IS-15.A Special Events Contingency Planning for Public Safety Agencies

Lesson 1: What Is A Special Event

Course Welcome

This course introduces you to planning for or conducting a special event. At the end of this course, you should be able to:

• Define a special event.
• Identify the hazards and associated risks that your jurisdictions must address when planning for any event.
• Describe the importance of pre-event planning and determine who should be included on the planning team.
• List the key issues you should consider during the pre-event planning process.
• Identify three spectator management and crowd-control issues.
• Describe the special risks associated with high-profile or controversial events.
• Describe why ICS should be used to manage special events.
• List the five ICS functions and identify the critical roles and responsibilities of each.
• Match the tasks that must be completed during any event to the agency with responsibility for the task.
• Determine when specific types of events require special planning considerations.
• Use the Job Aids Manual as a planning tool for special events.

This course is divided into six instructional lessons and a summary lesson.

A lesson list will be presented at the beginning and end of each lesson to help you keep track of your place within the course.

A Job Aid Manual accompanies this course. The Job Aid Manual includes additional information about planning for special events and a comprehensive list of job aids to help you through the planning process. The Job Aid Manual provides guidance only. It is not based on Federal law. State and local ordinances and laws are controlling.

This lesson will describe what constitutes a special event and provide examples of special events. It will also present guidelines to follow for identifying special events, while emphasizing the demand for community resources.

The process of determining what constitutes a special event, then completing comprehensive planning is important because:

• Special events are often high visibility and the community's reputation is on the line.
• Costs for response and recovery for incidents involving special events can be extremely high.

What Is A Special Event?

In general, a special event is defined as a non routine activity within a community that brings together a large number of people.

A special event:

• Is non routine.
• Places a strain on community resources.
• May involve a large number of people.
• Requires special permits or additional planning, preparation, and mitigation.

Each community’s resources and laws, ordinances, and permitting process are different. Be sure to review your community’s special event and mass gathering laws and permitting process to get specific information.

To begin planning for your event, it’s important to first determine whether your community considers the event to be a special event. In general, a special event is defined as a non routine activity within a community that brings together a large number of people. However, determining what does or does not constitute a special event for your community is not always as simple as applying a definition.

To determine whether your community considers an event to be a special event, emphasis should be placed on your community’s ability to respond to the exceptional demands that the event places on response services rather than on the total number of people attending the event.

Addressing the following questions can help your community make a determination:

• Is the event out of the ordinary or non routine?
  A non routine event is usually considered a special event.

• Does the event place a strain on community resources?
  A strain on community resources usually indicates a special event.

• Does the event attract a large number of people?
  A large number of people may, but does not necessarily, constitute a special event.

• Does the event require special permitting or additional planning, preparation, and mitigation efforts by local agencies?
  Additional planning, preparedness, and mitigation efforts on the part of local emergency management and public safety agencies usually indicates a special event.

Each community’s resources are different. What may be classified as a special event in one community may not place a strain on resources in another community.

Remember, a special event:

• Is non routine.
• Places a strain on community resources.
• May involve a large number of people.
• Requires special permitting or additional planning, preparation, and mitigation.

Next, you will learn about various types of special events.

Examples of Special Events

Some examples of traditional community special events include:

Air Events: Air events might include:

• Air shows (acrobatic maneuvers by aircraft, flyovers, and formations).
• Hot air balloon festivals and races.
• Parachute jumps.

Aquatic Events: Aquatic events might include:

• Surfing competitions and demonstrations.
• Watercraft maneuvers.
• Watercraft races (powerboats, sailboats, jet skis).
• Water skiing shows and races.
• Windsurfing competitions and demonstrations.

Concerts: Concerts might involve both indoor concerts and outdoor concerts. Concerts may involve:

• Single performers.
• Groups or multiple performers and performances.
• Single or multiple venues.

Conventions: Conventions might include:

• Single-day events.
• Week-long events.
• Single or multiple sites.

Festivals: Festivals might include:

• Art festivals.
• Balloon festivals (see air events).
• Dance festivals.
• Music festivals.
• Thematic festivals (Renaissance festivals, rodeos).

Motorized Events: Motorized events might include:

• Auto demonstrations and races.
• Motorcycle demonstrations and races.

Political Rallies: Political rallies might include:

• Marches or protests.
• VIP visits.

Political rallies may be:

• Single-day events.
• Week-long events.
• Single or multiple sites.

Special Sporting Events: Special sporting events are those that do not regularly occur in a community. For example, a college basketball game involves many people, but because it is a recurring event, community resources are prepared and can usually handle almost any contingency.

Examples of special sporting events might include:

• Bicycle tours and races.
• Marathons.
• Regional, national and international competitions (e.g., Olympics, track and field, volleyball, World Cup).

Spontaneous Events: Spontaneous events are unplanned. Often even spontaneous celebratory events can be out of control. Local officials should anticipate and prepare for spontaneous events such as:

• Celebrations following a large sporting event (bowl games, the World Series, or the Super Bowl).
• Controversial court decisions.

 

Lesson Summary

This lesson described what constitutes a special event and provided examples of special events. It will also presented guidelines to follow for identifying special events, while emphasizing the demand for community resources.

The next lesson will introduce the importance of planning and how planning relates to the success of an event. It will discuss when communities should begin planning for a special event and will introduce the concept of involving a team of key personnel in the pre-event planning process. It will also discuss the process for organizing the planning team meeting and present common special issues related to pre-event planning.

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Lesson 2: Pre-Event Planning

Lesson Overview

This lesson will introduce the importance of planning and how planning relates to the success of an event. The lesson will describe:

• When communities should begin planning for a special event.
• The concept of involving a team of key personnel in the pre-event planning process.
• The process for organizing the planning team meeting.
• Common special issues related to pre-event planning.

Remember that local and State laws, ordinances, and regulations always take precedent when planning for special events.

 

The Importance Of Planning

Planning for any event is difficult. Planning for the potential risks and hazards associated with large public events is even more difficult, but is critical to public safety and the success of an event.

Before scheduling a special event, planners should consider the:

• Scope of the event.
• Risks to spectators and participants.
• Impact on the community.
• Emergency support required.

Planning any event is difficult. Planning for the potential risks and hazards associated with large public events is even more difficult, but critical to the success of an event.

Planning for large public events has often failed to occur, or when planning did occur, it often failed to identify the potential for disaster, or strategies to mitigate or cope with a major incident. As a result, injuries and deaths have occurred consistently and over a wide range of countries and types of events.

Throughout the United States, at any given time of year, there are festivals, concerts, fairs, sporting events, and many other special events that gather or have the potential to gather large crowds. Under normal conditions, these special events occur with few or no problems. If an incident does occur, then local emergency management is called upon to respond.

Before scheduling a special event, key factors to consider are the:

• Scope of the event.
• Risks to spectators and participants.
• Impact on the community.
• Emergency support required.

Certain types of special events are often associated with particular risks or potential problems. For instance, highly competitive sports events, rock concerts, and festivals tend to produce spectator-generated incidents, while air shows and auto races tend to produce participant-generated incidents.

Having a pre-event plan in place will reduce local emergency management response times and better enable agencies to improvise because contingencies have been discussed beforehand. A pre-event plan defines roles and responsibilities in advance and creates ownership of potential problems for agencies involved in the process.

If you want those who attend an event to have positive memories of it, you need to plan the event carefully, keeping pubic safety in mind. This lesson will cover those issues that should be addressed in the very early stages of planning or even when discussing promoting or sponsoring such an event.

 

Permitting

Many communities require event promoters or sponsors to obtain permits before holding an event. Permits help the planning process by:

• Notifying the community formally of the intent to hold an event.
• Providing details about the event, such as venue, anticipated audience characteristics, and the intent to sell food or merchandise.

Reviewing information on the permit request can provide the planning team with a head start on event preparedness.

 

The Planning Team

Planning for a special event should begin well in advance of the event. One of the first steps is to bring together those who are hosting the event with those responsible for public safety.

A multidisciplinary planning team should be composed of the promoter or sponsor and all agencies that hold a functional stake in the event, such as:

• Emergency Management.
• Law Enforcement.
• Fire and Rescue.
• Public Works/Utilities.
• Public Health.
• Transportation Authority

It’s important to remember that all involved agencies need to participate on the planning team from the outset to ensure a successful and safe event.

Because different agencies will comprise the planning team, the lead agency should be identified early in the process.

In some communities, the lead agency for public safety planning is the emergency management agency. If this is the case, emergency management will typically lead the way in coordinating the event planning effort.

 

Advantages of a Team Approach

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.”
• Greater Access to Resources. Greater knowledge and expertise are brought to bear on the planning effort when more people are involved.
• Forming Cooperative Relationships. Closer professional relationships that are developed during the planning process should translate into better cooperation and coordination during emergencies.

 

Promoters or Sponsors

Event promoters or sponsors must be involved in all phases of planning to ensure a successful event. Some promoters or sponsors may be more interested in monetary gain than in public safety. If this appears to be their primary goal, local agency participation is essential. Teamwork promotes successful and safe events.

Ways to encourage promoter participation and ensure public safety at an event might include:

• Requiring promoter attendance at planning meetings to gain the necessary permit(s) to host the event.
• Building public agency regulatory oversight of the promoter into the permit process so that relevant community laws or regulations are followed.
• Requiring the promoter to have adequate contingency plans in place before approving an event.

By working together, the needs of all involved in the event can be met.

 

Community Cooperation: Mutual Aid

During pre-event planning, each agency on the planning team should review its resources to ensure that all necessary equipment is available. If additional equipment is needed, agencies may need to acquire the equipment or supplies to prepare for the event.

One way for agencies to acquire equipment is to work together with neighboring communities by adopting a local mutual aid program. A local mutual aid program allows neighboring communities to pool resources and share liability for damages or loss of equipment.

 

Community Cooperation: Public-Private Partnerships

Another way that communities can acquire needed equipment or supplies is through public-private partnerships. A public-private partnership is a contractual agreement between a public agency (local, State, or Federal) and a corporation.

The skills and assets of each party (public and private) are shared in delivering a service or facility for the use of the general public. In addition to the sharing of resources, each party, together with the promoter or sponsor, shares in the risks-and-rewards potential in the delivery of the service and/or facility.

 

Community Cooperation: Other Established Agreements

It is important that the agencies involved in planning an event know the agreements established between neighboring communities and between communities and private corporations. Agreements may already be established and included as a part of the local Emergency Operations Plan (EOP).

Knowing what assets are available and what agreements are in place will assist with planning the special event and in responding to any unforeseen incidents.

 

Local Agencies

Although agencies will differ from community to community, certain types of local agencies should always be included in pre-event planning. The types of agencies can include:

• Organizations and agencies representing the disabled.
• Emergency services and public safety agencies.
• Health agencies and medical community representatives.
• Legal counsel.
• Local Emergency Planning Committees (LEPCs).
• Public works agencies and utility companies.
• Purchasing and procurement agencies.

Examples of Local Agencies:

Agency	Description
Aging	Works with local Area Agencies on Aging as well as various other public and private organizations to help older persons and their families find the services and information they need.
Agriculture	Promotes their jurisdiction's agricultural products; encourages production; and ensures consumer, livestock, and plant safety.
Art	Supports and stimulates excellence in all the arts, in their full cultural and ethnic diversity, and ensures that the arts are accessible to all.
Attorneys General	Serve as legal counselors to agencies and legislatures and as representatives of the public interest. Attorneys General occupy the intersection of law and public policy, consulting in areas such as child-support enforcement, drug policy, and environmental protection.
Banking	Oversees varied business and economic interests. The authority encompasses utilities, insurance, state-chartered financial institutions, securities, retail franchising, and railroads. Serves as the central filing office for corporations, limited partnerships, limited liability companies, business trusts, and Uniform Commercial Code filings.
Consumer Protection	Provides consumer protection services, real estate fraud and information programs, small-claims court advisor programs, dispute settlement services, cable television franchising, adult protective services, fraud protection programs, volunteer and internship programs, and public information and community outreach services. Educates on issues related to consumption and encourages positive consumer-to-business relationships that foster a fair and vigorous marketplace.
Disability	Promotes and improves awareness, availability, and accessibility of information that can help people with disabilities live, learn, love, work, and play independently.
Drug	Establishes policies, priorities, and objectives for the Nation's drug-control program (reduce illicit drug use, manufacturing, and trafficking; drug-related crime and violence; and drug-related health consequences).
Economic Development and Commerce	Partners with communities to advance their economic development efforts. Markets a jurisdiction’s business climate, strategic location, workforce, and natural and cultural resources. Offers economic development incentives and information to enhance a community's ability to compete, diversify, and prosper.
Education	Provides leadership, assistance, oversight, and resources so that every student has access to an education that meets world-class standards. Oversees the jurisdiction’s diverse and dynamic public school system. Enforces education law and regulations. Reforms and improves public elementary school programs, secondary school programs, adult education, some preschool programs, and child care programs.
Election	Ensures uniformity, fairness, accuracy, and purity in all elections. Promotes the proper administration of election laws, campaign finance disclosure compliance, and voter registration processes by promulgating rules and regulations, issuing instructions, and providing information to electoral boards and general registrars.
Emergency Management	Coordinates all activities necessary to protect communities from natural, technological, and manmade disasters and other emergencies that threaten the jurisdiction. Coordinates Emergency Management Services by providing leadership, planning, education, and resources to protect lives, property, and the environment. Coordinates the response of agencies, in times of emergency or disasters, ensuring that the most appropriate resources are dispatched to the impacted area. Works with local governments, voluntary organizations, and the private sector to develop disaster preparedness plans and mitigation projects, and provides training and exercise activities.
Environment and Natural Resource	Protects human health and the environment.
Fish and Wildlife	Conserves, protects and enhances fish, wildlife, and plants and their habitats.
Health and Medical Community	Promotes and protects the health and safety of all people through the delivery of quality public health services and the promotion of health care standards.
Historic Preservation	Coordinates and supports public and private efforts to identify, evaluate, and protect our historic and archeological resources.
Housing and Community Development	Administers affordable housing and community development programs, creates affordable housing and safe, viable communities that enhance the quality of life for all, especially those of low and moderate income.
Insurance	Regulates the insurance industry and assists consumers and other stakeholders with insurance issues that are important to them.
Labor and Employment	Fosters and promotes the welfare of job seekers, wage earners, and retirees by improving their working conditions; advancing their opportunities for profitable employment; protecting their retirement and health care benefits; helping employers find workers; strengthening free collective bargaining; and tracking changes in employment, prices, and other economic measurements.
Libraries	Operates the primary research library for the jurisdiction. Collects and preserves materials about the jurisdiction and its history. Provides electronic access to library materials housed in the jurisdiction’s libraries. Acts as the jurisdiction's publisher or distributor of official records and periodicals. Maintains and circulates special collections, such as "Talking Books" for blind and physically impaired citizens or e-books. Provides telephone or online reference services. Operates literacy or reading programs.
Local Emergency Planning Committees (LEPCs)	Develops, trains, and tests a hazardous substances emergency response plan for the jurisdiction. Develops procedures for regulated facilities to provide notification of a hazardous release to the LEPC. Develops procedures for receiving and processing community right-to-know requests from the public. Provides for public notification of committee activities.
Motor Vehicle	Issues vehicle registrations and titles; examines and licenses drivers; administers financial responsibility, mandatory insurance, and driver improvement programs; conducts administrative reviews under "drunk driver" laws; and provides records management for all of these functions.
Public Safety	Operates the jurisdiction's highway patrol or police and their training facilities, which may include the bureau of investigation, crime lab, division of fire safety, commercial carrier inspection, and weight load management office; office of narcotics enforcement; or State public safety telecommunications network.
Public Utilities and Public Service	Regulates businesses that provide telephone, cable communications, electricity, gas, oil, and other utilities, with the aim of providing consumer protection to the jurisdiction's citizens.
Purchasing and Procurement	Oversees procurement policy and procedures and ensures the integrity of the jurisdiction’s procurement system.
Securities	Protects investors against securities fraud and provides aggressive enforcement actions against any firm or individual who has violated the statutes to the detriment of investors. Provides for the licensing and regulation of securities broker-dealers, agents, investment advisers, and investment adviser representatives and financial planners. Promotes financial literacy.
Social Service	Improves the quality of life for citizens by promoting health and well-being, fostering self-sufficiency, and protecting vulnerable populations.
Surplus Property	Receives, warehouses, and redistributes personal property that is surplus. Screens, warehouses, and distributes surplus property allocated from military installations.
Tax and Revenue	Collects revenues and administers programs to fund public services, and advocates sound tax policy. Promotes fairness, consistency, and uniformity in the development and application of tax law and policy. Promotes correct and timely payment of taxes through education and enforcement.
Tourism	Promotes travel and tourism.
Transportation	Builds, maintains and operates the roads, bridges, and tunnels. Provides funding for airports, seaports, rail and other public transportation.
Treasurer	Serves as guardian of the taxpayers' money that is used to operate governments and provide services.
Utility	Creates and maintains a regulatory environment that ensures safe, reliable, and efficient utility services at fair and reasonable rates.
Vocational and Rehabilitation	Coordinates and provides counseling, evaluation, and job placement services for people with disabilities.
Weights and Measures	Assures that equity prevails in the marketplace for both buyer and seller. Inspects commercial weighing and measuring devices for accuracy, including large truck scales at local grain elevators; livestock scales; computing scales at supermarkets; and meters used to measure bulk deliveries of refined fuels, liquefied petroleum gases, and service station dispensers. Checks the accuracy of packaged products sold by weight, measure, or count.

 

Local Leaders

Although community leadership differs from jurisdiction to jurisdiction, community leaders should always be included in pre-event planning. Some types of community leaders include the:

• City Manager.
• Community relations officials.
• Emergency services officials (Fire, emergency medical services, police).
• Mayors, city council members, and other elected officials.

Examples of Community Leadership:

Leadership	Description
City Manager	Directs and supervises the administration of all departments, offices, and agencies of the city, except as otherwise provided in the city's charter. Advises the city council regarding the financial condition of the city, its future needs, and all matters related to its proper administration. Proposes and submits an annual budget to the city council and, after approval, implements the budget. Implements city policy as determined by the Mayor and city council by providing management and administrative support.
Community Relations Officials	Manage a complete communications program to keep residents and the media informed of municipal services and activities. Employ a variety of print and electronic resources, including a community newsletter, special brochures and informational materials, news releases and media advisories, video and cable television, telephone bulletin boards, multimedia kiosks, and the Internet. Ensure an educated and involved citizenry and an alert media by providing information on city programs and activities through timely and efficient communication methods.
Emergency Services Officials	Coordinate all activities necessary to protect communities from natural, technological, and manmade disasters and other emergencies that threaten the jurisdiction. Coordinate emergency management services by providing leadership, planning, education and resources to protect lives, property, and the environment. In times of emergency or disaster, coordinate the response by ensuring that the most appropriate resources are dispatched to the impacted area. Work with local governments, voluntary organizations, and the private sector to develop disaster preparedness plans and mitigation projects, and provide training and exercise activities.
Mayors	Direct city departments and appoint department heads, with the advice and consent of the city council. Submit budgets to city councils. Preside at city council meetings and vote in the event of a tie. Approve or veto ordinances passed by the city council and have the power to veto whole ordinances or parts of appropriations bills. May also appoint members of city boards and commissions.
City Council Members, and other Elected Officials	Responsible to the city's residents for all municipal programs and services, as well as local policy decisions affecting city residents in a wide number of areas, including land use, solid waste, air quality, and protecting and enhancing the city's revenue base.

 

Other Potential Planning Team Members

For specific types of special events, potential planning team members might include:

• Animal care and control organizations.
• The Chamber of Commerce.
• Communications representatives.
• Community services representatives and voluntary organizations.
• Labor and professional organizations.
• Private-sector representatives.
• School officials.

Examples of Other Planning Team Members:

Leadership	Description
Animal care and control organizations	Deliver effective, courteous, and responsive animal care and control services to the residents of the community. Responsible for stray, injured, abandoned, neglected, and mistreated animals, as well as for the enforcement of all local and State animal control and welfare laws.
Aviation and coastal authorities	Regulate and promote marine safety, recreational boating safety, and civil aviation safety; conduct search and rescue operations; and ensure port security.
Chamber of Commerce	Provides community leadership, supports economic development, education, local government, and quality of life for the community. Promotes local business and displays what the community has to offer to prospective relocating families and businesses.
Public Information Officer	Reports directly to the city administrator and is responsible for a city’s comprehensive, successful public information efforts to create a strategically planned network of coordinated outreach activities directed at the citizens. Implements and maintains the city’s communication programs, including local access cable TV, the World Wide Web, and the city newsletter, to deliver messages directly to the citizens most effectively. Oversees the city’s media relations efforts, while emphasizing the regular dissemination of news on the multitude of positive city programs, projects and services.
Local media	Create, report on, and disseminate print and multimedia content that educate, inform, engage, and inspire the public.
Community services representatives and Voluntary Organizations (American Red Cross, Lions Clubs, Shriners, Veterans of Foreign Wars, etc.)	Offer community services that help the needy provide support and comfort for military members and their families, and promote health and safety. Provide international relief and development programs. Foster self-improvement through leadership, education, the perpetuation of moral values, and community involvement. Work closely with national organizations. Promote constructive community service with volunteerism benefiting education, the environment, health sciences, and civic projects.
Industrial and military installations	Oversee day-to-day operations, maintenance, safety, and security of industrial and military installations that may be present in and around communities.
Labor and professional organizations	Represent persons employed in many fields and occupations. Provide sources of information on career options as well as training and education requirements and opportunities.
Private sector representatives	Provide jobs and income to the community.
School board officials	Provide leadership, assistance, oversight, and resources so that every student has access to an education that meets world-class standards. Oversee the jurisdiction’s diverse and dynamic public school system. Enforce education law and regulations locally and reform and improve public elementary school programs, secondary school programs, adult education, some preschool programs, and child care programs.

 

The Initial Planning Team Meeting

All involved agencies need to participate on the planning team from the outset to ensure a successful and safe event.

At its initial meeting, the planning team should:

• Develop a mission statement.
• Develop event objectives.
• Determine the necessary components of the public safety plan.

 

The Initial Planning Team Meeting—Planning Considerations

During the initial planning meeting, the planning team should consider:

• The promoter’s or sponsoring organization’s purpose and experience.
• Event risks (including crowds, staffing, food and shelter, parking, transportation, medical facilities).
• Previous event concerns.
• Relevant local concerns.
• Weather.
• Community impact.

 

Developing a Mission Statement

Every special event has a mission, purpose, or reason for taking place. Often the mission expresses why the special event is occurring.

An effective mission statement must:

• Include public health and safety as a critical goal for the event.
• Express the special event’s purpose in a way that inspires commitment and innovation.
• Resonate with the people working on and for the special event, as well as with the various attendees that the event hopes to attract.

 

Developing a Mission Statement—Questions to Answer

At the very least, the mission statement should answer four key questions:

1. What is the purpose of the special event?
2. What are we doing to address the purpose?
3. What benefits or values will result from the event?
4. How will public health and safety be protected?

 

Developing Event Objectives

The planning team will need to develop event objectives—statements describing the specific outcomes the event is designed to achieve. Objectives guide the planning process, set priorities, and establish criteria for event evaluation.

Developing well-written objectives can take practice, but a good rule of thumb is to make sure that the objectives are SMART:

Specific
Measurable
Achievable
Realistic
Time Based

 

Special Issues in Pre-Event Planning

Some common special issues related to pre-event planning include:

• The permit-approval process.
• Legal issues.
• Liability issues.
• Political issues.
• Economic issues.
• Attendee issues.

Special issues will be covered in greater detail on the following screens. Attendee issues will be covered in Lesson 4.

 

The Permit-Approval Process

Event promoters or sponsors must usually gain approval from local, and sometimes State, authorities to hold public events. The information below 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 (i.e., life safety codes) existing for special events and mass gatherings.
• Documentation required to support their application.
• Insurance, bond, and liability information.
• Relevant deadlines for filing applications.

Some communities offer “One-Stop Shopping” for permitting. The person requesting an event completes an application at one office and the information is forwarded to the appropriate agencies for approval.

Thus, the person requesting the event does not have to track down the appropriate agencies to make a request. This ensures that all required agencies are notified and can consider the request before the permit is issued.

Promoters should be aware of the approving authority’s timetable for approving events and issuing permits. Potential delays should be included in the event planning schedule.

 

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 actual or potential liability for:

• Injuries.
• Acts or omissions.
• Costs incurred in responding to major emergencies occasioned by the event.
• Effects of the event on normal emergency operations.

Most communities have adopted a “User Pays” policy for services provided at sporting and entertainment events. Others require the promoter or sponsor to submit an amount to be held in escrow until after the event.

“User Pays” policies help to offset the costs of public services at special events by charging for the use of those services when under normal circumstances, those services would be free. Escrow funds are up-front fees to ensure compliance with requirements and to offset potential damage or injury that occurs as a result of the event.

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.

 

Liability Issues

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

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

In addition, research should be done to determine the statutory authority and emergency powers (e.g., emergency evacuation) of the various parties involved in the event.

 

Political Issues

Often, communities have to deal with local political considerations when they plan events. Promoters should be aware that political considerations are always important to the local community.

A way to encourage elected political officials to support an event is to show the monetary or quality-of-life impact that a safe and successful event would have on the community. Explaining the positive impact encourages elected political officials to support the event.

 

Economic Issues

Special events often bring attention and significant economic benefits to local communities. Benefits could include an influx of revenue into parts of the local community, such as the hotel and restaurant industries.

Local event planners must not sacrifice public safety for the sake of economic benefit. Certain businesses could be adversely affected by actions related to the event (e.g., closing streets in a commercial area, increased traffic in residential areas). Fire and police agencies must not be negatively impacted by an event. Additional staffing may be required to ensure that this does not happen.

 

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Lesson 3: Risks And Hazards To Consider

Lesson Overview

This lesson will introduce:

• The importance of identifying and analyzing possible hazards that could occur at an event.
• The risks and vulnerabilities associated with each hazard.

At the end of this lesson, you should be able to identify the hazards that are most likely to affect special events and analyze the risks that they pose.

 

Hazard Analysis

Hazard analysis is the decision making process used to identify and analyze the various hazards that could occur at an event. Hazard analysis is conducted routinely as part of the emergency planning process and is appropriate for special events planning. A hazard analysis should be conducted prior to each special event. Because of the potentially large numbers of participants and attendees, special events may present a greater risk for incidents and provide targets of opportunity for criminal and/or terrorist elements.

 

Conducting a Hazard Analysis

Conducting a hazard analysis involves four steps:

• Identify the hazards.
• Weigh and compare the risks.
• Profile hazards and consequences.
• Determine vulnerabilities.

 

Step 1: Identify the Hazards

The first step in the hazard analysis process is to identify hazards facing the jurisdiction. There are several sources of information that you can turn to as you identify hazards. These sources include:

• The jurisdiction’s existing hazard analysis.
• Historical data, especially as they relate to similar hazards.
• Statistical data (from government agencies) about the hazards that are most likely to occur in your area.
• Specific and unique hazards to the event.

By reviewing these sources of information, you should be able to identify the natural, technological, or manmade hazards that could affect your area.

 

Step 2: Weigh and Compare the Risks

You will find that some hazards pose a greater threat to your jurisdiction than others. To determine which pose the greatest threat, weigh and compare the risks posed by each hazard. Consider the:

• Frequency of occurrence.
• Magnitude and potential intensity.
• Location.
• Probable spatial extent.
• Probable duration.
• Seasonal pattern.
• Speed of onset and availability of warning.

 

Step 3: Profile Hazards and Consequences

Your next step should involve developing a hazard profile that assigns numeric values to each hazard so that you have an idea about the real risks each hazard poses. The numeric values relate to:

• How often each hazard could occur (frequency distribution).
• The potential impact that the hazard could have on the population and property.
• The level of coverage in the Emergency Operations Plan (EOP).

When taken in combination, these factors create a profile that will help you prioritize each hazard.

 

Step 4: Determine Vulnerabilities

The fourth step involves determining how vulnerable your jurisdiction is to the highest-ranked hazards. Some questions to ask when determining vulnerabilities include:

• What level of coverage is this hazard given in your Emergency Operations Plan (EOP)?
• Are critical facilities (e.g., fire and police stations) likely to be affected?
• Are local personnel trained and equipped to respond safely?
• Could response personnel be delayed by traffic, debris, or other factors? For how long?

Answering these types of questions will tell you if—and to what degree—your jurisdiction is vulnerable.

 

Developing Contingency Plans

Unfortunately, not every event runs as planned. Often, incidents occur that are beyond the control of the planning team. You should develop contingency plans for every high-risk, high-impact incident. When developing contingency plans, be sure to consult with all parties who may respond to an emergency situation.

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Lesson 4: Special Operational Considerations

Lesson Overview

This lesson will outline the importance of identifying and addressing the critical operational considerations that are associated with a special event.

At the end of this lesson, you should be able to:

• Describe the importance of pre-event planning to public safety and the overall community.
• Determine who should take part in the planning process.
• Develop a strategy for gaining the community’s cooperation for pre-event planning.
• List the key issues to be considered during the pre-event planning process.

 

What Are Operational Considerations?

Not every event runs as planned. Some incidents occur that are beyond the control of the planning team. To ensure that all preparations possible have been made to ensure spectator safety, the planning team must also identify operational considerations—hazards or incidents that could occur during an event.

Identifying operational considerations allows the planning team to consider even low-risk but high-impact scenarios and develop contingency plans to deal with them.

Key operational considerations to address will be described on the next screens.

 

Spectator Management and Crowd-Control Issues

Crowds are complex social structures that can assume roles that are quite different from the personalities of the individuals. Some roles that event participants may assume include:

• Observers: Those who follow the actions of the crowd but rarely take part.
• Cheerleaders: Those who provide verbal support for crowd leaders.
• Active Core: Those who carry out the actions of the crowd.

 

Why are Crowd “Personalities” Significant?

Crowd “personalities” are significant at special events because they can:

• Increase the probability of a dangerous occurrence.
• Increase the potential number of victims.
• Make communication slower and more difficult.
• Make response slower and more difficult.
• Diffuse responsibility (someone else will do it).

 

Event Cancellation or Postponement

From time to time, an event may need to be canceled, postponed, or interrupted. If a crowd has already gathered, these actions have the potential to create dangerous crowd reactions. Be sure to have plans in place to manage an angry crowd appropriately and to address the possible readmission of patrons to the venue.

 

Authority to Cancel or Postpone

One major area to consider is who has the 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.
• 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 what authority. ICS is an excellent tool to ensure chain of command, communications, and proper approving authority.

 

Determining the Venue (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. Using a systematic approach to determine the venue will help in the selection process.

 

Safety Issues

Spectator safety is a paramount issue during any special event. Safety issues may include consideration of:

• Structures (e.g., stages and platforms, temporary structures, and load capacities).
• Audience safety (e.g., seating, public health, medical care).
• Fire safety.
• Security.

 

Structural Safety

One area of great concern is the physical setup of the event. The planning team must consider:

• The performance facilities that are needed.
• The special structures that are needed for indoor or outdoor events.
• Whether temporary structures can be used.

Remember that all structures, both temporary and permanent must comply with local building codes.

 

Stages and Platforms

The type of event and its site affect the types of performance equipment to be used and, thus, the requirements for stages or platforms. Qualified inspectors should inspect stages and/or platforms to ensure that the stage is appropriate for the event.

Expected crowd behavior is a main factor in determining stage configuration. For example, classical music performances usually attract a mature, orderly audience. Teenage fans at a rock concert have been known, however, to storm the stage to touch their idols. Event planners should understand the characteristics of the audience that each event will attract.

 

Stages

Stages are usually elevated to provide a better view of the performance. Elevation itself is a barrier to those who would rush the stage. Also, increased height can create an open area at the base of the stage so that line of sight is not impeded by the stage itself.

A stage alone is usually insufficient to deter determined spectators. Planners should provide for a physical barrier at the front of the stage.

All stages must conform to building codes.

 

Breakaway Stage Skirts

The front skirt around the base of a stage should be constructed to break away under the pressure of crowd surge. This feature is not practical, though, when there is less than six feet of clearance beneath the stage because of the potential for head injuries if a spectator collides with the leading edge of the stage.

A breakaway stage skirt does not remove the requirement for a barrier.

 

Temporary Structures

Many events require easily constructed temporary structures. Examples of temporary structures include:

• The stage platform.
• Towers to house speakers and lighting.
• Temporary seating.
• Dance and viewing platforms.
• Roofs, towers, and masts.
• Marquees and large tents.
• Decorative items, such as archways, signs, and sideshows.

A building codes inspector should supervise the erection of temporary structures and ensure that they conform to building and engineering specifications.

 

Load Capacities

All structures have load capacities. The planning team must take precautions to prevent overloading of any structure. These precautions apply to all viewing platforms, including walkways or balconies.

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. Reserved seating may be difficult, however, at outdoor events.

If most spectators are expected to be teenagers, seating should be set up to control surges and crushing at the front of the stage. Planners should provide security to ensure that the audience does not stand on seats.

Seating should be anchored to prevent movement.

 

Temporary Seating

Seating in community centers, arenas, or similar indoor locations often combines fixed perimeter seating with additional folding or stacking seating on the central floor.

Temporary seats should be secured, either to the floor or to one another. Where this is not possible, the legs of each row of chairs should be fastened to two long planks, one running under the front legs and one running under the back.

Outdoor seating as well as grass and turf in the seating area may become slippery in damp weather. Caution should be taken if an event is scheduled early in the morning or if the weather could become inclement.

 

Public Health Considerations

Mass gatherings present special challenges for preventing harm to participants, spectators, and event staff. Familiarity with the financial stakeholders and knowledge of potential and actual public health issues present a common challenge.

Key steps to take to prevent—or at least minimize—public health issues will be covered on the next screens.

 

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 on gastrointestinal illnesses. First aid posts can also maintain 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 critical to public health planning. Food-handling personnel must follow proper sanitary practices for storage, preparation, and distribution or food may become contaminated.

To ensure that safety standards are met and maintained, a health officer should assess food service proposals during the planning stage. The officer should follow this assessment with a pre-event audit and periodic monitoring of food safety throughout the event.

 

Food Vendor Licensing

Food vendors should be required to meet State and local licensing and registration requirements. During an event, onsite health officers must have the authority to close down any vendor who is not following public health requirements.

 

Other Food Safety Measures

The planning team should assess other food safety measures, including:

• The setup and construction of food premises—areas to be used for food storage, preparation, and service.
• Equipment used in food preparation, distribution, and storage.

Inspectors should verify that an appropriate number of the correct kind and type of fire extinguishers is available at vendor sites and that the vendors are in compliance with all local and State codes.

 

Personal Safety

The safety of staff and the public is an important consideration. Inspectors must be aware of occupational health and safety standards, including those related to:

• Loose power leads.
• Trip hazards.
• Inadequate refuse disposal.
• Inappropriate positioning of equipment.
• Poor ventilation and extreme temperatures in the work environment.
• Poorly stacked supplies.
• Unguarded equipment.

 

Providing Lost-Child and “Meet Me” Locations

Depending on the size of the event and the number of spectators, children may become separated from their adult supervisors. Planners should designate a place for lost children to be reunited and develop a way to allow information to be disseminated quickly and accurately.

One useful way of handling lost children is to provide “meet me” locations. These are well-marked, designated locations throughout the site. Patrons can plan to meet at these locations if they become separated.

 

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 measures taken comply with local fire safety codes. Other steps that should be taken to ensure safety from fires include:

• Onsite inspections before the event to note and correct deficiencies.
• Meetings with organizers to consider and resolve potential fire hazards.
• Designing the site to mitigate fire hazards (for example, clear storage areas, no open flames, control of pyrotechnics, etc.).

 

Security Concerns

Security at special events has become more important in the aftermath of the terrorist attacks of September 11, 2001.

Event organizers must decide what type of security to provide and the scope of the security services’ jurisdiction. Providing security services is vital to public safety. There are three types of security that should be considered for large public events:

• Peer security.
• Private uniformed security guards.
• Uniformed police officers.

 

Peer Security

Peer security—security personnel of the approximate age of the spectators—has shown to be useful with young audiences. Peer security personnel usually wear brightly colored t-shirts that are plainly marked “SECURITY.” Peer security personnel provide a less confrontational security presence by avoiding the posture of rigid authority and force.

Peer security personnel do not carry weapons or try to fulfill a police function. They function as monitors, people movers, and troubleshooters.

 

Private Uniformed Security Guards

Private uniformed security guards are well suited to events such as religious rallies, charitable dinners, and art shows. At events attracting more youthful crowds, uniformed security guards are better used in non confrontational roles, such as taking and parking cars.

Event planners should ensure that the personnel are recruited from reputable sources with appropriately trained personnel. Planners should discuss special requirements for the event with the security firm.

 

Uniformed Police Officers

At some events, such as those that attract crowds who historically have experienced violence as part of the event “culture,” nothing short of a uniformed police officer can dissuade the potentially violent attendees.

At other events, such as rock concerts, groups typically enter in a peaceful frame of mind but may be induced to rowdiness by alcohol or other catalysts.

The composition of security services will vary according to the event. One or a combination of the three types of security may serve specific venues.

 

Security Roles and Responsibilities

Regardless of the security implemented, planners should establish roles and responsibilities for security personnel prior to the event. Decisions and actions taken by security personnel may affect the way emergency services and health personnel respond to an emergency.

 

Pre-event Briefing of Security Personnel

To enable security personnel to perform effectively, they should be briefed prior to the event. The pre-event briefing should cover:

• Details of the venue, including entrances, exits, medical aid locations, and potential hazards.
• Clear direction on unacceptable behavior.
• Basic information about the event.
• Details of emergency and evacuation plans.
• Instructions for operation, deactivation, and isolation of onsite emergency equipment.
• Details of the incident communications plan.

 

Traffic and Transportation Issues

Transportation presents one of the first impressions attendees have about an event’s organization. Sitting in a line of cars for hours on the highway will undoubtedly create a negative impression. Planners should ensure that the community—and surrounding communities—are aware of the potential impact that an event will have on traffic.

Planners should assign a traffic management group to plan for traffic well in advance of the event. The group should use the local media to inform residents of the impact that an event will have on their mobility.

 

Emergency Access

Traffic planners must also consider possible emergency needs at an event. Planning should include emergency ingress and egress routes as well as:

• Emergency routes from the event site to the nearest hospital.
• Possible landing sites for helicopters.

 

Signage

When organizers anticipate that event traffic will have a major impact on traffic flow, planners should consider requiring the promoter to hire a professional traffic planner. This planner will work with local personnel to create alternative routes or special signage for the event.

Strategically placed variable-message signs are very useful devices to inform the motoring public. Temporary fixed signage can also be used as long as the signs are easily understood by the public.

 

Use of the Media

Using local AM radio stations or a specially designated frequency to broadcast travel information and instructions on the day of the event can help to lower motorist frustration.

Broadcasting is also a good way for event staff to provide patrons with guidance and safety messages prior to their arrival.

 

Traffic Monitoring

Traffic monitoring should be carried out by periodic radio contact with ground personnel and by surveillance from aerial observation platforms. Other ways to monitor traffic include:

• Fixed-wing aircraft.
• Helicopters.
• Stationary, closed-circuit TV cameras.

 

Public Transportation

When available, public transportation should be encouraged to lessen the impact on street traffic. The use of public transportation also decreases the number of parking attendants required at the event site.

Another possibility for large-scale events is event-only transportation. By using event-only transportation, promoters can provide transportation from off-venue sites and remote event-specific parking areas.

 

Other Transportation-Related Issues

Other transportation-related issues that should be considered by event planners include:

• The towing policy for disabled vehicles.
• Vehicle prescreening for vendors and event vehicles.
• Parking and parking control.
• Auxiliary parking lots and shuttles.
• Accessibility for persons with disabilities.

Event planners should work closely with the promoter and public safety personnel to ensure that all transportation-related concerns are identified and addressed.

 

Other Special Operational Considerations

There may be special risks associated with high-profile or controversial events. These considerations may be associated with:

• Special security events, for example, Presidential visits.
• Bowl games or conventions.
• National Special Security Events (NSSEs), such as the Super Bowl or National political conventions.
• High-profile events that present a risk of terrorist attack.

Planners must identify whether planned events fit any of these categories. If so, special planning will be required including, perhaps, assistance from State and/or Federal agencies.

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Lesson 5: Using ICS To Manage Special Events

Lesson Overview

This lesson will introduce the Incident Command System (ICS) as an efficient way of managing special events. This lesson will discuss the ICS organizational structure, ICS positions, incident action planning, and command structures.

At the end of this lesson, you should be able to:

• Define Incident Command System (ICS).
• Identify the five functional areas of ICS and identify which area is active at every special event and which areas are included only when necessary.
• List four duties of an Incident Commander.
• Define Unified Command and give two examples of occasions when it should be used.
• Describe the incident action planning process.
• Define Multiagency Coordinating Systems, Public Information Systems, and Joint Information Systems.

 

HSPD-5, NIMS, and ICS

On February 28, 2003, President Bush issued Homeland Security Presidential Directive-5 (HSPD-5). HSPD-5 directed the Secretary of Homeland Security to develop and administer a National Incident Management System (NIMS).

NIMS provides a consistent nationwide template to enable all government, private-sector, and nongovernmental organizations to work together during domestic incidents. One of the key requirements of NIMS is the use of the Incident Command System (ICS) to manage domestic incidents.

This lesson will focus on the use of ICS for the planning and management of special events.

 

What is ICS?

ICS is a proven management system based on successful business practices. Applications for the use of ICS have included:

• Fires, hazardous materials incidents, and multicasualty incidents.
• Acts of terrorism.
• Multijurisdiction and multiagency disasters, such as earthquakes, hurricanes, floods, and winter storms.
• Special events such as celebrations, parades, and concerts.

 

ICS and Special Event Planning

As you learned in Lesson 2, planning for a special event should begin well in advance of the event, and one of the first steps is to bring together a multidisciplinary planning team. With many agencies participating in planning the event, a proven planning system is a must.

If your community has an existing planning protocol or system that has already proved successful, simply change or modify the protocol where needed.

ICS is a management system frequently used to plan effectively for large events. If your community does not have an existing system, then it should consider using ICS throughout the planning process.

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 during a special event. ICS is designed to assist event planners in the areas of:

• Resource management.
• Organization.
• Delegation of authority.
• Coordination.
• Communication.
• Evaluation.

Using ICS optimizes communication and coordination, and facilitates the protection of life and property.

ICS achieves this 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.

 

Advantages of ICS

An advantage of using ICS during a planned special event is that it helps to communicate and coordinate how decisions will be made. Flexibility is important, especially if the event plan requires adjustment because of unexpected situations or changing circumstances. ICS affords the lead agency the authority to make the adjustments that are needed, even if there may not be time to meet with all stakeholders to develop a consensus on how to modify the plan.

Using ICS also facilitates coordinated operations, public information, and logistics activities before, during, and after the event.

 

The ICS Structure—Management Functions

There are five major management functions that are the foundation upon which the ICS organization develops. These functions apply whether you are handling a routine emergency, organizing for a special event, or managing a response to a major disaster. The five major management functions are Incident Command and the four General Staff Sections, consisting of Operations, Planning, Logistics, and Finance/Administration.

 

Incident Commander

The Incident Commander sets the incident objectives, strategies, and priorities and has responsibility for the management of an incident or event. Even if other functions are not filled, an Incident Commander will always be designated.

The Incident Commander may have a Deputy from his or her agency or from an assisting agency. An individual assuming a Deputy role must be equally capable of assuming the primary role.

The Incident Commander is responsible for:

• Ensuring that all appropriate pre-event risk analyses, plans, checklists, and forms are completed and available to event personnel.
• Developing the mission, objectives, strategies, immediate priorities, and command structure for the event.
• Establishing an appropriately located Incident Command Post (ICP).
• Developing an effective Operational Period schedule.
• Ensuring that planning meetings are scheduled, as required.
• Approving and authorizing the implementation of an Incident Action Plan (IAP) for each operational period.
• Ensuring that adequate safety measures are in place.
• Coordinating activity for all Command and General Staff.
• Coordinating with key people.
• Approving requests for additional resources or for the release of resources.
• Keeping agency administrators informed of event/incident status.
• Approving the use of trainees, volunteers, and auxiliary personnel.
• Authorizing the release of information to the news media.
• Ordering the demobilization of the event/incident, when appropriate.

 

Expanding the ICS Organizational Structure

On small incidents and events, the Incident Commander may accomplish all five management functions. Large incidents or events may require that these functions be set up as separate Sections within the organization.

Each of the ICS Sections may be subdivided as needed. The ICS organization has the capability to expand or contract to meet the needs of the incident and maintain effective span of control.

 

Span of Control

Span of control relates to the number of individuals or resources that one supervisor can manage effectively. Maintaining an effective span of control is crucial on incidents where safety and accountability are a top priority.

Effective span of control on incidents may vary from three to seven, and a ratio of one supervisor to five reporting elements is recommended.

If the number of reporting elements falls outside of these ranges, expansion or consolidation of the organization may be necessary. There may be exceptions, usually in lower-risk assignments or where resources work in close proximity to each other.

 

Command Staff

Depending on the size and type of incident or event, it may be necessary for the Incident Commander to designate personnel to provide public information, safety, and liaison services for the entire incident or event organization. In ICS, these personnel make up the Command Staff and consist of the:

• Public Information Officer.
• Safety Officer.
• Liaison Officer.

The roles and responsibilities of the Command Staff will be described on the following screens.

 

Public Information Officer

The Public Information Officer (PIO) is responsible for developing and releasing public information regarding event safety matters to the news media, incident personnel, and 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, the PIO will become the sole spokesperson.

The PIO may have Assistants as necessary, who may represent assisting agencies or jurisdictions.

The major responsibilities assigned to the Public Information Officer apply generally to any event and are listed below:

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

 

Safety Officer

The Safety Officer’s function is to develop and recommend measures for ensuring personnel safety and to 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 also may represent assisting agencies or jurisdictions. Safety Assistants may have specific responsibilities, such as air operations or hazardous materials.

The following major responsibilities are assigned to the Safety Officer:

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

 

Liaison Officer

Special events that are multijurisdictional 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.

The following major responsibilities are assigned to the Liaison Officer:

• 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 interorganizational problems.
• Participate in planning meetings, providing current resource status, including limitations and capability of assisting agency resources.

 

General Staff

Expansion of the incident or event may also require the activation of the other four management functions, which are designated as the General Staff. The General Staff is made up of four Sections: Operations, Planning, Logistics, and Finance/Administration.

 

Operations Section

Until Operations is established as a separate Section, the Incident Commander has direct control of tactical resources. The Incident Commander will determine the need for a separate Operations Section at an incident or event. When the Incident Commander activates an Operations Section, he or she will assign an individual as the Operations Section Chief.

The Operations Section conducts tactical operations, develops the tactical objectives and organization, and directs all tactical resources.

 

Operations Section Chief

The following major responsibilities are assigned to the Operations Section Chief:

• Manage tactical operations by requesting resources needed to implement tactics and approve the release of resources.
• Assist in developing the operations portion of the Incident Action Plan (IAP).
• Supervise the execution of the IAP for Operations by maintaining close contact with subordinate positions and ensuring safe tactical operations.
• Make or approve expedient changes to the IAP during the Operational Period, as necessary.
• Maintain close communication with the Incident Commander.

 

Planning Section

The Incident Commander will determine if there is a need for a Planning Section and designate a Planning Section Chief. If no Planning Section is established, the Incident Commander will perform all planning functions. It is up to the Planning Section Chief to activate any needed additional staffing.

The Planning Section collects, evaluates, processes, and disseminates information for use throughout the event.

 

Planning Section Chief

The following major responsibilities are assigned to the Planning Section Chief:

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

 

Logistics Section

Typically, the promoter and/or sponsor provides resources to execute the event. Certain essential resources and support needs may not be provided (e.g., Incident Command Post, communications equipment, medical supplies, etc.), and must be procured.

The Logistics Section provides support needs for the event command infrastructure. The Logistics Section Chief, who may assign a Deputy, manages the Logistics Section.

 

Logistics Section Chief

The following major responsibilities are assigned to the Logistics Section Chief:

• Manage all event command infrastructure logistics.
• Provide logistical input to the Incident Commander in preparing the IAP.
• 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.
• Oversee demobilization of Logistics Section.

 

Finance/Administration Section

The Finance/Administration Section is responsible for managing all costs related to incident response at the event command infrastructure. Typically, the promoter and/or sponsor manages the financial aspects of most special events. When certain necessary resources and support needs are not provided, some means of maintaining financial accountability should be established.

Not all events or 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.

 

Finance/Administration Section Chief

The following major responsibilities are assigned to the Finance/Administration Section Chief:

• 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.
• Meet with assisting and cooperating agency representatives, as needed.
• Maintain daily contact with agency administrative headquarters on financial/administrative 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 or incident are properly prepared and completed.
• Brief agency administrative personnel on all event/incident-related financial matters needing attention or follow up.

 

Developing the Initial ICS Organization

The type, location, size, and expected duration of the event are key factors in developing the initial ICS organization. Answering the questions below will help event planners develop an organizational structure to meet the management needs of the 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 kinds, types, and amounts of resources are required by the event?
• Are there any projected aviation operations?
• Are there any Staging Areas or 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 of communications resources are available?

 

Single Versus Unified Command

ICS offers two options for command, as a:

• Single Command in which there is no overlap of jurisdiction or when the agency in charge designates Single Incident Command.
• Unified Command, when more than one individual, agency, or jurisdiction shares responsibility for responding to, or participating in, the event or 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

Unified Command is a term referring to shared responsibility for event management using either single agencies within multiple jurisdictions or multiple agencies. A clear line of authority for decision making must always be in place.

Unified Command is a team effort, allowing all agencies with responsibility for an incident, either geographic or functional, to establish a common set of incident objectives and strategies to which all can subscribe. Objectives and strategies are accomplished without losing agency authority, responsibility, or accountability.

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

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

• Policies, Objectives, Strategies: Responsibility to set policies, objectives, and strategies belongs to the various jurisdictional and agency administrators who are accountable to their agencies.
• Organization: The Unified Command consists of the various jurisdictional or agency on-scene senior representatives.
• Resources: Resources are the personnel and equipment supplied by the jurisdictions and agencies that have responsibility for the IAP.
• Operations: After the objectives, strategies, and interagency agreements are decided, a single party, the Operations Section Chief, is designated to develop tactical action plans and to direct tactical operations. Resources remain under the administrative and policy control of their agencies. They respond operationally under the coordination and direction of the Operations Section Chief.

The advantages of using a Unified Command include:

• A single set of objectives developed for the entire event or incident.
• A collective approach made to develop strategies to achieve event or 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.
• A reduction or elimination of duplicate 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.

For example, The Public Works Department has responded to a water line break. While other agencies may be involved, the incident is mainly a public works responsibility. The Incident Commander would be from the Public Works Department.

 

Incident Action Planning

Every event needs an Incident Action Plan ( IAP). An IAP may be written or oral, although it’s best if written. IAPs must cover strategic goals, tactical objectives, and needed support. If an event is prolonged, it may require more than one IAP.

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

Regardless of whether the event command structure is a Single Command or a Unified Command, a single planning process will be implemented that results in the development of an IAP.

 

The Incident Action Planning Process

The planning process for Unified Command is similar to that used in Single Incident Command. 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 a joint IAP in the first operational meeting.

No matter the type of command structure, the incident action planning process emphasizes the need for a clearly defined Operational Period and the development of incident objectives, strategy, and tactics for the Operational Period.

 

Command Meetings

The initial Command Meeting provides the responsible agency officials with an opportunity to discuss and concur on important issues before a 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.
• Combined Planning, Logistics, and Finance/Administration operations, as needed.

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

 

Key Players in Incident Action Planning

The Unified Command organization can also benefit by integrating multijurisdictional and/or multiagency personnel into other functional areas. For example, in the Operations and Planning Sections, Deputies can be designated from an adjacent jurisdiction.

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

A Deputy Logistics Section Chief from another agency or jurisdiction can help to coordinate event or incident support as well as facilitate resource-ordering activities.

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.

 

Big Picture Coordination Multiagency Coordination Systems

Multiagency Coordination Systems are a combination of resources that are integrated into a common framework for coordinating and supporting domestic incident management activities. These resources may include:

• Facilities.
• Equipment.
• Personnel.
• Procedures.
• Communications.

 

Multiagency Coordination Systems Primary Functions

The primary functions of Multiagency Coordination Systems are to:

• Support event or incident management policies and priorities.
• Facilitate logistics support and resource tracking.
• Make resource allocation decisions based on incident management priorities.
• Coordinate incident-related information.
• Coordinate interagency and intergovernmental issues regarding incident management policies, priorities, and strategies.

Direct tactical and operational responsibility for the conduct of incident management activities rests with the on-scene Incident Command.

 

Multiagency Coordination System Elements

Multiagency Coordination Systems include Emergency Operations Centers (EOCs) and, in certain multijurisdictional or complex incidents, Multiagency Coordination Entities.

• EOCs are the locations from which the coordination of information and resources to support incident activities takes place. EOCs are typically established by the emergency management agency at the local and State levels.
• Multiagency Coordination Entities typically consist of principals from organizations with direct incident management responsibilities or with significant incident management support or resource responsibilities. These entities may be used to facilitate incident management and policy coordination.

 

Emergency Operations Centers

Emergency Operations Centers (EOCs) represent the physical location where the coordination of information and resources to support event management activities normally takes place.

For smaller-scale events or during the initial phase of the response to larger, more complex events, the Incident Command Post, located at or in the immediate vicinity of an event site, may perform an EOC-like function.

Standing EOCs, or those activated to support larger, more complex events are typically established in a permanently established facility. For complex events, EOCs may be staffed by personnel representing multiple jurisdictions and disciplines and a wide variety of resources. The size, staffing, and equipping of an EOC will depend on the size of the jurisdiction, resources available, and anticipated workload. EOCs may follow an ICS structure for staffing.

EOC organization and staffing are flexible, but should include:

• Coordination.
• Communications.
• Resource dispatch and tracking.
• Information collection, analysis, and dissemination.

EOCs may also support multiagency coordination and joint information activities.

All EOCs, including governmental, functional agencies, and private organizations, must communicate with other EOCs during an event. Communications between EOCs must be reliable and contain built-in redundancies.

 

Public Information Principles

Systems and protocols for communicating timely and accurate information to the public are critical during large-scale special events or emergency situations.

Public information must be coordinated and integrated across:

• Jurisdictions.
• Functional agencies.
• Federal, State, local, and Tribal partners.
• Private-sector and nongovernmental organizations.
• The promoter or sponsor.

During emergencies, the public may receive information from a variety of sources. The PIO is responsible for establishing the systems and protocols required to meet the public’s need for information.

 

Public Information Systems

The PIO handles:

• Media and public inquiries.
• Emergency public information and warnings.
• Rumor monitoring and response.
• Media monitoring and other functions required to coordinate, clear with appropriate authorities, and disseminate accurate and timely information related to the event or incident.

The PIO also coordinates public information at or near the incident site and serves as the on-scene link to the Joint Information Center (JIC).

The JIC will be addressed on the next screen.

 

Joint Information Center

A JIC is the location where public information staff involved in event and incident management activities can work together to ensure that timely, accurate, easy-to-understand, and consistent information is disseminated to the public.

JICs provide the structure for coordinating and disseminating official information.

A single JIC location is preferable, but the Joint Information System (JIS) should be flexible enough to accommodate multiple JICs when the circumstances of the event or incident require. All JICs must communicate and coordinate with each other on an ongoing basis.

Incident Commanders and Multiagency Coordination Entities are responsible for establishing and overseeing JICs, including processes for coordinating and clearing public communications.

In the case of a Unified Command, those contributing to joint public information management do not lose their individual identities or responsibilities. Rather, each entity contributes to the overall unified message.

 

Transfer of Command

The process of moving the responsibility for incident command from one Incident Commander to another is called transfer of command.

If a transfer of command is required, the initial Incident Commander will remain in charge until the transfer is accomplished. Command may transfer to more qualified or more experienced personnel from the same agency, or be transferred to the employee of another responsible agency.

Transfer of command begins with a transfer of command briefing. The outgoing Incident Commander briefs the new Incident Commander on the probable response needs and resources on scene and their locations. The briefing also may include safety concerns, political issues, and other concerns that the new Incident Commander should be aware of.

Command may also be transferred when:

• A jurisdiction or agency is legally required to take command.
• Changing command makes good sense.
• An incident occurs at or near the event site.
• There is turnover of personnel during long or extended events.
• Agency Administrators direct a change in command.

 

State and Federal Resources

If an event is a National Special Security Event (NSSE) or 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 designated State and local agencies.

Should this need arise, some guidelines to help event planners include:

• Preparing to discuss the event and all of the risks with the State and Federal authorities, as needed.
• Providing an event footprint and grid map to State and Federal responders to help them locate key areas in the event.
• Researching your support capabilities at every level. The local and/or State Emergency Management Agency may be of assistance in locating the agency or assistance for the community.

Remember, your jurisdiction must request Federal resources through the State. It is important to take the time to research the exact procedures for accessing resources in your State.

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Lesson 6: Planning Considerations For Specific Events

Lesson Overview

This lesson will introduce the special planning considerations that are required when hosting high-risk special events.

At the end of this lesson, you should be able to:

• Identify events that are high risk.
• Identify the special planning considerations for those events.

 

High-Risk Events

Some events pose more risk than others and may require special planning well in advance of the event. Promoters and sponsors are generally aware of the types of risk involved. Planners should work with the promoter or sponsor to ensure that the jurisdiction is prepared to respond appropriately to the hazards presented by the event.

This lesson provides examples of high-risk events and suggests ways to prepare for emergencies that may occur during these events.

 

Power Boat Races and Similar Aquatic Events

Aquatic events, particularly those involving motorized watercraft, require careful planning. Areas that planners must consider carefully include:

• Medical support for participants.
• Setup of spectator areas.

These areas will be covered on the next screens.

 

Power Boat Races Medical Support

A designated medical response boat should be available in the water at all times when boats are operating. The boat should include trained medical personnel and be equipped with a spinal board and resuscitation equipment. The medical boat should also be linked by two-way radio to the rescue boats and onshore medical personnel.

A rescue boat should be available, with experienced divers who are trained to remove personnel trapped underwater.

Landing locations appropriate for the transfer of patients from boats to ambulances should be identified in advance.

Power Boat Races Spectator Areas

Where spectators will be permitted to line piers and breakwaters along areas of deep waters, planners should create a physical barrier or mark a line to warn spectators away from the edges fronting deep water.

It is also a good idea to have a dedicated boat to patrol the shore adjacent to the spectator area. The boat should be equipped with a loudspeaker to warn spectators who venture too close to the edge. The boat should be equipped for water rescue and resuscitation of injured persons.

Power Boat Races Rescue Boats

All boats intended for rescue or designated to provide medical attention should be clearly marked and equipped with hazard lighting to warn other vessels off.

Any boat intended for medical assistance or water rescue should contain sufficient clear space to resuscitate a patient. These boats should also include a range of medical supplies and equipment, including:

• An Automatic External Defibrillator (AED).
• A spinal board for full-body immobilization and cervical collars.
• Ventilation equipment.
• Large pressure dressings.

Automobile and Similar Races

Sponsors of organized auto races conducted by professional racing organizations at permanent facilities normally meet safety guidelines and have sophisticated contingency planning information. For events conducted by local clubs, however, no formal guidelines may exist.

Motor Cross races, bicycle races, and auto rallies are a source of great concern because of:

• Limited control over spectators.
• Often remote locations where they are held.

Automobile and Similar Races Medical Support for Participants

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

The standby ambulance should be positioned for controlled, rapid access to the track. A communications system and procedures should be in place to activate an immediate response to a track emergency.

Firefighting and rescue equipment should also be available at the track.

Automobile and Similar Races Spectator Areas

Barriers should be in place to isolate spectators from out-of-control vehicles. Experience shows, however, that these barriers can be moved or broken upon impact, causing injuries to spectators. Safety can be enhanced by keeping spectators away from the barrier.

Individuals responsible for barrier design should consider the possibility that one vehicle may mount another or somersault end over end. Barriers should be designed to retard penetration in these situations.

Planners and promoters should remember that parts of automobiles involved in collisions can become projectiles. To protect spectators, a strong wire-mesh debris screen should be attached to the barrier fencing and to the tops of retaining walls.

Major problems have occurred when spectators access the track after the winner has crossed the finish line, but while other competitors are still racing. All officials should be briefed on:

• Ways to control spectators who intend to access the track.
• What to do if those control measures fail.

Automobile and Similar Races Pit Areas

In-race refueling in pit areas creates a potential for fire. To counter this threat, fire extinguishers or other equipment suitable for extinguishing fire must be available at refueling sites.

Vehicles entering the pit lane at high speeds and limited driver visibility increase the risk to both drivers and pit crews. Organizers should consider enforcing speed limits (and penalties for drivers who ignore them) in the pit areas. If possible, organizers should also implement a warning system when vehicles are entering the pits.

Spectators should never be allowed in the pit areas.

Air Shows and Displays

Air shows are usually staged in accordance with aviation rules and regulations. Event organizers, emergency managers, and health personnel should take several steps to reduce the risk of a serious incident. Special precautions are included on the next screens for:

• Aerobatic areas.
• Parachute jump areas.
• Fire-suppression requirements.

Air Shows and Displays Aerobatic Areas

Aerobatic maneuvers should not take place over built-up areas. They should be conducted over fields, water, airstrips, or other uninhabited areas.

Aircraft should not fly over spectator areas. Where aircraft execute a maneuver laterally, the direction of execution should be away from, or parallel to, the spectators.

Air Shows and Displays Parachute Jumps

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. Events that feature parachute jumps should include designated landing zones that are safely away from spectators and create no obvious hazards to the jumpers.

Air Shows and Displays Fire Suppression Requirements

There are several general safety precautions that should be taken at all air shows.

Onsite fire services should be capable of delivering fire-suppressant foam into a crashed or burning aircraft. If the air show does not take place at an airport where this equipment is available, alternate arrangements should be made to ensure that foam equipment is available.

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

Fireworks and Pyrotechnics Displays

Shows involving fireworks or pyrotechnics also present specific risks. When event organizers plan public fireworks or pyrotechnics displays, they should notify and work with local authorities:

• Law enforcement
• Fire
• Emergency medical services

Most pyrotechnical providers follow Occupational Safety and Health Administration (OSHA) safety standards for the placement of spectator seating and fireworks launch sites.

Fireworks and Pyrotechnics Displays Launch Site Placement

Most major incidents involving fireworks can be avoided through careful design of the launch site. Organizers should pay close attention to the anticipated or prevailing wind direction and strength. Both may affect the flight path of fireworks and the area where debris will fall. When establishing site placement and design, an emergency egress route should be identified in case of an emergency.

There is also substantial debris from fireworks displays. The launch site should be situated so that no damage occurs from debris and, if possible, make cleanup and a search for unexploded fireworks easier.

Laser Displays

Laser light shows are now often included as entertainment at many special events. Before the light show occurs, health care professionals onsite should:

• Understand the kinds of accidents that can occur.
• Identify the potential hazards associated with lasers.

Event organizers should always become familiar with the kind and type of laser that will be used and the risks associated with them.

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.
• Safety plans or agreed-upon roles and responsibilities for participants will be established.

Spontaneous events present unique difficulties to public safety personnel because they offer no warning—and no time to plan.

Types of Spontaneous Events

There are four basic types of spontaneous events:

• Events that are planned without official input or permits as a result of an oversight.
• Events that are planned without official input or permits on purpose.
• Events that result from other events (for example, a victory celebration for a local sports team).
• Events that are demonstrations, protests, or picketing (for example, civil disobedience or spontaneous violence).

Because spontaneous events are dynamic, a well-timed and appropriate response is critical to achieving safe outcomes.

Spontaneous Events Staffing

The use of existing mutual aid agreements, response plans, training, and resource lists will assist communities that are confronted with a spontaneous event. Essential to the outcome, however, is implementing ICS for an orderly and coordinated deployment of resources and personnel. Additionally:

• Identifying a Staging Area where additional personnel and resources will be gathered is critical.
• All personnel must be briefed before assignment.
• Span of control must be maintained.

Spontaneous Events Evaluating Other Events

Another essential element when responding to spontaneous events is the continuing evaluation of other events that could be catalysts for spontaneous events. 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. It is critical, then, to develop contingency plans for events that are high-risk or high probability.

Events Involving Pre-Teen and Early Teen Audiences

Concerts and other events that attract younger audiences can create a number of difficulties. These spectators can become lost or separated from friends, miss transportation, or lack the money to pay for alternate transportation.

Parents often take their children to these events, then have difficulty finding them after the event. If parents are using their cars to pick up children, traffic jams may prevent close access to the venue.