Managing Risk for Public Events
Guidance for organising Gathering 2013 events
Risk
Advisory
Guides
2013
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Contents
Introduction2
Applying for access to local authority facilities
2
Classification of events
3
Managing risk
4
- Step 1. Identify the risks
4
- Step 2. Assess the risks
5
- Step 3. Manage the risks
5
- Step 4. Monitor and review the risks
6
The risk register 6
Reporting incidents
7
Insurance requirements
7
References7
Appendix 1 - Sample application form content
8
Appendix 2 - Local authority event licensing procedure
9
1
Managing Risk for Public Events
Introduction
Congratulations on holding a Gathering 2013 event.
The Gathering 2013 is a wonderful opportunity to bring our
families, friends and communities together. As the proud
insurer of local authorities and a long standing supporter
of community initiatives, IPB Insurance wanted to help as
many people as possible to participate in Gathering events.
We were delighted to partner with The Gathering 2013 to
launch the €2 million IPB Gathering Fund. The fund was
delivered through the local authorities to support a total of
1,322 Gathering events all across the country.
As an insurance company we are very conscious of the risks
associated with running any event. It is essential that all the
potential risks are fully identified and properly managed to
ensure the event is fun and incident-free for all.
This guide is intended to help you in making an application
to run an event using local authority buildings or facilities.
Each local authority has their own procedure for assessing
applications. Ultimately, they are all looking for evidence
that your event has been thoroughly planned and will be
carefully controlled so as to minimise risks.
Applying for access to local
authority facilities
Most local authorities will have an application form for
event organisers to use when requesting access to the
buildings and public spaces they own. The form will ask
you for all the key information about the proposed event
including:
•
•
•
•
•
•
•
•
2
Statutory requirements that must be complied with.
The local authority building or facility that will be used.
Whether the event is indoor or outdoor.
Expected number of attendees.
Approximate age group of attendees.
Activities to be undertaken.
Time of day/day of week/week of year.
Other events being held in the locality on the same
day and/or at the same time.
The application form will also require the event organiser
to provide details of the consideration that has been given
to public safety, employee safety, health and welfare,
environmental safety, fire safety, food safety (where
food will be stored, prepared, served, sold or consumed),
safeguarding children and vulnerable persons and first
aid.
The local authority will specify all the information it
requires in order to process the application, for example
safety certificates and copies of insurance certificates.
Copies of required documentation should be signed and
dated by the applicant. The application fee (if applicable)
and notice period required when submitting an application
should also be stated in writing by the local authority. The
notice period required will depend on which category
the event is in; see page 3, classification of events, as a
guidance. Further details of what may be included in the
application form can be found in Appendix 1.
Organising funfairs
Applicants may propose to host a funfair or use their
own fairground equipment on local authority property.
For such events compliance with the Planning and
Development Act, 2000 (Certification of Fairground
Equipment) Regulations, 2003 should be demonstrated
by the organisers by providing safety certificates to the
local authority for the equipment being used.
The local authority should identify an appropriate
safe location for the funfair and carry out appropriate
inspections including an inspection of the installation
and an overall inspection to ensure all potential hazards
are minimised.
PLEASE NOTE: For events with an attendance of more
than 5,000 people, the event organiser will also need
to apply to the local authority for an event license. See
Appendix 2 for more details on event licensing procedure.
Classification of events
*Reference: www.thegatheringireland.com
www.ipb.ie
For the purposes of managing risk, public events being
planned as part of The Gathering 2013 may be divided
into the following six categories. The local authority
should state in writing the notice period they require
when you are making an application. Table 1 contains
sample notice periods, please contact your local
authority to confirm the notice period they require.
Category A: A one-off event such as a poetry reading,
training for a community group over a number of
weeks, storytelling, an information evening, meeting of
a gardening club or book club, or a residents association
meeting. These events may involve up to 100 people
and are hosted indoors, e.g. library meeting room; they
may be classified as low-risk events.
Category B: A one-off event such as a summer BBQ,
Christmas market, arts and crafts fair, a summer fete, or
a family fun day. This type of event will usually involve
in excess of 100 people and fewer than 1,000 people.
The event may be held indoors or outdoors and may be
classified as a low-risk event.
Category C: Events in this category are similar to B
above. However, they will involve more than 1,000 and
fewer than 5,000 people and therefore are classified as
medium-risk events.
For events in categories D-F consideration should be
given to hiring a professional event organiser.
Category D: Hosting of a large public indoor or outdoor
event such as Fleadh Ceol Na hEireann, return of a
successful sports team, welcoming a foreign dignitary,
or awarding the Freedom of the City. This type of event
will usually involve more than 5,000 people and fewer
than 20,000 people and may be classified as high risk.
Category F: Hosting of a very large public indoor or
outdoor event such as a very large concert, with in
excess of 20,000 people attending. This type of event
may be classified as very high risk.
Table 1.
Category
Number of
attendees
Level of
assessed
risk
Notice
period
required for
application
A
<100
Low
4 weeks
B
>100
<1,000
Low
8 weeks
C
>1,000
<5,000
Medium
8 weeks
D
>5,000
<20,000
High
30 weeks
E
>5,000
<20,000
High - Very 30 weeks
High
F
>20,000
Very High
30 weeks
PLEASE NOTE: The classification of risk involved with
different events (low, medium, high and very high)
given in the above six categories should not be literally
interpreted and is only intended to act as a guide. A
full risk assessment should be undertaken for every
proposed event to identify the actual level of risk
involved.
Category E: Hosting of a large public indoor or outdoor
event such as Tall Ships race, round the world boat
race, road rallies, bungee jumping, firework displays,
funfairs and aviation displays. This type of event will
also usually involve more than 5,000 and fewer than
20,000 people but due to the nature of the activity the
risk category may change and be classified as high to
very high.
Managing Risk for Public Events
3
Managing risk
The principles of managing risk should be applied
to the planning and decision making process for
all Gathering 2013 events. To manage the risks it is
necessary to establish the context. The context should
be provided in the application form, including details
of public safety; employee safety; health and welfare;
environmental safety; fire safety; food safety (where
food is stored, prepared, served, sold or consumed);
safeguarding children and vulnerable persons and first
aid. The risk management process is broken down into
four key steps which should be put together to form a
continuous cycle of risk management.
Step 1. Identify the risks
Identifying the risks is the first key step to a successful
risk management process and, ultimately, to a successful
Gathering event. Typically, the risks associated with
a particular activity can be most comprehensively
identified by those responsible for that activity.
The key risks for all events should be documented with
consideration given to:
• Type of event to be held:
- Indoor
- Outdoor.
• Number of attendees.
• Age group of attendees.
• Activities to be undertaken.
• Time of day/day of week/week of the year.
• Other events to be held in the locality on the same
day and/or at the same time.
Some examples of the different risks that are associated
with each category of event are listed below:
Category A-F risks
For all events the types of risks could include:
• Physical risks such as:
- Building risks giving rise to slips, trips and falls.
- Fire risk arising from BBQs or the use of fireworks.
- Explosive risks arising from the use of gas
cylinders, chemical agents, fireworks, etc.
- Water risk (swimming/paddling pool, river, lake,
sea).
- Theft and property damage.
- Obstructions such as parking on emergency
access routes.
- Public access routes where motor vehicles are
driven and parked.
- Aviation risks arising from air displays.
4
• Human risks (including public safety and child/
vulnerable persons protection risks) such as:
- Babies and toddlers.
- Children and vulnerable persons.
- Adults and elderly.
- Cognitive ability risk such as the ability to respond
to fire alarm activation.
- Accessibility for participants.
- Violence and aggression.
- Substance abuse.
• Chemical risks such as:
- Chemicals in paints.
- Science experiments.
- Solvents.
• Biological risks such as:
- Hepatitis.
- Tuberculosis.
- Salmonella and other food-borne organisms
wherever food is stored, prepared, served, sold or
consumed.
• Reputational risks. An organising committee’s
reputation can be impacted positively or negatively
depending on how an event is managed.
Category B-C risks
The key risks for these categories will include those
identified for all categories as well as:
• Crowd control depending on whether the event is
indoor or outdoor, numbers attending and size of
venue.
• Environmental pollution risks such as noise from
loud music or aeroplane displays.
• Equipment risks.
• Falling from height such as from a podium/stage.
• Security.
Categories D-F risks
For events in these three categories consideration
should be given to all the risks previously mentioned
and the following:
• Public safety for large attendances.
• Fire in an enclosed space such as football stands or
enclosed arena.
• Crush injuries from crowd surges at events such as
St Patrick’s Day parades and concerts.
• Falling from a height when taking part in activities
such as bungee jumping and parachuting.
• Aviation disaster where aeroplane and/or helicopter
displays are provided.
• Traffic risks arising from proximity of attendees to
live traffic.
All risks (once identified) should be assigned to an
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owner by the event organiser. The owner will have
responsibility for ensuring the risk is managed and
monitored over time. A risk owner should have sufficient
authority to ensure that the risk is effectively managed;
the risk owner may not necessarily be the person who
actually takes the action to address the risk.
Step 2. Assess the risks
Assessing the risks is the second key step in the risk
management process. Its objective is to separate the
minor, acceptable risks from the major, unacceptable
ones and to provide information to assist in the
management of risk.
The event organiser should assess each of the risks
identified in Step 1 for the following:
1. Likelihood - How likely is it that a given risk will
occur?
2. Impact - If the risk actually does occur, what impact
or effect will it have on the public event? How
significant might the consequences be?
The most common approach to assessing risk is a
qualitative one and can be done using the following
model.
A
Likelihood
B
C
D
1
2
3
4
Impact
Likelihood: A = very high, B = high, C = medium,
D = low.
Impact: 1 = minor, 2 = moderate, 3 = major, 4= severe.
Each identified risk is recorded in the appropriate box
in the above diagram. Risks located in the red or high
impact/likelihood box will require immediate attention;
amber will require monitoring and green can be reviewed
as appropriate.
Managing Risk for Public Events
Step 3. Manage the risks
Having identified and assessed the possible risks, the
next key step is to manage the risk. In managing the
assessed risks the focus will be on ensuring the safety
of employees, event attendees and third parties such
as service providers, and on preventing damage to the
environment and local authority property.
There are four main ways to manage risk:
1. Terminate. Some risks may only be manageable by
terminating the underlying activity.
2. Treat. The purpose here is to contain the risk at
an appropriate level. The majority of risks will be
managed in this way.
3. Transfer. This entails taking measures to transfer
a risk, or responsibility for a risk, to a third party.
Risks may be transferred either to reduce exposure
of the local authority or event organiser or because
another organisation is more capable of managing it.
It is important to note that some risks are not fully
transferable, e.g. reputational risks.
4. Tolerate. The impact of the risk may be tolerable and
therefore may not require any further action to be
taken. Even if it is not tolerable, it may not be possible
to take any significant action against certain risks, or
the cost of taking such action may be disproportionate
to the benefits gained. In these circumstances the
option may be to tolerate the existing level of risk.
This option must be supplemented by contingency
planning to handle the impacts that may arise if the
risk is realised.
At this stage, in order to effectively manage the risks,
management controls should be put in place. These
controls will include:
• A safety management plan, supported by appropriate
policy and procedure.
• Seeking guidance from experts.
• Ensuring compliance with relevant legislation.
• Obtaining a technical plan or map of the location
where the event will be held. The plan or map should
identify utilities and other key information relevant
to the event such as fire routes, emergency service
routes, fire hydrants, etc.
• Communicating with key stakeholders such as An
Garda Siochána, Fire Services Authority, Health
Service Executive and contractors, among others; this
may involve holding a number of meetings.
• Provision of security for local authority property.
5
The risk register
• An emergency preparedness plan including the
provision of emergency services such as first aid, fire
fighting, etc.
• A traffic management plan, if appropriate.
• Training for employees and others.
• Monitoring of compliance with policies such as
Public Safety Policy.
• Enhancing
inspection
and/or
supervision
arrangements (by local authority and event
organisers) so that risk is mitigated to as low a level
as possible.
The agreed management controls should be tested
to ensure they support compliance with legislative
requirements such as the Safety, Health and Welfare
at Work (Construction) Regulations, 2006-2010,
Planning and Development Act, 2000 (Certification
of Fairground Equipment) Regulations, 2003, and
safeguarding children and vulnerable persons legislation.
Step 4. Monitor and review the risks
The last key step in the risk management process is to
monitor and review the risks. The planning and delivery
of the event must be continuously monitored to ensure
best practice in public safety management and the
agreed management controls are being complied with.
The local authority should be involved in the on-going
monitoring/inspection process as the responsibility for
managing risk is shared across a number of parties.
Once each risk has been fully examined, a register
of risks should be developed and a copy should be
provided to the local authority with the application
form. The risk register works as an evolving document
which can be updated and refreshed as appropriate
and should clearly document the risks (particularly the
key ones), their management and the allocation of risk
management responsibility for each risk.
Some of the headings typically included in the risk
register are:
•
•
•
•
•
•
•
Risk name.
Risk category.
Risk rating given for likelihood and impact.
Current controls.
Required action.
Risk owner.
Review dates.
PLEASE NOTE: The requirements for safeguarding
children and vulnerable persons for such events should
be documented by the event organiser.
Professional event organisers will be requested to
provide evidence of insurances to include professional
indemnity, public liability and employer liability
insurance.
When non-compliance is identified it should be dealt
with immediately by instructing the party responsible
for the non-compliance to undertake corrective action
without delay.
Following the event a de-briefing should take place
between all key stakeholders to identity:
• What worked well and what did not work well.
• What failures took place, e.g. failures in
communication systems, leadership or teamwork.
• What incidents took place and the grading of such
incidents.
• Adequacy of plans to support the management of all
activities.
• Adequacy of training provided to employees and to
others.
• Adequacy of templates used for policy, procedure,
guidance, training, etc.
6
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Reporting incidents
All incidents, including complaints, irrespective of
whether they are low level, medium level or high level
incidents, should be recorded. Where appropriate the
incident should be reported to the local authority for
investigation so that corrective action can be taken to
prevent reoccurrence. A register of reported incidents
including complaints associated with the event should
be maintained by the event organiser and provided to
the local authority to assist in identifying trends so that
appropriate management controls can be updated and
implemented and learning can be built into future plans
for public events.
If an incident occurs which is described as very serious
then a request for assistance should be made by the
event organiser to the insurer of the event.
Insurance requirements
Insurance may be required for the Gathering 2013 event;
you should seek advice from the Gathering Coordinator
in the local authority.
We wish you every success in your Gathering event.
References
http://www.lgmsb.ie/LASAG.aspx
http://www.irishstatutebook.ie
http://www.environ.ie/en/DevelopmentHousing/BuildingStandards
http://www.ipb.ie
Advisory Handbook for Event Organisers. Dublin City Council: 2004
The Event Safety Guide (second edition). Health and Safety Executive: UK 1999
Code of Practice for Safety at Indoor Concerts. Department of Environment: 1998
Safety at Outdoor Pop Concerts and other outdoor musical events. Department of Education: 1996
Funfair Guidance Document. Department of Environment: 2002
Council of Europe/ERICarts: “Compendium of Cultural Policies and Trends in Europe”, 13th edition 2012.
http://www.culturalpolicies.net
http://www.thegatheringireland.com
Managing Risk for Public Events
7
APPENDIX 1 - SAMPLE APPLICATION FORM CONTENT
Local authorities often have an application form for event organisers to use when requesting access to the
buildings and public spaces they own. The information requested on the application form may include:
4
check
1
Event organiser details including:
• Name and contact details of the organisation making the application.
• Description of the main day-to-day activities of the organisation.
• The status of the organisation, e.g. state agency, limited company, community arts, etc.
2
Event details including:
• Name of facility or location for which access is requested.
• Date(s) and time(s) when facility is required.
• Estimated number who will attend the event(s), per day/per week/per month.
• Brief summary of proposed activities for the event(s).
• How the proposed event will benefit the local businesses, communities and others.
• A list of any equipment being brought to the location for the event(s), e.g. stage, additional toilet
facilities, bouncy castle, etc.
• Name and contact details for the designated event co-ordinator, health and safety officer and public
safety officer.
3
Insurance details including:
• Contact details for the organiser’s insurance company or broker.
• Insurance Policy no(s) with copies of any policies.
• Details of the current levels of cover on each insurance class.
• The date of expiry of each policy.
• Whether or not indemnity to the local authority has been included for the period of the event.
• A list of any additional equipment or activities (previously listed in the event details) which are NOT
currently covered by the organiser’s general insurance policy.
4
Risk assessment details including:
• Has a risk assessment of the venue been carried out by a competent person? If ‘yes’, the organiser
should submit a copy of the risk assessment and the name, title, qualifications and contact
information of the assessor.
• Has a separate detailed safety plan been deemed necessary for the event? If ‘yes’, the organiser
should include a copy of the safety plan and the name, title, qualifications and contact information of
the author. If ‘no’, the organiser should provide a reason(s) why a safety plan is not necessary.
• Has consultation taken place with An Garda Siochána? If ‘yes’, the organiser should provide contact
details for the member of An Garda Siochána who was consulted.
• Has consultation taken place with the Fire Services? If ‘yes’, the organiser should provide contact
details for the member of the Fire Services who was consulted.
• If the Gardaí or Fire Services have requested any specific measures which the event organiser must
comply with, these should be listed.
• Has it been deemed necessary to seek assistance from the Civil Defence or other such voluntary
agencies, e.g. St John’s Ambulance, Order of Malta? If ‘yes’, the organiser should provide details of the
assistance to be provided – first aiders, ambulance, etc.
• Will trained first aider(s) be available at the event? If ‘yes’, the organiser should provide evidence that
the required training has been completed.
• A detailed outline of the organiser’s Policy and Procedure for the Safeguarding of Children and
Vulnerable Persons and procedures for vetting of artists, performers, volunteers, first aiders, etc. who
will be in contact with children during the event. Evidence of Garda Clearance should also be provided
for each person.
8
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APPENDIX 2 - LOCAL AUTHORITY EVENT LICENSING PROCEDURE
Event licensing procedure for the licensing of events with 5,000 or more people in attendance on any one day or
at any one event. The local authority should state in writing the notice period required when applying for an event
license and the number of copies of the application and any supporting documentation they require. The information
requested in the application may include:
4
check
1
Newspaper Notices - A notice of intention to submit an application must be published in one local and
one national newspaper at least five weeks prior to applying for a license. The notice must include:
- Applicant name.
- That the applicant is applying for a licence to hold an event in accordance with Part XVI of The
Planning and Development Act, 2000.
- Location of event(s).
- Type of event(s).
- Date of event(s).
- Name of local authority to which application will be submitted.
- Estimated number who will attend the event(s).
- That the application may be inspected and a submission or observation made at/to the local
authority within five weeks of the application being received by the local authority.
2
Applicant details - name, contact postal address, email address and telephone numbers.
3
Estimated number who will attend the event(s).
4
Proposed date(s), time(s) and duration of the event(s).
5
Copies of the notices of intention, i.e. the relevant pages of the newspaper containing the notice.
6
Written confirmation from the owner of the site that consent has been given for the holding of the event
(this does not apply if the event is under the control of the local authority).
7
A draft plan for the management of the event prepared in accordance with the relevant codes of
practice. This plan should include:
- Event details.
- Event management structure and responsibility, i.e. the names, contact details and responsibilities of
the event controller, safety officer, etc.
- Draft traffic management and crowd control plans.
- Risk assessments.
- Draft environmental programme for before, during and after the proposed event.
- Temporary structures/installations - provision for the removal of structures, reinstatement
requirements, etc.
- Draft persons with disability arrangements.
- Draft emergency arrangements inclusive of medical cover.
- Location map with sufficient detail and sufficient size of scale not less than 1:1000 in built up area
and 1:2500 in all other areas.
8
Fee: The local authority should state the amount to be paid and the means by which it should be paid. Source: Kilkenny County Council
Managing Risk for Public Events
9
IPB Insurance
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Ireland 2013. Be Part of It!
www.thegatheringireland.com
www.ipb.ie
IPB906Rev03.13
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