HOSTAGE SITUATION MANAGEMENT POLICY
(FOR IMMEDIATE GUIDANCE TURN TO BACK PAGE)
Version:
Ratified by:
Date ratified:
Name of originator/author:
Name of responsible
committee/individual:
Date issued:
Review date:
Target Audience
DOCUMENT CONTROL:
1
Risk Management Sub-Group
20th May 2015
Head Of Health Safety & Security
Risk Management Sub-Group
16 June 2015
May 2018
Senior and Duty Managers and staff who take charge
of areas as part of their role. All staff should have an
awareness of this policy.
Staff working in areas where hostage taken is more
likely, should read the policy for guidance.
Page 1 of 14
CONTENTS
SECTION
1.
INTRODUCTION
PAGE
3
1.1 Definitions
3
2.
PURPOSE
3
3.
SCOPE
4
4.
RESPONSIBILITIES, ACCOUNTABILITIES AND DUTIES
4
4.1 Chief Executive
4
4.2 Directors
4
4.3 Managers
4
4.4 Staff
5
5.
PROCEDURE/IMPLEMENTATION
5
5.1 Immediate Guidance For Staff
5
5.2 Contacting The Police
6
5.3 Contacting Trust Managers
6
5.4 Initial Period Managers Actions
6
5.5 Secondary Actions By Managers
7
5.6 Communications
8
5.7 Post-Incident Review
8
6.
TRAINING IMPLICATIONS
8
7
MONITORING ARRANGEMENTS
9
8.
EQUALITY IMPACT ASSESSMENT SCREENING
9
8.1 Privacy, Dignity And Respect
9
8.2 Mental Capacity Act
9
9.
LINKS TO ANY ASSOCIATED DOCUMENTS
10
10.
REFERENCES
10
11.
APPENDICES
10
App. 1
IMMEDIATE GUIDANCE FOR STAFF (Summary of 5.1)
11
App. 2
IMMEDIATE GUIDANCE FOR MANAGERS (summary of 5.3)
12
App. 4
QUICK REFERENCE GUIDE (back page)
14
Page 2 of 14
1.
INTRODUCTION
IMMEDIATE GUIDANCE IS ON THE BACK OF THIS
DOCUMENT – PAGE 14
Any person held against their will by force or threat of force (expressed or implied)
must be considered a hostage. The taking of hostages is an attempt to secure
total control over another person and, therefore, their compliance with the wishes
of the hostage taker(s) in order to bring about the hostages’ release.
Hostage-taking is a serious crime defined in law:
(1)
A person whatever his nationality, who, in the United Kingdom or
elsewhere:
(a)
detains any other person (‘the hostage’), and
(b)
in order to compel a State, international governmental organisation
or person to do or abstain from doing any act, threatens to kill, injure or
continue to detain the hostage, commits an offence.
From The Taking of Hostages Act 1982 Section 1
Confusion about or mishandling of a hostage incident could lead to avoidable
serious consequences. Managers must therefore ensure that all staff are made
aware of this policy and that they understand what actions to take if a situation
arises.
Comparatively new issues such as abortion, genetic research and animal rights,
along with the more common issues such as mental health issues, estrangement,
insensitivity to human emotion, pain and vulnerability, ensure that the healthcare
setting is not immune from the possibility of a hostage situation.
1.1
DEFINITIONS
HOSTAGE is defined as a person held by force or threat (either expressed
or
implied) as security or to achieve fulfilment of certain demands or to enhance a
perpetrator’s sense of power or any combination of these.
HOSTAGE-TAKER is defined as a person who has taken hostages and threatens
violence to his/her victims, other people or self.
HOSTAGE SITUATION is any situation where people are illegally held against
their will; denied their right to move, act, speak and make decisions freely without
endangering their own, or others, safety and well-being.
FIRST-ON-SCENE is the first person to respond to a hostage situation. This
person’s role is to alert others and to keep the situation as calm as possible until
help arrives.
2.
PURPOSE
The purpose of this policy is to give staff guidance and instruction on how to
manage a hostage situation.
A correctly managed situation is more likely to result in the desired outcome.
The primary objectives during a hostage situation are to:
• preserve life
• maintain the safety of staff and the public.
• apprehend the aggressor
Page 3 of 14
3.
SCOPE
All staff within the Trust have a legal responsibility to be aware of the contents of
this policy and follow its guidance. It is imperative that all staff understand what to
do in the event of a hostage situation to protect the safety of their colleagues,
patients, the general public and themselves.
4.
RESPONSIBILITIES, ACCOUNTABILITIES AND DUTIES
4.1
CHIEF EXECUTIVE
The Chief Executive has overall responsibility for the management all hostage
situations throughout the Trust.
4.2
DIRECTORS
The Directors are responsible for;
•
•
•
•
•
•
4.3
Being aware of the contents of this policy.
Managing all hostage situations within their area until more suitable
management or the Police take over.
Liaising with the more suitable manager to effectively manage the situation
Liaising with the Police once they arrive at the scene.
Managing the Trust assets and personnel during the situation to minimise
the effect on the other areas, and maximising the chance of a successful
outcome, in collaboration with the Police.
Ensure that suitable debriefing processes are in place for after the event,
including support / counselling for the hostages and anyone affected by the
situation.
MANAGERS
The Manager is responsible for;
•
•
•
•
•
•
•
•
•
•
Being aware of the immediate and secondary action required to manage a
hostage situation (appendix 2)
Implementing the procedures and precautions when dealing with a hostage
situation.
Ensuring that all staff receive the necessary information / training and
clearly understand the procedures for hostage situations.
Co-ordinating and directing staff, patients, and the general public in the
event of a hostage situation.
Reporting all hostage taking incidents to their manager, (duty) Director and
police.
Liaise with the police when they arrive
Provide all pertinent information about the hostage taker, the hostage and
the environment that the police request.
Ensuring an IR1 is completed
Managing the Trust assets and personnel during the situation to minimise
the effect on the other areas, and maximising the chance of a successful
outcome, in collaboration with the Police.
Organising suitable debriefing processes for after the event, including
support / counselling for the hostages and anyone affected by the situation.
Page 4 of 14
4.4
STAFF
Staff have a responsibility to;
•
•
•
•
•
•
Be aware of what immediate action is required (appendix 3)
Attend any training session or practice situations as required
Immediately report all hostage situations to their manager and if necessary
the police.
In the absence of a manager, provide all pertinent information about the
hostage taker, the hostage and the environment that the police request.
Comply with all instructions issued by a manager or the police.
Complete an IR1 report
5.
PROCEDURE/IMPLEMENTATION
5.1
IMMEDIATE GUIDANCE FOR STAFF HELD HOSTAGE
This section should be read by all staff who are working with service users who
have a history of hostage taking, or other heightened risk of being held.
1. Do not put yourself or others at danger, comply with all requests and
instructions from the hostage-taker.
2. Be assured that the situation is being taken seriously and appropriate
action is being taken to secure your release.
3. It is normal to feel frightened and powerless at the onset of a hostage
situation, but it is important to try to remain as calm and rational as
possible.
4. Be observant; notice what is going on around you you may be released at
any time and could provide essential information.
a. How many hostage-takers
b. How many hostages
c. Weapons?
5. If the hostage-takers are not known, what attributes do they have,
language, description, clues to why they are taking hostages, are they
confident, anxious, in control etc.
6. Do exactly what you are told and do not make suggestions. This is likely to
anger the hostage-takers who will be under stress themselves.
7. Under no circumstances argue with the hostage-taker.
8. Do not say or do anything that may put you or others at further risk.
9. If able to speak, and it is safe to do so, try to calm the hostage-taker. They
will be anxious and more liable to react negatively to stressors.
10. Do not lose hope, and avoid an open display of despair.
11. Initially, do not speak unless spoken to. Only speak when it is clear that the
hostage-takers will not react negatively, if unsure, keep quiet.
12. Try to rest, but do not turn your back towards the hostage-taker.
13. If you need medication, ask for it.
In the case of a rescue attempt, drop to the floor and stay there until told
otherwise by one of the rescuers. If a forced rescue is required, it may well be
noisy and disorientating, remain on the floor until told to move by the rescuers.
Page 5 of 14
5.2
CONTACTING THE POLICE
The taking of hostages is always a matter for the police, and every area of the
United Kingdom has officers on call who are specifically trained in hostage
negotiation techniques.
The police must therefore be called, using 999, as soon as practicably possible.
The staff member making the call to the police should make it perfectly clear that
there is a suspected hostage situation. The police will benefit from the following
information where available:
• the exact location of the incident, including access points
• details of the hostage-taker, including their clinical condition and events
leading up to the incident
• details of hostages
• a suitable rendezvous point for police arrival, where they will be met by
appropriate personnel
• any known weapons or items being used as such
• any known injuries to any party.
5.3
CONTACTING TRUST MANAGERS
At the same time as contacting the Police, the following Trust staff are to be
informed;
• The Relevant (or on call) Modern Matron or Service Manager or Duty
Manager
• The relevant (or on call) Assistant Director or Duty Director
• The Consultant in Charge, or Duty Consultant if the hostage taker is a
patient
• The switchboard, who may have to direct emergency services or answer
calls
• If during work hours, the Trust Security Advisor or Head of Health, Safety &
Security
• The Communication Department to manage any media calls
• Head of Estates, or Duty Estates Manager
5.4
INITIAL PERIOD MANAGERS ACTIONS
1. The first five to 10 minutes of any hostage situation are critical to setting
the stage for the subsequent outcome, and tensions will be highest at this
stage.
2. In the healthcare setting, it is unlikely that the trained police negotiator will
be present during this period; instead, the responsibility will fall to the most
senior member of healthcare staff at the scene.
3. No attempt should be made to enter into any form of discussion with the
hostage-taker, unless failing to do so would place the hostage at greater
risk.
4. No negotiation should be undertaken and no requests granted.
5. Do not give the hostage taker any information about the hostages unless
failing to do so would place the hostage at greater risk.
6. If you are confronted by the hostage-taker(s), you must state that you do
not have the authority to grant any of their demands.
7. No attempt at intervention should be made whatsoever, if there is any
doubt as to its success or its impact on the safety of those concerned.
8. No intervention involving the use of force must be used unless:
Page 6 of 14
a. life is in immediate danger and
b. forcible intervention has a high probability of success.
9. If there is a physical barrier between a witness to the events and the
hostage-taker(s) and it is safe to do so, the situation should be carefully
assessed (for example, using CCTV) in order to determine:
a. the number of hostages
b. physical descriptions, especially of the hostage-taker(s)
c. any specific demands or statements. Make written notes. It is useful
to keep a log of times and actions taken or contacts made for the
information of the professional negotiator
d. behaviour patterns
e. types of weapons
f. any other potentially useful facts.
10. Consideration should be given to greater risks than those currently present
(e.g. access to hazardous materials) and, where it is safe to do so, steps
should be taken to prevent access.
11. All non-essential staff and mobile patients should be withdrawn from the
area in a manner that will not cause alarm to the people themselves or
exacerbate the hostage situation. If this cannot be done without risk of
inflaming the incident, no action should be taken.
12. Where practicable, staff and other patients who cannot be moved from the
area should be protected by the placement of security guards or the
sealing of doors to relevant areas
13. Where possible, efforts should be made to prevent the location of the
incident from moving so that it can be contained and controlled safely until
the arrival of a trained police negotiator; the police will then have a good
foundation for the ongoing management of the situation.
14. Relevant staff should be directed to secure the location by establishing an
exclusion perimeter around the incident site at an appropriate distance
relative to the risk presented. This will prevent the accidental incursion of
unaware staff, patients and visitors into the incident scene. The exclusion
area should also ensure that the immediate access route to the scene is
secure, unobstructed and preferably unobserved from the incident location.
15. If necessary, the business continuity plan for the area should be invoked
and the staff supported in whatever manner is required.
16. The Duty Director should consider invoking the major incident plan,
dependant on the level of the situation and the disruption caused.
5.5
SECONDARY ACTION BY MANAGERS
1. Witnesses to the incident should be asked to remain nearby to provide the
best information to the police when they arrive.
2. Arrangements should be made with estate management or appropriate
personnel to have available site plans, floor layouts and utility schematics
that may be required by the police or the emergency services.
3. Information held pertaining to hazardous materials and fire hazards present
on the site should also be made available to the emergency services.
4. Consideration should be given to whether the situation requires an
interpreter and, where possible, arrangements made for an appropriate
person to be made available to the police until their own interpreter arrives.
5. Consideration should be given to the location of other buildings in relation
to the security incident, and whether any action needs to be taken in
respect of these (e.g. managing unwanted onlookers).
Page 7 of 14
6. Appropriate personnel and medical records for all parties involved should
be made available to the police upon request.
7. Any other information pertinent to the incident (such as records of previous
violent incidents involving the hostage-taker) should be located and made
available to the police.
8. The notification of next of kin for those held hostage is a matter for the
police, unless they specifically instruct otherwise.
9. Consideration should be given to arranging for suitable support, such as
access to counselling services, for those who may have been traumatised
by the incident.
5.6
COMMUNICATIONS
All communications about the situation, to the police, managers and consultants,
should all be done in a quick, quiet and discreet manner out of sight and earshot
of the hostage-taker(s).
Arrangements should be made for all calls into the immediate hostage area to be
diverted to the switchboard or other remote location and for dedicated lines of
communication to be made available for all parties.
No one should talk to the media, all media relations are to be handled by the
Communications Dept., who will be working with the police press officer, who
would have obtained the agreement of the police senior investigating officer in
charge of the incident.
The Trust Communication Team will work with the Police Press Officer to monitor
social media and the press for any communications from the hostages or hostage
takers.
5.7
POST-INCIDENT REVIEW
The police will wish to debrief the hostages formally. However ongoing support
may well be required by the Trust.
The Trust managerial structure should undergo an internal debrief as soon as
possible after the event to assess the effectiveness, or otherwise, of the Trust
response to the hostage taking. This is to be facilitated by the Head of health,
Safety & Security.
Also a meeting should be held between all the agencies involved. The purpose of
this meeting is to learn from the experience and to afford the revision of local and
national guidelines or procedures in light of that experience.
Support and counselling will be made available for the hostages and those
involved in, or affected by, the situation.
6.
TRAINING IMPLICATIONS
There are no specific training needs in relation to this policy, but the following staff
will need to be familiar with its contents:
 Directors
 Assistant Directors / Heads of Service
 Managers
 Emergency Planners / Security staff and any staff who are expected to
take charge of an area during an incident
 and any other individual or group with a responsibility for implementing the
contents of this policy.
Page 8 of 14
As a Trust policy, all staff need to be aware of the key points that the policy
covers. Staff can be made aware through a variety of means such as Team Brief,
Trust wide email and Team meetings.
7.
MONITORING ARRANGEMENTS
Area for
How
Monitoring
Effectiveness of Post incident
the policy and
review,
its guidance
debriefing and
external
feedback from
other agencies
8.
Who by
Reported to
Assistant
Risk
Director / Head management
of Health Safety Sub-Group
& Security,
Security
Management
Director
Frequency
After the
incident
EQUALITY IMPACT ASSESSMENT SCREENING
The completed Equality Impact Assessment for this Policy has been published on
the Equality and Diversity webpage of the RDaSH website click here
8.1
Privacy, Dignity and Respect
The NHS Constitution states that all patients should feel that their Indicate how this will
privacy and dignity are respected while they are in hospital. High be met
Quality Care for All (2008), Lord Darzi’s review of the NHS,
identifies the need to organise care around the individual, ‘not just
clinically but in terms of dignity and respect’.
As a consequence the Trust is required to articulate its intent to
deliver care with privacy and dignity that treats all service users
with respect. Therefore, all procedural documents will be
considered, if relevant, to reflect the requirement to treat
everyone with privacy, dignity and respect, (when appropriate this
should also include how same sex accommodation is provided).
8.2
Mental Capacity Act
Central to any aspect of care delivered to adults and young Indicate How This
people aged 16 years or over will be the consideration of the Will Be Achieved.
individuals capacity to participate in the decision making process.
Consequently, no intervention should be carried out without either
the individuals informed consent, or the powers included in a legal
framework, or by order of the Court
Therefore, the Trust is required to make sure that all staff working
with individuals who use our service are familiar with the
provisions within the Mental Capacity Act. For this reason all
procedural documents will be considered, if relevant to reflect the
provisions of the Mental Capacity Act 2005 to ensure that the
interests of an individual whose capacity is in question can
continue to make as many decisions for themselves as possible.
Page 9 of 14
9.
LINKS TO ANY ASSOCIATED DOCUMENTS





10
REFERENCES

11
Security Policy
Lockdown Policy
Major Incident Plan
Business Continuity Policy
Supporting Staff Involved in a Traumatic/Stressful Incident,
Complaint or Claim
NHS Protect Secure document SA4 – Hostage Incident,
not on public release.
APPENDICES
App.1
IMMEDIATE GUIDANCE FOR STAFF
App.2
IMMEDIATE GUIDANCE FOR MANAGERS
App.4
QUICK REFERENCE GUIDE
Page 10 of 14
Appendix 1
IMMEDIATE GUIDANCE FOR STAFF (Summary of 5.1)
1. Do not put yourself or others at danger, comply with all requests and instructions
from the hostage-taker.
2. Be assured that the situation is being taken seriously and appropriate action is
being taken to secure your release.
3. It is normal to feel frightened and powerless at the onset of a hostage situation, but
it is important to try to remain as calm and rational as possible.
4. Be observant, notice what is going on around you if possible
5. Do exactly what you are told and do not make suggestions.
6. Under no circumstances argue with the hostage-taker.
7. Do not say or do anything that may put you or others at further risk.
8. If able to speak, and it is safe to do so, try to calm the hostage-taker.
9. Do not lose hope, and avoid an open display of despair.
10. Initially, do not speak unless spoken to.
11. If you need medication, ask for it.
12. In the case of a rescue attempt, drop to the floor and stay there until told otherwise
by one of the rescuers. If a forced rescue is required, it may well be noisy and
disorientating, remain on the floor until told to move by the rescuers.
Page 11 of 14
Appendix 2
IMMEDIATE GUIDANCE FOR MANAGERS (summary of 5.3)
Once you have decided that the situation is a hostage taking, then;
A number of actions are required to be put into place at the same time, if you have enough
staff;
1. Inform the;
a. Police – give them all the information you have
b. Manager / Assistant Director / Duty Manager and Duty Director
2. All non-essential staff and mobile patients should be withdrawn from the area in a
manner that will not cause alarm to the people themselves or exacerbate the
hostage situation. If this cannot be done without risk of inflaming the incident, no
action should be taken.
3. Where practicable, staff and other patients who cannot be moved from the area
should be protected by the placement of security guards or the sealing of doors to
relevant areas.
4. Relevant staff should be directed to secure the location by establishing an exclusion
perimeter around the incident site at an appropriate distance relative to the risk
presented. This will prevent the accidental incursion of unaware staff, patients and
visitors into the incident scene. The exclusion area should also ensure that the
immediate access route to the scene is secure, unobstructed and preferably
unobserved from the incident location.
5. No attempt at intervention should be made whatsoever, if there is any doubt as to
its success or its impact on the safety of those concerned.
6. No intervention involving the use of force must be used unless:
a. life is in immediate danger and
b. forcible intervention has a high probability of success.
7. No attempt should be made to enter into any form of discussion with the hostagetaker, unless failing to do so would place the hostage at greater risk.
8. No negotiation should be undertaken and no requests granted.
9. Do not give the hostage taker any information about the hostages unless failing to
do so would place the hostage at greater risk.
10. If you are confronted by the hostage-taker(s), you must state that you do not have
the authority to grant any of their demands.
Page 12 of 14
Intentionally Blank
Page 13 of 14
Appendix 4
QUICK REFERENCE GUIDE
HOSTAGE SITUATION – INITIAL ACTION
REMEMBER – EVERYONE IS A POTENTIAL HOSTAGE,
DO NOT ALLOW ANYONE ELSE TO GO TO THE HOSTAGE TAKER
No.
1.
INITIAL ACTION
CALL THE POLICE (999 or 2222)
DONE?
(TICK)
TIME
REF.
5.2
Ensure they understand that it is a hostage
situation and provide as much information as
possible.
2.
INFORM;
5.3
Switchboard
Service Manager (or Duty Manager) for that area
Assistant Director (or Duty Director) for that area
Head of Estates or Duty Estates Officer
Communication Department
Consultant in Charge, or Duty Consultant if the
hostage taker is a patient
If during work hours;
Trust Security Advisor or Head of Health,
Safety & Security
Emergency Planning Officer
3.
IF POSSIBLE MOVE PEOPLE AWAY FROM THE
HOSTAGE INCIDENT AREA
5.4 12
4.
STOP UNWARY PEOPLE FROM ENTERING
THE HOSTAGE INCIDENT AREA
5.4 14
5.
ARRANGE FOR ALL CALLS TO THE IMMEDIATE
HOSTAGE INCIDENT AREA TO BE DIVERTED
TO THE SWITCHBOARD
5.6
6.
CONSIDER SECURING OTHER NEARBY
BUILDINGS / AREAS AND IDENTIFY ANY
HAZARDOUS MATERIALS NEARBY
5.5 6
5.5 2
STEPS 3, 4,5 & 6 CAN BE COMPLETED BY OTHERS WHILE INFORMING PEOPLE.
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