ISO/FDIS 22353

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ISO/TC 292
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Secretariat: SIS
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Date: 2026-02-2704-17
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Security and resilience — Guidelines for crowd management
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ISO/DISFDIS 22353:2026(en)
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ii
ISO/DISFDIS 22353:2026(en)
Contents
Foreword . iii
Introduction . iii
Scope . iii
Normative references . iii
Terms and definitions . iii
Framework . iii
General . iii
Supportive . iii
Integrated . iii
Sufficient . iii
Adaptive . iii
Professional . iii
Principles. iii
General . iii
Governance . iii
Free movement . iii
Visitor guidance . iii
Influencing factors . iii
Influencing phases . iii
Systematic work . iii
Continual improvement . iii
Crowd assessment process . iii
General . iii
Communication and consultation . iii
Assessment scope, context and criteria . iii
Analysis . iii
Evaluation and compliance . iii
Documentation and implementation . iii
Monitoring and review . iii
Execution . iii
General . iii
Execution of plans . iii
Organization . iii
Preparation. iii
Coordination and cooperation. iii
Surveillance and intelligence . iii
Adaptation and correction . iii
Performance evaluation and continual improvement . iii
General . iii
Information gathering . iii
Assessment . iii
Lessons learned. iii
Documentation and lessons learned . iii
Bibliography . iii
Foreword . v
Introduction . vi
iii
ISO/DISFDIS 22353:2026(en)
1 Scope . 1
2 Normative references . 1
3 Terms and definitions . 1
4 Framework . 3
4.1 General. 3
4.2 Supportive . 4
4.3 Integrated . 4
4.4 Sufficient . 4
4.5 Adaptive . 4
4.6 Professional . 5
5 Principles . 5
5.1 General. 5
5.2 Governance . 5
5.3 Free movement . 7
5.4 Visitor guidance . 7
5.5 Influencing factors . 8
5.6 Influencing phases . 10
5.7 Systematic work . 11
5.8 Continual improvement . 11
6 Crowd assessment process . 12
6.1 General. 12
6.2 Communication and consultation . 12
6.3 Assessment scope, context and criteria . 13
6.4 Analysis . 14
6.5 Evaluation and conformity . 22
6.6 Documentation and implementation . 22
6.7 Monitoring and review . 25
7 Execution . 25
7.1 General. 25
7.2 Execution of plans . 26
7.3 Organization . 26
7.4 Preparation . 26
7.5 Coordination and cooperation . 26
7.6 Surveillance and intelligence . 27
7.7 Adaptation and correction . 27
8 Performance evaluation and continual improvement . 27
8.1 General. 27
8.2 Information gathering . 27
8.3 Assessment . 28
8.4 Lessons learned . 28
8.5 Documentation and lessons learned . 28
Bibliography . 29

iv
ISO/DISFDIS 22353:2026(en)
Foreword
ISO (the International Organization for Standardization) is a worldwide federation of national standards
bodies (ISO member bodies). The work of preparing International Standards is normally carried out through
ISO technical committees. Each member body interested in a subject for which a technical committee has been
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International Electrotechnical Commission (IEC) on all matters of electrotechnical standardization.
The procedures used to develop this document and those intended for its further maintenance are described
in the ISO/IEC Directives, Part 1. In particular, the different approval criteria needed for the different types
of ISO documentsdocument should be noted. This document was drafted in accordance with the editorial rules
of the ISO/IEC Directives, Part 2 (see www.iso.org/directives).
Attention is drawnISO draws attention to the possibility that some of the elementsimplementation of this
document may beinvolve the subjectuse of (a) patent(s). ISO takes no position concerning the evidence,
validity or applicability of any claimed patent rights. in respect thereof. As of the date of publication of this
document, ISO had not received notice of (a) patent(s) which may be required to implement this document.
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This document was prepared by Technical Committee ISO/TC 292 , Security and resilience.
Any feedback or questions on this document should be directed to the user’s national standards body. A
complete listing of these bodies can be found at www.iso.org/members.html.
v
ISO/DISFDIS 22353:2026(en)
Introduction
Crowd accidents and disasters frequently occur at events, venues, mass gatherings and crowded places
worldwide. Investigations and evaluations conclude that many of these incidents could have been prevented
with systematic and adequate crowd management.
This document supports event organizers, event rights holders, event hosts, venue operators, and emergency
services in ensuring effective, successful, and safe crowd management to provide a safer environment for
those attending events.
This document supports users in implementing safety and security measures to prevent crowd-related
incidents for both spectators and participants.
This document support event organizers and events hosts in communication with relevant interested parties
and the public throughout every stage of event preparation and execution.
This document encourages event organizers and event hosts to ensure that the execution of the event aligns
with:
[1][1]
— —  the United Nations. (1948). Universal Declaration of Human Rights ;
Formatted: List Continue 1
— —  the United Nations. (2015). Sustainable Development Goals, as specified in Transforming our world:
[2] [2]
The 2030 Agenda for Sustainable Development ; .

vi
ISO/DISFDIS 22353:2026(en)
Security and resilience — Guidelines for crowd management
1 Scope
This document provides guidelines for crowd management at events, mass gatherings and crowded places. It
is designed to assist event organizers, event rights holders, event hosts, venue operators, and emergency
services in planning and executing effective, successful, and safe crowd management by ensuring:
— implementation of the framework and principles for crowd management;
— necessary event and crowd profiling to understand the crowd management risk;
— available spaces for expected crowds using crowd capacity assessments;
— sufficient crowd management in the ingress, event circulation, and egress phases;
— safe and secure venues, spaces, and pathways for crowds in all phases and situations;
— sufficient crowd management plans both for planned execution and in emergencies;
— necessary engagement and involvement of public and private interested parties;
— continual improvement through systematic evaluation of crowd management arrangements.
This document does not address crowd control or situations that require intervention to manage crowds that
display undesirable or dangerous behaviours.

2 Normative references
The following documents are referred to in the text in such a way that some or all of their content constitutes
requirements of this document. For dated references, only the edition cited applies. For undated references,
the latest edition of the referenced document (including any amendments) applies.
ISO 20121:2024, Event sustainability management systems — Requirements with guidance for use
ISO 22300:2025, Security and resilience — Vocabulary
ISO 22379:2022, Security and resilience — Guidelines for hosting and organizing citywide or regional events
3 Terms and definitions
For the purposes of this document, the terms and definitions given in ISO 22300:2025 , ISO 22379:2022 , ISO
20121:2024 and the following apply.
ISO and IEC maintain terminology databases for use in standardization at the following addresses:
— ISO Online browsing platform: available at https://www.iso.org/obp
— IEC Electropedia: available at https://www.electropedia.org/
ISO/DISFDIS 22353:2026(en)
3.1
crowd
large gathering of people
3.2
crowd management
systematic process of planning, organizing, monitoring and guidance of large gatherings of people
Note 1 to entry: The objective of crowd management is to facilitate a positive event experience, while establishing a safe
and secure environment for large gatherings of people, by maintaining adequate space to avoid undesirable crowd
movement and behaviours.
3.3
event
planned physical, digital or hybrid gathering with respect to time and a place where an experience is created
and/or a message is communicated
Note 1 to entry: The term "event" will also include mass gatherings and crowded places.
[SOURCE: ISO 20121:2012, 3.7]
[SOURCE: ISO 20121:2012, 3.7, modified — note 1 to entry has been added.]
3.4
event organizer
private or public entity or organization responsible to ensure that the event (3.3) is executed as planned and
in compliance with current legislations, guidelines and agreements
[SOURCE: ISO 22379:2022,ISO 22379:2022, 3.3, modified -— "event" has been added to the term.)].]
3.5
event rights holder
legal entity either holding or authorized to use one or more intellectual property rights
[SOURCE: ISO 22379:2022,ISO 22379:2022, 3.9]
3.6
event host
public entity or organization responsible to ensure that the event (3.3)(3.3) is executed in surroundings
sufficiently prepared for the event as planned and in compliance with current legislations, guidelines and
agreements
[SOURCE: ISO 22379:2022,ISO 22379:2022, 3.1, modified -— "event" has been added to the term.)].]
3.7
crowd management arrangements
activities and measures implemented to manage large gatherings of people
3.8
crowd control
actions taken to control large gatherings of people once behaviours become undesirable
3.9
venue
physical location where an event is held
ISO/DISFDIS 22353:2026(en)
3.10
pedestrian flow rate
number of pedestrians that can pass through a process or an area in a set amount of time
3.11
risk
effect of uncertainty on objectives
Note 1 to entry: An effect is a deviation from the expected — positive or negative.
Note 2 to entry: Uncertainty is the state, even partial, of deficiency of information related to, understanding or knowledge
of, an event, its consequence, or likelihood.
Note 3 to entry: Risk is often characterized by reference to potential events (as defined in ISO Guide 73) and
consequences (as defined in ISO Guide 73),, or a combination of these.
Note 4 to entry: Risk is often expressed in terms of a combination of the consequences of an event (including changes in
circumstances) and the associated likelihood (as defined in ISO Guide 73) of occurrence.
Note 5 to entry: In Notes 2, 3 and 4 to entry, the term “event” does not refer to the term “event” as defined in 3.7.
[SOURCE: ISO 31000:2018, 3.1)]
3.12
zone ex
[SOURCE: ISO 31000:2018, 3.1, modified — notes to entry have been modified; note 4 to entry has been
added.]
3.12
Zone Ex
areas surrounding a venue
Note 1 to entry: Zone Ex can be an integral part of the overall crowd management arrangements. (3.7).
Formatted: Font: Italic
Note 2 to entry: Zone Ex can include streets, concourses, transport hubs, and parking areas where crowds gather outside
of direct venue`s control.
4 Framework
4.1 General
Crowd management has two main objectives:
— to enhance a successful and positive event experience;
— to ensure safe and secure conditions for people included in or impacted by the event.
To achieve these objectives, crowd management should follow this framework and be:
— supportive;
— integrated;
— sufficient;
— adaptive;
ISO/DISFDIS 22353:2026(en)
— professional.
The characteristics of effective and efficient crowd management are described in 4.2 to 4.6
Field Code Changed
NOTE People impacted by an event include, but are not limited to, participants, spectators, staff, emergency
personnel, residents and bystanders.

4.2 Supportive
The organization, process, and arrangements of crowd management should align with and support the
objectives, goals, and needs of the event organizer as much as possible.
Crowd management plays a significant role in the execution, experience and perception of an event. Therefore,
the implemented crowd management arrangements should be tailored to suit the specific purpose of the event
to the greatest extent possible.
4.3 Integrated
The organization, process and arrangements of crowd management should be integrated into the event
organizer's organization and event risk management procedures.
Crowd management significantly influences the overall risk and mitigation strategies during an event.
Therefore, crowd management risks and risk treatment should, where possible, be integrated into the broader
event risk management.
The crowd management organization should ensure that the crowd management process and arrangements
are in alignment with implemented event safety concepts and preventive measures.
Risk management should be conducted in alignment with ISO 31000[3]ISO 31000.
4.4 Sufficient
The organization, process, and arrangements of crowd management should be proportionate to the extent of
the event and anticipated crowd size and behaviours.
At events with multiple venues, the main event should provide governing crowd management objectives, but
each venue should have a separate crowd management organization, process and arrangements.
4.5 Adaptive
The organization, process, and arrangements of crowd management should be adaptable to potential changes
in the event environment, event execution, and crowd behaviour.
A plan to ensure the ability to adapt the crowd management organization, process, and arrangements should
be included in both the crowd management plan and the contingency planning.
NOTE 1 The event environment can include, but is not limited to, venues, infrastructure, capacity, emergency services
and weather.
NOTE 2 Event execution can include, but is not limited to, time, content and event capacity.
NOTE 3 Crowd behaviour can include, but is not limited to, numbers, composition, aggression, health status and
liquidity.
ISO/DISFDIS 22353:2026(en)
4.6 Professional
The crowd management should be conducted by a competent organization with crowd management expertise
and experience suitable to the event's size, complexity and risk.
Events of varying sizes, complexities and risks should be managed according to their specific crowd
management needs, based on their specific event profile and the need for professional handling.
5 Principles
5.1 General
The main purpose of crowd management is to facilitate a positive, safe, and secure event experience for
spectators, participants and staff during an event.
The event experience begins with the journey of spectators and participants towards the event, continues
throughout the event, and concludes with their travel away from the event.
To support and enhance a positive, safe, and secure event experience, crowd management should be
conducted using the following principles:
— governance;
— free movement;
— visitor guidance;
— influencing factors: design, information, management;
— influencing phases: ingress, circulation, egress;
— systematic approach;
— continual improvement.
5.2 Governance
5.2.1 General
The event organizer should establish a sufficient and competent crowd management organization as early as
possible in the event planning process, ensuring:
— clarification of roles and responsibility;
— clarification of the legal and regulatory framework;
— clarification of the areas of responsibility for crowd management;
— resources and competence;
— approval and commitment.
ISO/DISFDIS 22353:2026(en)
5.2.2 Clarification of roles and responsibility
The event organizer should clearly define and document the roles and responsibilities for crowd management
between the event organizer, the event host and the authorities.
The event organizer should designate the role responsible for crowd management within their organization,
and clearly document the associated responsibilities.
NOTE The responsibility for crowd management can be designated to an existing role.
5.2.3 Clarification of legal and regulatory framework
The event organizer should clarify the legal and regulatory framework applicable to crowd management and
ensure and document compliance therofwith the relevant framework.
Legal and regulatory frameworkframeworks can include, but are not limited to:
— legal and regulatory requirements for crowd management;
— limitations to authority over crowds or venues;
— limitations to crowd management arrangements.
NOTE Legal and regulatory requirements can include health and safety regulations and building codes.
5.2.4 Clarification of the area of responsibility for crowd management
The event organizer should clarify the extent of their responsibility for crowd management in terms of:
— time;
— scope;
— contingency;
— space.
The event organizer should clarify the responsibilities for crowd management with the following interested
parties, including but not limited to:
— relevant authorities;
— public emergency services;
— public transport providers;
— property owners;
— other relevant involved organizations.
5.2.5 Resources and competence
The event organizer should ensure that their crowd management organization is robust and resilient.
The crowd management organization should have the necessary resources and competencecompetencies to
plan and execute a professional, safe, and secure crowd management in accordanceaccording to the event size,
complexity, and associated risks.
ISO/DISFDIS 22353:2026(en)
5.2.6 Approval and commitment
The event organizer should obtain and document approval for the crowd management planning, execution,
and arrangements from the following interested parties, including but not limited to:
— relevant authorities;
— public emergency services;
— public transport providers;
— property owners.
The event organizer should obtain and document commitment, with regard to the crowd management
planning, execution, and arrangements, from the following interested parties, including but not limited to:
— the event organizer management team;
— relevant authorities;
— public emergency services
— public transport providers;
— property owners;
— other relevant involved organizations.
5.3 Free movement
In their crowd management planning and execution, the event oganizerorganizer should ensure that
individuals attending the event at all times have:
— the ability to move freely within their designated area and exit the area without being confined;
— the ability to move freely within their designated area without danger, and by their own decision.
NOTE In the event that an incident occurs, free movement can be limited temporarily or permanently.
5.4 Visitor guidance
In their crowd management planning and execution, the event organizer should ensure that individuals
attending the event always have:
— necessary information available to make decisions and act in accordance withaccording to the planned
and desired crowd movement and behaviour;
— sufficient guidance in the design of their designated area to support movement and behavior in accordance
withaccording to the planned and desired crowd movement and behaviour.
Necessary and sufficient visitor guidance should be available and implemented for both normal operations
and emergency situations, such as evacuations.
ISO/DISFDIS 22353:2026(en)
5.5 Influencing factors
5.5.1 General
The following influencing factors can be used to guide and influence a crowd before, during and after an event:
— design;
— information;
— management.
5.5.2 Design
Design comprises the arrangement and utilization of physical space, including objects contained within it:
— spatial designing of where the crowd is supposed to move:
— placement and arrangement of internal features, referred to as internal focal points, such as stages,
spectator stands, entrances, exits, vendors, and toilets;
— placement and arrangement of external features, referedreferred to as external focal points, such as
public transport stations, parking spaces, and city centres;
— preferred routes between focal points, referedreferred to as focal routes.;
— spatial designing of where the crowd can move:
— buildings, walls, and other structures that influence or set conditions for movement;
— sightlinessight lines that set conditions for the vision of the crowd;
— focal points that determine the approach angles, setting the conditions for how a space is filled;
— access control, ticketing, accreditation, security checkpoints;
— venue intuitiveness that affects the crowd's ability to understand and navigate the space.;
— spatial designing of how the crowd can move:
— pedestrian flow rates, accounting for bottlenecks and other features that can restrict movement;
— areas allocated for standing or queuing;
— corners and angles that influence the movement of the crowd;
— surface conditions and terrain slope;
— lightning conditions, natural or installed.
NOTE 1 Spatial design can include guiding or limiting elements such as grids, fences and barriers.
NOTE 2 It is advantageous if areas are set aside for emergency services to ensure that they do not cross paths with
streams of visitors.
ISO/DISFDIS 22353:2026(en)
5.5.3 Information
Information comprises the available information or communication directed at the crowd and involved
parties, with the purpose of influencing their expectations, understanding, and knowledge necessary to
navigate and conduct safe movement before, during, and after the event. This includes the clarity,
comprehensiveness, and distribution of the information, and the ability to engage the audience effectively.
Locations or channels for the distribution of information before, during, and after the event can include, but
are not limited to:
— upon purchase or registration of access to the event;
— on tickets or other items confirming access;
— the event website;
— the internet and social media;
— event -specific apps;
— media coverage, such as formal press releases, including text, video, and audio;
— screens, posters, or signage;
— public address (PA-) systems (Public Address system) and loudspeakers;
— knowledgeable and informative staff;
— professional announcers;
— fire alarm systems and other alarm systems;
— predefined safety announcement systems;
— crowd directed text messages.
Information distributed before, during, and after the event can include, but is not limited to:
— information about the event;, i.e. time, place, and content;
— weather forecast;
— transport to and from the event;
— service provided before, during, and after the event;
— conditions of entry to the event;
— event plans;
— contingency plans, including evacuation routes.
Ad hoc information on changes related to the event or emergency announcements can be distributed before,
during, and after the event to:
— adjust expectations;
ISO/DISFDIS 22353:2026(en)
— change audience behaviour;
— increase understanding or knowledge about a situation;
— stop a performance or event;
— initiate evacuation or lockdown.
Information can be distributed on the way to or from the event, outside or inside the venue.
5.5.4 Management
Management comprises the configuration and execution of the event, including scheduling the event,
establishing rules, organizing workflows, working methods, and developing procedures, plans, maps and
equivalent.
Management includes, but is not limited to:
— temporal aspects of the event:
— the timing and time frame of the event;
— scheduling the programme of event, including breaks.;
— facilitation of crowd movement:
— rules and guidelines for the crowd;
— staff working methods and competence;
— sufficiency, efficiency and adaptiveness of the organization.
— management of the crowd:
— methods for monitoring of the crowd;
— methods for communicating crowd movement and crowd risks;
— methods for managing the crowd;
— possibility and preparedness to change the crowd behaviour to fit the event situation;
— possibility and preparedness to change the event situation to fit the crowd behaviour.
5.6 Influencing phases
5.6.1 General
The influencing phases represent the three main phases of crowd movement and activities before, during, and
after an event, as crowd motivation, priorities, and behaviour differ across these phases.
Crowd dynamics and behaviour can be divided into the following three phases:
— ingress;
— circulation;
ISO/DISFDIS 22353:2026(en)
— egress.
5.6.2 Ingress
Ingress refers to the phase during which the crowd is en route to the event, and when they enter the venue.
The ingress phase should beginbe managed in accordance with consideration of the clarification of crowd
management responsibilityresponsibilities outlined in 5.2.4.
The ingress phase can be referred to as the arrival phase.
5.6.3 Circulation
Circulation refers to the phase during which the crowd moves individually or in groups while participating in
the event at the venue.
5.6.4 Egress
Egress refers to the phase during which the crowd prepares to leave the event and departs from the venue.
The egress phase should endbe managed in accordance with consideration of the clarification of crowd
management responsibilityresponsibilities outlined in 5.2.4 .
The egress phase can be referred to as the departure phase.
5.7 Systematic work
The event organizer should conduct crowd management planning, execution, and evaluation in a systematic
manner, including the following:
— conducting a crowd assessment to gather and analyse information regarding the event;
— developing a crowd management plan based on the findings from the crowd assessment;
— conducting a risk assessment to identify possibilities and challenges related to the crowd management
plan;
— finalizing the crowd management plan based on the findings from the risk assessment;
— developing a crowd management contingency plan based on the findings from the risk assessment;
— ensuring that the crowd management arrangements are integrated with the event risk management and
event safety arrangements;
— implementing and executeexecuting the crowd management according to plan, or the crowd management
contingency plan, as intended, and adjust if necessary;
— evaluating the effectiveness of the conducted crowd management plan, or the crowd management
contingency plan, and identify areas for improvement.

5.8 Continual improvement
The event organizer should ensure that lessons learned from events are used to drive the continual
improvement of their crowd management, both:
ISO/DISFDIS 22353:2026(en)
— internally, during and between events, to improve performance based on lessons learned;
— externally, after events, by sharing lessons learned with interested parties involved in similar events.
6 Crowd assessment process
6.1 General
The crowd assessment process involves the following aspects:
— communication and consultation with interested parties 6.2;
Field Code Changed
— application of criteria for crowd management evaluation 6.3;
Field Code Changed
— identification of event characteristics, development of crowd management plans, and crowd risk
treatment 6.4;
— evaluation of the anticipated effectiveness of the crowd management plans and their compliance
withconformity to the criteria for crowd management evaluation 6.5;
— implementation of the crowd management plans 6.6;
Field Code Changed
— review for continual improvement of the crowd management plans 6.7.
Field Code Changed
6.2 Communication and consultation
6.2.1 General
The purpose of communication and consultation is to help all relevant interested parties understand the
crowd risk, a
...