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Components of a Medical Action Plan (MAP) for Mass Gathering Events
(Based on Tintinalli's Emergency Medicine, Chapter 4 - Mass Gathering Medicine)
1. Physician Medical Oversight
Every mass gathering event must have an identified physician medical director responsible for developing and overseeing the MAP. Requirements:
- Board certified in emergency medicine (increasingly, board certified in EMS)
- Current medical license for the state(s) where the event is located
- Experience in EMS medical direction and mass gathering medicine
Two types of oversight the director must plan:
- Indirect oversight - written protocols providing standardized directions for traumatic and medical conditions; must be at least commensurate with local EMS protocols
- Direct oversight - real-time communication with medical providers during the event; the medical director should be on site as much as possible
2. Command and Control
An organized command and control system must be established. The Incident Command System (ICS) is the recommended framework - it can scale for any size event and enables multiple agencies to communicate using common terminology.
ICS structure:
- Command - always established; Incident Commander heads the structure with Safety, Information, and Liaison officers
- Operations - where medical care delivery lives ("the doers"); includes EMTs, paramedics, nurses, PAs, physicians
- Logistics - resources and support
- Planning - situation tracking
- Finance - cost and administration
The physician's role within ICS should focus on direct patient care oversight, not the global issues handled by the incident commander.
Incident Command System organizational chart
3. Force Protection Medical Support
Medical providers who become sick or injured will consume resources intended for the public and distract other providers. The plan must include:
- Dedicated medical care for the medical and law enforcement personnel themselves
- Communication with law enforcement to ensure protection of medical providers
- Rapid response capability for any location should the situation become unsafe
- Awareness of threats: visible threats (crowds) and hidden threats (explosives, weapons)
4. Event Reconnaissance (Site Assessment)
Before the event, the medical director and team must conduct a site survey to:
- Identify potential risks for morbidity
- Review adequacy of exits and routes of ingress/egress
- Identify the geographic area the medical sector is responsible for
- Determine ideal locations for: base of operations, fixed medical care sites, mobile unit staging areas
- Account for predicted traffic flow and sites of high-volume medical need
- Identify natural geographic barriers
- Note the location of receiving medical facilities
- Meet with jurisdictional 9-1-1 EMS medical directors to discuss MCI response plans
- Develop backup plans for all key functions
5. Event Negotiations (Interagency Agreements)
Developing the MAP requires negotiation and agreements with multiple stakeholders:
| Stakeholder | Agreement Content |
|---|
| Event planners | Locations for fixed/mobile units, level of care, resource provision, financing, liability |
| Local EMS | Transport of patients out of the event to receiving hospitals |
| Hospitals | Transfer and acceptance agreements |
| Local law enforcement | Traffic flow management, security |
| Dept. of Homeland Security | National-scale security/disaster response (for large events) |
Regardless of who finances supplies, the medical director should retain ultimate control over the acquisition and maintenance of critical medical supplies.
6. Medical Staffing
Staffing must be scaled to the event based on risk factors and anticipated patient presentation rate. Key considerations:
- Appropriate mix of providers (EMTs, paramedics, nurses, physicians)
- Mobile units (roving personnel to reach patients who cannot access fixed facilities)
- Fixed treatment posts
- Dedicated personnel for performer/VIP/law enforcement medical support
Factors that influence staffing level:
- Estimated crowd size and density
- Duration of the event
- Type of event (concert, sporting event, religious gathering)
- Weather and environmental conditions
- Availability of alcohol/drugs
- Crowd demographics (age, medical conditions)
- Distance from receiving hospitals
7. Medical Equipment and Supplies
The plan must detail:
- Equipment at each fixed and mobile unit (BLS and ALS)
- Medications and antidotes appropriate to anticipated presentations
- Supply chain and restocking protocols
- Special equipment (e.g., AEDs, defibrillators, IV fluids, airway equipment)
- Equipment for environmental emergencies (heat stroke cooling devices, hypothermia management)
8. Treatment Facilities
The plan must specify:
- Fixed treatment posts - clearly marked, accessible to all members of the public including those with disabilities (ADA-compliant)
- Triage area - to sort patients by acuity
- Advanced care area - for critical patients
- Mobile medical personnel - wearing high-visibility vests/clothing for easy public identification
- Pamphlets and signage to alert the public about how to access care
9. Transportation Plan
Includes:
- On-site transport (golf carts, ATVs, stretchers) to bring patients from the crowd to treatment posts
- Ground EMS for transport to hospitals
- Air transport consideration for critically ill or geographically isolated patients
- Pre-designated receiving hospitals with confirmed acceptance agreements
- Clear protocols for activating additional transport resources
10. Communications
A robust communications system is the backbone of any successful mass gathering event. The plan must address:
System design factors:
- Size and geography of the venue
- Number of participants
- Budget
- Environmental factors (temperature extremes, water, noise)
Modalities to consider:
- Consumer walkie-talkies (1-2 mile range, limited)
- Cellular/landline phones (may be overwhelmed by high user density during a crisis)
- Two-way radios (VHF, UHF, 800 MHz) with repeater antennas for extended range
- Trunked radio systems for large-scale, central-controlled communication
Key requirements:
- Communications center co-located with the event command center when possible
- Network separate from surrounding EMS jurisdiction and dedicated solely to the event
- Linked to: PSAP (9-1-1), local emergency management, hospital EDs, public health departments
- Special devices for high-noise venues (concerts, motor sports)
11. Public Health Considerations
(Table 4-4, Tintinalli's)
The MAP should address:
- Access to potable water
- Proper waste management (human and non-human)
- Food service management to prevent foodborne illness
- Road/traffic management to prevent injuries
- Other injury prevention measures
- Plans for large-scale natural or man-made disaster
12. Mass Casualty Incident (MCI) Planning
The event medical director must contribute to and have full working knowledge of the MCI action plan:
- Triage protocols (START triage or equivalent)
- Patient surge management
- Resource request procedures
- Activation criteria for MCI
- Communication with surrounding hospitals about mass casualty capability
- Integration with local/regional emergency management
13. Documentation
A documentation system must be in place for all patient encounters:
- Standardized patient encounter form capturing: demographics, presenting complaint, acuity, medications administered, disposition
- Data used for post-event analysis and quality improvement
- Medical records that comply with patient privacy regulations
- Data sharing with local health departments if required (for public health surveillance)
Summary Diagram
MEDICAL ACTION PLAN
├── 1. Physician Medical Director & Oversight
├── 2. Command & Control (ICS)
├── 3. Force Protection for Medical Staff
├── 4. Site Reconnaissance & Risk Assessment
├── 5. Interagency Agreements & Negotiations
├── 6. Medical Staffing Plan
├── 7. Equipment & Supplies
├── 8. Treatment Facilities (Fixed + Mobile)
├── 9. Transportation Plan
├── 10. Communications System
├── 11. Public Health Measures
├── 12. MCI/Disaster Contingency Plan
└── 13. Documentation System
Source: Tintinalli's Emergency Medicine: A Comprehensive Study Guide - Chapter 4, Mass Gathering Medicine