London mass fatality plan version 4 - Greater London Authority

London Resilience Partnership 

London Mass Fatality Plan 

Version 4.0 

April 2012 

Plan 

Including arrangements for the 2012 Olympic and Paralympic Games 

(Section 9) 

Appendices containing operational detail (RESTRICTED) available to 

responders on the National Resilience Extranet

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PAGE LEFT INTENTIONALLY BLANK

TABLE OF CONTENTS 

TABLE OF CONTENTS .........................................................................................3 

RECORD OF AMENDMENTS ..............................................................................5 

LONDON MASS FATALITY PLAN INFORMATION SHEET ..........................6 

SECTION 1 - INTRODUCTION ............................................................................7 

1.1 Aims of the plan .........................................................................................7 

1.2 Purpose of the plan .....................................................................................8 

1.3 Threats and risks.........................................................................................8 

1.4 Considerations during a Mass Fatality incident ...........................................8 

1.5 Lord Justice Clarke ....................................................................................9 

1.6 Signposting to other plans.........................................................................10 

1.7 Useful websites.........................................................................................11 

1.8 Security classification...............................................................................11 

SECTION 2 - ROLES, RESOURCES AND ASSETS ..........................................13 

2.1 Home Office Emergency Preparedness Fatality Team...............................13 

2.2 Cadre of coroners......................................................................................13 

2.3 Metropolitan Police Services DVI.............................................................13 

2.4 London’s coroner and Designated Disaster Mortuaries .............................13 

2.5 National Emergency Mortuary Arrangements (NEMA) ...........................13 

2.6 London NEMA sites .................................................................................14 

2.7 Temporary mortuary licence .....................................................................14 

2.8 Family liaison...........................................................................................14 

2.9 Family viewing.........................................................................................15 

2.10 Costs.....................................................................................................15 

2.11 Disaster Appeal Fund plan ....................................................................16 

2.12 Chemical, Biological, Radiological, Nuclear and Enhanced Conventional 

Weapons (CBRNE) ............................................................................................16 

2.13 Humanitarian Assistance Centre ...........................................................16 

2.14 Religious and cultural issues .................................................................16 

2.15 The Voluntary Sector Capabilities document.....................................16 

SECTION 3 - PLAN ACTIVATION.....................................................................18 

3.1 Mass Fatality Operational Plan .....................................................................18 

3.2 Police and the coroner...............................................................................18 

3.3 London Resilience Team ..........................................................................18 

3.4 Local Authority ........................................................................................18 

3.5 Mass Fatality Co-ordination Group...........................................................19 

3.6 Requesting central assistance....................................................................19 

3.7 Gold / Strategic Co-ordinating Group .......................................................20 

SECTION 4 - INTERNATIONAL DIMENSION.................................................22 

4.1 Foreign and Commonwealth Office ...........................................................22 

4.2 UK Disaster Victim Identification Team...................................................22 

SECTION 5 - COMMUNICATIONS AND MEDIA STRATEGY......................23 

5.1 London Media Emergency Protocol..........................................................23 

5.2 The London Resilience Team ...................................................................23 

London Mass Fatality Plan Page 3 of 73 

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SECTION 6 - HEALTH AND SAFETY ...............................................................25 

SECTION 7 – DEBRIEFING ................................................................................26 

SECTION 8 - TRAINING AND EXERCISING...................................................27 

SECTION 9 – OLYMPICS 2012 MASS FATALITY PLANNING .....................28 

9.1 Disaster Victim Identification (DVI).........................................................28 

SECTION 10.0 - GLOSSARY OF TERMS ..........................................................29 


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RECORD OF AMENDMENTS 

Date Version Author Changes 

Any queries or enquiries should be directed to lrt@london.gov.uk. 


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LONDON MASS FATALITY PLAN INFORMATION SHEET 

Who is the 

national lead? 

Who is the London 

co-ordination 

lead? 

Who initiates the 

London Mass 

Fatality Plan? 

Who notifies the 


Fatality Incident? 

What 

communication 

methods will be 

used? 

When will the 


Fatality Plan be 

reviewed? 

Key Partner 

responsibilities 

Who will 

coordinate the 

media response? 

Delivery of pan 

London measures 

Home Office 

Head of London Resilience 

The decision whether to convene a partnership meeting or monitor the 

situation will be made during a Tripartite discussion between Her Majesty’s 

Coroner, Metropolitan Police Service and LRT 

Partners will be notified according to the LESLP Protocol and a Gold 

Coordinating Group formed. 

A London media cell will sit alongside the Gold Coordinating Group, 

through which public messages will be formed and communicated. A public 

spokesperson will be nominated. 

Bi annually revision unless an incident or lessons from exercises requires 

earlier revision 

Her Majesty’s Coroner – takes strategic control of incident and sets scope 

and nature of post mortem response 

Metropolitan Police Service – initiates Disaster Victim Identification process 

and Investigation in consultation with Coroner 

London Resilience Team – Co-ordinates Local Authority Response and acts 

as conduit from regional to central government tiers 

Coordinated through the media cell. 

The Gold coordination group will coordinate and deal with pan London 

multi agency issues. 


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SECTION 1 - INTRODUCTION 

The London Mass Fatality Plan (LMFP) provides a comprehensive basis for planning and 

delivering a response to a mass fatality incident in the Capital, as informed by the 

National Risk Register and the National Planning Assumptions 2008 (Restricted). 

Following any incident resulting in mass fatality, there will be a range of physical, 

evidential, safety and psychological challenges to those organising and directing the 

response. The recovery of fatalities is taxing for those directly involved and is generally 

an emotive issue. The process must be carefully handled, balancing the need to preserve 

the integrity of any crime scene and resulting evidence with the safety of staff 

undertaking the process whilst maintaining, so far as possible, the dignity of the 

deceased and having regard to the to the social and ethnic sensibilities of their relatives. 

In incidents involving chemical, biological, radiological or nuclear materials, these 

challenges are further complicated by the possible presence of contaminating agents on 

and around the fatalities which present potential health risks 1 . 

The LMFP is intended for use by representatives of all agencies who would have a role 

in the management of a mass fatality incident in the Capital. The operational detail is 

presented in the Appendices (Restricted). 

A mass fatality incident is defined as ‘any incident where the number of fatalities is 

greater than normal local mortuary arrangements can manage’. Any plan for dealing 

with fatalities needs to be integrated with all aspects of the response and recovery. 

Organisations need to work in collaboration with others on key activities and ensure 

their own plans are robust. 

This plan is produced and maintained by the London Resilience Team and sits alongside 

the Strategic Emergency Plan for London and other relevant emergency plans to meet 

the requirements of the Civil Contingencies Act 2004 and the obligations it places on 

responders in the event of an emergency. Version 4 of the LMFP replaces all previous 

versions and will be reviewed as and when necessary, but within two years of 

publication. 

1.1 AIMS OF THE PLAN 

To provide an integrated emergency response to a mass fatality incident in the 

capital. 

To provide options for dealing with incidents involving large numbers of human 

fatalities. The plan may also be used in response to an incident overseas which 

calls for the identification and repatriation of large numbers of UK Nationals. 

To act as a signposting document to other agencies and more detailed plans. 

1 

The Safe Handling of Contaminated Fatalities Guidance Document June 2009 Home Office 


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1.2 PURPOSE OF THE PLAN 

To ensure that London has a capability to respond rapidly, effectively and flexibly with 

the consequences of an incident involving Mass Fatality: 

Support for those who have been bereaved, including communication of 

information about fatalities to those who have been bereaved and to the wider 

public 

Ensuring that information about current local mortuary capacity and other 

resources is readily available to the Mass Fatality Coordination and Gold 

Coordinating Groups 

Establish and audit the availability of sufficient specialist staff locally or 

regionally, including Disaster Victim Identification (DVI) staff, Forensic Matching 

Specialists, Forensic Odontologists, Forensic Pathologists and Anatomical 

Pathology Technologists (APTs) 

Planning for any National Emergency Mortuary Arrangements (NEMA) 

deployment (connection of utilities, ground quality, disposal of waste, transport, 

security of site, etc) 

Ensuring readiness to respond to other Mass Fatality emergencies during or 

soon after the initial emergency. 

1.3 THREATS AND RISKS 

Mass fatality incidents can occur without warning and can broadly be expected to fall 

within: 

Natural events - flooding, severe weather, earthquakes, etc 

Major accidents - including transport, industrial, and fire 

Malicious attacks - including terrorism and criminality 

Crowd related incidents - involving disorder and/or overcrowding. 

1.4 CONSIDERATIONS DURING A MASS FATALITY INCIDENT 

Lessons learned from other mass fatality incidents and exercises indicate that the 

following issues may arise and planners need to be aware of: 

Planners should assume potential for wide dispersal of victims and body parts 

For each incident, a Casualty Bureau (police led) may be established to collate 

and pass on to police relevant data about persons who have been reported as 

missing 

The bodies of victims may require storage for significant periods of time in order 

to assist with evidence for criminal investigations and in order to allow time for 

the Coroner to confirm the identities of those who are deceased 


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In some cases it may not be possible to identify victims at all 

Normal infrastructures such as communications, utilities and transportation may 

suffer severe, possibly unmanageable disruption 

Severe pressures may affect established procedures including those for 

identification, post mortems and burials 

Media and political interest is likely to be intense 

There are likely to be exceptional demands for public information 

Human aspect requirements relating to victims, the bereaved, survivors, 

witnesses and responders will be significant 

There may be multi-national, multi-cultural and multi-religious aspects 

There is potential for confusion over the numbers of missing persons/potential 

victims including misrepresentation and hoaxes 

Public confidence may suffer in respect of the nature of the incident and/or the 

effectiveness of the response. 

There may be long term implications linked to: 

Ongoing identification and investigation requirements, inquiries and 

proceedings 

Rebuilding, environmental clean up and regeneration 

Legal issues 

Economic impact 

Human aspects and social impact 

Tributes, memorials and appeals 

Anniversaries and key dates. 

1.5 LORD JUSTICE CLARKE 

It is worthwhile considering four key principles which Lord Justice Clarke 2 believed 

should be kept in mind throughout the identification process following a major 

emergency: 

The provision of honest and as far as possible accurate information at all times, 

at every stage 

Respect for the deceased and the bereaved 

A sympathetic and caring approach throughout 

2 Lord Justice Clarke, 2001 


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The avoidance of mistaken identity. 

1.6 SIGNPOSTING TO OTHER PLANS 

In contrast with emergencies such as a pandemic, (refer to The London Regional Flu 

Pandemic Response Plan) where the cause of death would in most cases be known, 

emergencies resulting in Mass Fatality require careful investigation to establish the 

circumstances of death and the identification of the deceased. This plan does not 

consider generic responses; such as the management of an incident or crime scene, 

Disaster Victim Identification (DVI) procedures or the details of the work of pathologist 

or other specialist staff investigating the cause of death, guidance on which is available 

elsewhere. 

It is important that this plan is read in conjunction with existing emergency procedures 

and plans. For guidance, these have been signposted below: 

London Resilience Strategic Emergency Plan Version 6 (available from 

http://www.london.gov.uk/priorities/london-prepared/preparinglondon/planning-emergencies-london). 

This document contains links to the 

following plans: 

- London Emergency Services Liaison Panel (LESLP) Major Incident 

Procedure Manual which includes information on Rest Centres and 

Survivor Reception and Family & Friends Reception Centres 

- London Command and Control Protocol 

- The London Science and Technical Advice Cell Arrangements (STAC) 

- London Recovery Management Protocol 

- London Humanitarian Assistance Centre Plan 

- The London Chemical, Biological & Radiological Response Framework 

- London Structural Collapse Response and Recovery Framework 

- London Resilience Strategy for Disability Equality in Emergency Planning 

- The Voluntary Sector Capabilities Document 

- Disaster Appeal Fund Plan 

- London Local Authority Gold Operating Procedures 

- The London Media Emergency Plan 

National Emergency Mortuary Arrangements (NEMA) - ‘Supplementing Local 

Response Options’ - Home Office, 2010 [Restricted] – Available National 

Resilience Extranet 

Mass Fatality Operational Plan Appendix A (Restricted) 

NEMA and DDM Activation Plans Appendix xx (Restricted) 

MPS Specialist Crime Directorate (DVI) Guidance to the roles and responsibilities 

of police officers/staff within a mortuary following a major incident resulting in 

fatality (Restricted) 

ACPO DVI manual is a generic concept of operations for Police Forces and 

identifies roles and responsibilities - currently under review 

Association of Chief Police Officers (ACPO) Emergency Procedures Manual - 

ACPO 2009 


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Dorries, C. (1998) Coroners Courts; A guide to law and practice. Chichester. 

Wiley 

‘Guidance on Dealing with Fatality in Emergencies’ - Home Office / Cabinet 

Office, 2004 - is primarily aimed at local responders. It reaffirms and 

consolidates what local services should consider when planning how to respond 

in the event of an emergency. Advice is offered on all aspects of a mass fatality 

response. 

http://webarchive.nationalarchives.gov.uk/+/http://www.cabinetoffice.gov.uk 

/media/132748/fatalities.pdf 

Mass Fatality Recovery Guidance - Cabinet Office 

http://www.cabinetoffice.gov.uk/content/national-recovery-guidancehumanitarian-aspects-mass-fatalities 

Cabinet Office Emergency Response and Recovery Non statutory guidance to 

complement emergency preparedness 

http://www.cabinetoffice.gov.uk/sites/default/files/resources/emergencyresponse-recovery_0.pdf 

The Needs of Faith Communities in Major Emergencies: Some Guidelines - 

Home Office, 2005 

http://webarchive.nationalarchives.gov.uk/+/http://www.cabinetoffice.gov.uk 

/media/132745/faith_communities.pdf 

Home Office - Responding to a terrorist incident: 

www.homeoffice.gov.uk/counter-terrorism/responding-to-an-incident/ 

National Police Improvement Agency (NPIA) Family Liaison Officer (FLO) 

Guidance 

http://www.npia.police.uk/en/docs/Family_Liaison_Officer_Guidance_2008.p 

df 

The Safe Handling of Contaminated Fatalities - Home Office Guidance 

document June 2009 – (Restricted). 

1.7 USEFUL WEBSITES 

London Resilience http://www.londonprepared.gov.uk/ 

UK Resilience http://www.cabinetoffice.gov.uk/ukresilience 

Home Office http://www.homeoffice.gov.uk/ 

Directgov 

http://www.direct.gov.uk/en/Governmentcitizensandrights/Dealingwithemergencies/ 

Preparingforemergencies/index.htm 

1.8 SECURITY CLASSIFICATION 

The main part of this plan is unrestricted and may be shared with relevant interested 

parties. Some appendices, however, are marked as ‘Restricted’ and should, therefore, 


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not be released to agencies outside of the London Resilience Partnership without prior 

authority of the London Resilience Team. 


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SECTION 2 - ROLES, RESOURCES AND ASSETS 

Many of the roles that will be crucial in the response to Mass Fatality incidents are 

explained in the guidance: Dealing with Disaster and the Home Office publication: 

Guidance on Dealing with Fatality in Emergencies – 2004 (see 1.11 above - signposting 

to other plans) 

2.1 HOME OFFICE EMERGENCY PREPAREDNESS FATALITY TEAM 

The Home Office Emergency Preparedness Fatality Team provides national guidance 

and co-ordinates National Mass Fatality Planning; it also manages the Central 

Assistance Programme (CAP). 

2.2 CADRE OF CORONERS 

A UK DVI Cadre of Advisory Coroners has been established to advise the Home Office 

and to provide support to other coroners as they plan and if an incident occurs. 

2.3 METROPOLITAN POLICE SERVICES DVI 

The Metropolitan Police Service (MPS) has a number of DVI officers that can be 

deployed in response to a mass fatality incident. 

2.4 LONDON’S CORONER AND DESIGNATED DISASTER MORTUARIES 

London has eight coronial areas covering the 33 London Boroughs including the City of 

London, each with an appointed Coroner. Each Coroner has nominated a mortuary 

within their coronial area to act as a designated disaster mortuary, in the event of a 

mass fatality incident, with the exception of the City of London. The City of London has 

arrangements in place to use one of the other seven designated disaster mortuaries. 

Details of designated disaster mortuaries are outlined in the Mass Fatality Operational 

Plan refer Appendix A (Restricted). 

HM Coroner is responsible for the investigation into the cause and circumstances of 

violent or unnatural deaths, or sudden deaths of an unknown cause, until such time as 

they are released for burial or cremation. The Family Liaison Officer as part of their role 

will explain to family members the role of the Coroner, the process of identification and 

keep family members updated regards the identification and/or investigation. 

2.5 NATIONAL EMERGENCY MORTUARY ARRANGEMENTS (NEMA) 

It is recognised that despite thorough planning and preparation for reasonably 

foreseeable emergencies, local mortuary capacity may sometimes be exceeded. Under 

these circumstances, the National Emergency Mortuary Arrangements (NEMA) supplied 


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through Kellogg, Brown and Root (KBR) may be deployed through the Home Office 

Central Assistance Programme. NEMA cannot be deployed in a CBRNE environment. 

The Central Assistance Programme Outlined in ‘Supplementing Local response Options 

2010 (Restricted) comprises: 

A temporary demountable structure (NEMA) capable of configuration to one 

structure to receive 600 complete fatalities or two structures capable of receiving 

300 complete fatalities 

General mortuary equipment, which can be used with the NEMA or to equip a 

designated disaster mortuary 

x radiographic mortuary equipment, which can be used with the NEMA or to equip a 

designated disaster mortuary 

x 96 capacity temporary storage areas which can be used to enhance either NEMA 

or the designated disaster mortuary 

There is no numerical threshold for the deployment of NEMA as the circumstances of 

the incident, availability of local capacity, the degree of fragmentation of bodies and 

the Coroner’s instructions will be factors in determining deployment. Planning for 

tactical and operational aspects of the deployment of NEMA will require the 

participation of all agencies involved in the Mass Fatality response. 

2.6 LONDON NEMA SITES 

London Resilience Team in consultation with the Metropolitan, City of London and 

British Transport Police, Local Authorities and London Coroner’s has identified a 

number of suitable sites across London that can accommodate the NEMA (refer to 

Appendix (Restricted). 

2.7 TEMPORARY MORTUARY LICENCE 

Temporary mortuary facilities will require a licence from the Human Tissue Authority. 

LRT has consulted with the Human Tissue Authority (HTA) and KBR and has completed, 

in part, an application for a temporary mortuary licence for use with the NEMA. This 

approach is viewed as best practice and has been recommended to be adopted 

regionally. 

HTA guidance and activation contacts are contained within the Operational Plan 

Appendix A (Restricted). 

2.8 FAMILY LIAISON 

Where there is a police investigation into the death of a human being, the police have a 

positive duty to communicate effectively and inclusively with the bereaved family. 

Following a Mass Fatality incident this will be achieved by deploying a Family Liaison 

Officer (FLO).The primary role of the FLO is that of an investigator and will involve 

facilitating the forensic retrieval of Ante Mortem data from the deceased’s home and/or 


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families by Ante-Mortem Forensic Teams. DNA material, finger and palm marks, dental 

records and other identifiers such as photographs would be routinely collected to assist 

the Senior Identification Manager (SIM) in identifying those involved. 

A comprehensive and rigorous strategy should accompany every FLO deployment and 

should be supervised by a trained Family Liaison Co-ordinator (FLC). The aims of the 

strategy must be clearly defined with realistic and achievable objectives based on the 

evidential requirements of the case. This will assist in better management of the 

deployment and a more structured exit process. 

2.9 FAMILY VIEWING 

It is the absolute right for bereaved families to view the remains of their loved ones, 

subject to health and safety issues that may be prevailing, such as CBRN contamination. 

Viewings are rarely conducted on the basis of visual identification due to improved 

technology in scientific identification disciplines such as DNA. 

In many cases, families will want to view their loved one for human and emotional 

reasons and should not be discouraged from doing so, although clear and direct 

information should be provided by the FLO to the family regarding the physical 

condition of the loved one in order to allow the family to make informed decisions 

regarding the viewing process. 

Where possible steps will be made to repatriate the body to a nominated funeral 

director where viewings can be conducted with the maximum dignity and respect for the 

families concerned. Funeral homes are designed for this purpose and this rationale is 

designed to divert the family away from the mortuary where intrusive clinical procedures 

are being conducted that may compound the family’s distress. 

2.10 COSTS 

It is recommended that the Local Authority and the Police provide financial 

representatives to attend the Mass Fatality Co-ordination Group meeting. Finance 

representatives must be authorised to make decisions, at an early stage of the response. 

Ongoing costs should be documented and monitored throughout. 

The Coroners Act 1988 covers finance arrangements, expenses and costs incurred by the 

Coroner. The Coroner is funded by the Local Authority. 

Local Authorities may be able to recover some costs incurred in responding to the 

incident through the Government grant aid scheme such as the “Bellwin” rules 

(operated under Section 155 of the Local Government and Housing Act 1989), details 

of grant rates and thresholds are on the website: 

http://www.communities.gov.uk/localgovernment/localgovernmentfinance/bellwinsch 

eme/ 


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2.11 DISASTER APPEAL FUND PLAN 

The Disaster Appeal Fund Plan was developed by the Greater London Authority for a 

catastrophic event occurring in the Greater London area and is endorsed and supported 

by the London Regional Resilience Forum. The plan is based on the experience in 

setting up an appeal fund following bombings in London on 7th July 2005. The plan 

can be accessed through the Strategic Emergency Plan. 

2.12 CHEMICAL, BIOLOGICAL, RADIOLOGICAL, NUCLEAR AND ENHANCED 

CONVENTIONAL WEAPONS (CBRNE) 

The Home Office has produced a guidance document on the safe handling of 

contaminated fatalities in the event of a CBRN attack (Restricted). 

The guidance has been designed primarily to be used by those who may be required to 

deal with contaminated fatalities at the scene of a terrorist incident involving CBRN 

materials. It does not deal with incidents involving hazardous industrial substances 

(HAZMAT incidents). 

London Resilience has produced a London Chemical, Biological Radiological (CBR) 

response framework (Restricted). This outlines the framework within which the London 

Resilience partner agencies would counter a CBR emergency. 

2.13 HUMANITARIAN ASSISTANCE CENTRE 

The London Humanitarian Assistance Centre Plan provides guidance for the delivery of 

a London Humanitarian Assistance Centre in the event of an “emergency”. 

This plan should be read in conjunction with the LESLP manual which outlines the use 

and operation of additional assistance centres - Rest Centres, Survivor Reception 

Centre, and Family and Friends Reception Centres. 

The Humanitarian Assistance Plan and LESLP manual can be accessed through the 

London Strategic Emergency Plan. 

2.14 RELIGIOUS AND CULTURAL ISSUES 

The religious cultural and ethical considerations of the main religious faiths and ethnic 

groups in the UK are included in the Home Office document The Needs of Faith 

Communities in Major Emergencies: Some Guidelines (2005). 

2.15 THE VOLUNTARY SECTOR CAPABILITIES DOCUMENT 

The Voluntary Sector Capabilities Document has been designed to promote and raise 

awareness of the potential voluntary sector contribution within the London region, and 

can be used as a reference tool to assist Category One and Two responders, as defined 

by the Civil Contingencies Act, 2004, when engaging with the Voluntary Sector. It sets 


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out the Protocol designed to set out the services and resources available from the 

voluntary sector in the response to an incident. 


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SECTION 3 - PLAN ACTIVATION 

The LMFP, may be invoked when a Mass Fatality incident occurs in London where the 

number of fatalities is greater than normal local mortuary arrangements can manage. 

The plan, or any component part, may also be activated in response to an incident 

overseas which calls for the identification and repatriation of large numbers of UK 

nationals. 

The establishment of the Mass Fatality Coordination Group will trigger the London Mass 

Fatality Plan. 

3.1 MASS FATALITY OPERATIONAL PLAN 

A Mass Fatality operational plan has been produced to act as an aide memoire to those 

responsible for delivering the operational response, in the first instance, to a mass 

fatality incident. Refer to Appendix A (Restricted). 

3.2 POLICE AND THE CORONER 

Following a report of a Mass Fatality Incident, the Police and/or The London Resilience 

Duty Officer will inform the Coroner and Coroner’s Officer. A number of different units 

within the Metropolitan Police Service (MPS) will be notified dependant upon the type 

of incident including: 

Specialist Crime Directorate (SCD) - responsible for Disaster Victim Identification 

(DVI), body recovery, forensics, evidence gathering, investigation and the 

mortuary 

Central Operations (CO3) 

Counter Terrorism Command. 

3.3 LONDON RESILIENCE TEAM 

A Mass Fatality incident may come to the attention of LRT in two ways: 

Through any of the London Resilience Partnership agencies and its subsequent 

declaration as a major incident, including liaison or advice received through 

Local Authority (LA) stakeholders 

Specific notification by the Metropolitan Police Service. 

3.4 LOCAL AUTHORITY 

Following a report of a mass fatality incident the Local Authority and Local Authority 

Gold will be notified by the London Local Authority Coordination Centre. 


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3.5 MASS FATALITY CO-ORDINATION GROUP 

Following a mass fatality incident the police Senior Identification Manager (SIM) and 

Senior Investigation Officer (SIO) in consultation with the Coroner will need to assess 

the potential number of fatalities and consider the complexity of the incident (i.e. 

condition of the victims, extent of disruption and whether multiple sites are involved). 

The Mass Fatality Co-ordination Group (MFCG), chaired by the Coroner, is a multi 

agency group (diagram 1 depicts the membership of the MFCG core membership). The 

Coroner, SIO, SIM and Pathologist will set the policy and strategic framework for body 

recovery and identification. A representative of the MFCG will report to the Gold Coordinating 

Group. 

The MFCG will select the most appropriate mortuary option to manage the incident. The 

options are scaleable and could include one or a combination of: 

Local Authority mortuaries 

One or all of the seven designated disaster mortuaries 

One or all of the seven designated disaster mortuaries with additional 

refrigerated body storage obtained through the open hire market at the time of 

the incident 

National Emergency Mortuary Arrangements through the Home Office Central 

Assistance Programme (CAP). 

A written record must be made of all decisions made by the Mass Fatality Co-ordination Group 

and minutes will be taken of all meetings. 

Initial membership of the MFCG could include: 

Coroner (Chair) 

Coroner’s officer 

Supervising Forensic Pathologist 

Senior Investigation Officer (SIO) (police) 

Senior Identification Manager (SIM) (police) 

Mortuary Facilities Manager (usually appointed by the Local Authority) 

A strategic representative from the Local or ‘Lead’ Local Authority 

A representative of the London Resilience Team (LRT) 

Police Mortuary Operations Manager 

Senior member of the Human Tissue Authority 

Designated Individual under HTA licence 

Home Office representative 

Licence holder 

Building Control Manager /Designated Contractor in the case of a structural 

collapse leading to Mass Fatality. 

3.6 REQUESTING CENTRAL ASSISTANCE 

The MFCG will decide if London’s mortuary capacity (all options) has been exceeded 

and to request deployment of NEMA or component parts of the Central Assistance 


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Programme, thorough Gold, and indicate what elements of the capability they require. 

The request will then be forwarded to the Home Office Mass Fatality Team and the 

decision documented. 

3.7 GOLD / STRATEGIC CO-ORDINATING GROUP 

In response to a ‘major incident’ the initial Gold Co-ordinating Group will consist 

primarily of the ‘blue light’ emergency services. Additional Gold level representation 

from other agencies will be dependent upon the requirements of the incident (e.g. 

nature, scale and dynamics). The London Resilience Team (LRT) will be notified of all 

formally declared major incidents that meet the LESLP definition by the Metropolitan 

Police Service. 

For further information on the Gold / Strategic Co-ordinating Group arrangements refer 

to the London Resilience Command and Control Protocol. 


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Diagram 1 - Mass Fatality Co-ordination Group - Core Membership 

Operation 

Support * 

Casualty 

Family Liaison 

Co-ordinator 

Victim 

Recovery Team 

Leader 

Mortuary 

Operations 

Manager 

Mortuary Facilities 

Manager 

(Usually appointed by 

Local Authority) 

Senior 

Identification 

Manager 

Human Tissue 

Authority 

* Attendance may be required for update purposes. Other complementary members may attend as required. 


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HM Coroner 

Chair 

LRT 

Representative 

Administrative Support 

Supervising Forensic 

Pathologist 

Senior 

Investigating 

Officer 

Strategic Local Authority 

Representative 

(Local or agreed Lead) 

London Resilience Team 

Advice / link to 

Government Liaison Team

SECTION 4 - INTERNATIONAL DIMENSION 

4.1 FOREIGN AND COMMONWEALTH OFFICE 

The Foreign and Commonwealth Office (FCO) are able to respond and/or assist in 

fatalities incidents involving either foreign nationals who have died or have been killed 

in the UK or British nationals who have died or been killed whilst overseas. 

4.2 UK DISASTER VICTIM IDENTIFICATION TEAM 

UK Disaster Victim Identification Team (UKDVI) is managed by the Association of Chief 

Police Officers (ACPO) and has capacity to deploy in the United Kingdom at the request 

of the Chief Police Officer responsible for the incident and abroad, at the request of the 

Foreign Office. Request for this facility must be made through the Police National 

Information Co-ordination Centre (PNICC) using the established mutual aid request 

format, identifying what skills are required. 


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SECTION 5 - COMMUNICATIONS AND MEDIA STRATEGY 

In the event of a mass fatality incident in London, existing media and communications 

plans and protocols will be used - refer to the London Resilience Command and Control 

Protocol and London Media Emergency Protocol. 

5.1 LONDON MEDIA EMERGENCY PROTOCOL 

As outlined in the London Media Emergency Protocol, The broad principles on which 

the Mayor’s media protocol rests are that the Mayor’s role is to support the operational 

response to an emergency in London by providing a unified statement – a “voice for 

London”. It will be the Mayor’s role to provide pan-London information and reassurance 

throughout the duration of the response and into the initial stages of the recovery 

phase – this role will be undertaken in close collaboration with the Strategic Coordinating 

Group, and where appropriate central government, normally through the lead 

government department. 

The media will not be allowed access to the mortuary, to the Humanitarian Assistance 

Centre or any Friends and Relatives or Survivor Reception Centres. 

In general, all communications must be undertaken with sensitivity. The deceased must 

be treated with dignity and the needs of the bereaved should be respected. 

The media will receive information regarding the mass fatality incident at the Media 

Centre. A designated local authority Press Officer and/or police Media Liaison Officer 

will represent the necessary departments. Facts and figures pertaining to the number of 

fatality etc will only be provided to the media when verified and, then, through the use 

of a single, pre-identified, point of contact. This contact MUST be the only means of 

communicating these figures. 

Names of the deceased will not be released until their family members have been 

notified and sufficient time has elapsed to enable them to notify other relatives and 

loved ones. The identities of the deceased MUST not be released without the authority 

of the SIM. 

5.2 THE LONDON RESILIENCE TEAM 

The London Resilience Team (LRT) provides a useful link between central government 

and local responders during an emergency, and is well positioned to take a multi-agency 

view of an event. 

The LRT will play a key communications role in a Mass Fatality incident by: cascading 

information from central government to the wider partnership, liaising with the 

Government Liaison Team, who have links to Lead Government Department, providing 

advice, guidance and expertise (particularly in relation to pan-London plans) to local 

responders and facilitating inter-agency communications. Resource permitting, LRT will 

attend meetings of the Mass Fatality Coordination Group. 


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Key stakeholders to be consulted and informed include: Category 1 and 2 responders, 

the voluntary sector, the faith community, local community groups/leaders and 

businesses. 


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SECTION 6 - HEALTH AND SAFETY 

All deploying services and agencies are required to comply with the requirements of the 

health and Safety at Work Act 1974, and all other relevant statutory provisions and 

recognised codes of practice to provide, as far as is reasonably practicable, a safe 

working environment 3 . 

It is recommended that a risk based methodology is to be adopted to manage the 

hazards and risks faced. Each service or agency involved will be responsible for the 

health and safety of their own staff, for ensuring risk assessments have been completed 

for all tasks, and control measures (including safe systems of work) are implemented 

and communicated to staff before assets are deployed. Where appropriate, issues will be 

referred to the Strategic (Gold) Group for further directions this will include the 

Scientific/Technical Advice Cell (STAC) who can inform the health and safety risk 

assessment process and safe systems of work. 

There may be instances where the response requires that work is delayed until safe 

operating arrangements are put in place, such as the recovery of casualties and victims. 

It is important to ensure that all responders and other personnel are not endangered in 

a way which would increase the potential for further casualties and fatalities. 

Risk assessments for health and safety and health protection may rule out any, or some, 

victim recovery in certain circumstances. 

Any Mass Fatality incident will place enormous demands upon all those staff involved it 

is important to ensure that provision is in place to support all those involved in such 

work. 

3 The Safe Handling of Contaminated Fatalities Guidance Document June 2009 Home Office 


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SECTION 7 – DEBRIEFING 

Debriefing is an essential function during and at the conclusion of a mass fatality 

incident and serves a number of purposes: 

Focusing on the welfare of staff involved particularly where the incident has 

been traumatic and there is the risk of the onset of Post Traumatic Stress 

Disorder 

To immediately capture issues that may be causing ongoing and dynamic impact 

to a current major incident 

To capture and develop organisational learning to inform future operational 

responses to complete the debrief cycle information and comments should 

feedback into the appropriate meeting or command structure. 


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SECTION 8 - TRAINING AND EXERCISING 

The London Resilience Team, Mass Fatality work stream, in conjunction with all its 

partners regularly seeks to test the LMFP at every opportunity, practicing responses to a 

range of incidents, including natural disasters, accidents and malicious attacks. 


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SECTION 9 – OLYMPICS 2012 MASS FATALITY PLANNING 

By nature of the scale of the event, the London 2012 Olympic and Paralympic Games 

pose a potential challenge and risk in terms of a Mass Fatality Incident occurring. Not 

only will such a global event attract the interest of criminals and terrorists, but the 

increased volume of visitors to the capital places substantial extra burdens on transport 

and infrastructure. 

The London Resilience Team has been liaising with all appropriate agencies involved in 

the Olympic Planning process. Additionally a number of exercises have been run to test 

Olympic Resilience Capability. The issues for incidents involving contaminated or 

uncontaminated fatalities have been outlined in the London Olympic Resilience 

Planning Assumptions/ Gap Analyses. 

9.1 DISASTER VICTIM IDENTIFICATION (DVI) 

Responsibility for providing a DVI response lies with the Homicide and Serious Crime 

Command Specialist Crime Directorate (SCD) (1). (See Appendix - Restricted.) 


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SECTION 10.0 - GLOSSARY OF TERMS 

APT Anatomical Pathological Technologist 

CAP Central Assistance Programme 

CBRNE Chemical Biological Radiological Nuclear and Explosive 

CCA Civil Contingencies Act 

CT Counter Terrorism 

DV Disaster Victim Identification 

FCO Foreign and Commonwealth Office 

FLO Family Liaison Officer 

FLC Family Liaison Co-ordinator 

HTA Human Tissue Authority 

KBR Kellogg Brown and Root 

LACC Local Authority Command Centre 

LMFP London Mass Fatality Plan 

LRRP London Regional Resilience Partnership 

LRT London Resilience Team 

MPS Metropolitan Police Service 

NEMA National Emergency Mortuary Arrangements 

SCC Strategic Coordination Centre 

SCD Specialist Crime Directorate (a directorate within the Metropolitan Police 

that investigates crime) 

SCG Strategic Coordination Group 

SIO Senior Investigation Officer 

SIM Senior Identification Manager 

STAC Scientific Technical Advice Cell 


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Enquiries to: 

London Resilience Team 

Greater London Authority 

City Hall 

The Queen’s Walk 

London SE1 2AA 

020 7983 4000 

lrt@london.gov.uk 

www.londonprepared.gov.uk 


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London mass fatality plan version 4 - Greater London Authority

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