Sport and Safety Management Thispageintentionallyleftblank Sport and Safety Management Edited by Steve Frosdick and Lynne Walley Staff ordshire University ELSEVIER BUTTERWORTH HEINEMANN AMSTERDAM BOSTON HEIDELBERG LONDON NEW YORK OXFORD PARIS SAN DIEGO SAN FRANCISCO SINGAPORE SYDNEY TOKYO Elsevier Butterworth Heinemann Linacre House, Jordan Hill, Oxford OX2 8DP 200 Wheeler Road, Burlington, MA 01803 First published 1997 Paperback edition 1999 Transferred to digital printing 2003 Copyright 0 1997 Steve Frosdick and Lynne Walley. All rights reserved The right of Steve Frosdick and Lynne Walley to be identified as the authors of this work has been asserted in accordance with the Copyright, Designs and Patents Act 1988 No part of this publication may be reproduced in any material form (including photocopying or storing in any medium by electronic means and whether or not transiently or incidentally to some other use of this publication) without the written permission of the copyright holder except in accordance with the provisions of the Copyright, Designs and Patents Act 1988 or under the terms of a licence issued by the Copyright Licensing Agency Ltd, 90 Tottenham Court Road, London, England WIT 4LP. Applications for the copyright holder’s written permission to reproduce any part of this publication should be addressed to the publisher Permissions may be sought directly from Elsevier’s Science & Technology Rights Department in Oxford, UK: phone: (+44) 1865 843830, fax: (+44)1865 853333, e-mail: [email protected]. You may also complete your request on-line via the Elsevier homepage (http: // www.elsevier.com), by selecting ’Customer Support’ and then ’Obtaining Permissions’ British Library Cataloguing in Publication Data A catalogue record for this book is available from the British Library Library of Congress Cataloguing in Publication Data A catalogue record for this book is available from the Library of Congress ISBN 0 7506 4351 X For information on all Elsevier Butterworth-Heinemann publications visit our website at www.bh.com Printed and bound in Great Britain Preface vii About the contributors ix Acknowledgements xv Foreword by Jack Gawford xvii Part One Introduction 1 1 Beyond football hooliganism 3 Steve Frosdick 2 The failure of legislation by crisis’ 11 Dominic Elliott, Steve Frosdick and Denis Smith Part Two Accountability 31 3 Risk as blame 33 Steve Frosdick 4 The changing face of criminal liability 41 Lynne Walley 5 Who is liable? - a police perspective 56 Alan Beckley 6 The origins and role of the Football Licensing Authority 68 ]ohn de Quidt Part Three Theory 83 7 Waiting for the next one: Management attitudes to safety in the UK football industry 85 Dominic Elliott and Denis Smith 8 Understanding cultural complexity 108 Steve Frosdick and Gerald Mars 9 Cultural complexity in the British stadia safety industry 115 Steve Frosdick 10 Safety cultures in British sports grounds 136 Steve Frosdick vi Contents Part Four Practice 155 11 Designing for safety 157 Steve Frosdick 12 Safety risks in stadia and sports grounds 172 Me1 Highmore 13 Crowd risks in sports grounds 186 Clive Wame 14 Risky business 201 Glyn Wootton and Peter Mills 15 The evolution of safety management and stewarding at football grounds 209 Steve Frosdick and ]ohn Sidney 16 Playing away in Europe 221 Steve Frosdick, Mike Holford and ]ohn Sidney 17 Policing Euro '96 239 Byan Drew Part Five Vision 253 18 The strategic development of sports safety management 255 Steve Frosdick 19 Managing risk in public assembly facilities 273 Steve Frosdick 20 How are we doing? where are we going? 283 Lynne Walley Useful addresses 292 Index 307 My father first took me to Griffin Park on 18 March 1967. Along with 6339 other people, I saw Brentford beat Rochdale by four goals to nil. I was nine years old and fascinated by the spectacle: the stadium, the sense of belonging to the crowd, the colour, noise and smells, the excitement of the play, the whole atmosphere of the place. So began a lifelong interest in football, crowds and sports grounds. I continued to visit Brentford regularly throughout my youth and bachelor years in the police service. At the same time, I became involved in policing large crowds on occasions such as football matches, pop concerts and demonstrations. Whilst on duty at a rally in East London on 11 May 1985, I stood outside a television rental showroom and watched in horror as over fifty people burned to death in a grandstand at Valley Parade in Bradford. I was deeply touched by what I saw. In later years, I returned to Brentford as a police inspector and saw at first hand the police response to the 1989 disaster at Hillsborough Stadium, Sheffield and the subsequent reports by Lord Justice Taylor. In 1992, I was fortunate enough to have the chance to study for a higher degree. I wanted to look in detail at how sporting events are managed, to understand more about why disasters happen and how they might be better prevented. In 1994, having concluded my studies and become a Christian, I felt it was right to leave the police and earn my living as a writer, researcher and consultant in the field of risk management, particularly in the context of sport and safety management. My mission was to make a contribution to knowledge of how to improve safety and reduce the risk of future disasters in public assembly facilities. In 1995, I began to collaborate with Lynne Walley in the Centre for Public Services Management and Research at Staffordshire University. My interests in safety and accountability dovetailed neatly with her interests in legal liability and we became involved together in organizing a number of seminars dealing with sport and safety management. Several of the contributors to this book were speakers at those seminars, giving valuable insights from a practitioner perspective. We eventually realized that their papers, together with the outcomes of our own viii Preface research, our collaboration with other academics and our consultancy activities, provided the basis for a publication. We knew from our contacts in the world of British football that it was an almost daily experience for clubs and the authorities to receive enquiries about safety management. These came from students from diverse disciplines such as sociology, sports sciences and leisure management. At the same time, we were aware that practitioners had been faced with a post-Hillsborough deluge of guidelines on various safety matters, focused on football, yet having equal validity for the wider sports and leisure context within public assembly facilities. We realized too that the popularity of football and the concentration of disasters within the sport meant that the subject of spectator safety in sport would be of interest to the general reader. This book therefore represents the outcome of five years' research and consultancy work. We hope the book will have a broad appeal, that the effort will have been worthwhile and that we will have been able to support an ongoing process of continuous incremental improvement in sport and safety management. Steve Frosdick and Lynne Walley Sfafordshire University, November 1996 Alan Beckley has served for twenty-five years in the police service in Surrey, Shropshire and Hereford and Worcester. He currently holds the rank of Chief Inspector, working at Kidderminster divisional headquarters of the West Mercia Constabulary. Postings have varied between large urban areas and small rural towns. Between 1991 and 1995 his role involved planning major policing operations, contingency planning and fulfilling many liaison functions with police and other organizations at national, regional, county and local levels. In 1995, he completed a year-long part-time research project funded by the Home Office on the personal liability of police officers following major and critical incidents. Several articles from the research have been published in national policing magazines. He is working on a Master's degree in Law, and holds several posts in voluntary youth organizations. Bryan Drew Bryan Drew joined the Metropolitan Police Service in 1974 and has worked in many areas of London as an operational officer. In 1989 he was selected as one of a small team of officers tasked with establishing the National Football Intelligence Unit (NFIU), where he served until the NFIU became an integral part of the National Criminal Intelligence Service (NCIS) in April 1992. He was worked in the NCIS since 1992, more recently as a Detective Chief Inspector, Head of Specialist Crime. He is a member of the Association of Chief Police Officers (ACPO) Public Order Sub- committee which deals with policy matters in respect of the policing of football in England and Wales and was a member of the Euro '96 ACPO Steering Group, chairing the Information Technology Sub-Group. He was promoted to Detective Superintendent, Head of the Strategic and Specialist Intelligence Branch of the NCIS in September 1996. x About the contributors Dominic Elliott, BA (Hons), MBA, MMS Dip Dominic Elliott has taught and researched in the fields of strategy and crisis management at a number of universities. He is currently a Principal Lecturer in corporate strategy at Leicester Business School, De Montfort University. He is also a visiting lecturer at the Universities of Sheffield and Birmingham. Dominic has taught on a variety of executive MBA programmes and has worked in a consultancy and training capacity with executives from a range of organizations including IBM, the Royal Mail, Philips and the Foreign Office. He has written a number of publications in the fields of strategic and crisis management. His doctoral research examines the development of crisis within the post-war UK Football Industry, with particular emphasis upon the 1970 to 1996 period. Dominic is a Leicester City supporter and thus has had many years experience of the ups and downs of professional football! Steve Frosdick, MSc, MIIRSM Steve Frosdick is a company director and a Visiting Fellow at both Staffordshire and Bradford University.