TO: Mayor and Town Council
FROM: W. Calvin Horton, Town Manager
SUBJECT: Report on Town Sponsored Events Involving Large Crowds
DATE: May 22, 2006
PURPOSE
The purpose of this memorandum is to respond to a request from the Council regarding the fiscal and social impacts of large-scale events managed by the Town. Below we describe each such event, propose options for the Council’s consideration, and recommend a process for receiving citizen comments.
BACKGROUND
The Town manages many small events in the downtown throughout the year, including a number of parades, demonstrations for or against government policies or actions, and events intended to promote support for specified causes or programs. Most of these events are of short duration, require limited crowd management resources, and cause minor disruption to normal use of streets and public ways.
Depending on the particular event involved, the Town over a period of three decades also has responded to, hosted or managed certain large-scale events generating large crowds and substantial traffic management problems in downtown Chapel Hill. Some of these events have occurred spontaneously and others have been sponsored by the Town. The following events have required significant crowd management resources when they have occurred:
All of these events except for the July 4th observance (held at Kenan Stadium) have occurred in the central business district, typically between Henderson Street and Mallette Street (though in recent years the perimeters of several of the events have expanded to Merrit Mill Road). The Town Council recently removed the Apple Chill festival from the Town’s calendar of sponsored events because of concerns about public safety.
DISCUSSION
In the breakdown below we describe each of the events listed above and make proposals for the Council’s consideration. For some events we suggest that the Council request assistance from the University. For others, we suggest the use of facilities owned by the school system.
1. Celebrations after UNC men’s basketball victories over Duke.
a. Description: The UNC men’s basketball team plays Duke University twice during the regular season. Starting with the 2005-2006 season it appears likely that both games will be played at night. When UNC wins fans leave the downtown bars, residence halls and other nearby residences and congregate on Franklin Street. For the past several years the assembly point has been the intersection of Franklin and Columbia Streets. The crowd celebrates, builds small fires with available materials and mills around on the street for a few hours. UNC beat Duke once in 2006.
b. Crowd size: The estimated crowd size after the 2006 victory was 5,000.
c. Arrests, Injuries and Property Damage: In 2006 there were no arrests. Emergency medical services were provided to three persons who suffered burns while jumping through a bonfire. Reported property damage was minimal (some pavement damage as the result of bonfires).
d. Costs and Personnel: Estimated costs of required services in 2006 totaled $22,000. These costs were for overtime payments to police officers involved in crowd management, firefighters providing fire protection and first-responder emergency medical services, and public works and engineering employees involved in traffic management and clean-up.
e. Citizen Complaints: Citizens complained about the injuries and risks posed by persons jumping over bonfires; traffic disruption caused by roadway blockages; noise coming from the celebration; and littering in neighborhoods.
f. Principal Public Safety Concerns: Hazards inherent in large-scale crowd events (crowd panic, mass casualty); incidence of alcohol poisoning; injuries resulting from bonfires; the potential for violent acts.
Proposals: We propose that the Council request the University to host a post-game celebration near the Smith Center for home-game victories; and, for away-games, host a big-screen viewing of the game at the Smith Center followed by a post-game celebration nearby.
Comments: The Town would attempt to prevent in-street assemblies by a sufficient presence of police officers. Fires would not be allowed. Chapel Hill officers, if requested, would provide assistance to UNC police.
Potential Challenges: Crowds may attempt to celebrate in the street, requiring police enforcement actions, including arrests.
2. Celebration after UNC men’s basketball victory in NCAA tournament semi-final game.
a. Description: The NCAA tournament semi-final games are played on Saturday in the late afternoon and early evening. Since 1990 the UNC men’s basketball team has played in the NCAA semi-final championship game seven times and has won twice, the last time in 2005. Following losses, no street gatherings have occurred. Following the victories, fans leave the downtown bars, residence halls and other nearby residences and congregate on Franklin Street. Fans from others parts of the community and the region also come to Franklin Street. The crowd celebrates with shouting and the lighting of small bonfires with available materials, and mills around on the street for a few hours.
b. Crowd Size: The estimated crowd size after the 2005 event was 7,000.
c. Arrests, Injuries and Property Damage: In 2005 there were two arrests, both for interfering with emergency personnel. Seven persons were treated for injuries, including three who suffered burns while jumping through bonfires. No property damage was reported.
d. Costs and Personnel: Estimated costs of required services for the 2005 event totaled $7,200. Most of these costs were for police overtime. Some costs were for fire department employees who provided fire suppression and emergency medical services. A small portion of the costs paid for public works employees who assisted with traffic management and clean-up.
e. Citizen complaints: Complaints focused on injuries resulting from bonfires, traffic congestion, illegal parking in neighborhoods, noise from the celebration, and litter in adjacent residential neighborhoods.
f. Principal Public Safety Concerns: Hazards inherent in large-scale crowd events (crowd panic, mass casualty); incidence of alcohol poisoning; injuries resulting from bonfires; the potential for violent acts.
Proposals: We propose that the Council request the University to host a big-screen viewing of the game in the Smith Center and, if UNC wins, a post-game celebration nearby. We also propose that University athletic coaches, athletes and student government leaders be asked to participate in a student-oriented public service campaign against the setting of bonfires and in favor of a safe celebration on campus. UNC Hospitals, particularly officials from the Burn Center, could assist in the development of appropriate radio, television and print materials.
Comments: A victory in the semi-final game of the NCAA tournament draws a large crowd but not one that is too large to be managed at an alternative event on campus. We believe that a UNC-sponsored event following a victory could attract the celebrants away from Franklin Street, especially with the potential of a Franklin Street celebration after a victory in the championship game the following Monday night. Chapel Hill police officers, if requested, would assist UNC police.
Potential Challenges: In the first year of this change in the traditional celebration site, public safety resources could find themselves split between two sites if people still congregate on Franklin Street. If this occurs, crowd management could prove difficult. Arrests and other enforcement actions may be necessary to keep Franklin Street open. Also, attempts to prevent and extinguish bonfires could cause members of the crowd to become hostile and physically resist firefighters and police officers.
3. Celebration after UNC men’s basketball victory in NCAA tournament championship game.
a. Description: Following the 1993 and 2005 championship victories, a large number of fans came to Town in anticipation of a UNC victory. Immediately after the game ended, thousands of people congregated on Franklin Street. Persons from around the region joined the celebration. The crowd size did not peak until about two hours after the game ended. Within a few minutes after the game the intersection of Franklin and Columbia overflowed with celebrants. Ultimately, the perimeter of the event ran from Hillsborough Street to Mallette Street on Franklin and from Rosemary Street to Cameron Avenue on Columbia Street. A high percentage of the crowd was intoxicated. Twenty-three bonfires were set within the event perimeter, and nine in adjacent neighborhoods. The crowd mingled on the street for about three hours after the game had ended.
b. Crowd size: The estimated crowd size for the 2005 event was 45,000.
c. Arrests, Injuries and Property Damage: In 2005 fifteen people were arrested, most for disorderly conduct, assaults and indecent exposure. Twenty-four people were treated for injuries, including six for burns.
d. Costs and Personnel: Estimated costs of services in 2005 totaled $156,200. The majority of costs were associated with overtime payments for Town employees and contract employees, including $37,000 for Chapel Hill police officers, $28,900 for Public Works employees and $8,200 for Fire Department employees. About $41,000 was paid to other police agencies and $16,000 was paid to Orange County for emergency medical services.
e. Citizen Complaints: Citizens complained about the injuries resulting from bonfires; traffic disruption caused by the blockage of downtown; illegal parking in neighborhoods; noise from the event and from vehicle traffic; litter and vandalism. Complaint level was low compared to other large-scale events downtown.
f. Principal Public Safety Concerns: Hazards inherent in large-scale crowd events (crowd panic, mass casualty); incidence of alcohol poisoning; injuries resulting from bonfires; the potential for violent acts; increased presence of gang members.
Proposals: We propose that University athletic coaches, athletes and student government leaders be asked to participate in a student-oriented public service campaign against the setting of bonfires and in favor of a safe celebration. UNC Hospitals, particularly officials from the Burn Center, could assist in the development of appropriate radio, television and print materials.
Comments: We do not think it would be possible to prevent an on-street celebration following a UNC victory in the NCAA championship game. It is a tradition that is truly spontaneous since a victory and the accompanying celebration may or may not occur. Also, unlike other large-scale events, the crowd following an NCAA championship rushes the street, with thousands of people on the street in a matter of minutes. We also do not believe that the crowd size would be lessened by an alternative event that the University might organize. We believe that it would be reasonable to advertise in advance that efforts will be made to identify persons who set fires or who endanger themselves by jumping over fires and to make arrests following the event. The density of the crowd will make it unsafe, in most cases, to attempt arrests at the site.
Potential Challenges: The number of persons in the crowd and the crowd density pose a high potential for crowd panic and resultant injuries. There is also a higher than normal potential for serious injury resulting from fights and the use of weapons.
4. Apple Chill Street Festival: Earlier the Council removed the Apple Chill festival from the Town’s event calendar because of concerns about public safety resulting from occurrences after the festival. We provide the following information for use in comparison to other events.
a. Description: The Apple Chill festival was held on Franklin Street for three decades. Beginning as a small street fair promoting local craft makers and artisans and attended mostly by Chapel Hill and Carrboro residents, the fair grew to an event with 235 crafts makers, artists, food vendors and community organizations, with a crowd of about 35,000 people from around the region. In the final years of the fair the venue covered Franklin Street from Henderson Street to Roberson Street. A motorcycle show drawing several hundred motorcycles was added to the event in the final years.
b. Crowd size: The estimated crowd size for the 2006 festival was 30,000.
c. Arrests, Injuries and Property Damage: In 2006, no arrests were made during the fair, no persons required emergency medical treatment and no property damage occurred.
d. Costs and Personnel: Estimated costs for the 2006 festival totaled $21,500. Most of this cost was for overtime payments to employees. Approximately one half of the total paid for 26 police officers. The remainder paid for town employees from the Parks and Recreation Department, the Fire Department, and the Public Works Department. The fair generated $22,600 in revenue from vendor fees.
e. Citizen Complaints: Citizens complained about traffic congestion caused by the closing of Franklin Street from Henderson Street to Mallette Street. Complaint level was low in comparison to other events.
f. Principal Public Safety Concerns: Traffic congestion; protection of attendees.
Proposals: We propose that the Council request the Parks and Recreation Commission and the Town Manager to develop an alternate arts and crafts show to be held in a public building with adequate parking (e.g. Chapel Hill High School) as a mid-year event.
Comments: An indoor event would simplify set-up, eliminate weather concerns, allow the possibility of a two-day program, and focus the event on local artists and crafts makers.
Potential Challenges: Attracting participants to a new event; finding a suitable date that did not compete with other community events; negotiating arrangements with the owners of an appropriate venue; preparing for the possibility of an informal gathering on the anniversary of the 2006 Apple Chill event.
5. Un-sponsored Cruising Event on Evening of Apple Chill.
a. Description: About seven years ago large numbers of people began gathering on the west end of Franklin Street, near the ending time of the Apple Chill festival, to watch motorcycles and cars cruising Franklin Street or to participate in the cruising. The cruising created substantial traffic problems in neighborhoods near downtown. The street fair was modified in 2004 to add a motorcycle show to the festival with the intention of involving the persons who had previously come to cruise or watch the cruising. After the festival was over, a large number of people remained on West Franklin Street to socialize and to watch the cruising that continued for several hours after the festival was over. The presence of a significant number of gang members resulted in fights, brief crowd rushes in reaction to fights and the display of weapons, and challenges to police officers attempting to clear the streets so that cleaning services could proceed. This year, three people were wounded by gunshots.
b. Crowd size: The estimated crowd size at the cruising event in 2006 was 7,000.
c. Arrests, Injuries and Property Damage: In 2006, there were 11 arrests and 87 traffic citations issued. Several minor injuries were treated by emergency medical personnel. Three people were shot. Some minor private property damage was reported.
d. Costs and Personnel: Estimated costs of required services in 2006 for the cruising event totaled $91,000. Of this total, about $65,000 was for police overtime. The remainder was for overtime payments for other Town employees, payments to private parking and traffic control contractors, and payments for emergency medical service providers.
e. Citizen complaints: Citizens complained about traffic disruption caused by cruising; traffic congestion in neighborhoods and commercial districts adjoining the closed area; noise from cruising vehicles and car stereos; inappropriate and lewd behavior in the downtown area and surrounding neighborhoods; littering; fear of injury; gunshots. Complaint level was high by comparison to other events.
f. Principal Public Safety Concerns: Hazards inherent in large-scale crowd events (crowd panic, mass casualty); gang activity; gunshots; potential life-threatening violent acts; safety of citizens, Town employees and police officers; traffic congestion.
Proposals: We propose that the police department monitor the various intelligence and communications networks to determine whether the likelihood that a cruising event will be informally organized to occur in 2007, at about the time that Apple Chill has occurred in the past. If it is determined that such an event is likely, then we propose that the police strictly enforce traffic laws, noise ordinance requirements, and other laws to maintain order, minimize its adverse impacts, and discourage recurrence of such an event.
Comments: We believe there is a fair probability that an informal cruising event will be organized next spring; sufficient funds should be reserved to provide adequate police services.
Potential Challenges: An informally organized event may generate a large crowd and create difficulties in traffic and crowd management.
6. July Fourth Observance.
a. Description: July Fourth has been observed at Kenan Stadium for more than two decades with only a few interruptions due to University construction. The event is free and includes music and fireworks.
b. Crowd Size: The estimated crowd size for the 2005 event was 20,000.
c. Arrests, Injuries and Property Damage: In 2005 there were no arrests, no reported injuries, and no property damage.
d. Costs and Personnel: Estimated costs for required services in 2005 were $24,250. Most of these costs were to pay for employee services, including employees from the Parks and Recreation Department, the Fire Department and the Public Works Department.
e. Citizen Complaints: Complaint level was very low by comparison to other events.
f. Principal Public Safety Concerns: Hazards inherent when large crowds gather in proximity to the use of fireworks.
Proposals: We propose that this event continue as in the past.
Comments: This traditional observance is an event expected by the community and complements an event conducted in Carrboro.
Potential Challenges: The low-level fireworks that must be used because of fire safety concerns are not as exciting as the higher level fireworks used in past years. The program will need to be changed periodically to make it interesting.
7. Festifall Street Festival.
a. Description: The Festifall street fair has been held for three decades. Now held on the first Sunday of October on West Franklin Street between Church and Graham Streets, the event attracts 150 craft and food vendors and community organizations, plus a number of political candidates.
b. Crowd size: The estimated crowd size for the 2005 event was 18,000.
c. Arrests, Injuries and Property Damage: In 2005, there were no arrests, major injuries or property damage reported.
d. Costs and Personnel: Estimated costs for required services in 2005 totaled $19,000. Most of these costs were to provide employee services from the Police and Parks and Recreation Departments. The event generated revenue of about $11,800 from vendor fees.
e. Citizen complaints: The complaint level was low by comparison to other events though a few complaints about traffic disruptions were received.
f. Principal Public Safety Concerns: Hazards inherent in large street assemblies.
Proposals: We propose that the Council consider relocating this event to an off-street site (e.g. Chapel Hill High School). Relocation would obviate problems associated with street closures.
Comments: There has not been an “after event” associated with Festifall.
Potential Challenges: We believe it would not be feasible to relocate Festifall until 2007 because of lead time required to establish a new venue.
8. Halloween event in downtown.
a. Description: The Halloween event in downtown began in the mid-1980s with a few hundred residents (including students and families with children) walking the sidewalks of the 100 block of East Franklin Street in Halloween costumes. Now, the event venue stretches from Hillsborough Street to Graham Street and from Rosemary Street to Cameron Avenue on Columbia Street. Streets are closed about 9:00 p.m. and reopen at about 3:00 a.m. Shuttle buses and portable toilets are provided for the large crowd of people who attend from the local area, the region and other states. Attendees spend most of the time walking the streets; many are intoxicated. Significant numbers of gang members are present.
b. Crowd size: The estimated crowd size at the event in 2005 was 50,000. Crowd sizes when Halloween has fallen on a weekend night have exceeded 70,000.
c. Arrests, Injuries and Property Damage: In 2005, eleven people were arrested, most for disorderly conduct and weapons charges. Emergency medical units responded to 40 calls for assistance. One person was stabbed. Several assaults occurred. No major property damage was reported.
d. Costs and Personnel: About 770 Town, mutual aid, and contract employees were required to manage the event. Estimated costs for the required services totaled $197,000. Law enforcement services costs totaled $113,000. Public Works costs totaled $39,500. Fire Department costs totaled $8,000. About $20,000 was paid to Orange County for emergency medical services. Private parking services cost about $13,000. Transit costs of $13,100 were offset by revenues of $15,300 received from shuttle fares.
e. Citizen complaints: Citizens complained about traffic disruption caused by the blockage of downtown streets and streets in nearby neighborhoods; parking violators blocking access to emergency vehicles; noise from the event and from attendees walking to and from the event; litter; inappropriate behavior by attendees. Complaint level was high compared to other events.
f. Principal Public Safety Concerns: Hazards inherent in large crowd events in a confined area (crowd panic and mass casualty); incidence of alcohol poisoning; potential for violent acts; gang activity.
Proposals: In light of events following Apple Chill and after the numerous acts of disorderly conduct experienced at the 2005 Halloween event, we propose that the Town Council conduct a process to reconsider the Halloween event and determine whether to continue efforts to manage it or make an effort to eliminate it.
If the Council chooses to continue efforts to manage the Halloween event, we propose development of a stricter law enforcement protocol, including such actions as: establishing entry checkpoints for the main venue and conducting weapons screening; sobriety checkpoints for vehicle operators; strict enforcement of the noise ordinance regarding loud car stereos; increased staffing for traffic and parking monitoring.
If the Council chooses to make an effort to eliminate the Halloween event, we propose that the Council consider a declaration of emergency effective on Halloween night, with an order that all businesses in the downtown area cease operations at 9:00 p.m., and with a curfew in the downtown effective from 10:00 p.m. until 3:00 a.m. (with exceptions made for persons living, working or traveling through the area as a reasonable necessity).
Comments: We propose that the Council appoint a special committee of citizens to consider these and any other proposals as desired by the Council; such committee to report to the Council at a special public forum on September 6, 2006. We further propose that the Council make a decision about its approach to the Halloween event no later than September 11, 2006. The staffing involved in either of the two main approaches described would be about the same, and we believe it would be feasible to implement and publicize the Council’s decision if made by September 11.
Potential Challenges: Either of the proposed courses of action will be difficult to carry out. However, we believe a reasonable argument could be made for either, based on the threats to public safety.
CONCLUSION
We look forward to the Council’s discussion of the issues raised in this working paper and will be pleased to provide additional information as the Council may desire. If the Council wishes, we could prepare resolutions for consideration of any of the proposals that we have submitted and provide them for the Council’s review at the June 12, 2006 regular business meeting.
Regarding the proposal to appoint a special committee to consider Halloween, we have prepared a brief resolution for the Council’s consideration, given the limited time that would be available to solicit applicants before the Council’s June 26 meeting.
RECOMMENDATION
We recommend that the Council discuss the issues raised and proposals made and provide such direction as it determines appropriate.