BOMBS

Protecting People and Property

A H A N D B O O K F O R M A N A G E R S – F O U R T H E D I T I O N
Preface
This is the fourth edition of the handbook Bombs –
Protecting People and Property which was first
published by the Home Office in 1994. The text has
been fully revised: it incorporates the best and most
up-to-date advice from experts in Government and
the Police Service.

Bombs – Protecting People and Property has been written

specifically with managers in mind. The advice which it
contains is relevant to all businesses and organisations
large or small and to local government.

The handbook is, of necessity, written with a wide

audience in mind. It does not – cannot – address the
particular circumstances of each reader. More detailed or
specific advice and guidance on your business needs can
be obtained from local police Crime Prevention
Departments. You can make contact with the Crime
Prevention Department in your area through your local
police station.

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Main Messages
● Assess the likelihood of terrorist attack on your
organisation and plan your physical security measures
accordingly

● Prepare your staff for the possibility of telephoned

bomb threats

● Choose the mix of protective measures that best suits

your premises and that will deter or detect the
terrorist

● Encourage your staff to protect themselves and your

customers and visitors through vigilance and good
housekeeping

● Test your plans regularly, and evaluate the response

● Plan for – evacuation

– search

– recovery

● Participate in the counter-terrorist security planning

in your community: communities defeat terrorism

More specific advice may be obtained from Police

Crime Prevention Departments: the advice is free –
please seek it.

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Contents
Main Messages

Part 1 Introduction 6

Part 2 The Terrorist Threat 7

Part 3 Why Plan At All? 8

Part 4 Devices – And the Damage They Do 9

Part 5 Telephoned Bomb Threats 10

Part 6 Asset Protection 11

Part 7 Security Planning 13

Part 8 Five Plans for Five Possibilities 15

Part 9 Evacuation 19

Part 10 Search 21

Part 11 The Role of the Police 23

Part 12 Recovery Plans 24

Part 13 Useful Addresses 25

Appendix 1 Telephoned Bomb Threat Aide-Mémoire 26

Appendix 2 Protection against Flying Glass 28

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 Part 1 Introduction

1 In recent years the world has had to get to grips written for managers in the private and public sectors.
with terrorist crime. The threat presented in the Because it addresses a wide audience the advice is
United Kingdom has been at its greatest in connection general rather than specific. However, the guidance is
with the affairs of Northern Ireland. But other groups sufficiently detailed to allow managers to adapt it to the
have also resorted to terrorist crime to publicise circumstances of their own organisations.
their political objectives. Some of these groups are
concerned with domestic issues, others operate on 5 More specific advice may be obtained from Police
the international stage. Some seek to target particular Crime Prevention Departments. The advice is free –
organisations or individuals, others are more please seek it.
indiscriminate in their targeting.
6 The handbook aims to help managers to:
2 It is important to keep the threat in perspective.
Terrorist incidents in Great Britain are far from ● assess the terrorist threat;
commonplace but when they occur they attract
considerable publicity. For most of us, terrorism will ● take precautions against the threat of terrorist attack;
remain something which we hear about on the news. and

3 Others, however, will find themselves caught up in ● respond effectively to terrorist incidents.
some way with a terrorist crime. This might be through
receiving a telephone threat that a bomb has been 7 Terrorists are seeking to get their way by violence; to
planted; being evacuated from an area in which police cause damage to people and property; and to gain
suspect the presence of a bomb or, for the unfortunate publicity for their cause. By adopting the measures
few, being in the vicinity of a bomb explosion. suggested in this handbook, managers can prevent this.

4 This handbook is designed to help reduce

vulnerability to the threat from terrorism. It has been

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 The Terrorist Threat Part 2
8 Terrorist crimes, often involving shocking acts ● Does your location mean that you may suffer
of violence, are used by various groups or individuals collateral damage from an attack on a high risk
to promote various causes. Sometimes the criminal neighbour?
may resort to terrorist tactics for the purposes of
extortion. They may choose specific targets; for Terrorist capability – what they might do, and how
example, persons or organisations associated with their – is one of the crucial factors in assessing threat.
political opponents. But increasingly there have been This booklet will describe terrorist capabilities in
indiscriminate attacks, perhaps aimed at general broad terms so that you can plan with that in mind.
disruption to the economic life of a country, which
place members of the public at direct risk.
Assessing the Vulnerability

Assessing the Threat 10 You know already what it is that is important to you
and your business survival. You probably have plans to
9 It is not possible to produce a definitive statement on safeguard some, or all, of these things from other threats
how to assess the threat of terrorist attack. But it is quite already. For example, you will have defences against,
possible to work out the threats to a particular site or and plans in anticipation of, fire, and defences against
organisation, even though the causes that terrorists criminals who may want to steal your stock.
espouse may seem remote from everyday life. Here is
a simple checklist of issues to take into account: 11 If you have reason to believe that you are likely to
be a terrorist target because of the nature of your
● What does the news tell us about the current national business, you should anticipate that terrorists will do
and international climate, or current terrorist research to work out where your greatest vulnerability is.
campaigns? What material about you is in the public domain?
What published facts point to installations or services
● What can the local police tell you about the chance that are vital to the continuance of the business? What
of a terrorist attack in your neighbourhood? might attract attention as a prestige target even though
its loss may not mean immediate business collapse?
● Is there something about your building or your staff
that would attract a terrorist attack: are you seen as Giving thought to what matters to you, and what is
having a special relationship with a high profile most vulnerable, will enable you to make realistic plans
individual who is a terrorist target in his or her own for deterring terrorist attack and minimising the damage
right; has your company name been associated with should one occur at or near your premises.
animal experimentation?

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 Part 3 Why Plan At All?

12 Terrorist attacks, and attacks by extremist ● In the case of serious, imminent danger, work must
campaigners or malicious hoaxers, are designed to be stopped immediately and people must be moved
intimidate, disrupt, cause economic damage and to a place of safety.
– in some circumstances – cause injury or loss of life.
There are good business reasons for planning to avoid ● Access must be restricted, and resumption of normal
all of these possibilities – or at least to minimise their work prevented, while the serious and imminent
consequences. danger persists.

13 But there are also obligations on everyone (employer In the event of an incident, plans are disclosable
and employee alike) to play their part in protecting and may be the subject of scrutiny in any subsequent
themselves and others. In a counter-terrorist context enquiries or court proceedings.
the police and other agencies may offer advice but the
responsibility to seek advice and act upon it lies with
the owner or occupier of the premises.
What Should be Done?

15 Action should be on the following lines:

Health & Safety at Work Regulations 1992
● Think about the threats you may face.
14 These regulations provide that:
● Take the best available advice on the things you can
● All employers owe their staff and visitors a duty of do to reduce the chances that a bomb will cause
care: the responsibility for safety on their premises injury to your staff or visitors.
rests with employers, not the police.
● Make a contingency plan, ensure that all staff are
● Appropriate procedures must be in place in the event familiar with it – and practise it.
of serious, imminent danger.
The material in this booklet will help you to take all
● There should be persons competent to implement these steps, and give you some pointers towards simple
the procedures. (A competent person is one who has measures that can be taken that will considerably reduce
sufficient training and experience or knowledge to do vulnerability to explosive devices of all types. Further
what is required of him or her). advice is available through your local police Crime
Prevention Department.
● Employees must be informed of the hazards, and the
steps to be taken.

8
 Devices – And the Damage They Do Part 4
16 Explosive or incendiary devices come in almost any The Bomb in the Building
shape and form. Past attacks have involved incendiary
devices built into cigarette packets or tape cassettes, 19 Terrorists in particular have a long history of leaving
devices involving military grade high explosive in hand-carried devices – hold-alls and so on – in public
briefcases or sports bags or specially made for particular places or places to which access is simple. A device of
sites, and lorries packed with home-made explosive. this size can kill or maim anyone close to the seat of the
There can be no exact descriptions of what to expect. blast, inflict injury on people and damage to stock in
But the details in this section will help managers to: the immediate vicinity, and cause damage to glazing,
cladding etc.
● focus on what damage each type of attack may do;
and
The Bomb outside the Building
● with the help of the remainder of this booklet, and
the support of the Crime Prevention Department,
20 The hand-carried bomb may also be a feature of
plan for the consequences.
terrorist attacks in the street or other public places like
station concourses. More frequently in recent years, we
17 In Great Britain, businesses are most likely to face
have become accustomed to vehicle-borne devices, and
attack by:
particularly the lorry packed with home-made explosive.
Such vehicles may contain 1 tonne or more of explosive:
● explosive or incendiary items which are delivered
(the letter or package that comes by post or by hand);
● there will be major structural damage to buildings in
a radius of up to about 50m;
● improvised incendiary devices;
● glass which is capable of killing or maiming will fall
● an improvised explosive device (“a home-made
in a radius of 250m; and
bomb”) in the building; or
● metal fragments from the device may still cause
● an improvised explosive device outside the building.
injury at 500m and beyond.

Delivered Items

18 The traditional postal bomb takes many forms –

parcels, padded “jiffybags”, or envelopes of any shape or
size. They may be delivered by hand or via a courier as
well as “through the post”.

Postal bombs are generally designed to kill or maim the

person who is opening them. Their effect is local. But a
parcel bomb in particular may be large and designed to
cause structural damage, in the same way as the bomb in
the building.

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 Part 5 Telephoned Bomb Threats

21 Terrorists sometimes telephone threats of bomb 26 But anyone may be a recipient of a bomb threat call.
attacks; their calls appear to fall into two categories: Handling them is not simple. It is difficult to remain
calm and react effectively. Staff may be traumatized by
1 threats that actual devices have been planted; the aim the incident and will suffer more if they blame
is to save life (or to be able to blame inaction by themselves for not reacting as well as they would have
others if there are casualties); liked. The golden rules are:

2 threats where no device has been planted, designed ● keep calm;

to disrupt.
● try to obtain as much information as possible;
22 The overwhelming number of telephoned bomb
threat calls are made by malicious pranksters whose ● dial 1471 (if that facility operates); and
threats are empty. But making such calls is a crime,
and they should always be reported to the police. ● report it to the security co-ordinator and the police
immediately.
23 Occasionally the calls will actually be from terrorists.
You will not be able to assess whether or not a call is All these things are difficult. To assist, a checklist is at
“genuine”. The calls constitute a threat to the lives of Appendix 1. This should be on hand for use by all
your staff or your business or the lives of others in the switchboard or reception staff.
community, and they must always be treated seriously
and handled urgently.

24 Such calls may be the closest that you and your

staff will come to terrorism. Because of the potential
seriousness of each and every call, planning is needed,
just as it is for other forms of attack.

25 The likelihood that you will be a recipient is

increased if you are known or thought to operate a 24
hour switchboard service, and there is a belief that you
will react quickly. Hotels and hospitals, organisations
offering any sort of “emergency” service (including
voluntary organisations), news agencies and any
organisations involved with public transport may wish
to give their switchboard operators special training in
handling such calls.

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 Asset Protection Part 6
27 The first line of defence against the common You may also consider a body search but you
criminal may also prevent the terrorist from gaining have no power to carry out such a search unless
access to premises. In terrorism, the priorities are the person agrees.
to protect:

● the lives of staff and visitors; Windows

33 As a minimum, good quality key operated locks
● the contents of the building; and
should be fitted to all ground floor windows and any
windows to which access might be gained (eg from a
● the fabric of the building.
flat roof ).

Deter and Detect Intruder Alarms

34 Many different forms exist and have to be selected
28 Police Crime Prevention Departments will be able
for the circumstances of each site or installation.
to provide all the necessary expert advice on physical
security measures. Fire Departments and Planning
Departments may also need to be consulted. What CCTV
follows is therefore only a quick guide to the main
considerations when seeking to deter or detect terrorism. 35 CCTV can make an important contribution to
security in shops, outside buildings and in public places,
as it is already doing across the country in the general
Doors context of community safety. The presence of cameras
may also help to deter terrorists. If the system is of high
29 All external doors should meet the minimum
quality and the product is recorded, CCTV provides a
requirements in respect of robustness and standard
considerable aid to post-incident investigation which
of locking systems. Those not in regular use should
itself acts as a deterrent.
also have strong internal bolts. Glazed doors are only
as secure as their glazing and this will need
special attention. Lighting
36 Good lighting is a deterrent in its own right, and
Access Routes is essential for effective CCTV coverage.
30 The most effective access control is an efficient
37 In multi-occupancy buildings, shopping centres,
reception area. Access to side and rear entrances should
high streets, business parks and the like, it is essential
be restricted to authorised persons only. Digital,
to make security – in the terrorist context just as in
swipecard or proximity locks all offer protection if
relation to any other crime – a joint communal effort.
security or reception staff cannot be present.
For example, common access control procedures can
be agreed or CCTV cameras can be sited for maximum
31 Visitors should be escorted, or wear temporary passes
overall benefit. Effectiveness can be increased and costs
which might be colour-coded to show their validity and
greatly reduced.
surrendered on leaving the building. Unauthorised
visitors will be easier to detect if staff are asked to wear
38 It is possible to waste a lot of money on ineffective
their passes at all times.
security systems. All good systems require the planning
of an integrated security package that is focused on
32 Searching of hand baggage and luggage has
protecting your most valuable assets and your most
enormous deterrent value, and is well worth considering
vulnerable points. Remember, specific advice is available
when the police have informed you that there is a
from the Crime Prevention Department – and it is free.
particular risk. You have the right to refuse entry to
any person who will not permit a search of their
hand baggage.

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Good Housekeeping Vigilance

39 Good housekeeping both inside and outside premises 41 Staff are certain to be one of your most valuable
will reduce the opportunity for the planting of devices. assets, and their protection is paramount. They are also
Within buildings reduce the number of places where one of the best sources of protection. They will usually
devices can be left: know their own office, department, car park or whatever
intimately. They should be encouraged to keep a sharp
● lock unoccupied offices and store cupboards; lookout for unusual behaviour or items out of place.
Staff must be given confidence to report things and
● put simple plastic seals on maintenance hatches must know that their reports are taken seriously and
to which only occasional access is required; recognised as a contribution to the business.

● keep a place for everything and everything in 42 In a terrorist context they should particularly look
its place; out for anyone placing, rather than dropping, a packet
or a bag in an unusual place, or in a fairly inaccessible
● all communal areas – stairs, halls, toilets, rest rooms spot like the back of a shelf in a shop.
– should be kept clean and tidy;

● consider the removal of litter bins; but if you choose

Reducing the Consequences of Explosions
this option, take special care to increase cleaning
effort so that rubbish is swiftly removed; and
43 Planning for terrorist contingencies, and exercising
search and evacuation plans are described in the
● keep furniture in public areas to a minimum, and
following sections and are all part of reducing the
ensure that furniture and fittings are designed
damage that terrorists can do to your staff and business.
without spaces which give opportunities to hide a
As part of the physical security of your building,
device.
however, there are certain measures that you can take in
respect of glazing that will considerably reduce death
40 Outside buildings, the same principles apply:
and injury to your staff and customers and bystanders.
● keep everywhere as tidy as possible, including
shrubbery and especially when it is close to entrances; Glazing Protection
and
44 Most casualties of terrorist attacks result from flying
● choose furniture and fittings that do not have spaces glass. There is extensive research data on blast effect on
in which devices can be concealed. glass and tested solutions that will minimise the degree
of shattering, the amount of injury and the costs of
eventual building re-occupation. The solutions involve
selecting combinations of types and thicknesses of glass
to suit the circumstances, but a significant degree of
protection can be obtained by using anti-shatter film,
which holds fragments together, in combination with
properly designed net curtains, which will contain flying
glass in a “spinnaker” type effect. Detailed specifications
are contained in Appendix 2.

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 Security Planning Part 7
Appointing a Security Co-ordinator The co-ordinator’s end product should be a plan or set
of plans that have been checked with the police and
45 Successful response to an actual or potential terrorist practised, and are regularly audited to ensure that they
attack depends on the creation of a company security are still current and workable.
policy and the appointment of a security co-ordinator to
have full oversight of, and authority for, the totality of
the terrorist security planning process.
Creating Security Plans
46 The co-ordinator must have sufficient authority to
49 There are three crucial steps in drawing up counter-
direct the action to be taken in response to security
terrorist plans:
threats. If he or she is not the Chief Security Officer,
the person with the terrorist co-ordination responsibility
must be involved in the planning and design of the Step One
building’s exterior security, access control and so on,
so that the terrorist dimension is taken into account. ● Identify what sort of threats you are facing.
The co-ordinator must be consulted over any new
building or renovation work, so that terrorist crime
can be catered for in the design of the building, and Step Two
the specification of glazing.
● Identify what it is that you want to protect (people,
property and data are the three common categories)
47 The co-ordinator should establish liaison with the
and in what ways they are vulnerable to terrorist
Crime Prevention Department as a local and expert
attack in particular.
source of knowledge. During the development of plans,
it is advisable to consult with all the emergency services.
Under the Prevention of Terrorism Act 1989, police Step Three
officers have special powers at or within cordons.
Plans, particularly regarding evacuation, must therefore ● Identify the most appropriate measures to reduce the
be shared with the police who are responsible for risk to an acceptable level (you will not be able to
ensuring the safety of the general public in the vicinity eliminate it altogether).
of your building.
At the end of Step Three you will have a security plan.
48 The co-ordinator has seven main responsibilities: Before going on to that, remember these important
factors about plans:
● production of the risk assessment, and the
consequent defensive measures and planning; 50 One person needs to have overall charge of planning,
and he or she must have appropriate authority to get the
● devising and maintaining a search plan; co-operation of colleagues and if need be to recommend
expenditure on protective measures.
● devising and maintaining evacuation plans;
51 Effective plans are simple, lucid and flexible – but
● deciding on the extent and direction of evacuation; flexibility does not mean that they can be open to
interpretation when an incident is taking place, or can
● deciding when to re-occupy; offer a range of options to follow, as this will simply
confuse staff in the heat of an incident. Everyone must
● liaising with the police and other emergency services; be clear what they are to do given a particular
and circumstance, as during an attack there is an inherent
danger in trying to change plan.
● arranging staff training, communication cascades and
drills, including training for his or her own deputies.

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52 Once they are made: Carrying Out Step Two

● plans must be followed; but 54 You know already what it is really important to you
and your business. It may be something tangible and
● they must be kept under review to reflect changes in obvious: the data suite where all your transactions are
buildings and personnel; and recorded, or the one piece of equipment that keeps your
whole plant running. It may also be less obvious –
● they should be checked regularly to make sure they continued free access for the public, for example.
remain accurate and workable – and there should be You will have plans to safeguard some or all of these
regular exercises. things from other threats already – for example, you
will have defences against, and plans in anticipation of,
fire, and defences against criminals who may want to
steal your stock.
Carrying Out Step One
55 In the terrorist context you need to consider the
53 This is the threat assessment checklist:
research that may be carried out by the potential
attacker to discover your main vulnerabilities or your
● What does the news tell us about the current
prestige targets and to identify how each of these can
national and international climate, or current
best be protected.
terrorist campaigns?

● What can the local police tell you about the chance
of a terrorist attack in your neighbourhood? Carrying Out Step Three

● Is there something about your building or your staff 56 Step Three brings together the answers to Steps One
that would attract a terrorist attack: are you seen as and Two, and looks at what measures it is sensible to put
having a special relationship with a high profile in place to reduce the risk of damage.
individual who is a terrorist target in his or her own
right; has your company name been associated with Part 8 looks at five possible forms of attack and
animal experimentation? describes the sort of thing that the security plan should
cover in each case.
● Does your location mean that you may suffer
collateral damage from an attack on a high-risk
neighbour?

14
 Five Plans for Five Possibilities Part 8
Plan One: The Delivered Bomb commercially available X-ray or other equipment.
The Crime Prevention Department can advise.
57 Most organisations receive huge amounts of mail, This equipment is only as good as its operators and
whether through the Post Office or other delivery and you will need a regular programme of training
courier firms. This is an attractive route into your and checking to see that procedures are being followed.
building or into your hands. It is a targeted attack. The
aim is to kill or maim or disrupt, not to cause structural
damage or mass casualties. The nature of your business Dealing with the Event
and the current focus of terrorism or “activism” will give
61 If you have detected a suspicious item:
you, in consultation with the local police, a reasonable
picture of how likely this form of attack is, and this will
● leave it alone (do not play with it to investigate
dictate just how far you want to go in your planning.
it further, do not put it in a bucket of water or
put something on top of it or throw it out of
Preparing for the Possibility the window....);

58 Planning for the delivery of an explosive or ● clear and secure the immediate area making sure the
incendiary device is based on two simple features: police will still have unhindered access to the
suspicious item; and
● it will already have undergone some fairly rough
handling, by the Post Office or by its courier. ● call the police.

● uncertainty over exact delivery times, and the

weight and complexity of reliable timing devices,
Plan Two: Incendiary Devices
makes it very unlikely that the device will be
triggered by a timer.
62 Incendiary devices are traditionally the weapon of
choice against the retail sector, and occasionally against
Handling delivered mail is therefore not generally
certain industries or public buildings. They may form
dangerous in itself.
part of a targeted attack (because of who the company is
or what it sells) or the placing may be relatively random
Recognising a Suspicious Item (if the aim is to damage a town centre or shopping mall
itself ). The purpose is to cause economic damage
59 The police Crime Prevention Department can give (directly and via publicity), not casualties.
guidance on the features that may identify the typical
letter or parcel bomb. And staff who handle mail can
be helped to pick out potentially “suspicious” items Preparing for the Possibility
by building good housekeeping measures into usual
63 Planning against the possibility that an incendiary
business routines:
attack will be mounted against you is based on some
basic assumptions:
● let staff know what is the usual pattern of deliveries
and the types of item, and forewarn when unusual
● the device will be concealed for ignition when the
deliveries are expected; and
premises are empty;
● encourage good practice in those you deal with
● as damage is the objective, having more than one
regularly by having a clearly identifiable sender shown
potential seat of fire is attractive to the attackers;
on each item.
● anything that triggers a sprinkler system will, because
Make sure that you have identified and briefed all staff
of the damage ensuing, be a good result even if total
who handle delivered items (think of Reception as well
destruction is not achieved; and
as the Mail Room).
● incendiary devices do not explode, they ignite.
60 If the risk and scale of the problem for you is
sufficiently great you may want to invest in

15
Minimising the Risk of Successful Attack Plan Three: The Bomb on the Premises

64 Generally speaking the business need for continued 68 In practice it is unusual in the UK for a bomb
mass public access will preclude any major screening containing high explosive (rather than an item delivered
programmes to search for devices being brought in, through the post or an incendiary) to be found inside
except at periods of the highest alert. The contingency a building, although it is not unknown. It is important
plan should provide for: to plan for this eventuality, not least because both
terrorists and pranksters frequently claim that there is
● a search at the end of each day’s business; a bomb in the building. A bomb, with its explosive,
timing and arming devices and its concealment,
● a continued search after the discovery of one item; and represents a considerable investment of planning,
determination and skill. Left within a building, or in
● plans for a discreet search during business hours in a some other public space, it represents a very serious
time of high risk. attempt at damage and disruption – and a disregard
for the possibility of the loss of life. The threat call
65 Devices will be carefully but not elaborately itself can cause economic disruption.
concealed, and the staff searching will not therefore
need a high degree of knowledge to carry out rapid but
thorough searching of easily accessible hiding places. Preparing for the Possibility
All staff can maintain vigilance for those acting oddly in
69 Planning for a bomb attack inside your office, public
their areas.
areas, car park, storage unit or yard perimeter is based
on certain assumptions:
Dealing with the Event
● the bomber has to make his or her way inside your
66 If an incendiary device has been discovered during perimeter and leave the device in such a way to – at
search or by chance: minimum – secure his or her getaway (suicide attacks
have not been part of UK experience);
● do not touch it;
● an attack, whether with high explosive or home-made
● clear and secure the immediate area; and explosive, is always life threatening; and

● call the police. ● there will always be some structural damage, if only
broken windows.
67 If there is a fire, and there is reason to suspect this is
as a result of an incendiary device rather than a common
accident, it may be acceptable to make an immediate,
and brief, attempt to extinguish the fire if your existing
fire arrangements and staff training provide for this.
Even if staff have been trained, the possibility of
multiple attack by incendiaries should be remembered,
and staff and visitors evacuated according to pre-
arranged fire plans.

16
Minimising the Risk of Successful Attack ● pre-set and practised means of communicating
evacuation plans to visitors; and
70 An office block or a factory with access control
for staff and visitors (and their cars) offers relatively ● means for securing the site against entry until
little opportunity for this sort of attack – providing the police have allowed access again.
the systems in place are properly applied. A public
place, such as a shop or airport, is more at risk and at
times of high alert search of baggage may be the only
Plan Four: Bombs outside the Building
available means of protection – and deterrent. The risk
of successful attack – and, equally importantly, the
74 The vehicle bomb represents an extreme form of
disruption caused by persistent threat calls – can be
terrorist attack, designed to cause maximum economic
minimised by:
damage, both short and long term. The risk of large
numbers of casualties and deaths is great because of the
● search procedures by staff of their own areas; and
large scale structural damage that invariably results.
Generally, in the UK, vehicle-borne bombs consist of
● search procedures for public areas.
home-made explosive in large quantity, involving a high
degree of pre-planning, commitment and expertise.
71 Good housekeeping practice comes into its own
They are frequently accompanied by threat calls and
against this sort of attack. Public and private areas
once again it is important to be able to deal with the
should be kept as clear as possible, with rubbish
disruption caused by terrorist hoaxes or pranksters as
regularly removed and boxes and equipment stored tidily
well as with the incident itself.
and in their own recognised places. Regular users, as
well as cleaning, maintenance and security staff, should
75 There is also the chance that bombs will be left in
all be encouraged to know what is usually where so that
streets, parks and other public places and in bags, brief-
they can spot the unusual.
cases and parcels. The potential for loss of life, injury
and disruption is still high although the long term
72 It is frequently said that any package that is out of
damage may not be so extensive.
place is a suspicious package – but you will not want to
disrupt your business by making your staff anxious
about every carelessly dumped bin bag. Their attitude to Preparing for the Possibility
keeping their patch free of clutter will make them feel
safer, deter a potential attacker – and make searching 76 Plans for dealing with the chance of injury to your
much simpler if a threat is made against you. staff or damage to your property from a device outside
your building have to be based on one key issue:

Dealing with the Event ● Evacuation always carries a certain risk, either of staff
moving closer to, rather than away from, the bomb
73 The internal bomb attack is most often experienced
(since warnings are rarely explicit) or of moving into
as a terrorist hoax or a prank. However the potential
the open where they may be at risk more from falling
damage, injury and loss of life could be severe. So the
masonry and flying glass than the blast itself.
contingency plan in this case must cover both the
handling of a threat call and the discovery of a
77 On this basis, occupiers of buildings should establish
suspicious item, and should involve:
whether “internal evacuation” to a bomb shelter within
the building is a viable option. In a bomb shelter area
● immediate notification to the police of any threat;
staff can be assured that whatever structural damage
occurs to their building or those surrounding it, they
● pre-set plans for reacting to the threat call;
will be safer until the emergency services can give them
the all clear to leave. For further advice refer to Part 9,
● pre-set, easily displayed and practised plans for
paragraph 91.
evacuating to a place of safety (Part 9);

17
Dealing with the Event 82 A member of staff who has taken a call must be
available to talk to the police.
78 Plans should cover the following:

● immediate notification to the police of any threat; Dealing with the Event
83 The pro forma will assist staff to handle the call
● pre-set plans for reacting to the threat call; and
itself and to record the necessary detail. If the call is
threatening an attack elsewhere, your action will end
● pre-set, easily displayed and practised plans for
once you have informed the police and handed over to
evacuating to a place of safety (which may be either
them any necessary paperwork. But the threat may be
a bomb shelter area or an external site) (Part 9).
to your premises, and will involve on your part:

● preliminary assessment of the threat (take it

Plan Five: Telephoned Bomb Threats seriously.... or not?) If it is a giggling child, you
may assume it is a hoax and adopt the “do nothing”
79 The phenomenon of telephoned bomb threats has approach. But if there is the slightest doubt you
become a commonplace, so much so that they merit a should consider ....
separate section earlier in this booklet.
● initiating your evacuation (Part 9) or search
(Part 10) plans, in whatever combination the
Planning for the Possibility timescale quoted by the caller and the location
quoted by the caller suggests.
80 Plans need to cover two possibilities:
Remember, whatever you decide, always report any call
● receipt of a call that refers to your own building; and
to the police.
● receipt of a call about a bomb elsewhere.

81 All staff likely to answer your published numbers, in

working hours or overnight, should be familiar with the
Bomb Threat aide-mémoire and pro forma (Appendix 1),
and have a supply ready to hand. They need to be fully
familiar with any recording facilities or last number redial
or display facilities that your switchboard provides. They
must know how to contact both the security co-ordinator
and the police.

18
 Evacuation Part 9
84 The purpose of evacuation is to move people from ● evacuation of part of the building if the device is
an area where they might be at risk to a place of lesser small and thought to be a one-off confined to one
risk. The biggest dilemma facing anyone who has location (eg a letter bomb in a post room or a small
responsibility for an evacuation decision in the context incendiary type device); or
of a terrorist threat is how to judge where might
constitute a place of safety. If, for example, an ● evacuation of all staff apart from designated searchers;
evacuation route would take staff past a suspicious or
device outside your building, evacuation may be the
riskiest course to take. ● full evacuation to an internal safe area – a Bomb
Shelter Area.
85 The decision to evacuate will normally be taken by
the company, but the police will advise. In exceptional 88 If a time has been given for an explosion on the
cases the police may insist on evacuation, but they will premises, you must allow sufficient time for the
always need the help of the company’s security evacuation.
co-ordinator; in other cases, such as the large vehicle
bomb outside the premises and the possibility of
secondary devices, they may insist that people do not
Essential Components of an Evacuation Plan
leave the building.
89 All plans must cover:
86 Evacuation may need to take place in response to:
● designated routes and exits;
● a threat call directly to the building;
● a means of communicating effectively with staff, who
● a threat call received elsewhere and notified to you by
may need directing away from one route if it is likely
the police;
to take them into danger;
● discovery of a suspicious package in the building
● designated staff to act as marshals during the
(perhaps a letter bomb or incendiary, or a larger hold-
evacuation, especially if there are likely to be large
all device);
numbers of the public in the building, and/or as
contact points once the assembly area is reached;
● discovery by you of a suspicious item or vehicle
outside your building; or
● an assembly area or areas at least 500m from the
buildings (car parks should not be used), and an
● discovery of an external device notified to you by
alternate area or areas. This distance will put staff
the police.
beyond police cordons for most vehicle-borne
devices. However, for absolute safety an alternative
Whatever the circumstances you must advise the police
assembly area or areas at least 1km away may have to
of what action you are taking.
be considered; and

● training for staff with particular responsibilities, and

The Evacuation Plan practices for all staff.

87 In order to react sensibly, you must have evacuation All plans should be discussed in advance with the police,
plans ready. Depending on the circumstances of your the emergency services, the local authority and
building – its size, the number of exits, the amount of neighbours.
public access – your evacuation plan may involve:

● full evacuation outside the building; or

19
Bomb Shelter Areas Re-occupancy

90 As many of the injuries from bomb attack, especially 92 Re-occupancy must always be discussed with the
large city centre lorry bombs, come from flying glass and police and as necessary the other emergency services.
other fragments, internal evacuation can be a good way Safety remains paramount, and allowance must be
of avoiding death or injury to staff. made for secondary devices, vagueness of descriptions
of location and misleading times. Structures may be
91 Some buildings may offer suitable bomb shelter unsound and damage to power and gas may make the
areas. These must always be selected with the advice of a environment unsafe. If an explosion has taken place,
qualified structural engineer; their size must be suitable; the building will be a crime scene.
they must conform to fire regulations; and there must
be a means of communicating with staff while within
the shelter, even while there is a temporary loss of
power, as may happen after a major explosion.
Addresses for further sources of advice can be found
at the end of this booklet, or contact your local Police
Crime Prevention Department.

20
 Search Part 10
93 Searches may be used as a part of routine good house- Search Priorities
keeping, for example in shops, especially at close of
business, when there is a general alert about incendiary 97 Those areas which will be used as bomb shelters or
or other types of attacks against the retail sector or some evacuation assembly areas, together with those areas
segments of it. Or a search may need to be carried out where the greater number of the public or staff are likely
in response to a specific threat. to be vulnerable should be searched first. Public areas to
which the terrorist may have had easy access should also
have priority. Do not overlook car parks, the outside
area and the perimeter.
What to Look For

94 Bombs and incendiary devices are disguised in many

ways. Searchers do not have to be expert in explosive Search Sectors
devices. They are looking for anything:
98 The first step in preparing a search plan is to divide
● that should not be there; the building into sectors. If the business is organised
into departments, sections and so on it will be
● that cannot be accounted for; and convenient for these to be search sectors. Each sector
must be of manageable size for one or two searchers.
● that is out of place. Effective and systematic searching takes time.

99 Depending on room sizes, the sector may be one

large room – such as a factory floor, shop, department
Who Should Search?
or perhaps a number of small offices in an office suite.
Cloakrooms, stairs, corridors and lifts must be included
95 The main qualification for a searcher is familiarity
in the search plans. Do not forget to include car parks
with the place he or she is searching.
and other areas outside the building.
The police will not normally search premises following
receipt of a bomb threat. They are not familiar with the
premises and layout, and will not be aware of what Initiating a Search
should be there and what is out of place. They cannot
therefore search as quickly and as thoroughly as staff 100 How is a search initiated? There are options:
who work there all the time.
● sending a message to the search teams over a public
address system. It should be coded to avoid
unnecessary disruption and alarm;
Search Plans
● use of personal radios/pagers; or
96 Search plans should be prepared in advance and staff
trained in them. The objective is to make sure that the
● a telephone ‘cascade’ system: the Section Supervisor
whole building is checked as quickly and effectively as
rings, say, three members, who in turn each ring a
possible. If you do not search you will have no means of
further three members and so on until all the teams
knowing when or whether your building is safe for re-
have been alerted.
occupancy, and if you do not have a plan your searching
will be slow, costly and worrying for all those concerned.

21
How to Search

101 The conduct of searches will depend on local

circumstances and local knowledge. The overriding
principle is that they should be conducted in a
systematic and thorough manner so that no part is left
unchecked. The searchers need to practice, to get a feel
for the logical progression through their area (whether
it be in a department store, office, cinema, warehouse,
depot, supermarket or restaurant) and the length of
time it will take.

What Happens when Something is Found?

102 The searcher who finds a suspicious item must not

move it or interfere with it in any way. He or she will
need a pre-planned method of communicating what has
been found to the search co-ordinator. Action thereafter
will depend on the nature of the device and the location.
The golden rules are:

● do not touch it or move it;

● move away from the device immediately;

● communicate what has been found to the

co-ordinator, using hand-held radios only once
out of the immediate vicinity of the device; and

● the person finding the device must remain on

hand to brief the police on the exact location
and description.

● more detailed advice can be obtained from your local

Police Crime Prevention Department.

22
 Role of the Police Part 11
103 As will have been clear from the earlier sections, 104 For reasons of practicality the police cannot
the Crime Prevention Department (either directly or undertake search of your premises on your behalf, but
through access to other police colleagues) of your local they can offer advice on search plans.
police force can assist with:
It is essential that all the work you undertake on
● assessing the threat, both generally and specifically; protective security is done in partnership with the
police, and your neighbours, if your community is to
● advice on physical security equipment and its be secure. As well as safeguarding your own business,
particular application to the methods used by the steps you take can make an important contribution
terrorists; they will be able to comment on its to detecting terrorists.
effectiveness as a deterence, as protection and as
an aid to investigation post-incident; 105 Further guidance on the role of the police, the other
emergency services and the local authority can be found
● advice on local installers of equipment; and in the companion booklet Business As Usual.

● devising plans and ensuring their conformity with

other local arrangements, the requirements of the
police service itself and those of the other
emergency services.

23
 Part 12 Recovery Plans

106 Planning for recovery from disaster is increasingly

being recognised as an essential component in the
management of business. Businesses are used to
planning against commercial risks – the sudden failure
of a critical supplier; an unexpected bad debt; industrial
action or the discovery of a serious fault in a product
or process. Techniques of risk management have been
developed to mitigate the consequences for the firm.

107 The companion booklet Business As Usual has

been specifically written to help businesses prepare for
recovery from the worst type of terrorist attack: the large
vehicle-borne device in a city centre. It is designed to
help any manager re-establish his or her business,
focusing on the need to plan for the recovery of four
essential components – people, premises, product
and purchasers.

24
 Useful Addresses Part 13
These organisations produce guidance notes relating to For advice on buildings, contact:
their fields of interest:
Glass and Glazing Federation
The British Council for Offices 44–48 Borough High Street
Shinfield Grange London SE1 1XB
Cutbush Lane Tel: 0171 403 7177
Shinfield
Reading Institution of Civil Engineers
Berkshire RG2 9AF Library and Information Services
Tel: 0118 988 5505 1–7 Great George Street
London SW1P 3AA
The British Council of Shopping Centres Tel: 0171 222 7722
1 Queen Anne’s Gate
London SW1H 9BT Institution of Structural Engineers
Tel: 0171 222 1122 11 Upper Belgrave Street
London SW1X 8BH
Health and Safety Executive Tel: 0171 235 4535
For information on the health and safety considerations
relating to protective security measures. (For your local Laminated Glass Information Centre
office, see under HSE in the telephone directory). 299 Oxford Street
London W1R 1LA
National Terrorist Crime Prevention Unit Tel : 0171 499 1720
PO Box 849
London SW1P 1XD
Tel: 0171 931 7142

25
 Appendix 1 Actions to be Taken on Receipt of a Bomb Threat

● SWITCH ON TAPE RECORDER (IF CONNECTED)

● TELL THE CALLER WHICH TOWN/DISTRICT YOU ARE ANSWERING FROM

● RECORD THE EXACT WORDING OF THE THREAT

.......................................................................................................................................................................................

.......................................................................................................................................................................................

.......................................................................................................................................................................................

.......................................................................................................................................................................................

● ASK THESE QUESTIONS

1 Where is the bomb right now? ...........................................................................................................................

2 When is it going to explode? ..............................................................................................................................

3 What does it look like? .......................................................................................................................................

4 What kind of bomb is it? ...................................................................................................................................

5 What will cause it to explode? ............................................................................................................................

6 Did you place the bomb? ...................................................................................................................................

7 Why? .................................................................................................................................................................

8 What is your name? ...........................................................................................................................................

9 What is your address? .........................................................................................................................................

10 What is your telephone number? .......................................................................................................................

● RECORD TIME CALL COMPLETED

.......................................................................................................................................................................................

● WHERE AUTOMATIC NUMBER REVEAL EQUIPMENT IS AVAILABLE RECORD NUMBER SHOWN

.......................................................................................................................................................................................

● INFORM THE CO-ORDINATOR

Name and telephone number of person informed

.......................................................................................................................................................................................

● CONTACT THE POLICE BY USING THE EMERGENCY TELEPHONE NUMBER

Time informed .........................................................................................................................................................

26
THIS PART SHOULD BE COMPLETED ONCE THE CALLER HAS HUNG UP AND POLICE/BUILDING
SECURITY OFFICER HAVE BEEN INFORMED
Time and date of call ......................................................................................................................................................

Length of call..................................................................................................................................................................

Number at which call is received (that is, your extension number) .................................................................................

ABOUT THE CALLER

Sex of caller? Male ■ Female ■ Nationality?................................................. Age...................

THREAT LANGUAGE
Well spoken ■ Irrational ■ Taped ■ Foul ■ Incoherent ■ Message read by threatmaker ■

CALLER’S VOICE
Calm ■ Crying ■ Clearing throat ■ Angry ■ Nasal ■ Slurred ■
Excited ■ Stutter ■ Disguised ■ Slow ■ Lisp ■ Accent ■*
Rapid ■ Deep ■ Familiar ■ Laughter ■ Hoarse ■

If the voice sounded familiar, whose did it sound like?

.......................................................................................................................................................................................

* What accent .................................................................................................................................................................

BACKGROUND SOUNDS
Street noises ■ House noises ■ Animal noises ■ Crockery ■ Motor ■
Clear ■ Voice ■ Static ■ PA system ■ Booth ■
Music ■ Factory machinery ■ Office machinery ■

Other (specify) ...............................................................................................................................................................

REMARKS
.......................................................................................................................................................................................

.......................................................................................................................................................................................

.......................................................................................................................................................................................

.......................................................................................................................................................................................

.......................................................................................................................................................................................

.......................................................................................................................................................................................

Signature ......................................................................... Date ...................................................................................

Print name......................................................................................................................................................................

This appendix may be freely photocopied

27
 Appendix 2 Protection against Flying Glass

1 There are three main methods of protection against 8 On double glazing, if the window consists of two
flying glass: separate frames and in normal use the inner frame can
be opened independently of the other, both panes
1 Applying transparent polyester anti-shatter film to should be treated. If the inner pane cannot be opened
the glass and providing bomb blast net curtains independently, or a “sealed unit” if fitted, applying film
to the inner pane is sufficient. (Sometimes inner frames
2 Installing blast resistant glass i.e. laminated glass are only lightly fitted; if so, they should be fully secured).

3 Installing blast resistant secondary glazing inside

exterior glazing.
Bomb Blast Net Curtains
2 The following details are designed to assist in the
9 Such curtains are only for use in combination with
specification of protection and give pointers about
anti-shatter film. If the film is of sufficient thickness
installation.
they may not be needed, but they are vital with single
glazed windows in small panes in Georgian frames.

Anti-shatter Film 10 The curtains should be of 90 or 100 denier polyester

terylene curtain material and be made twice the width
3 Polyester film at least 175 microns thick should be and 1.5 times the length of the window. The bottom
used; 300 micron film should be considered for panes hem must incorporate flexible weights at the rate of 400
over 10 square metres or for ground floor windows over grammes per metre. The excess length should be folded
3 square metres. concertina-wise and placed in shallow troughs at
window sill level.
4The specification can be lowered to at least 100
microns if bomb blast net curtains are also to be used. 11 Curtains should normally be installed 50 to 100mm
from the glass, but can be further back if other
5 The film must only be fixed under clean and dust-free overriding conditions dictate.
conditions. On new windows or areas being re-glazed, it
is preferable for the film to be applied to the glass to its
extreme edges, before fixing the frames. But if extensive
Blast Resistant Glass: Toughened Glass
building work is continuing after installation, dust and
debris may cause unacceptable scratching and it may be
12 Toughened glass provides for safety but not security
better to postpone fixing the film until after work is
and is therefore not recommended for external window
completed. The film should be applied as close as
or door use.
possible to the putty of glazing bars with an edge gap
of less than 3mm. Five mm can be tolerated along
13 Toughened (fully heat tempered) glass can resist
particular irregular putty edges.
high blast pressures without damage provided it is
well supported in a strong and rigid frame. When it
6 Butt joints are acceptable if film is insufficiently wide
does break its fragments are less injurious than plain
to cover the glass in one piece.
glass shards, but when used on its own toughened
glass should have anti-shatter film applied.
7 Film cannot be applied to the patterned side of
frosted, figured or reeded glass.

28
Blast Resistant Glass: Laminated Glass

14 The minimum overall thickness of laminated glass

to use is usually 7.5mm, including a minimum
polyvinylbutryal (pvb) interlayer thickness of 1.5mm.
It should be fixed in a frame designed to withstand a
static force of 7kN/sqm over the complete area of the
glazing and frame. Panes with an edge dimension of 1m
or more should be provided with a frame rebate of at
least 35mm giving a minimum bearing of 30mm.

15 If robust frames and deep rebates cannot be

provided, a level of protection equivalent to anti-shatter
film on plain glass with net curtains can be achieved
using thinner laminated glass, eg 6.8mm thick.

16 In double glazing, the preferred standard is a 7.5mm

laminated glass inner pane with a 6mm toughened glass
outer pane in a robust frame with deep rebates. In less
robust frames the laminated inner pane can be reduced
to 6.8mm thick, but 7.5mm thick glass is still preferred.

29
 NOTES

30
NOTES

31
 NOTES

32
Published by Home Office Communication Directorate 1999 PP1