Sport Conventions

Recommendation on measures to be taken by organisers and public authorities concerning high-risk indoor sports events (94/1)

The Standing Committee (T-RV) of the European Convention on Spectator Violence and Misbehaviour at Sports Events and in Particular at Football Matches

Recalling its Recommendation N 1/93 on Measures to be taken by the Organisers of Football Matches and Public Authorities;

Considering that indoor sports facilities give rise to specific safety problems requiring particular measures to be taken;

Whereas, in connection with all sports events, the primary concern of all involved must be public safety both at the event itself and, when necessary, in "transit", and recalling that, without prejudice to the responsibilities of the organisers, the public authorities are ultimately responsible for public order;

Considering that such safety can only be ensured through observance by the organisers of safety rules and regulations, and close and effective co-operation by them with the public authorities;

Recalling the preventative work carried out by international sports federations in connection with safety measures at indoor sports events;

Noting also the standard-setting work carried out by European Committee for Standardisation concerning the accommodation of spectators and hoping that this work will soon help in ensuring a maximum of security for them throughout Europe;

Considering that the organisation of sports events is subject to the provisions of:

- Existing national legislation and local rules on the organisation of public events of the country where the match would take place, and of sports events in particular;

and (in States which are Party to it), of

- The European Convention on Spectator Violence and Misbehaviour at Sports Events and in Particular at Football Matches;

Whereas in this context the sovereign power of States to issue laws and regulations, binding on State organs and on individuals, concerning public order and safety in general and at sports events in particular must be borne in mind, together with their power and duty to ensure observance of such laws and regulations, notably by means of police forces;

Recalling its previous Recommendations on Guidelines for the control of Ticket Sales at high-risk matches (Recommendation N 1/89) and on the Promotion of safety at stadia (Recommendation N 1/91);

Feeling it advisable to produce guidelines for an agreement, in the form of a standard checklist of measures to be taken, to be concluded between the organisers of a high-risk sports event and the public authorities of the country where the event is to be organised, the aim of the agreement being the definition of the obligations and responsibilities of the organisers of high-risk indoor sports events on a European level, and recognising that some sports and high-risk sports events might require additional or different measures;

Recommends to Governments of Parties to the European Convention on Spectator Violence and Misbehaviour at Sports Events and in Particular at Football Matches:

I To make use of the Standard Checklist of measures to be taken by the organisers and public authorities concerning high-risk indoor sports events, appearing in the Appendix to the present Recommendation, with a view to identifying respective roles and responsibilities of those involved in the organisation of events and particularly high-risk ones.

II That the standard checklist, which is general in nature, be:

.adapted where necessary to local conditions on the basis of national legislation or local rules;

.applied principally to high-risk international events, but also be used where appropriate for other events such as national championship events or local events;

.used as the basis for agreements between the organisers and the public authorities, as early as possible before each event, on their respective role and responsibilities with regard to the measures included in the Checklist (which would not replace or supersede, but complement, other applicable legal provisions and regulations).

III That, wherever it is not already done, the public authorities draw up a comprehensive list of practical measures to be taken by the owners and managers of sports halls and the organisers of events including in particular detailed technical provisions for structural matters, regular inspections and tests of the roof and stands (particularly in the case of moveable structures), special checks in the case of severe weather (e.g. snow-loads), extreme temperature variations, use of chemical agents or other extraneous events which could impair structural safety; stairways and ramps, the provision of unobstructed assembly areas around the hall, fire and medical facilities, communications, lighting (emergency alternative electricity supply for communications and lighting), stewarding etc. Such national handbooks on crowd safety and control would provide clear guidelines for sports hall owners and managers, and facilitate compliance by the organisers with desirable standards to be observed.

IV That the public authorities invite the organisers or the competent national sports association or other responsible bodies to take all educational and social preventative measures that could contribute to a sporting event.

Standard Checklist of Measures to be taken by organisers and public authorities concerning high-risk indoor sports events

Directions for use

1. Those responsible for specific measures listed below should be identified with a cross in the appropriate column(s).

2. Wherever possible, the person(s) responsible should also be identified by name, and deadlines given for completion of the suggested measures.

3. Wherever possible, only one should be indicated as being responsible for each suggested measure.

4. Additions or modifications to the standard checklist measures should appear on the checklist itself.








I. To ensure the safety of spectators within and around the Sports hall, all measures necessary to ensure the orderly preparation of the event will be taken, including:

Structural Measures

1.- Verification of the hall's structure and deliverance of a safety certificate by public authorities (the facilities will have to meet the requirements of public authorities on the infrastructure and safety of facilities; this will particularly apply to temporary or "telescopic" stands and opening roofs where their use is permitted); assurance of all-seater capacity and provision for persons with disability.

2.- Careful upkeep of the facilities used for such matches, which will have to be cleaned and repaired where necessary, their structural stability and conformity to safety regulations being checked and certified regularly in accordance with the requirements of the public authorities, including seismic safety precautions in regions where earthquakes are a risk.

3.- Searches before the event for, and removal of, dangerous objects (for example, building materials, rubble, loose seats, glass or other rubbish) inside and in the vicinity of the sports hall in good time; eliminating or sealing off any construction site within or in the vicinity of the sports hall.

4.- Running a thorough check on the morning of the day of the match for bombs, smuggled smoke grenades, fireworks and/or other dangerous or suspicious objects; after this check only controlled access to the hall is to be permitted.

5.-Protection of the sports area (the term 'sports area' in the present text includes sports floors, ice-rinks, pool, ring, court or other area/surface required by the sport in question.) and access to it (by appropriate means, to be specified by the representatives of public authorities and the relevant sports federations.

6.- Protection of players (including protection of guest team during training sessions and transfers to and from the hall), officials and referees, also providing them with guarded parking spaces for their vehicles.

7.- Providing police forces with the facilities necessary for them (including where possible a command and control post, placed so as to get a good overall view of the hall, and equipped with a TV surveillance system), in accordance with national/local regulations.

8.- Appropriate measures to be taken by the organisers and public authorities to:

a. protect spectators from hazards occasioned by the sports concerned (e.g. flying ice hockey pucks); and

b. protect as far as possible, the players and playing area from objects thrown by spectators.

9.- Where appropriate, separation of opposing teams' supporters (including where necessary through the construction of separation barriers to be approved by the public authorities), if possible in sufficiently distant areas of the hall, equipped with separate sanitary facilities.

10.- Verifying the existence of adequate separate entrances and exits to the hall (with doors opening towards the exterior) and their efficient permanent staffing to ensure easy access and evacuation by the public; all exit doors should always be in a non-locked condition when there are spectators in the hall and should be permanently staffed to guard against abuse. There should be adequate, unobstructed areas around the hall to act as assembly areas in the case of evacuation. Exits should be designed to facilitate evacuation of handicapped people without impeding the evacuation of other spectators.

11.- Facilitating access by spectators to their seats with clear indication of the various stands, and their exits.

12.- Improving as far as possible the quality of spectators' accommodation in halls (including that for people with disabilities) (small sections; public refreshment bars and sanitary facilities).

13.- Ensuring good air quality, including a ban on smoking and the possibility of monitoring smoke density; and control of humidity and temperature.

Security Measures

14.- Giving the public authorities as early as possible all relevant information on the planned match, and in particular the names of the teams involved and of the organisers, the date, hour and place of the match, and any other information that might assist the authorities in evaluating the level of risk of the match;

15.- Alerting the public authorities to the possible needs for public order resources to counter outbreaks of violence and misbehaviour, both in the immediate vicinity of and inside sports halls, and along the transit routes used by spectators.

16.- Inspection of the hall in good time before the match, by representatives of the owners, the organisers (Including the Safety Manager - see paragraph 58 below) and those of the public authorities, to ascertain possible technical or material deficiencies and provide solutions to them; a final inspection will take place the day before the match.

17.- Arranging for Security services within the hall, in agreement with the Police and other emergency authorities; verifying that all safety and security personnel are clearly identifiable and in their allotted position in and around the hall before it is opened to the public, and that they are appropriately trained and aware of their duties.

18.- Providing rapid information for police emergency forces, enabling them to act quickly in case of need.

19.- Controlling the movement of spectators within and around the hall; providing a sufficient number of trained security personnel to assist spectators.

20.- Using the public address system and the score boards for crowd safety, enabling the Safety Manager (see paragraph 58 below), the Police and Emergency Services to inform or give directions to the spectators; instructions to speakers (who should be able to express themselves in the language of foreign supporters) to avoid undesirable comments liable to excite the public against the opposing team and its supporters, referees, officials and police forces; siting of the communication centres in such a way as it is protected from being taken over by unauthorised persons; provision of alternative emergency electricity supply to maintain visual and sound communications (as well as lighting) in an emergency.

21.- Installing closed-circuit video equipment (CCTV) should be present to monitor the situation, ensure crowd safety and identify offenders;

22.- Determining that the accommodation for spectators in the hall is suitable for the match concerned.

23.- Verifying the correct application by the Club or national sports association of relevant international federation guidelines and instructions.

24.- Arranging for adequate material and first aid assistance, fire prevention and other emergency services, and facilities for them; organising a radio-telephone link between the emergency services, the police forces and the Safety Manager (see paragraph 58).

Entry Controls

25.- Entry controls on spectators (including where necessary body checks, use of metal detectors and crowd searches).

26.- Providing safe storage for confiscated dangerous items, and personal belongings which are to be returned after the match.

27.- Where appropriate, controlling approaches to the hall with removable barriers.

28.- Excluding, in so far as it is legally possible, known and potential troublemakers from halls.

29.- Preventing access to the hall by any person in possession of dangerous objects, alcoholic drinks, pyrotechnics, smoke grenades, etc.; preventing access to any intoxicated person (alcohol, drugs). Taking into account the grave danger represented by fire in sports halls, ensuring strict control over the possession, even innocently, of flammable or combustible materials.

30.- Preventing access to the hall of any person in possession of racist or other offensive banners or signs and banners inciting to violence, and their display in the sports hall or its vicinity.

31.- Prohibition of sales of drinks in glass bottles, restriction and preferably banning of sale and distribution in the hall of alcohol and smoking materials and where appropriate restriction or preferably banning of alcohol and tobacco sales and distribution outside the hall and particularly in its vicinity; ensure that all beverages available are in safe containers.

II. Providing assistance and guidance for spectators to and from the Sports hall, including, where possible:

32.- Presence of staff at railway stations, airports, car parks and at main crossroads near the hall, and information on travel possibilities; in stations, signs indicating means of transport to/from hall;

33.- Where appropriate, separation of travel and approach routes of rival supporters (including car and coach parks).

34.- Co-operation with transport authorities, tour operators and transport companies, whose personnel should be specially trained.

35.- Facilitating the work of accompanying police forces (escorts) through exchange of information on supporters' movements.

36.- Providing after-match vigilance on supporters' activities (in city centres, on return means of transport, especially trains, etc..) and entertainment.

37.- Providing information, publicity, etc on desirable behaviour in the language of the visiting supporters, explaining inter alia the standards that the host will expect.

38.- Arranging a meeting point outside the hall, a lost children service and a lost property service to be manned at all times.

39.- Developing contacts with local citizens and regular supporters to explain measures taken for ordinary and for exceptional matches.

40.- Anticipating the degree of likely press and media interest in a match or tournament, preparing policies for press conferences and planning for consequences of possible events; training sports and police press officers in this respect.

41.- Co-ordination with police 'spotters', knowing the visiting supporters.

III. Controlling ticket sales (their quantity being agreed with the organisers and public authorities beforehand, bearing in mind the safe capacity of the sports hall and the need to ensure where appropriate optimal separation of the different fan groups), including:

42.- Ticket distribution, and organising ticket sales so that they take place without disturbances.

43.- Producing tickets in such a way as to render production and use of counterfeit or bogus tickets difficult, simplify control (for ex. by making them machine readable, using appropriate numbering and colour codes, etc.), direct and canalise spectators to their seats and avoid exceeding the authorised capacity of the hall.

44.- Devising a system for checking and tracing purchasers of tickets where appropriate (eg voucher scheme) and defining the role of clubs, sports associations or supporters' clubs in supervising the distribution of allocated tickets, and particularly free and reduced price tickets; wherever possible, the sale of tickets will be computerised.

45.- Reducing the number of tickets which any one individual may purchase and the number of tickets available to away supporters, and restricting the number of tickets available for purchase in bulk.

46.- Where necessary, reducing the overall number of tickets for sale, bearing in mind safety, control and public order factors.

47.- Controlling tickets at the entrances and preventing illegal entry.

48.- Informing would-be spectators as soon as possible, through the appropriate national and international channels, when a match is sold out.

49.- Regular review by sports associations, Clubs and the Police of their lists of known and potential troublemakers.

IV. Planning of all financial matters related to the match, and particularly matters relative to security and safety well in advance, including :

50.- Contracting adequate insurance cover for medical, fire, and general accident hazards, and damage caused by supporters within the hall.

V. Any other matter related to the organisation of the match, such as:

51.- Preliminary contact between the police and the guest team's country's embassy/consulate, in order to ensure rapid communication in case of need.

52.- Providing ad hoc entertainment programmes suitable for visiting supporters.

53.- Co-operation with supporters' clubs to obtain their help in avoiding incidents, and making clubs aware of their own responsibilities in safety and security matters.

54.- Publishing lists of prohibited objects.

55.- Making useful information available to the fans (bus and other public transport lines to and from the hall, parking facilities, customs provisions and visa requirements, accommodation and eating possibilities and their average prices etc..); where possible, providing appropriate accommodation for visiting supporters.

56.- Liaising with the media in a spirit of co-operation, particularly concerning information for supporters and the number of media representatives circulating near the playing field.

57.- Distraction and entertainment of spectators before the game (curtain-raiser match, music, etc.).

VI. Co-ordination measures

58.- To ensure appropriate co-ordination, before the match the organisers shall nominate a Safety Manager, in charge of contacts with the public authorities and their consultation, and liaison with the Police and Emergency Services, granting him/her the necessary resources to carry out the tasks for which he/she is responsible, including access to and radio communication with the command post.

59.- The Safety Manager will evaluate on behalf of the organisers the degree of risk which the match presents, and supervise on their behalf the application of the safety measures mentioned above, and the dissemination of information to spectators on safety measures, particularly concerning objects which may not be introduced in the hall.

60.- The Safety Manager, in liaison with the representative of the public authorities empowered to authorise the staging of the match and will ensure the implementation of those safety measures which are the organisers' responsibility.

For high-risk matches, the Safety Manager will ensure that there are a sufficient number of coordination meetings with all parties involved in planning and supervising the staging of the match.

61.- The Police Department, the Fire Department, and Medical Emergency bodies will each name a representative, who will attend the coordination meetings.

62.- After the match, the Safety Manager will draw up a report on the effectiveness of preventative measures taken, to be sent to the appropriate authorities.

63.- The Police Commander and the Safety Manager will make contact with the match officials before the match.

64.- Where appropriate, the public authorities will authorise the match after checking compliance by the organisers with applicable legislation (if any) on the staging of public events and the safety of public buildings, and any other obligation of the organisers, including those listed above.

65.- The organisers will be informed by the public authorities as soon as possible of any objection to the staging of the match(es) and/or of any particular condition which would have to be fulfilled before the match(es) could take place.

66.- A Crisis Group, including the Safety Manager, senior representatives of the Police, Fire Department, Medical Emergency, the competing teams, the Sports hall authority and the Public Authorities, will meet in case of need before or during the match, to take urgent decisions where appropriate; arrange a key word known to Crisis Group members only, to be used through the public address system as call in case of need.

67.- After the match, examine measures taken and draw lessons.