Reports & recommendations

The Secretary of State should ensure that spectators are admitted only to seated accommodation at matches played at sports grounds designated under the Safety of Sports Grounds Act 1975 in accordance with the timing set out in Recommendations 2 to 4 below.

Subject to Recommendation 2 above, Recommendation 1 above should apply with effect from the start of the 1994/5 season to all matches at grounds in the first and second divisions of the Football League, the Premier Division of the Scottish Football League, and at national stadia, subject to a reasonable extension of time in the case of a club promoted to the second division of the Football League or the Premier Division of the Scottish Football League. Standing accommodation at these grounds should be reduced annually by 20% of the present standing capacity (such present standing capacity to be calculated according to Recommendation 8 below), the first 20% deduction being effective from August 1990 so as to eliminate standing by August 1994.

Subject to Recommendation 2 above, Recommendation 1 should apply with effect from the start of the 1999/2000 season to all matches at all other grounds designated under the Safety of Sports Grounds Act 1975. Standing accommodation at these grounds should be reduced annually by 10% of the present standing capacity (such present standing capacity to be calculated according to Recommendation 8 below), the first 10% deduction being effective from August 1990 so as to eliminate standing by August 1999.

The Football Association and the Football League should establish an Advisory Design Council whose functions should be:
(a) to conduct and marshal research into the improvement and design of football stadia;
(b) to disseminate regularly such information and expertise as they acquire in this field to members of the Football League and, on request, to other football and sports clubs in England, Wales and Scotland.

(a) If Part I of the Football Spectators Act 1989 is implemented, section 13 should be brought into force giving the Football Licensing Authority the functions and powers therein specified (power to review the discharge of functions by local authorities). If Part I of the Act is not implemented or is substantially delayed, other arrangements should be made for the discharge of the functions and powers in section 13 of the Act by the appointment of a body to exercise them.
(b) In either event, the body exercising those functions and powers in relation to association football should also be entrusted with similar functions and powers regarding the discharge by local authorities of their certifying and licensing functions in relation to other sports grounds and sports entertainments pursuant to the Safety of Sports Grounds Act 1975 and Parts III and IV of the Fire Safety and Safety of Places of Sport Act 1987.

Where a viewing terrace is divided into pens or areas which are self-contained, the Safety Certificate should specify the maximum number of spectators to be admitted to each such pen or area.
A pen or area is to be deemed "self-contained" notwithstanding that it has a gate or gates affording access to another pen or area and whether such gate or gates be open or shut.

Each figure for maximum capacity should be assessed in accordance with Chapter 16 of the Green Guide ("the Green Guide figure") subject to the following qualifications:-
(a) the maximum density permitted under paragraphs 221 and 222 of the Green Guide (when the terrace or viewing slope is in good condition) should be 47 not 54;
(b) the minimum figure specified in paragraphs 221 and 222 (when the terrace or viewing slope materially deviates from the recommended guidelines, so as to constitute a possible hazard to individuals closely packed) should be 0 not 27;
(c) in arriving at "the Green Guide figure", proper and realistic allowance must be made for all factors which should reduce the permissible density including those specified in paragraphs 220 to 224 inclusive of the Green Guide.

Arrangements should be made:-
(a) to limit the number of spectators entering each self-contained pen or area to the maximum capacity figure assessed in accordance with Recommendation 8 above either electronically, mechanically, by a ticketing arrangement, by counting or otherwise, and
(b) to close off further access to such pen or area when its maximum capacity is about to be reached.

The maximum notional rate at which spectators can pass through a turnstile should be 660 persons per hour, not 750 per hour as stated in paragraph 47 of the Green Guide. The maximum rate for any particular turnstile must take full account of all circumstances including those given as examples in paragraph 47.

There should be a written statement of intent, agreed between the club and the police, setting out their respective functions as to crowd safety and control and in particular as to the filling of each self-contained pen or other standing area and the monitoring of spectators in each such pen or area to avoid overcrowding. Any variation of the document in respect of an individual match should be agreed in writing in advance.

(a) At each match, there should be on the perimeter track, for each self-contained pen or other standing area (subject to (b) below), a steward (if the club is monitoring that area) or a police officer (if the police are monitoring it) whose sole duty is to check crowd conditions in that area for possible overcrowding or distress throughout the period the area is occupied by spectators. Whoever is so appointed should be in addition to any other steward or police presence. He should have ready access to a police officer who can authorise access through gates to the pitch under Recommendation 20 below.
(b) This Recommendation need not be applied to any self-contained pen or other standing area where the spectators present, or reasonably to be expected, during a particular match do not exceed one third of the area's maximum permitted capacity, or 2,000, whichever is the lower.

Gangways should be kept clear, in accordance with paragraphs 97 to 99 of the Green Guide. Gangways should be painted in a conspicuous colour whether they are sunk or not. The Safety Certificate should require that no standing is allowed in gangways and that they be painted.

All police officers and stewards with duties in relation to the standing areas and especially those with duties under Recommendation 12 above, should be fully briefed and trained with regard to the recognition of crowd densities, to the recognition of signs of distress and to crowd dynamics. Training should include demonstrations at the ground and photographs, designed to enable stewards and officers to recognise different crowd densities.

There must be provided in any perimeter fence of a pen or other self-contained area sufficient gates of a minimum width of 1.1 metres to enable that pen or area to be evacuated onto the pitch in the time prescribed for an emergency evacuation of that pen or area.

Where there is a perimeter fence in front of a pen or enclosure, all gates to the pitch should be kept fully open during the period when spectators are in the pen or enclosure, wherever those in command feel that this can safely be done. Whether they be fully open, partially open or closed, they should be kept unlocked throughout the period when the pen or enclosure is occupied.

Each gate in a perimeter fence affording access to the pitch from a pen or enclosure should be manned by a steward or by a police officer when the pen or enclosure is occupied. Whether such manning should be by a police officer or by a steward should be decided by the Police Commander. In either event, the Police Commander should appoint one or more police officers with power to authorise access through gates to the pitch immediately in the event of an emergency.

Suitable and sufficient cutting equipment should be provided by the club at each ground where there are perimeter fences to permit the immediate removal of enough fencing to release numbers of spectators if necessary. Agreement should be reached as to whether the equipment should be used by police, the fire brigade or stewards. Whoever is to use it should be trained to do so. Whether to use it should be a decision of a nominated senior police officer at the ground.

The layout of barriers in each pen or terraced area should be reviewed immediately (if this has not already been done following the Interim Report) to ensure that it complies with the criteria contained in Chapter 9 of the Green Guide. If it does not, the assessment of the maximum capacity figure for that pen or terraced area, in accordance with Recommendation 8 above, should reflect the fact.

The Secretary of State should exercise his powers under either section 6(2) or section 15(A) of the Safety of Sports Grounds Act 1975 so as to make mandatory in Safety Certificates those conditions specified in the original section 2(2) of the 1975 Act. So far as the original section 2(2)(b) is concerned "shall" should be substituted for "may".

In assessing these mandatory requirements in the Certificate for a particular ground, the local authority should follow the Green Guide criteria. Once that is done, the resultant figures and terms for that ground should be specified in the Safety Certificate and no variation from them should be permitted other than by formal revision.

Where a local authority incorporates any provision of the Green Guide into the Safety Certificate, othei than one within the scope of Recommendation 25 above, it should make clear whether that provision is to be complied with absolutely or with discretionary flexibility.

There should be an immediate review of each Safety Certificate (if this has not already been don< following the Interim Report) by the responsible local authority, which should consult the club in respect oi which the Certificate is issued, the police, the fire service, the ambulance service and the building authority. Such a review should include an inspection of the stadium. Its object should be to ensure that the operative conditions of the Certificate are complied with and to add or substitute any condition shown to be necessary as t matter of urgency following the findings and Recommendations in this Report.

Each local authority should review its arrangements for issuing, monitoring, enforcing, reviewing, amending and renewing Safety Certificates (if this has not already been done following the Interin Report). Such review should require that there exists or is provided an accountable administrative structure whereby the functions of the local authority are regularly and effectively supervised by senior officers and elected members and decisions are properly taken in accordance with the local authority's rules.

To assist the local authority in exercising its functions, it should set up an Advisory Group (if this has not already been done) consisting of appropriate members of its own staff, representatives of the police, of the fire and ambulance services and of the building authority. The Advisory Group should consult representatives of the club and of a recognised supporters' organisation on a regular basis. The Advisory Group's terms of reference should encompass all matters concerned with crowd safety and should require regular visits to the ground and attendance at matches. The Advisory Group should have a chairman from the local authority, and an effective procedure. Its resolutions should be recorded and it should be required to produce regular written reports for consideration by the local authority.

Each turnstile should be inspected and its potential rate of flow measured (if this has not already been done following the Interim Report). Thereafter, regular inspections should be made to ensure that each turnstile remains capable of admitting spectators at the rate anticipated.

The correlation between each viewing area in the stadium and the turnstiles serving it should be such as to ensure that all the spectators intended to be admitted to that viewing area can pass through the turnstiles within one hour. If that cannot be done, the capacity of that viewing area should be reduced accordingly. Since this Recommendation includes terms and conditions within the scope of the original section 2(2)(c)(i) of the Safety of Sports Grounds Act 1975 it should be given effect in the Safety Certificate (see Recommendation 24 above).

All signposting for spectators both outside and inside the ground should be comprehensively reviewed (if this has not already been done following the Interim Report). It should, in relation to the arrangements for each match, be unambiguous, eye-catching, simple and clear and should be designed to ensure the rapid movement of spectators to their appropriate viewing areas. Any redundant signs should be removed.

Information on tickets should be unambiguous, simple and clear and should correlate absolutely with the information provided in respect of each match both outside and inside the ground. Retained ticket stubs should contain information necessary to guide spectators once inside the ground.

Information on tickets requesting spectators to be in position by a particular time should be reviewed (if this has not already been done following the Interim Report) by clubs in conjunction with the police to ensure that it corresponds with the planned arrangements for admitting spectators to the ground.

All-ticket matches should be confined to those at which a capacity or near capacity crowd is expected. When a match has been designated all-ticket, clubs should not sell tickets at the match and should take steps to advise the spectators of both clubs accordingly.

Clubs should recruit and retain sufficient competent stewards. They should be fit, active and robust, and preferably between the ages of 18 and 55. Clubs should ensure that stewards are fully trained, aware of their duties under Annex B of the Green Guide and under the statement of intent (see Recommendation 11) and able to perform them.

The club s,hould provide a police control room which is:-
(a) well placed, so as to command a good view of the whole pitch and of the spectator area surrounding it;
(b) of sufficient size for the commander, his deputy and enough officers to operate the radios, telephones and CCTV screens. There should be space for others who may need from time to time to visit the room eg other senior officers, club management or a member of the emergency services;
(c) well equipped with CCTV, radio and telephone facilities and, where necessary, sound-proofed against excessive crowd noise.
It should be the duty of the club to provide a room and equipment to the satisfaction of the chief officer nominated under Recommendation 44 below.

The Chief Constable of each police force in whose area there is one designated sports ground or more should nominate a chief officer to liaise with the management of each football club and local authority concerned in respect of the safety and control of crowds.

The Operational Order for each match at a designated sports ground, and the pre-match briefing of all officers on duty there, should alert such officers to the importance of preventing any overcrowding and, if any is detected, of taking appropriate steps to remedy it.

The Operational Order for each match at a designated sports ground should enable the police to cope with any foreseeable pattern in the arrival of spectators at a match and in their departure. It should provide for sufficient reserves to enable rapid deployment of officers to be made at any point inside or outside the ground.

There should be available in the police control room the results of all closed circuit television monitoring outside and inside the ground and the record of any electronic or mechanical counting of numbers at turnstiles or of numbers admitted to any area of the ground. Officers in the control room should be skilled in the interpretation and use of these data.

Consideration should be given to the provision of a specific training course for senior officers presently acting as Police Commanders and those in line to do so. Such a course should include training in the basic strategy of policing football matches.

Police authorities should review the charges they make to clubs for the costs of policing inside grounds so as to ensure that realistic charges are made. The Home Office should take steps to ensure consistency of practice, subject to local discretion and the need to have regard to local circumstances.

There should be sufficient operators in the police control room to enable all radio transmissions to be received, evaluated and answered. The radio system should be such as to give operators in the control room priority over, and the capacity to override, others using the same channel. Additional channels should be used, where necessary, to prevent overcrowding of the airwaves.

Within the control room, there should be a public address system to communicate with individual areas outside and inside the ground, with groups of areas or with the whole ground. Important announcements should be preceded by a loud signal to catch the attention of the crowd despite a high level of noise in the ground. This arrangement should be prominently advertised on every programme sold for every match.

Before each match at a designated sports ground the police should ensure that the fire service and ambulance service are given full details about the event, including its venue, its timing, the number of spectators expected, their likely routes of entry and exit, and any anticipated or potential difficulties concerning the control or movement of the crowd. Such details should be readily available in the control rooms of each of the emergency services.

There should be at each designated sports ground one or more first aid rooms. The number of such rooms and the equipment to be maintained within them should be specified by the local authority after taking professional medical advice and should be made a requirement of every Safety Certificate.

(a) At every match where the number of spectators is expected to exceed 2,000, the club should employ a medical practitioner to be present and available to deal with any medical exigency at the ground. He should be trained and competent in advanced first aid. He should be present at the ground at least an hour before kick-off and should remain until half an hour after the end of the match. His whereabouts should be known to those in the police control room and he should be immediately contactable.
(b) At any match where the number of spectators is not expected to exceed 2,000, the club should make arrangements to enable a medical practitioner to be summoned immediately to deal with any medical exigency at the ground. He should be trained and competent in advanced first aid. The arrangements made should be known to those in the police control room.

Consideration should be given to extending the courts' powers to make attendance centre orders for football related offences on occasions of designated football matches. The provision should be capable of imposition on an offender aged 21 or over and subject to a maximum of 72 hours in the case of an offender aged 17 or over.

Where a viewing terrace is divided into pens or areas which are self-contained, the Safety Certificate should specify the maximum number of spectators to be admitted to each such pen or area. A pen or area is to be deemed "self-contained" notwithstanding that it has a gate or gates affording access to another pen or area and whether such gate or gates be open or shut.

Each figure for maximum capacity should be assessed in accordance with Chapter 16 of the Green Guide ("the Green Guide figure") subject to the following qualifications:- (a) in arriving at "the Green Guide figure", proper and realistic allowance must be made for all factors which should reduce the permissible density in accordance with the range of maximum figures specified in paragraphs 221 and 222 of the Green Guide; (b) after assessing "the Green Guide figure", a deduction of 15% should be made to improve the safety margin.

Arrangements should be made:- (a) to limit the number of spectators entering each self-contained pen or area to the maximum capacity figure assessed in accordance with Recommendation 2 above either electronically, mechanically, by a ticketing arrangement, by counting or otherwise, and (b) to close off further access to such pen or area when its maximum capacity is about to be reached.

There should be a written agreement between the club and the police setting out their respective responsibilities for crowd safety and control and in particular for the filling of each self-contained pen or other terraced area and the monitoring of spectators in each such pen or area to avoid overcrowding. Any variation of the agreement in respect of an individual match should be agreed in writing in advance.

At each match, there should be on the perimeter track, for each self-contained pen or other terraced area, a steward (if the club is monitoring that area) or a police officer (if the police are monitoring it) whose sole duty is to check crowd conditions in that area for possible overcrowding or distress throughout the period the area is occupied by spectators. Whoever is so appointed should be in addition to any other steward or police presence. He should have ready access to the police officer authorised under Recommendation 9 below, and by radio to the control room.

All police officers and stewards with duties in relation to the terraced areas and especially those with duties under Recommendation 5 above, should be fully briefed and trained with regard to the recognition of crowd densities, to the recognition of signs of distress and to crowd dynamics. Training should include demonstrations at the ground and photographs, designed to enable stewards and officers to recognise different crowd densities.

There should be in respect of each gate in a perimeter fence (or group of gates if they are close together) a police officer authorised to decide whether or not to allow spectators through a gate to relieve overcrowding. The officer so authorised in respect of each gate should be identified for each match and known to be so by all stewards and police officers in that vicinity. He should be able to make radio contact with the control room either himself or via an officer close at hand.

Suitable and sufficient cutting equipment should be provided by the club at each ground where there are perimeter fences to permit the immediate removal of enough fencing to release numbers of spectators if necessary. Agreement should be reached as to whether the equipment should be used by police, the fire brigade or stewards. Whoever is to use it should be trained to do so. Whether to use it should be a decision of a nominated senior police officer at the ground.

The layout of barriers in each pen or terraced area should be reviewed immediately to ensure that it complies with the criteria contained in Chapter 9 of the Green Guide. If it does not, the assessment of the maximum capacity figure for that pen or terraced area, in accordance with Recommendation 2 above, should reflect the fact.

There should be an immediate review of each Safety Certificate by the responsible local authority, which should consult the club in respect of which the Certificate is issued, the police, the fire service, the ambulance service and the building authority. Such a review should include an inspection of the stadium. Its object should be to ensure that the operative conditions of the Certificate are complied with and to add or substitute any condition shown to be necessary as a matter of urgency following the findings and recommendations in this report.

Each local authority should review its arrangements for issuing, monitoring, enforcing, reviewing, amending and renewing Safety Certificates. Such review should require that there exists or is provided an accountable administrative structure whereby the functions of the local authority are regularly and effectively supervised by senior officers and elected members and decisions are properly taken in accordance with the local authority's rules.

To assist the local authority in exercising its functions, it should set up an Advisory Group consisting of appropriate members of its own staff, representatives of the police, of the fire and ambulance services, of the building authority, of the club and of a recognised supporters' club. The Advisory Group's terms of reference should encompass all matters concerned with crowd safety and should require regular visits to the ground and attendance at matches. The Advisory Group should have a chairman from the local authority, and an effective procedure. Its resolutions should be recorded and it should be required to produce regular written reports for consideration by the local authority.

The correlation between each viewing area in the stadium and the turnstiles serving it should be such as to ensure that all the spectators intended to be admitted to that viewing area can pass through the turnstiles within one hour. If that cannot be done, the capacity of that viewing area should be reduced accordingly.

All signposting for spectators both outside and inside the ground should be comprehensively reviewed. It should, in relation to the arrangements for each match, be unambiguous, eye-catching, simple and clear and should be designed to ensure the rapid movement of spectators to their appropriate viewing area.

Information on tickets should be unambiguous, simple and clear and should correlate absolutely with the information provided in respect of each match both outside and inside the ground. Retained ticket stubs should contain information necessary to guide spectators once inside the ground.

The Chief Constable of each police force in whose area there is one designated stadium or more should nominate a chief officer to liaise with the management of each football club and local authority concerned in respect of the safety and control of crowds.

The Operational Order for each match at a designated stadium and the pre-match briefing of all officers on duty there should alert such officers to the importance of preventing any overcrowding and, if any is detected, of taking appropriate steps to remedy it.

The Operational Order for each match at a designated stadium should enable the police to cope with any foreseeable pattern in the arrival of spectators at a match and in their departure. It should provide for sufficient reserves to enable rapid deployment of officers to be made at any point inside or outside the ground.

There should be available in the police control room the results of all closed circuit television monitoring outside and inside the ground and the record of any electronic or mechanical counting of numbers at turnstiles or of numbers admitted to any area of the ground. Officers in the control room should be skilled in the interpretation and use of these data.

There should be sufficient operators in the police control room to enable all radio transmissions to be received, evaluated and answered. The radio system should be such as to give operators in the control room priority over, and the capacity to override, others using the same channel. Additional channels should be used, where necessary, to prevent overcrowding of the airwaves. Consideration should be given to sound-proofing the control room against excessive crowd noise.

Within the control room, there should be a public address system to communicate with individual areas outside and inside the ground, with groups of areas or with the whole ground. Important announcements should be preceded by a loud signal to catch the attention of the crowd despite a high level of noise in the ground. This arrangement should be prominently advertised on every programme sold for every match.

Use should be made where possible of illuminated advertising boards to address the crowd. Consideration should also be given to the use by police officers of a simple code of hand signals to indicate to the control room the existence of certain emergencies or requirements.

Before each match at a designated stadium, the police should ensure that the fire service and ambulance service are given full details about the event, including its venue, its timing, the number of spectators expected, their likely routes of entry and exit, and any anticipated or potential difficulties concerning the control or movement of the crowd. Such details should be readily available in the control rooms of each of the emergency services.

There should be at each stadium one or more first aid rooms. The number of such rooms and the equipment to be maintained within them should be specified by the local authority after taking professional medical advice and should be made a requirement of any Safety Certificate.

The club should employ a medical practitioner to be present at each match and available to deal with any medical exigency at the ground. He should be trained and competent in advanced first aid. He should be present at the ground at least an hour before kick-off and should remain until half an hour after the end of the match. His whereabouts should be known to those in the police control room and he should be immediately contactable.