제  목 : Managing crowds safely
  일  자 : 1998년 08월
  제공처 : Internet

    Managing crowds safely
    =======================

    ㅇ Introduction
    ㅇ HSE-sponsored research
    ㅇ Responsibilities of the management team
    ㅇ Factors to consider when making a risk assessment
    ㅇ What type of crowd?
    ㅇ Some hazards to watch out for
    ㅇ Further information
    ㅇ Order form

  Introduction
  ------------

Large crowds are a normal part of the operation of many public venues such as
railway stations, fairgrounds, leisure centres and sports stadiums. From a
commercial point of view large numbers of customers may be desirable. But
excessive crowding and poor crowd management can lead at worst to crushing,
injury and even death and at the very least to such anxiety and stress that
visitors decide not to come again or recommend a visit to others.

Even small changes in the layout or venue, or a gradual increase in visitors,
might lead to a disaster. In addition to the personal suffering such disasters
cause, the accompanying adverse publicity, loss of revenue, compensation
payments, insurance costs and possible prosecution can have a long-term effect
on a company's viability. Disasters should not happen provided those
responsible, at all levels, pay careful attention to managing crowds safely.

  HSE-sponsored research
  ----------------------

In January 1991 RM Consultants (RMC) was commissioned by the Health and Safety
Executive (HSE) to study crowd behaviour, the different management and control
methods currently in use, and the effect of crowd size, flows and venue design
on the potential for overcrowding. They observed crowd behaviour in a wide
variety of fixed and transient venues, interviewed senior and operational
management and where possible asked visitors for their views.

Their study and crowd management recommendations based on it are published as
a report entitled Managing crowd safety in public venues: a study to generate
guidance for venue owners and enforcing authority inspectors (see order form
at end of leaflet).

This will be of interest to behavioural and social scientists as well as to
managers and owners of public venues. HSE is using RMC's study as a basis for
guidance to be published later. This leaflet summarises some important points
from the RMC study but it is not HSE guidance.

  Responsibilities of the management team
  ---------------------------------------

Crowd safety is primarily a management responsibility and requires the
application of the best practices of health and safety management. All who run
venues, organise events or manage places which attract crowds should have a
health and safety management system which anticipates, monitors and controls
potential crowding risks.

Because venues, both fixed and transient, are large and complex spaces, the
management of crowds requires team work with good communications and
co-ordination between those responsible for the overall operation and those
managing crowds face to face. Effective team work depends on senior managers
providing a positive and pro-active safety culture so that staff at all levels
are aware of the importance of crowd safety. In particular, the team needs:

     clear roles and responsibilities;
     written arrangements for the regular analysis, planning, inspection,
     operation and review of crowd safety systems; and
     adequate training.

The day-to-day management of crowds carries with it great responsibility.
Preventing the unexpected from becoming a disaster depends on good management
systems and experience. Between them, members of the crowd safety team should:

     research the type of visitor they expect and anticipate likely crowd
     behaviour;
     if it is available, collate and assess information about the health and
     safety record of previous events at the venue;
     conduct a risk assessment to decide the adequacy of arrangements in place
     to control crowds and change them if necessary;
     inspect the venue and review crowd safety arrangements at regular
     intervals;
     set targets for crowd management (for example, if queues extend past a
     particular point, open another service point);
     liaise with outside organisations such as police and the emergency
     services.

  Factors to consider when making a risk assessment
  -------------------------------------------------

When assessing the risks to safety in a venue both physical and behavioural
factors need to be considered. Some of the more important ones are:

  Design and layout
  -----------------

The layout of the venue, design of circulation routes and the design and
location of facilities can have a fundamental influence on crowd behaviour.
For example, small entrances or a limited number of turnstiles may control
crowd flow into cramped areas, but may result in dangerous build-ups on the
other side. Barriers can direct crowd flows and the shrewd location of
desirable facilities can help spread visitors more evenly. It may not always
be possible to change the layout to enhance safety, but it should always be
considered as an option.

How much people know about the layout and design of the place affects
the way they act, especially in an emergency

Visitors familiar with a venue are likely to use known routes to favourite
viewing-points or attractions and may persist in doing this, even if the
routes are closed. Those who don't know a venue may block routes while
deciding which way to go and well-placed signs and information about
attractions can help them decide quickly. In an emergency people often leave
by the way they know best, even if it appears more dangerous.

Behaviour is affected by the provision of information

Clear signposts and simple, audible public address messages are vital. Poor
communications can lead to people stopping, moving against the flow of the
crowd, blocking passages or making frequent demands on staff for directions.
Visitors without information, or given contradictory information, can become
frustrated and aggressive.

  What type of crowd?
  -------------------

Different types of crowd behave in different ways. Shoppers in a crowded mall,
each with their own interests, make up a different crowd from spectators at a
sports stadium. It is important to know, for example, the age-range and social
mix of visitors to anticipate probable behaviour and make appropriate
arrangements for it.

The behaviour of individuals is influenced by those around them

Individuals within a crowd usually behave in a rational and goal-orientated
manner. For example, someone whose aim is to watch an event or celebrity may
climb onto a roof or to the top of scaffold poles to get a better view,
despite the danger. Other spectators with a similar aim may follow, leading to
more people on the roof and the possibility of collapse and injury. A risk
assessment should pick up the likelihood of this happening and enable adequate
measures to be taken before the event. The RMC study describes how a risk
assessment can be conducted.

  Some hazards to watch out for
  -----------------------------

RMC's study indentified those physical features of a venue that may lead to
overcrowding and possible injury. These include:

     steep slopes
     dead ends, locked gates
     convergence of several routes into one
     uneven or slippery flooring or steps

The potential for injury increases in some situations. Potential hazards
requiring identification and management control include:

     reverse or cross flows in a dense crowd
     flows which are obstructed by queues, or gathering crowds
     large pedestrian flows mixing with animals or traffic
     moving attractions within a crowd

  Further information
  -------------------

Additional copies of this leaflet can be obtained free from:

HSE Information Centre,
Broad Lane,
Sheffield S3 7IIQ
Telephone: 0742 892345/6
Fax: 0742 892333.

  Order form
  -----------

If you are interested in the full report, copies can be obtained by completing
the coupon below and returning it to:

HMSO Publications Centre, PO Box 276, LONDON SW8 5DT.

Please send me copies of:

Managing crowd safety in public venues: a study to generate guidance for venue
owners and enforcing authority inspectors. ISBN 0 11 882132 6