Why in News: A stampede during the RCB victory celebration at Bengaluru’s M. Chinnaswamy Stadium on June 4, 2025, led to 11 deaths and 71 injuries. The John Michael D’Cunha Commission has blamed mismanagement by RCB authorities and police for the tragedy.
Findings of the John Michael D’Cunha Commission :
1. Primary Cause:
- The stampede occurred due to lack of crowd regulation at entry gates and reckless announcements regarding public entry into the stadium.
2. Accountability:
- The Commission held the RCB management and the police responsible for failing to plan and coordinate crowd control effectively.
3. Legal Action:
- It recommended legal proceedings against individuals and authorities involved in the mismanagement.
4. Medical Preparedness:
- Highlighted the absence of adequate medical backup and emergency response mechanisms at the event.
5. Limitations of Inquiry:
- The Commission noted its terms of reference were limited, and thus, a broader institutional responsibility was not fully examined.
6. Urban Management Insight:
- It indirectly pointed to the challenges of managing flash crowds in urban spaces, intensified by social media and collective public enthusiasm.
What is a Stampede?
1. Definition (NDMA):
- According to the National Disaster Management Authority (NDMA) in its guidelines “Managing Crowd at Events and Venues of Mass Gathering”, a stampede is defined as a sudden, uncontrolled rush or surge of a crowd, often resulting in crushing, suffocation, or trampling, which can lead to serious injuries or fatalities.
2. Key Characteristics:
- High crowd density in a confined or unregulated space.
- Sudden acceleration of movement due to panic, excitement, or misinformation.
- Often occurs when exit routes are inadequate or blocked.
3. Type of Disaster:
- Stampedes are classified as man-made disasters, as they result primarily from poor planning, mismanagement, or failure to assess crowd behavior.
Major causes of stampedes in India
1. Human-Related Triggers (Behavioral & Emotional)
- Sudden Panic or Perceived Threat: Fear of fire, explosion, or any danger can trigger a frenzied escape. Eg: Dabwali Fire Tragedy, 1995.
- Euphoria-Induced Rushing: Overexcited crowds during celebrations or events may rush uncontrollably. Eg: Bengaluru RCB Victory Parade, 2025.
- Aggression due to Delays or Frustration: When access is restricted or delayed, tempers may flare, leading to pushing. Eg: Sabarimala Stampede, 1999.
- Impulsive Movement for Freebies or Exits: Sudden inward/outward surges due to giveaways or urgency to exit. Eg: Elphinstone Bridge Stampede, 2017.
- Rumor-Induced Stampede: False alarms like fire or earthquake can lead to irrational crowd movement. Eg: Kumbh Mela, 2003.
2. Infrastructure-Related Causes
- Overcapacity and Poor Crowd Space Ratio: Hosting more people than the venue can hold. Eg: Uphaar Cinema, 1997.
- Narrow Pathways & Blocked Exits: Lack of sufficient walkways or escape routes creates deadly bottlenecks. Eg: Sabarimala Tragedy, 1999.
- Unsafe Ground Conditions: Slippery or uneven terrain increases chances of people tripping and falling. Eg: Sabarimala again.
- Collapse of Temporary Structures: Failure of footbridges, railings, or barricades can intensify panic. Eg: Multiple instances at religious gatherings.
- Fire or Electric Hazards: Short circuits or lack of extinguishing arrangements in crowded places. Eg: Dabwali & Sabarimala.
- Encroachments or Obstructions: Illegal stalls or constructions reduce visibility and escape access. Common at melas or urban events.
3. Organizational or Management Failures
- Poor Crowd Regulation: Lack of trained personnel to manage crowd behavior or guide movement.
- Weak Planning & Risk Assessment: Absence of crowd flow models, emergency routes, or contingency drills. Eg: Bengaluru Parade, 2025.
- Communication Gaps: Unclear announcements or failure of alert systems in the venue. Eg: Kumbh Mela Stampede, 2003.
- Exceeding Venue Capacity: Over-issuing of passes or ignoring capacity limits. Eg: Love Parade, Germany, 2010.
- Closed or Locked Emergency Exits: Doors not accessible or misused as storage in crises. Eg: Uphaar Cinema.
- Lack of Surveillance Tech: Absence of live-monitoring tools like CCTV, drones, or walkie-talkies.
- Poor Coordination Among Authorities: Delay or confusion between police, local admin, and event managers.
- Inadequate or Fatigued Staff: Shortage of alert security or police, especially post long duty hours.
- Use of Force or Provocative Policing: Harsh crowd control like lathi-charge can backfire. Eg: Historical case – Jallianwala Bagh.
NDMA Guidelines on Stampede Prevention and Management
I. Prevention and Preparedness (Before a Stampede)
1. Comprehensive Planning
- Assess crowd profile (age, gender, purpose, behavior).
- Develop infrastructure (alternate routes, rest areas, water points).
- Regulate attendance via ticketing, pre-registration, staggered entry.
- Establish integrated command center for stakeholder coordination.
2. Risk Identification and Mitigation
- Conduct hazard analysis using past data and local insights.
- Use Failure Mode and Effects Analysis (FMEA) to prioritize risks.
- Perform Rapid Venue Audits (RVA) for crowd management gaps.
- Create preparedness action plans with clear roles and timelines.
3. Communication and Information Dissemination
- Deploy clear signage and public announcement systems.
- Run awareness campaigns on safe routes and emergency contacts.
4. Security and Structural Safety
- Ensure sturdy barricades, wide exits, and compliance with safety norms.
- Use CCTV, drones, and wireless communication for surveillance.
- Implement strategic crowd control with barriers and diversions.
5. Health and Support Facilities
- Provide on-site medical care with ambulances and trained staff.
- Ensure availability of drinking water, toilets, and food stalls.
6. Traffic and Mobility Management
- Control vehicle entry, organize parking, and operate shuttle services.
- Plan emergency evacuation routes and rapid transport logistics.
7. Training and Drills
- Train organizers, police, and volunteers in crowd dynamics and first aid.
- Conduct regular mock drills and tabletop exercises.
8. Legal and Regulatory Compliance
- Obtain necessary permits complying with local laws (e.g., Disaster Management Act 2005).
II. Response and Recovery (After a Stampede)
1. Activation of Response Systems
- Deploy Incident Response System (IRS) with Incident Commander.
- Set up Emergency Operations Centre (EOC) and on-site command posts.
2. Emergency Health Response
- Provide immediate first aid and patient triage.
- Ensure smooth hospital transport via pre-designated ambulance routes.
3. Communication Management
- Disseminate verified updates to media and public.
- Avoid sensationalism; respect privacy of victims.
4. Relief and Psychological Support
- Organize distribution of food, water, and temporary shelter.
- Offer grief counseling and trauma support to survivors and families.
5. Post-Incident Review
- Conduct cause analysis to identify lapses.
- Revise crowd management plans annually or post-major incidents.
6. Accountability and Legal Measures
- Hold responsible individuals/institutions accountable as per law, referencing Uphaar and Dabwali cases.
Conclusion:
- As former NDMA Vice-Chairman M. Shashidhar Reddy aptly stated, “Disasters don’t just happen; they are allowed to happen.” Each stampede is a grim reminder of what happens when preparedness, coordination, and accountability are overlooked. It is imperative that lessons are not just learned but institutionalized.
Upsc Relevance
- Disaster Management (GS III): Exposes gaps in crowd control and emergency response.
- Governance & Ethics (GS II): Highlights accountability of authorities.
Mains Practice Question
Q. Stampedes in India are more a consequence of human failure than natural chaos. Examine this statement in light of recent events and suggest institutional measures to strengthen crowd management in urban spaces. (250 words)