AGENDA #2a
MEMORANDUM
TO: Mayor and Town Council
FROM: W. Calvin Horton, Town Manager
SUBJECT: Public Forum on Planning Options for Halloween 2002
DATE: April 22, 2002
The purpose of this public forum is to seek comment on proposed planning options for Halloween 2002. The Council adopted a resolution scheduling this forum at its March 25 meeting.
This memorandum offers background information about past events, planning options for consideration and discussion, and information regarding public safety issues that we recommend be considered when evaluating the appropriateness of various options.
We expect to present a proposal for management of Halloween 2002 to the Council on June 10.
This report provides a variety of models for consideration in the management of the 2002 Halloween event. The potential options include:
1. The 2001 Management Plan
2. The Pre-2001 Management Plan
3. Pre-2001 Plan with Additional Traffic & Crowd Control Regulations
4. Halloween Festival
5. Town Sponsorship of an Octoberfest Event
6. Attempt to relocate the Halloween Event
7. Attempt to Eliminate the Halloween Event
Elements of any of the options could be combined to create other options.
This report evaluates each option based on several criteria, including: crowd size; vehicle and pedestrian traffic management; impact on residential neighborhoods; impact on town businesses; resource requirements; liability assumed by the Town; fiscal impact; and overall impact on Public Safety.
For at least the past twenty years Chapel Hill residents and visitors have celebrated Halloween night in the downtown area by participating in an informal, un-sponsored costume parade. What began as a few hundred people showing off costumes while parading along the sidewalks has now become a five-block affair where tens of thousands of people come to Franklin Street during the evening.
Since 1994 the Halloween celebrations have grown significantly in terms of crowd size, traffic congestion, impact on neighborhoods, trash and property maintenance issues, and public safety concerns. In the past seven years the scope and size of the event has expanded to a level that can no longer be managed solely with Town resources.
On October 31, 2000, approximately 50,000 people gathered in the Central Business District. Over 200 law enforcement officers, including 125 from other jurisdictions, provided traffic control and crowd management for eight hours. Over 100 other Town employees also worked to provide fire protection, sanitation services and other support functions. The cost of managing the event was over $75,000. Following the Halloween 2000 event, plans were developed by Town staff to minimize the impact of future events on residential neighborhoods adjacent to the Town Center and on roadways leading into the business district.
In addition to local concerns, special circumstances related to the terrorist attacks of September 11, 2001 led to stricter controls over the Halloween event last year. Amid heightened safety concerns for large-scale events, many cities across the nation, including Seattle, Denver and San Antonio, cancelled public events similar to our Halloween event. Because the Halloween celebration is not a sponsored event, canceling the celebration was not a viable option. Instead, a plan was developed to limit the size of the crowd and the amount of traffic entering the downtown area.
The primary focus of the plan was to divert motor vehicle traffic from the business district and to restrict public parking spaces. Those wishing to come downtown for the Halloween event had to enter the area on foot.
A State of Emergency declaration was enacted early on the evening of the 31st to allow law enforcement officers greater latitude in prohibiting dangerous or potentially dangerous materials from being brought into the area. All persons choosing to bring packages, backpacks, and pocketbooks into the closed area of the event were required to submit to searches of these containers. Emergency stations were set up just beyond the event perimeter to handle any exposures to contaminants or dangerous substances.
Over 300 police officers were used for traffic and crowd control. In addition to police officers more than 200 other municipal employees, including some from other jurisdictions, were needed to manage the event. It was estimated that 25,000 people attended the event. The cost to the Town was approximately $108,000. The additional $23,000 in costs as compared to the 2000 event was due primarily to the employment of additional police officers, the informational campaign, and the rental of electronic message boards.
It is important that the Halloween event be managed in a way that protects the public, separates the event site from surrounding neighborhoods, and minimizes the impact on the Town’s delivery of normal services.
While the Halloween event in downtown Chapel Hill has been un-sanctioned, it is anticipated and planned for by the Town. Planning is done throughout the year. Department budgets reflect anticipated overtime costs. Requests for resources from other cities and counties are made months in advance.
Following last year’s event two public forums were held to receive input about the strategies used in the past to manage Halloween events. While most of the comments offered during these forums focused on the 2001 event, several suggestions were made regarding how future events should be managed. These suggestions included:
Ø Crowd Size: The number of residents and visitors anticipated to attend the event.
Ø Impact on Residential Neighborhoods: The level of nuisance issues, including littering, illegal parking, and property damage likely to impact residential neighborhoods, particularly those adjacent to the business district.
Ø Impact on Town Businesses: The fiscal and practical impact on businesses, particularly those located in or adjacent to the Town Center.
Ø Resource Requirements: The number of employees and the amount of equipment needed to manage the event, and the availability of those resources.
Ø Liability Assumed by the Town: The level of liability assumed by the Town under each scenario compared to that faced when hosting events such as Apple Chill.
Ø Fiscal Impact on the Town: The estimated cost of the event to the Town.
Ø Overall Impact on Public Safety: The type and scope of safety issues faced by public safety officials.
Option 1: The 2001 Management Plan
The plan used in 2001 reduced the crowd size by half as compared to the previous year. During last year’s event we experienced fewer arrests, fewer injuries, and fewer disturbances than at any Halloween event of the previous five years. Instead of traffic congestion blocking downtown streets, motor vehicle traffic was severely congested in outlying areas for approximately one hour during the event. No problems were reported in the residential neighborhoods adjacent to the business district. Though motor vehicle traffic perimeters were established over one mile from downtown and public parking was limited in the area, approximately 25,000 people attended the event.
Crowd Size:
· Approximately 25,000
Vehicle and Pedestrian Traffic Management:
· Vehicle traffic restricted 1.5 miles from downtown
· Safe separation provided between cars and pedestrians
· Vehicular traffic congestion likely in outlying residential areas
· Public parking restricted in downtown area
Impact on Residential Neighborhoods:
· Neighborhoods adjoining downtown protected
· Outlying neighborhoods likely to experience vehicular traffic congestion
Impact on Town businesses:
· Vehicular access to downtown businesses and those located within 1.5 miles of downtown is restricted
· Public parking within closed area is restricted
· Revenue losses experienced in 2001 likely to recur
Resource Requirements:
· At least 300 police officers needed
· At least 200 other municipal employees needed
· Traffic control devices would need to be rented
· Would be difficult to employ police officers from other agencies
Liability Assumed by the Town:
· No greater than that assumed by hosting a street fair
Fiscal Impact on the Town:
· Estimated at $115,000
Overall Impact on Public Safety:
· Restricted vehicular access would likely reduce crowd size and separate the unsafe mix of pedestrians and cars in the downtown area
· Fewer officers would be available for crowd control due to the additional traffic posts that must be staffed
· A limited State of Emergency would be needed
· Restrictions on access reduce risks to attendees
Option 2: The Pre-2001 Management Plan
Prior to 2001, the Halloween event was managed under a plan that was first developed for crowd control following University basketball celebrations. Though the plan has evolved over the years to adapt to increases in crowd size, the basic concepts of the plan are the same. A four or five block area of downtown is cordoned off to provide the crowd a safe place to gather. Police officers are assigned throughout the crowd to protect people and property. Barricades are set up at the edges of the perimeter to prevent cars from entering and to check for alcohol, combustibles, and costume props that could be dangerous in the crowd. Vehicular traffic is allowed to flow to within three blocks of the Central Business District, including Rosemary Street and Cameron Avenue. Public parking is restricted only in the closed area, which includes mostly metered spaces.
Crowd Size:
Vehicle and Pedestrian Traffic Management:
Impact on Residential Neighborhoods:
Impact on Town Businesses:
Resource Requirements:
Liability Assumed by the Town:
Fiscal Impact on the Town:
Overall Impact on Public Safety:
This plan would include most of the elements of Option 2 with a few additional restrictions placed on vehicular traffic flow, parking, and crowd management. Vehicular traffic would still be allowed to flow close to the Town Center. To ease vehicular traffic congestion, shuttle service from park-and-ride lots could be provided by Chapel Hill Transit. Fees could be charged to offset transit costs. Such fees would be shared revenues for the partners in the transit system and could not be used to defray other event expenses. Neighborhood streets would be blocked to prevent illegal parking, loitering and littering. Public parking in the closed area (primarily metered spaces) would be restricted but most public lots would remain open.
Perimeter barricades would be used to screen for alcohol, combustibles, and dangerous items. A limited State of Emergency would be declared to allow officers more latitude in managing crowd activities inside the event site and in areas adjacent to the site. Activities covered under these broader restrictions would include possession of alcoholic beverages, the presence of animals, and the concealed possession of handguns.
Crowd Size:
Vehicle and Pedestrian Traffic Management:
Impact on Residential Neighborhoods:
Impact on Town Businesses:
Resource Requirements:
Liability Assumed by the Town:
Fiscal Impact on the Town:
Overall Impact on Public Safety:
A festival similar to Apple Chill or Festifall would be sponsored by the Town or by a private sponsor such as a local business, the Downtown Commission, or the Chamber of Commerce. The event would have carnival games, small rides and private food vendors. The event would be scheduled to begin around 7:00 p.m. and end around 11:00 p.m. The event would be held in a two-block area of the business district along East Franklin Street with most adjacent roadways kept clear for vehicular traffic flow. East Franklin Street would be closed at 12 p.m. to allow set-up time. Restrictions related to alcohol, weapons, combustibles, and other potential hazards would be in effect.
Crowd Size:
Vehicle and Pedestrian Traffic Management:
Impact on Residential Neighborhoods:
Impact on Town Businesses:
Resource Requirements:
Liability Assumed by the Town:
Fiscal Impact on the Town:
Overall Impact on Public Safety:
The Town would sponsor an Octoberfest festival to replace the traditional Halloween event. The event would be modeled on many such events that are held throughout the country every fall. Franklin Street would be converted into a festival arena with tents, dancing, musical performances, food and drink vendors, and games for both young and old.
The event would be held in the business district of Franklin and Rosemary Streets. The Parks and Recreation Department would work with private event planners to set up and manage the event, including hiring performers, renting tents and other necessary equipment, arranging sponsors, and lining up food and beverage vendors.
Franklin Street would be closed in the mid-day to allow for set up. The police department would provide traffic direction and security services, including monitoring entrance restrictions on areas serving alcohol. Shuttle service would be provided by the Transportation Department.
Crowd Size:
· Could range from 35,000 to 50,000
Vehicle and Pedestrian Traffic Management:
· Crowds could exceed capacity of buses
· Evening rush hour traffic diverted from normal traffic routes
Impact on Residential Neighborhoods:
· Large crowds could result in vandalism and property damage
Impact on Town Businesses:
· Evening rush hour traffic diverted from normal traffic routes
Resource Requirements:
· Would be difficult to employ sufficient number of police officers from other agencies
Liability Assumed by the Town:
· Town would assume additional liability for sponsoring an event where alcohol was distributed and/or sold
Fiscal Impact on the Town:
· Estimated at $100,000
· Revenue potential dependent on the weather
Overall Impact on Public Safety:
· Traffic diversion and direction would begin six hours earlier and in heavy traffic conditions
Option 6: Attempt to Relocate the Halloween event
The city of Burlington has hosted a Halloween festival in its municipal park for several years. According to police officials the event typically attracts approximately 18,000 participants. No vendors or entertainment are provided though the city does sponsor a fireworks display at the end of the evening. Approximately 35 officers are employed to manage the event.
A similar event could be planned for Halloween night in Chapel Hill at a location other than the Central Business District. Possible sites could include Homestead Park, Cedar Falls Park, Kenan Stadium, and McCorkle Place. The event could be an Octoberfest celebration, it could be an event similar to Apple Chill, or, as is the case in Burlington, it could merely be a gathering of citizens enjoying an outdoor picnic and fireworks display. The event could be sponsored by the Town or by a private business.
Relocating the Chapel Hill Halloween event would not prevent the traditional gathering of thousands of people in the downtown area. Therefore, planning for a Halloween event at a site other than downtown must include the contingency of managing two event sites.
Crowd Size:
At Alternate Site:
In Downtown:
Vehicle and Pedestrian Traffic Management:
At Alternate Site:
In Downtown:
Impact on Residential Neighborhoods:
At Alternate Site:
In Downtown:
Impact on Town Businesses:
At Alternate Site:
In Downtown:
Resource Requirements:
At Alternate Site:
· At least 75 officers would be needed
· At least 50 other employees would be needed
In Downtown:
· Would be difficult to employ sufficient number of police officers from other agencies
Liability Assumed by the Town:
For Alternate Site:
· No greater than that assumed by hosting a street fair (unless fireworks are used)
For Downtown Event:
· No greater than that assumed by hosting a street fair
· Hosting an alternate event with a reasonable expectation that the traditional event will continue to take place in the downtown area, thus dividing public safety resources, could raise the possibility of additional liability for failing to provide adequate security at one or both event sites.
Fiscal Impact on the Town:
At Alternate Site:
· Depending on the scale of the event, expenses could be as much as $20,000
· The amount of damage to Town property would likely be minimal
In Downtown:
· Could range from $60,000 to $90,000
Overall Impact of Public Safety:
· Hosting an alternate event would not eliminate the traditional gathering downtown. The festival in the park would likely draw a family-oriented crowd. The downtown event would likely draw the type of crowd typically seen later in the evening at past downtown events – fewer children and more adults.
· Relocating the Halloween event would require the division of public safety resources between two sites. We do not believe that we would be able to employ sufficient resources from other public safety agencies to manage both events effectively. It is likely that the National Guard would be needed to assist with security needs in the downtown area.
An attempt could be made to stop the Halloween event. Other cities across the nation, including both Raleigh and Greenville in North Carolina, have attempted to shut down popular events, both planned and spontaneous. Though some of these attempts have been successful, many others have resulted in riots, mass arrests, extensive property damage, and strained relations between governmental authorities and citizens.
In the early 1990’s the city of Greenville stopped its Halloween celebration by clearing the streets through aggressive police actions. Citizens were warned of the action prior to the event, which had been held in the downtown area for several years. Dozens of arrests resulted from the city’s efforts. Some officers wore riot gear when policing the event. Some property damage occurred. Greenville officials report that the event has returned to the downtown area. In 2001 over 15,000 gathered in downtown Greenville on Halloween night. Approximately 175 officers were needed to manage the event.
For several years the city of Raleigh has had to deal with a spontaneous party in the Brent Road neighborhood. Thousands of people, mostly students from N. C. State and surrounding universities, have gathered annually to take part in this event, which is actually a conglomeration of several small, private parties that spill out into the streets. Each year this event has resulted in dozens of arrests and significant damage to residential properties. In August 2001 Raleigh used several hundred State and local officers to prohibit entry into the neighborhood and to aggressively enforce criminal statutes. This effort was accompanied by an alcohol-free party sponsored by N. C. State University. The Brent Road neighborhood was quiet while several thousand students attended the campus party. Raleigh police officials intend to continue their presence in the Brent Road area for several years to come to ensure that the party does not recur or move to an adjacent neighborhood.
In 1991 Boulder, Colorado officials stopped an annual, unsanctioned Halloween party by closing the downtown area to all vehicular traffic. Several of the regulations implemented by the Boulder police were used as models for last year’s Chapel Hill event. The Halloween event no longer occurs in Boulder’s business district. However, Boulder officials report that another Halloween event has begun to grow on the edge of the University of Colorado campus and that the city police now work with the University police to manage that event.
To stop the Chapel Hill event we would have to publicize our intent for months in advance. We would need to restrict vehicular traffic coming into the downtown area. We would have to employ at least 500 people, including at least 300 police officers, to keep the streets open. We would need to declare a State of Emergency to close businesses and stop the sale of alcohol if necessary to prevent crowds from gathering in the downtown area. Even with these measures, it is likely that many people would attempt to gather on the street. Keeping the street open would lead to many arrests, an increased likelihood of injuries, and the potential for significant property damage.
Vehicle and Pedestrian Traffic Management:
Impact on Residential Neighborhoods:
· Police resources needed for crowd control downtown would reduce number of officers available to protect neighborhood streets
Impact on Town Businesses:
· Should unrest occur, property damage in the business district would likely be significant
· To reduce the crowd size gathering in the downtown area and to protect the downtown, a State of Emergency would likely be declared to close businesses and stop the sale of alcoholic beverages
Resource Requirements:
· At least 300 police officers would be needed
· At least 200 other employees would be needed for support roles
· Protective equipment would need to be purchased for officers
· Would be difficult to employ sufficient number of police officers from other agencies
Liability Assumed by the Town:
· It is likely that any attempt to stop the downtown Halloween event would lead to significant levels of arrests, property damage, and injuries. These occurrences could lead to numerous claims against the Town by those impacted by the actions of the Town and its employees.
Fiscal Impact on the Town:
· Direct costs would likely reach $125,000. Other costs would be related to property damage, claims filed against the Town, and injuries to employees.
Overall Impact on Public Safety:
· Because of the tradition established for past Halloween events, the number of people within walking distance of the downtown area, and the number of attractions in the downtown area, we believe it would be impossible to keep people off of Franklin Street without the use of force by police.
· Attempting to stop people from gathering on Franklin Street would likely lead to numerous arrests, injuries, and property damage.
· Crowds kept off of Franklin Street would likely move to an area unprotected by police, leading to a division of public safety resources and an expansion of public safety problems.
· It is likely that the Town could not employ the number of police officers necessary to manage this type of incident. The next available source of personnel would be the National Guard.
The annual Halloween gathering in Chapel Hill is no longer a small, inexpensive, or spontaneous event. We believe that the type of future Halloween events should be determined with guidance and input from Chapel Hill residents, the business community, and other stakeholders. We offer the options listed above as a starting point for the Council’s discussion and recognize that many variations of these options might be considered for future implementation. We recommend that the Council take into consideration the following issues when evaluating the various options for Halloween:
1. Except as noted in Option 5, the Town’s insurance provider has indicated that the Town assumes no more liability for hosting a Halloween event than it does for hosting Apple Chill or Festifall.
2. No matter the type, size, or location of the 2002 event, it is anticipated that the number of police, fire and public works employees needed to manage the event would be no less than the number used in 2001.
3. It is likely that moving the Halloween event from Franklin Street to an alternate site will reduce but not eliminate crowd control and traffic control issues in the downtown area.
4. Should the Halloween event continue in the downtown area in the same manner as in years prior to 2001, it is likely that the crowd size will continue to grow.
5. Future events in the downtown area will likely require limited State of Emergency declarations to provide optimum levels of security for participants.
6. Based on recent experiences we anticipate that it will become increasingly difficult to recruit personnel resources from other jurisdictions to assist the Town in managing the events.
7. Non-structured events such as Halloween that involve thousands of people, many of whom are intoxicated, have the potential to create significant public safety problems.
That the Council receive citizen comment on planning options for Halloween 2002 and refer the comments to the Manager and Attorney for further consideration.