David Celino

Fest ival  Republic  Limited, The  Farmiloe Buildin g,  30 St  John  Street ,  London ,  EC1M  4AY 

Mr Kevin  Mcloughlin, 

Senior Coroner, 

Coroner's Office and  Court, 

71  Northgate, 
Wakefield, 

WFl 3BS 

Dear Mr Mcloughlin, 

I am  writing as  requested,  in  response to the concerns expressed  by the Coroner in  the Regulation  28 
Report dated 21 August 2023. 

In  two witness statements, dated  12 June  2023 and  10 August 2023,  I set out many improvements 
which  Festival  Republic  proposed to implement for Leeds  Festival  2023 .  In  addition, in  my evidence 

at the Inquest,  I referred to further measures that would  be  put in  place  in  2023 or, where the 
timescale prevented this, would  be  carried forward to be  implemented at future festivals .  I set out 
below the  improvements made for Leeds  Festival  2023  and  further improvements which  will be 

considered for Leeds  Festival  2024 within the planning process for that Festival. 

Licensing Authority and Safety Advisory Group (SAG) 

All  of our plans which together constitute the Event  Management Plan  for Leeds Festival  2023, were 

approved by the Licensing Authority, the  Responsible  Authorities and SAG  prior to the festival 
commencing in  August 2023.  Pre-event inspections were carried  out by  members of the Licensing 
Committee and  Office rs of Leeds City Council. 

Throughout the Festival, SAG  meetings were convened  daily to share  information and  where 
necessary,  address issues or concerns that arose . 

A Multi-Agency debrief took place on  6 October 2023 .  The feedback from this debrief was very 

positive .  A number of themed areas were discussed, including 'Policing Issues', 'Security',  ' Medical' 
and  'Safeguarding '.  It was  noted that the hard  line taken this year was  welcomed  by all. 

It was agreed that the event was  "successful  in  building a hostile environment for drug dealers at the 

festival "  by the Security at gates, search operations, presence  of dogs and  visible messaging.  In 

addition, covert operations were in  place, including the campsite,  which  resulted  in  arrests.  The 

West Yorkshire  Police  confirmed that there had  been  71  arrests, noting most were for the supply of 
drugs.  Prosecutions have taken  place which  I will refer to later. 

The  police commented that "the increase in  robust security and  dealing with anti-social  behaviour on 
site with more evictions by FR  made the event feel  more safer than  in  previous years." 

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It was agreed that the approach taken  in  2023 should  be  carried forward to the 2024 festival.  In 

addition, the SAG  meeting noted improvements in  security,  medical provision, safeguarding and  "saw 
lots of positives". 

Planning for Leeds Festival  2024 

An  internal review by  Festival  Republic  has taken  place and  the drafting of an  Event  Improvement 

Plan for 2024 covering all  aspects of the festival  has commenced. We  are  in  the process of carrying 

out debrief meetings with our  contractors. The  planning process has already begun with debriefs 

within Festival  Republic and  debriefs with some  Responsible  Authorities and Sub Groups, in addition 

to the Multi Agency debrief described above.  A debrief meeting with the Licensing Committee is 

scheduled for 21  November 2023.  Any  recommendations for further measures that emerge from 
this debrief will be  included  in  the planning process for Leeds  Festival 2024. 

Education and  Messaging about Drug Awareness 

In  my earlier statements,  I explained our use  of social  media  platforms both before and  during the 

Festival,  including Facebook,  lnstagram and Tik Tok, messaging on  our website and  messaging on  the 

main stage  LED screens between pe rformances throughout the festival.  This was fully implemented 

for the  Festival  in  2023.  In  addition, messaging was  provided to festival goers via  the Leeds  Festival 
App throughout the festival which  had  88,000 active users and  almost a million user sessions. 

Varying messages  were created and  developed in conjunction with FACT (Festival Advice and 
Campaign  Team),  including: 

" There  is  no  safe  level of drug use.  The  safest way is  to not to use them at all." 

"Know your limits. Tolerance  levels vary - Don't feel  pressured to do anything you don't want to do ." 

" If your mates a state, keep them safe.  Stick together. Don't leave anyone  behind." 

Messages  were also shown on the big screens during every change  over of performers throughout 
the weekend. 

A debrief meeting was  held on  28 September 2023 with FACT  members and  the results were shared 
from a post-festival survey completed  by  Festival  Republic demonstrating  that the 

#LookOutForEachCampaign was seen  by 90% of the Leeds Festival audience with many commenting 

on the positive and  appropriate messaging being shared  across the site.  Examples of this feedback 
from the audience we  received  are as  follows : 

"I thought it was excellent!  Because of the campaign, people were genuinely looking out for each 

other.  If someone needed to get out the crowd,  people were quick to help unlike previous years". 

" I think it is a very positive message.  I am  happy that it wasn 't every once  in  a while but rather,  it 

was on  many screens,  posters and  staff promoting it as  well  as the acts themselves also  did so". 

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"I felt it was  pushed an  appropriate amount without being patronising or losing meaning.  The  alerts 

on  the app were friendly and  helpful too". 

Posters were also  displayed in  2023  highlighting key  messages from the #LookOutForEachOther 

campaign in  high footfall areas throughout the Site and  this messaging was displayed on the LED 

screens at the campsite Assistance,  Information and  Response  (AIR}  Hubs .  The  posters were printed 

on  foamex boards and  were each 1.8metres in height, by 1.2metres in  width (6ft x 4ft) . They were 

displayed on each  AIR  Hub (x 16 in  total), at each  Information Point (x  2 in  total} and  within the arena 

(a  further x 10). 

In  2023 our messaging was more widely communicated than  before, and  in  addition to the above, 

broadcasts were made on  BBC  Radio . 

The  FACT Team  will reconvene on  20  February 2024 to review the messaging and  discuss further 

improvements for 2024. 

In  addition, we are currently liaising with the police and  focus groups 

regarding education  in  schools and  colleges with the intent of bringing our messaging and  campaigns 

into these  environments. 

Campsite Welfare 

At  Leeds Festival  in  2023,  we had  2 fully equipped Welfare Tents serving the campsites which 

provided additional resources and  facilities to the smaller Hubs which  had  been provided in 2022. 

Each  Welfare Tent was operational 24  hours each day and  staffed by a trained welfa re team and 

supplemented by an  HIDC  medical technician with the ability to assess, triage and  provide life-saving 

treatment.  In  addition, the AIR  Hubs in  the camps ite  operated 24  hours each day of the festival. 

The feedback received  via  the SAG, Safeguarding Sub-Group,  and  welfare teams on  the ground  is  that 

these worked  well.  In  total, there were 816 people seen  at the Campsite Welfare points. 

In  202 4,  we  plan to keep the two fully equipped  Campsite Welfare tents and  look to review the 

medical presence to offer more than preliminary triage and  assistance. This will need further 

discussion  with our welfare and  medical  providers. 

Medical Provision 

As  in  previous years,  in  2023, the Medical  Plan  was  prepared  by Senior Emergency Department or 

Intensive Care  Unit Consultants and Tactical and  Operational Commanders experienced  in  working in 

the NHS and  at events on  Greenfield sites with experience of accident and  emergency conditions and 

treating illness associated  with drugs overdoses. 

In  the Arena  we had  3 medical facilities and  in  addition to this, the main  medical centre (a  Field 

Hospital) in the Village/campsite area .  The  main  Medical Centre was well equipped with advance 

diagnostic equipment available;  point of care  blood gas testing; saliva  drug testing; point of care  CRP 

(blood  infection markers);  point of care  0-Dimer (blood test);  point of care  high sensitive Troponin; 

urinalysis and  ultrasound . 

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New for 2023 was an  on site x-ray facility which enabled diagnosis on site so  that appropriate 

treatment could  be  provided on  site  and  referrals to hospital for x-rays  and  treatments could  be 

reduced to m inimise the impact of the event on the wider healthcare system .  An  exercise was 

carried out with the Senior medical staff to ensure roles and  responsibilities were clear. 

As  before,  local  hospitals were contacted  and  emergency numbers and  protocols agreed .  We  also 

had  7 dedicated ambulances on site operational 24 hours a day.  The  medical provision for 2023 was 

discussed and approved by Yorkshire  Ambulance Service  and  NHS  England . 

The  main  Medical Centre  had the ability to manage, and  as  a priority, stabilise a critically unwell 

patient prior to transport to hospital,  including the ability to deliver an  emergency anaesthetic on 

site, ventilatory support such  as  CPAP  or BIPA.  As  part of the main medical centre there was an 

extensive medication stock to appropriately manage and  treat patients as  required . 

The  Medical staffing on site consisted  of: 

Days 

1 X Emergency Department Consultant 
1 X Em ergency Department Registrar 
l  X General Pra ctitioner 
2 X Advanced Care  Partitioner 
l  X Radiographer 
2 X Emergency Depa rt ment NMC Registered  Nurses 
7 X HCPC  Registered  Paramedics 
14 X Ambulance Technicians 
15 X Emergency Care Assistants 
14 X First  Responders 

Night 

1 X Emergency Department Consultant 
2 X Emergency Department Registrar 
1 X Advanced Care  Partitioner 
1 X Radiographer 
2 X Emergency Department NMC Registered  Nurses 
5 X HCPC  Registered  Paramedics 
7 X Ambulance Technicians 
9 X Emergency Care  Assistants 
6 X First Responders 

The  medical provision was commended  by members of the SAG,  and  feedback from an  assurance 

visit carried out on  the Sunday of the festival observed the operation working well and  staff being 

appropriately engaged .  A debrief/planning meeting will take  place  between  my team and the 

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medical providers before the end  of the year.  It was commented by YAS  that the early engagement of 

a Care  Quality Commission (CQC)  registered  company was welcomed and  we  plan to take this 

forward to 2024. 

Medical data  was collected as follows : 

With regard to the drugs-related cases this year (2023), there were 83  presentations in  total, 42% 

(35)  of these  were  16/17 yea r olds (22  x 17 year olds,  13 x 16 year olds).  In  2022, there were 72 

drugs-related  presentations  in  under 18s. The figures show a significant reduction of the 

presentations in under 18s in  2023 compared to the figures in  2022. 

For 2024, as  mentioned earlier,  we  will review the medical resource  support in  the Campsite Welfare 

Tents . 

Provision of Voluntary Testing of Drugs On Site 

At the Festival  in  2023, we continued to have  a Back of House testing service available, facilitated  by 

West Yorkshire  Police,  which enabled  us  to feed  harm reduction messaging to festival goers via  social 

media  platforms, the Leeds Festival App and the  main stage screens . There were  no  known drugs of a 

particular high strength in  circulation that needed alerting to the audience . In  the on -site SAG 
meeting held on Sunday 27 th  August it was observed  that there had  been no  concerns  regarding the 
potency of drugs in  circulation at the festival and therefore it was  not necessary for any tailored 

public health  messaging to be  communicated . Front of house testing was  not carried  out because  it 

is  not permitted . 

Recording Age  of Attendees  · 

Prior to the Inquest, I committed to putting in  place a system for recording the number of 16 and  17 

year olds on  site, each  day of the Festival  in  2023.  I was  able  at very short notice, to put this in  place 

prior to the festival  in  2023 .  We  introduced a system for checking and  recording these festival goers 

by  requiring all young  persons to bring ID with them to show proof of age  at the point of exchanging 

their ticket for a wristband .  An  electronic system, using scanners and  different QR  codes was 

implemented to record this information accurately. This system worked well  but can  be  improved 

and  streamlined.  We  were able to record  the exact number of both accompanied and 

unaccompanied 16 and  17 year olds entering the site,  however we  did  not then scan  persons upon 

exit . 

We  also collected data about the number of under 18 persons who presented for medical treatment 

including their conditions .  All  data  was  reported to SAG  on a daily basis throughout the  Festival. 

The  data  relating to drugs related  cases  is  shown above. 

Prior to the Festival  in  2023,  we  increased the  number of CCTV  monitor observers in  Event Control 

from 3 to 5 at peak times. In  addition to their normal duties, we  briefed  observers to emphasise 

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 Festival  Republic  Limited , The Farmiloe Building,  30  St  John  Street,  London ,  EC1M  4AY 

observing for suspected  illegal drug issues,  including but not limited to, spotting for suspicious 

activity, drug dealing and  persons (especially younger persons) who appeared to be  under the 
influence of drugs.  The  protocol was for the CCTV  monitor observers to report all  such  activity to 

Event Control to enable it to action the appropriate response . 

One  observer was tasked  with specifically monitoring drug incidents and  supporting drugs 

operations.  It was  recognised  by the Police that this helped to secure  more drug arrests in  2023 . 

The CCTV  plan  will continue to be  under constant review. 

Additional Briefing for Security and  Staff 

In  my statements I set out the  proactive surveillance for the wellbeing of festival goers,  but during 

the Inquest, I recognised that this could  be  improved.  Therefore, in  addition to the messages in  the 
Staff Handbook and  the  normal briefings, I put in  place for the 2023  Festival, additional briefings for 
staff and contractors (especially security, stewards and  volunteers) that observation of the wellbeing 

of festival goers was a primary task together with a duty to act where festival goers (and  especially 

young festival goers) seemed  unwell.  The  protocol required,  depending upon the condition of the 

festival goer,  that the festival goer should  be  helped to either a medical or welfare provision as 
appropriate.  Also,  new for 2023, on Tuesday 22  August 2023,  I sent a Newsletter to all  of my staff 

and  all workers on site, prior to opening the Festival  reinforcing my message .  These  measures were 

in  place for the 2023  Festival  but I am  awa re that it requires a.change  in  culture .  Therefore, I still 
regard  it to  be  a work in  progress and  I am  committed to promote this culture at Leeds  Festival  and 
all  of our Festivals  in  the future . 

Drugs and  Safety Operation 

For Leeds  Festival  2023  I committed, with the full cooperation and  support of We st Yorkshire  Police, 
that we  would  provide a "hostile environment"  on  site for criminals attending the Festival with intent 

to supply and distribution illegal drugs. 

The  strategy was set out in paragraph 49 -51 of my second statement and  in  the Campsite Strategy 

Document dated 26 July 2023  prepared by a former senior officer with West Yorkshire  Police .  This 

former West Yorkshire  Police  Officer was appointed as  the Crime Reduction and  Police  Liaison Officer 
at the Festival  in 2023.  The strategy contained 5 limbs  : 

• 

• 

• 

• 

• 

The  covert response 

Overt patrol and  reassurance 

Intelligence led  security initiatives 

The  response  to reported criminal activity 

The  response  to the  presence of Organised Crime Groups 

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 Festival  Republic  Limited , The  Farmiloe Building,  30  St  John  Street,  London ,  EC1M  4AY 

All  of the 5 limbs of the strategy were fully and successfully implemented during the Festival.  Liaison 

with West Yorkshire  Police was  improved with a West Yorkshire  Police  Officer stationed  permanently 

in  Event Control.  Additional resources were provided, double the number of drugs dogs,  additional 
security, additional Police,  additional CCTV operators, specifically to support drugs operations and 

greater sharing of intelligence.  The  enforcement process was  clearer, with liaison between security 

and  the  Police  in  evidence gathering and  handover of suspects .  Press  reports of the arrests have 
recounted successful  challenges by Security to suspected  drug dealers, their apprehension and 

handover to Police for further action. 

In  2023 there were 71  arrests made  in total, 83% (59) for drugs-related  offences (4 for possession,  55 

for possession with intent to supply, largely involving semi-organised drug groups from other areas  of 
the country) . In  2022, there were 50 arrests made in  total, 58% (29)  of these were drugs related. 

In  addition to arrests, so  far there have  been 4 successful  prosecutions of drugs dealers with lengthy 

custodial sentences being imposed .  When passing sentences on two dealers, the Judge  publicly 
warned drug dealers that "others caught selling  [drugs]  can  expect long sentences".  This  warning 

was  reported in  the media . 

The  strategy of creating the hostile environment for drug dealers will  be  implemented  in 2024. 

Safeguardin_g 

The  Safeguarding Operation Pla n was  reviewed and  revised  in  conjunction with our safety partners 
for the 2023  Festival.  It provided a wide ranging  review,  covering not only safeguarding but also 

medica l,  welfare and  security provisions .  Our plan  provided for an  increase in  safeguarding 

management which  was  more robust over 24/7 throughout the whole  Festival. 

The  Plan  also  identified that specific messaging was  required  for minors, visits to schools to get basic 

drug harm  advice was  recommended , messaging about drug harm should  be  sent  out early, 

emphasis should  be  placed  on safeguarding minors in  possession of drugs and  better illumination of 
signage  in  the campsite, welfare areas and  medical areas was  required .  All  of these 

recommendations were  carried out with school visits undertaken by the Police . Again,  for 2024, we 

are  liaising with the Police to get drug awareness messaging into schools and  sixth form colleges well 

in  advance of the 2024 Festival. 

Governing Body with Oversight of Festivals 

The  Report raises,  as  a matter of concern,  that there  is  no  Govern ing  Body with oversight of festivals. 

The  Licensing Regime  introduced  by the Licensing Act 2003  places the authorisation of festivals and 

other events with Licensable Activities within the remit of the local  Licensing Committees.  A 
Premises Licence  is the main authorisation required .  It was deliberate to place the responsibility 

with loca l Licensing Committees because they were considered to  be  best informed, with the aid  of 

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representations from the Responsible Authorities and  the advice of SAG,  on  local matters and  issues 

which might need  to be  addressed  to promote the four Licensing Objectives : 

• 

• 

• 

• 

Prevention of Crime and  Disorder 

Public Safety 

Prevention of Public Nuisance 

Protection of Children from  Harm 

Local Authorities,  issue  Licensing Policy which amongst other things, advises  upon issues (including 

special  local  issues)  that Premises Licence  Holders must address to promote the Licensing Objectives. 

There  is  also  a robust enforcement regime  where a Review of a Premises  Licence can  be  called  for 

and the Licensing Committee may impose further conditions or revoke a Licence . 

Licensing Officers, other Council Officers (for example, concerning safety, environmental health, 

trading standards etc)  and  Police  Licensing Officers all  attend festivals to ensure the  relevant laws, 

regulations and  Premises  Licence Conditions are  being complied with. 

At Government level, I believe that licensing falls under the  remit of the DCMS .  In  addition to the 

Licensing Act 2003, there is  statutory guidance pursuant to the Act, (Section  182 Guidance), which 

elaborates on the requirements for the promotion of the four Licensing Objectives.  This guidance is 

updated from time to time . 

It is  also  within my knowledge that certain issues, for example security issues,  terrorism etc .,  are 

addressed  in  meetings with DCMS Officials, other Government Departments such  as  the  Home Office 

and  industry representatives .  I have attended such  meetings. 

In  addition, there are  number of industry bodies which  discuss  issues that arise  and  issue advice .  For 

example, The  Purple Guide, which is  regularly updated, provides industry guidance for festivals and 

other events .  Best Practice is  constantly under review and evolving . 

I believe that a robust structure is already in  place to provide safe  festivals,  concerts and  events 

which are  attended in  Great Britain by several  million festival goers each  year.  I struggle to see  what 

further oversight a Governing Body could  provide . 

Collection  of National Statistics 

In  my experience, from the festivals; concerts and  events that we organise throughout Great Britain 

each year,  data  relating to criminal activity, drugs casualties and  medical  referrals is  recorded  by  us 

and  is  presented during post-event debriefs with the  Licensing Authorities and  Responsible 

Authorities.  This data and  experience is then fed  into planning for events in  future years.  Therefore, 

drug related  casualties, their number and  trends are all  taken  into account on  a local  basis which  is in 

line with the local  structure of the  Licensing  Regime .  In  the case  of Leeds  Festival, we  have  access to 

data from Reading  Festival, which is the most comparable  Festival to Leeds  Festival, which can  be 

shared  with the Leeds  Licensing Authority and  Responsible Authorities when requested.  We  also 

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 Festival  Republic  Limited , The  Farmiloe Building,  30  St  John  Street,  London,  EC1M  4AY 

have experience and  data from all of our other festivals and  events spread  across Great Britain to 
inform us. 

In  addition to this data, our close  liaison and  intelligent sharing arrangements with West Yorkshire 

Police  (and  other police forces) enable  us  to be  warned of current trends in  criminality and  organised 

crime so that appropriate operations can  be  put in  place. 

In the London  Metropolitan area, a meeting takes place  in  Spring each year between the 
Metropolitan Police Service and  event organisers which  reviews  major events and  discusses 

challenges for the forthcoming year.  This  intelligence is then fed  into the planning for those events. 

I do not object to supplying data to a National Database  (subject to Data  Protection Regulations)  but 

doubt that this will  assist in fighting drug related  casualties at festivals,  concerts or other events.  I 

consider the fight against drugs and  the peddling of drugs at festivals  is  best addressed  at a local 
level. 

Whilst I have  reservations about Front of House drug testing, the creation of a Governing Body with 

oversight of festivals and the collection of National Statistics for Festivals, my mind  is  not closed  and  I 
would  be  prepared to engage further on these  proposals. 

Finally, as  I mention above, the debrief with Leeds  Licensing Committee has  not yet taken  place and 
should further matters relevant to the concerns expressed  in  your Report arise from this meeting,  I 
will write to you again to comment upon these. 

Yours sincerely 

9

Festival and Event Solutions Limited 

For the attention of Mr Kevin McLoughlin 
Senior Coroner  
Corner’s Office and Court  
71 Northgate  
Wakefield 
WF1 3BS 

The Coach House 
Ford Hall 
Chapel en le Frith 
High Peak 
Derbyshire 
SK23 0QR 

9 November 2023 

Dear Mr McLoughlin  

RESPONSE TO REGULATION 28 REPORT – 21 AUGUST 2023  

Further to 
statistics which have been updated to me today by West Yorkshire Police.  The statistics in 
letter were those provided by West Yorkshire Police at the SAG debrief in October.   

 response of yesterday, I am writing to you to update the quoted arrest 

The up to date statistics are as follows:  

Total arrests: 72 

Total arrests for drug offences: 59.  These comprise 4 for possession of drugs offences and 55 for 
supply of drugs offences.   

I hope this update is helpful.   

Yours sincerely  

Solicitor  

Registered Office - 45 Union Road, New Mills, High Peak, SK22 3EL    Registered Number – 13223887   VAT Number - 13223887 
This company is not authorised and regulated by the Solicitors Regulatory Authority

`S 
Home Office 

Kevin  MCLoughlin 
HM Senior Coroner, West Yorkshire 
Coroner's Office and Court 
71  Northgate 
Wakefield 
WF1  3BS 

Rt Hon Chris Philp MP 
Minister of Snate for Crime, 
Po[icing and Fire

2 Marsham Street 
London SWI P 4DF 
www.gov.uk/Ilome-office 

INQUEST INTO THE DEATH OF DAVID JOESPH CELINO:  REGULATION 28 REPORT 

Dear Mr MCLoughlin, 

Thank you for your report under Regulation 28 of the Coroner (Investigations) 
Regulation 2013, dated 21  August and addressed to the Home Secretary about the death 
of Mr David Joseph Celino.  I am responding as the Minister of State for Crime,  Policing 
and  Fire. 

Any death related to illicit drugs is a tragedy.  Drugs have a devastating effect on 
individuals and their wider communities.  The Government is committed to tackling the 
supply of illegal drugs through relentless police action,  reducing the demand for illegal 
drugs through a zero-tolerance approach and building a world-class system of treatment 
and recovery to turn people's lives around and prevent crime. 

In July 2023, the Government published the first annual report on the Drug Strategy.  This 
set out the progress made in the first year of the delivery of the Government's 10-Year 
Drug Strategy,  From Harm to Hope and the Government's priorities going forward. Key 
achievements in the first year, to March 2023, include: 

•  Closing over 1,300 county lines, against a three-year ambition to close 2,000 lines, 

• 

with over 2,000 arrests and 3,200 safeguarding referrals. 
Increasing the drug and alcohol treatment workforce with  1,670 additional staff, 
including  1,255 drug and alcohol workers, 479 of whom are focused on criminal 

justice.
Increasing the number of referrals from the criminal justice system by 8°/o. 
• 
•  Expanding the use of drug testing on arrest across police forces to target 

recreational drug users and completing 43,333 tests. 

•  Establishing  106 Combating Drugs Partnerships across every area in England, 

overseen by Senior Responsible Owners, to drive local multi-agency delivery. 

You report notes that the orgnanisers of the festival were not aware of the number of 
people attending who were under the age of 18 and therefore the number of potentially
vulnerable people who could be targeted by drug dealers.  All organisers of large events 
and some medium events,  including festivals are required to present to the relevant local 
authority before an in-principle agreement is given. Festivals will present an Event Safety 
Management Plan or an Event Management Plan that is reviewed by the local authority as 
part of the licensing process, and is scrutinised by their SafetyAdvisory Group (SAGs). 

 Run by local authorities, SAGs are nan-statutory groups of multi-agency representatives 
formed to give advice and guidance in order to promote best practice and high levels of 
safety and welfare at events, and ensure events have a minimal adverse impact on the 
community. 

All events licence applications must comply with four licensing objectives, which are the 
prevention of crime and disorder; public safety; the prevention of public nuisance; and the 
protection of children from harm.  Licensing authorities may attach conditions to 
authorisations. These conditions can be included on a licence at time of grant (e.g. 
volunteered by the applicant), imposed by the licensing authority as part of an application 
to vary a licence, or imposed by the licensing authority as part of a licence review. 

Licence reviews play an important role.  Reviews give licensing authorities (and others) 

powers to address problems, and can be triggered by complaints from local residents or 
businesses -ensuring appropriate local representation in the decision making processes -
or by representations from relevant authorities, such as the police or the licensing authority 
itself.  The approval of event licences -including any additional conditions placed on event 
organisers -is at the discretion of Local Authorities. 

Policing arrangements around festivals are an operational matter for Chief Constables in 
consultation with local partners.  In line with the Government's approach on tackling drugs, 
we expect forces to relentlessly attack every phase of the drugs supply chain.  If there are 
concerns about the way police have responded to an incident than individuals can make a 
Complaint to the forces' professional standards unit or to the Independent Office for Police 
Conduct (lopc). 

Your report suggests that further instruction or training for festival staff and volunteers is 
required `as to the need to be proactive,  particularly in view of the prevalence of illicit drugs 
and teenagers'. The Security Industry Authority (SIA) has statutory responsibility for 
licensing  individuals working in a private security role regulated by the Private Security 
Industry Act 2001.  Regulated roles include `security guarding', where operatives are 
contracted for the purpose of supplying private security (for example, to venues and 
festivals), and `door supervisors'. The legislation does not apply to stewards (who perform 
duties such as directing people to toilets or first-aid facilities), or unpajd volunteers. Neither 
stewards nor unpaid volunteers require SIA licences, or the associated mandatory 

qualifications. 

With respect to licensed security guards and door supervisors, the SIA sets the minimum 
training required for each role. This includes training on drug awareness, which covers 
recognising the signs and sy  ptoms of drug use and identifying drug dealing.  Beyond the
minimum standards set by thIoperativestosupplyanyadditional training required for th6 particular situation in-which the

regulator, it is for the employer of licensed security 

licence holder is to be deployed. I would encourage event coordinators to consider any 
enhanced skills needed for the provision of robust security services and Public Protection 
during Leeds Festival, and then to communicate those needs with partners (including 
security contractors and, separately, volunteers and stewards who do not fall within SIA 
regulation). 

Your report also asks for clarification on the Government's position on drug testing at 
festivals also known as Drug Checking  Facilities (DCFs).  The Government facilitates 
DCFs provided that the possession and supply of controlled drugs are licensed by the 
Home Office Drugs and Firearms Licensing Unit or, exceptionally, relevant exemptions 
under the Misuse of Drugs Regulations 2001  may apply.  It has long been a requirement 
for anyone who wishes to possess, supply or produce controlled drugs to obtain a Home 
Office controlled drugs licence,  including anyone wishing to run a DCF. 

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 operated responsibly in line with Government policy to ensure that they discourage drug 
use and signpost potential users to treatment and support. 

The Government recognises the potential harm reduction benefits of back-of-house DCFs 
at festivals and similar events. Back-of-house DCFs are those which test surrendered or 
confiscated drugs,  but do not return the drugs to the individual or give individualised 
information on the content of the drugs. Instead, they enable localised public alerts if toxic 
or extremely dangerous drugs are detected to avoid sending a message that taking any 
illegal drug can be safe.  Organisations wishing to deliver back-of-house DCFs have 
always been able to apply for a licence and we would encourage them to plan ahead to 
ensure that there is time to apply for a licence in good time for the festival season next 

year. 

In the context of a festival, where DCFs will be aimed predominately at so called 
recreational users,  I expect any DCFs to provide a back-of-house service to provide harm 
reduction information to users and use`test results to inform wider harm reduction 
messages or alerts to festival goers and stakeholders but_not provide users with the-
individualised result of the drugs they submit, which would constitute a front-of-house 
DCF. 

Given the measures which I have outlined above,  I consider that appropriate measures to 
reduce the risk of deaths like this from happening are in place. I  hope that you agree with 
my assessment, and  I would like to thank you for bringing this matter to my attention. 

Yours sincerely, 

Rt Hon Chris Philp MP 
Minister of State for Crime, Policing and Fire

Response to the Senior Coroner in relation to the 
Regulation 28 report dated 21 August 2023 

Approved by the Licensing Committee on 21 November 2023 

Thank you for your Regulation 28 Prevention of Future Deaths report relating to the tragic death of 
David Joseph Celino.  This is a response to the report provided on behalf of Leeds City Council (LCC) 
through its Licensing Committee. 

The Matters of Concern raised by the Senior Coroner in the Regulation 28 report have been carefully 
considered by the Committee, which has approved this response at a meeting on 21 November 2023. 

All members of the Committee offer their condolences to the family and friends of David Celino. 

Background 

LCC is the Licensing Authority for the Leeds Festival under the Licensing Act 2003.  Its powers and 
functions in that capacity are defined by the 2003 Act. 

LCC’s Licensing Committee granted a premises licence for the Leeds Festival on 28 April 2006.  That 
licence continues to have effect until and unless it is revoked or suspended, surrendered, or lapses due 
to the death, incapacity, insolvency etc of the holder.  

Under the terms of the licence, each year before the festival the Licensing Committee considers and 
approves the licence holders’ Event Management Plan (EMP).  Following each year’s festival, the 
Committee holds a de-brief meeting including consideration of improvements for the following year. 

The multi-agency Safety Advisory Group (SAG) also provides advice in relation to the event.  The SAG is 
made up of representatives from the local authority, emergency services, and other relevant bodies. 
They meet to review event applications and advise on public safety. 

The licence holders and organisers of the Leeds Festival, Festival Republic Ltd, have worked with the 
Council and other stakeholders, including the Police, over the years to introduce and improve on safety 
and welfare provision at the event. 

The Coroner’s Matters of Concern 

(1)  Lack of accurate information about the number of attendees under the age of 18. 

The Licensing Committee has been mindful of the need for information on the number of under-18 
attendees for some time, and has been in discussions with Festival Republic since early-2021 over ways 
of accurately capturing this data.  Festival Republic highlighted the difficulties in capturing this data at 
the point of sale, given the common occurrence of ticket resale and exchange.  Consequently, a system 
of under-18 wristbands was implemented at the 2021 festival but proved unsuccessful and gave rise to 
concerns about the safeguarding implications of visibly identifying under-18s. 

At the Committee’s debrief meeting for the 2022 festival, held in January 2023, Festival Republic Ltd 
committed to implement a new and more robust system for future events to capture accurate numbers 

1 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 of attendees aged 16 and 17.  The Committee’s expectation that this would be delivered for the 2023 
festival was confirmed in a letter to Festival Republic Ltd dated 24 January 2023. 

The system implemented by Festival Republic for the 2023 event was that every attendee was required 
to show identification documents with proof of age at the point of exchanging their tickets for 
wristbands.  Staff at the wristband exchange counters would then check the ID and keep a count of 16-
and 17-year-olds in attendance, by scanning the appropriate QR code.  The data thus obtained captured 
the numbers of 16/17 year olds, and also differentiated between those who were accompanied by an 
adult and those unaccompanied. 

Officers from the Council’s Entertainment Licensing service attended the festival to observe the system 
in operation, and based on their observations were satisfied that it was implemented successfully. 

During the festival itself, the numbers were shared with SAG partners at the daily on-site debrief.  The 
data for the entire festival has been provided to the Committee for consideration at the 2023 debrief 
and will inform the consideration of future Event Management Plans. 

(2)  No national governing body with oversight of music festivals in Britain and no records of drug 

related casualties at festivals nationally. 

The Licensing Committee draws upon available specialist expertise from the multi-agency SAG in its 
consideration of the EMP for the Leeds Festival.  The Council agrees that guidance, oversight and data 
from a national governing body for music festivals would be extremely valuable in this process and 
would welcome such a body being introduced.  The Licensing Committee chair will write to the 
Secretary of State to support the introduction of such a body. 

(3)  Without reliable numbers it is impossible to establish what proportion of drug-related 

casualties are under 18; national oversight would enable comparisons between festivals and 
aid assessment of the effectiveness of anti-drug control measures. 

At the national level, the Council agrees that national data for drug-related casualties at different 
festivals would be a useful metric to help assess the effectiveness of anti-drug measures, and would 
welcome such data being made available.  The Chair of the Licensing Committee will endorse this 
proposal in his letter to the Secretary of State. 

Specifically in relation to the Leeds Festival, the Licensing Committee has been provided with a report of 
medical interventions at the 2023 festival which includes number of persons treated, broken down by 
age.  The figures have been provided in Festival Republic’s response to the Senior Coroner’s report and 
are not repeated here. 

(4)  Need for a hydra headed campaign to deter illicit drugs being brought onto the festival site. 

The Council can give an overview of steps taken on this issue in its role as Licensing Authority for the 
festival, but the responses from Festival Republic Ltd and West Yorkshire Police contain greater detail. 

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 In advance of the 2023 festival, Festival Republic introduced a new drug security strategy devised by a 
former police Detective Superintendent, which intended to create a hostile environment for criminals 
targeting the festival to supply illicit drugs, and to deter the use of illegal drugs by festival goers.  The 
strategy involved enhanced security and searches on the entry gates; high visibility patrols by Security 
Industry Authority (SIA) accredited security staff; covert security operations within the site; intelligence-
led targeted security operations; appropriate response to reports of illegal activity via the security staff 
and Police; and identification and targeting of organized crime groups on site. 

Analysis of the arrest data indicates that Festival Republic’s new drug security strategy has been 
effective.  Arrest data in respect of the 2023 festival showed an increase in the number of arrests, up 
from 50 to 72, in addition to an increase of drugs-related arrests as a percentage of all arrests made, up 
from 58% to 83%, when compared with data from the 2022 festival. 

(5)  Need for further training and instruction for festival staff and volunteers. 

Again, the Council can give an overview of the steps taken but Festival Republic can respond in finer 
detail.  For the 2023 event, Festival Republic enhanced the security and wellbeing provision through 
improved and more visible security and stewarding, particularly in campsites and egress routes; Security 
Industry Authority (SIA) -accreditation checks on security staff (SIA accredited security staff are trained 
in welfare, safeguarding and first aid); improved staff manuals; daily briefings for security, staff and 
volunteers; and the new provision of Assistance, Information and Response (AIR) Hubs placed at 
strategic points around the campsites and marked with bright LED signage.  Officers of the Council’s 
Entertainment Licensing service witnessed improved proactive security and stewarding during the 2023 
festival. 

(6)  Need for authoritative Home Office guidance on Front of House drug testing. 

The Council recognises that there are complexities around Front of House drug testing, with differing 
views on its effectiveness as a safety measure, and whether it conflicts with anti-drug policy and 
messaging.  The Council would welcome clear, evidence-based Home Office guidance on this subject. 

Chair of the Licensing Committee 

3

13 November 2023 

Dear Mr McLoughlin (HM Senior Coroner),  

I write on behalf of the Chief Constable of West Yorkshire Police in response to the Prevent Future Deaths 
Report dated 21 August 2023. Whilst I will only comment on paragraph 4, I would like to assure you that 
West Yorkshire Police (WYP) have considered all the issues you have raised and will continue to work 
closely with Festival Republic and other partners. Following the 2023 festival, WYP have participated in a 
number of debriefs with Festival Republic and the Safety Advisory Group. 

WYP remains committed to targeting those connected with the supply of drugs at the festival. In the 
months leading up to the 2023 festival, a dedicated intelligence researcher was used to harness 
intelligence from a number of different sources. To assist in identifying any trends at U.K. festivals that had 
taken place before the Leeds Festival, WYP liaised with Festival Republic and the National Police 
Coordination Centre Strategic Intelligence & Briefing (who provide regular information and intelligence 
updates during the festival season). As Silver Commander for the Leeds Festival, I also liaised with the 
Silver Commander for the Reading Festival. 

I believe that the additional measures (which I have detailed below) did create a more “hostile 
environment” for drugs supply at the 2023 festival and led to an increase in the number of arrests, in 
particular of persons who were in possession of a controlled drug with the intent to supply it to another 
(PWITS). In 2023 there were 72 total arrests at the event, which included 59 arrests for drug related 
offences – 4 for Possession and 55 for Drugs Supply offences. The Crown Prosecution Service concluded 
that there was sufficient evidence in 8 cases to charge and remand a person, with 4 of these already 
having been prosecuted and receiving significant custodial sentences. The remainder are ongoing police 
investigations with suspects on bail / under investigation that may progress to charges when the 
investigations are fully complete.  

Only 14 of those arrested for drug offences were from the West Yorkshire area; the majority of offenders 
resided in the Greater Manchester, Merseyside and South Yorkshire area. WYP intends to liaise with 
these Police Forces in the lead up to the 2024 festival.   

As referred to above, a number of additional measures were implemented for the 2023 festival which 
included: 

•  Festival Republic conducted more robust searches at ingress points.  
•  An increased use of drugs dogs and discreet searches on entry by Festival Republic. 
•  When drugs were located during entry searches, police detectives were present to triage what the 

police response should be.  

•  An increased visible police presence at ingress points. 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 (cid:120)  Festival Republic provided drugs messaging at points of ingress on large digital screens. 
(cid:120)  Amnesty bins were placed at ingress points.  
(cid:120)  Covert operations. 
(cid:120)  For the first time, a WYP officer was stationed directly within the Festival Republic Control Room.  
(cid:120)  Festival Republic provided additional CCTV operators. 

It is important to note that as in previous years, WYP attended daily security briefings where intelligence 
was shared between WYP and Festival Republic. 

These measures ensured that we were able to identify and arrest persons who were supplying drugs. The 
Crown Prosecution Service decides which cases should be prosecuted and determines the appropriate 
charges. Where it is appropriate (and in consultation with the Crown Prosecution Service), confiscation or 
forfeiture orders are sought to deprive the defendant of the proceeds of crime.  

After listening to the concerns raised by David’s family, WYP have reflected on how the initial stages of 
the investigation were dealt with and, in future, would ask another night Duty Detective Inspector to attend 
the hospital with the person who had become ill, allowing the night Duty Inspector at the festival to focus 
on the crime scene, potential suspects etc. 

Debrief discussions between Festival Republic and WYP have suggested that the measures adopted for 
the 2023 festival will be replicated for the 2024 festival.  

Sincerely,  

 Neighbourhoods & Partnerships 

Silver Public Order and Public Safety Commander at leeds Music Festival 2023 
Leeds District Police HQ, Elland Rd, Leeds, LS11 8BU 
West Yorkshire Police