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Dáil Éireann díospóireacht -
Wednesday, 24 Mar 1999

Vol. 502 No. 4

Adjournment Debate. - Outdoor Events.

The event about which I am asking questions was very enjoyable for many hundreds of thousands of people, not only those who attended but also those who watched on television. Only those caught up in the worst of the crushing and the overcrowding which occurred during and after the fireworks display on the Saturday before St. Patrick's Day appreciate how close Dublin came to suffering a tragic disaster. It was not just that inadequate transport and stewarding caused inconvenience and discomfort, many of those caught up in the event thought they would die and feared a Hillsborough-type disaster was imminent.

The event was a great success and thoroughly enjoyed by those who saw it, but the transport arrangements were inadequate and stewarding and policing arrangements after the event almost nonexistent. An estimated 250,000 people attended the event, almost four times the number that would attend an all-Ireland final in Croke Park, yet incredibly no extra public transport appears to have been laid on despite the advertisements in the media encouraging people to use the DART and bus services. Those who left their cars behind had to endure huge queues on the way and long delays on the return journey. Many families with small children did not make it home until almost midnight, and that was after having to endure dangerous and distressing crushing at bus queues and DART stations. The situation at the latter was serious, with dangerous crushing on platforms and inadequate stewarding, leading some to fear they were going to be pushed onto the tracks in the path of oncoming trains.

The stewarding arrangements after the event were equally inadequate as 250,000 people attempted to make their way home. There was serious crushing in parts of the city centre, and I have heard reports of families taking almost an hour to make their way from O'Connell Bridge to Parnell Square. Had the crowd not been so good humoured and controlled, anything could have happened. All it required was for a small number of people to panic or for people to begin to fall to have led to utter disaster.

Since I first raised the matter last week, a number of journalists have written graphically of their frightening experiences which confirm many of the accounts given to me by letter and telephone. Niamh O'Connor reported in Ireland on Sunday:

On Capel Street Bridge, a man had a heart attack. On O'Connell Bridge, a woman thought her baby had stopped breathing. The numbers on the Ha'penny Bridge reached such crowded levels that it will be closed off for the millennium weekend...

At 7.40 p.m. the crowd on O'Connell Bridge turned from a throng into a heaving, seething mass within the space of seconds. Cars and buses were surrounded, drivers and passengers trapped inside. People pushed and shoved and got nowhere...and then there wasn't even enough room to push and shove anymore.

One young woman began to get more and more frantic. She was begging people to please let her through. The ones who bothered to answer said there was nowhere to go.

That is a situation which clearly could have led to serious consequences. There were other reports in The Irish Times and elsewhere from journalists who were on the spot and saw these things for themselves, despite the fact that the organisers, Garda and ambulance services claimed there were no untoward incidents. A report in The Irish Times stated it took an ambulance seven minutes to cross O'Connell Bridge. No one knows why the ambulance was trying to get across at that point. It seems crazy that an emergency service would seek to get through such a crowd when it was apparently on an emergency call. It does not make sense.

Dublin was lucky a serious disaster did not occur last Saturday night week, but we cannot ignore the lessons to be learned. The Department of the Environment and Local Government should now convene a meeting of the Dublin local authorities, the Garda, Dublin Bus and Iarnród Éireann and prepare a major events management plan to ensure that, when events are held in the city centre in future, effective transport and stewarding arrangements are in place to allow them be enjoyed by the public in comfort and safety.

Dublin has become a more lively and enjoyable place in which to live over the past decade. Events such as the parade and the fireworks display are welcome because they provide enjoyment and entertainment and bring people into the city centre, which is good for the business, social and cultural life of the capital. I hope they will continue, but we cannot continue to take the sort of risks which were taken on 13 March. There are other events in the pipeline and the millennium celebrations will bring huge crowds onto the streets at the end of the year. We must act now to ensure that they are not marred by disastrous accidents.

The safety of persons attending any public event is a matter which concerns all Deputies. The issues highlighted by Deputy De Rossa cut across a number of Government Departments and agencies. The primary responsibility for the control of crowds and for ensuring the safety of persons attending any event rests with the person in control of the event. This responsibility arises from the common law duty of care owed by the person in control to those whom he or she has invited to participate in the event. The duty is owed to a full range of people participating in the event, from the audience who may or may not have paid an admission charge to the performers and persons working or assisting at the event.

Regarding fireworks displays, the Department of Justice, Equality and Law Reform has issued guidance on organised fireworks displays to assist organisers, operators of public fireworks displays and the Garda Síochána on the measures to be taken before, during and after a display. This guidance document sets out the measures to be undertaken to ensure the safety of the public as well as the stewarding arrangements for the display.

For any large event, the Garda prepares a traffic management plan in consultation with the organiser of the event, the transport authorities and the local authorities. This plan includes details of traffic diversions, parking restrictions, designation of pedestrian zones and the placing of cordons to the best advantage of spectators. In addition, the Garda and the transport authorities prepare a plan outlining the transportation arrangements for members of the public to access the event.

I understand my colleague, the Minister for Justice, Equality and Law Reform, granted a licence to the organisers of the St. Patrick's Festival to import fireworks for the display on 13 March 1999 subject to a number of conditions. In addition, in early January last the Garda authorities set up an event policing committee. In the preparation of the policing plan, the committee, in addition to its own regular meetings, met the festival organisers, Dublin Corporation and public transport companies and liaised with the emergency services. I understand the Garda authorities are satisfied that sufficient gardaí were on duty. The Garda air support unit was airborne on the night and provided a video downlink to the communications centre at Dublin metropolitan area headquarters at Harcourt Square.

Good planning and management are important to ensure the safe running of any event and guidance for certain public events has been published by my Department and the Department of Edu cation and Science. These are the codes of practice for safety at indoor concerts, the code of practice for safety at sports grounds and the code of practice for safety at outdoor pop concerts. These codes set out the minimum functional requirements for the safe organisation and management of such events.

Planning any public event involves consultation with the relevant statutory authorities and other interests. The statutory authorities may advise on a number of areas. For example, the Garda Síochána may provide advice on public order, security, traffic management and policing services. Health boards may provide advice on the appropriate level of emergency medical services and public health matters. Local authorities may provide advice on fire safety, litter control and other structural aspects. The possibility of introducing a new licensing system for outdoor events is currently being considered by my Department in the context of the new planning Bill, the drafting of which has been approved by Government following a comprehensive review of the planning system.

The celebrations for St. Patrick's Day and the millennium are occasions on which we can be proud of our heritage and the economic development of our country. However, it is timely that we now learn from the experience of the recent celebrations and immediately plan for the forthcoming events. I am happy to arrange for discussions between the various agencies and Government Departments involved as a means of securing the safe organisation and management of events, especially the forthcoming millennium celebrations.

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