled guest sensitivity Facility policy & procedures Rules and regulations governing use of the

property Ticketing policy & scalping laws Report writing Uniform, communication and equipment

procedures and care Legal powers Emergency evacuation procedures Conflict mitigation and resolution Day of event cancellation procedures Medical services Personal inquiries or illness procedures Employee parking, identification, facility access

and restrictions Facilities Mission


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B. Initial On-the-Job Process Event briefing Introductory Post Assignment Personal break procedures Facility layout Communications & Equipment Emergency procedures

C. In-Service Training

Departmental training Day of event evacuation drills Seasonal kick-off conference Special sessions

Crowd Assembly Facilitator Supervisor - Level II A. Classroom Course

Supervisor's role Risk management Fire safety & equipment operations Bomb threat procedures CPR Crowd dynamics Payroll and time entry procedures Courtroom procedures Customer satisfaction program (If you have one) Case studies Duty of Care

B. Initial On- the-Job Training

Event operations and crowd management Facility survey Supervisors briefing Equipment assignment Employee roster


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Facility inspection Facility, Event and Staff Readiness


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Facility/Event use Policies and Procedure – Section F

Facility Employee Guests Tenant

Federal, State and Local Ordinances and NFPA 101

Occupancy Loads for your Facility Flow Rate Safety Compliance Inspection Requirements

Action Plan – Section G

Establish a Crowd Management Committee Evaluations Conduct Life Safety Evaluations at annually or

earlier if your make changes to your facility or procedures

Conduct a “Best Practices” Security Analysis (Levels and Protocols)

Summary of Objective: Our objective for this session was to provide “structure” to Crowd Management Planning for the protection of life and property


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Facilitation Suggestions—Crowd Management Planning Before the meeting, develop two or three case studies by reviewing incident reports, event reports and/or by interviewing staff members regarding something that worked correctly or something that was less than effective at an event. Prepare a brief narrative describing the event and incidents at the event. After showing the videotape, review all methods of Shaping Crowd Behavior in Section B and the eight components of Developing an Event Plan in Section C. Your review may be a combination of mini-lecture plus questions posed to the group. In Section B for example, you might ask the participants, “Give me an example of when ‘Time’ worked against us at an event.” Then follow up their responses with additional questions such as, “What else contributed to the…” until all pertinent details have been ‘discovered.’ Distribute the narrative for Case Study 1. Instruct the group to follow the bullets in Sections B and C, address what happened in terms of each element at that event, and how it affected the outcome of the event. Facilitate this discussion by (1) keeping the discussion moving, (2) keeping the group on track (not going off on side issues), and (3) getting everyone’s involvement. When all issues have been discussed, bring the discussion to conclusion by asking the following questions: What conclusions can we draw from this case study? What did we learn about avoiding these incidents/situations at future events? How will we make this part of our plan? (Actions might involve anything from physical setup to policies and procedures to training issues.) Repeat this process with the additional case study (ies).


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Follow up activity

Assign a committee or task force to repeat this analysis for all incidents/situations that may occur. The bottom line is to analyze your events as demonstrated and then put a plan in place, and communicate the plan.

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ABOUT THE AUTHOR Larry Perkins attended John Jay College of Criminal Justice.

He’s a former Private Investigator and has held a

Government Top Secret Clearance. He is also a Certified

Facilities Executive, a Certified Protection Professional and

Crowd Management Professional. Mr. Perkins is world

renowned for his work in the field of Crowd Management

and Crowd Behavior. He has written books and numerous

articles on the subject; conducted hundreds of radio,

television, and news interviews; and has appeared on NBC

TV Dateline in a segment entitled, “Crowd Management; Get

Out Alive” and on ESPN’s Outside the Lines with Lou

Dobbs.

Larry has returned to his beloved state, North Carolina,

where he makes his home once again.

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