Event Security in Victoria: A Complete Guide

1. The Necessity of Event Security: Beyond Compliance

While regulatory compliance is often the driver for engaging security services, the functional necessity of security extends far deeper into the operational integrity of an event. Security personnel are the operational arm of the event's risk management plan, tasked with maintaining an environment where patrons can engage with the event safely.

1.1 Duty of Care and Legal Liability

Under the Occupational Health and Safety Act 2004 (Vic), an event organizer is classified as an employer or a person with management or control of a workplace. This classification imposes a non-delegable duty to ensure, so far as is reasonably practicable, that the environment is safe and without risks to health for employees, contractors, and the general public. This duty is not merely a bureaucratic requirement; it is a proactive obligation to identify hazards and implement controls.

In the context of an event, "hazards" include crowd density, intoxication, aggressive behaviour, and environmental factors. Security personnel are the primary control measure for these hazards. If an incident occurs—such as a violent assault or a crowd crush—and it is determined that the organizer failed to provide adequate security numbers or that the security staff were untrained, the organizer can be held criminally liable under OHS laws. Furthermore, under the Wrongs Act 1958 (Vic), occupiers liability provisions mean that organizers can face substantial civil litigation for injuries sustained by patrons due to negligence in security planning. The presence of licensed, trained security is the strongest defence against such claims, demonstrating that the organizer took "reasonable steps" to prevent foreseeable harm.

1.2 Managing Crowd Dynamics and Behaviour

Crowds are fluid and dynamic entities. The psychology of a crowd can shift rapidly based on environmental triggers, alcohol consumption, or perceived threats. Security officers, specifically those licensed as Crowd Controllers, are trained to monitor these dynamics. They manage the flow of people through entry and exit points to prevent dangerous density levels, which is critical in preventing crush incidents.

Furthermore, the consumption of alcohol significantly alters individual and group behaviour. Alcohol-related violence and anti-social behaviour remain the most common risks at licensed events. Security staff are legally empowered to intervene in these situations. They act as the arbiters of acceptable behaviour, enforcing the "House Rules" and the conditions of the liquor license. Their ability to refuse entry to intoxicated persons or remove those who become aggressive is a vital mechanism for preventing the escalation of verbal disputes into physical violence. Without this intervention capability, minor altercations can rapidly destabilize an entire event.

1.3 Incident Response Capability

A critical distinction must be made between the role of private security and the role of Victoria Police. Police resources are finite and are prioritized for public order management and the investigation of crime. They are not available to perform routine event functions such as ticket checking, perimeter patrols, or static guarding. Therefore, the event organizer must maintain a self-sufficient capability to respond to incidents until emergency services arrive.

Security personnel act as the "first responders" within the event footprint. Their responsibilities in this capacity are multifaceted:

• Medical Support: Security staff are often the first to arrive at the scene of a medical emergency. They secure the area to protect the patient and the medics, manage bystanders, and guide ambulance crews through dense crowds to the patient's location.
• Emergency Evacuation: In the event of a fire, bomb threat, or severe weather event, security staff are responsible for executing the evacuation plan. They direct patrons to assembly areas, sweep the venue to ensure no one is left behind, and prevent re-entry.
• Crime Scene Preservation: If a serious crime occurs, security staff are trained to secure the scene, preventing the contamination of evidence until police arrive.

This immediate response capability is essential. In the critical minutes following an incident, the actions of competent security staff can mean the difference between a controlled resolution and a chaotic disaster.

2. The Legislative Framework in Victoria

The provision of security services in Victoria is governed by a complex ecosystem of acts and regulations. Compliance with this framework is mandatory, and ignorance of the law is not a valid defence. Event organizers must understand how these statutes interact to define their obligations.

2.1 The Private Security Act 2004

The Private Security Act 2004 is the primary legislation regulating the private security industry in Victoria. Its purpose is to ensure that the industry is comprised of persons who are fit and proper and who have the necessary skills to perform their duties.

Distinction Between Activity Types

One of the most common pitfalls for event organizers is failing to distinguish between the different types of security licenses. The Act rigidly defines these roles, and deploying a guard with the wrong license endorsement is an offence.

• Crowd Controller: Section 3 of the Act defines a crowd controller as a person who is employed or retained to maintain order at a public place. Their functions include screening entry, monitoring or controlling behaviour, removing persons for behavioural reasons, and otherwise maintaining order. This is the primary license required for event work. Any staff member who interacts with patrons, manages queues, checks IDs, or is responsible for evictions must hold a Crowd Controller license.
• Security Guard: A security guard is defined as a person employed to watch, guard, or protect property. While they may be used for overnight asset protection or perimeter patrols in non-public areas, they generally do not have the legislative authority or training to manage patrons. Using a Security Guard to perform Crowd Controller duties is a breach of the Act.

Licensing and Registration

All individuals performing security activities must hold a valid license issued by the Licensing and Regulation Division (LRD) of Victoria Police. This license must be carried at all times while on duty. Additionally, the security business providing the staff must hold a Private Security Business License. Organizers should request a copy of the business license and conduct spot checks of individual licenses on the day of the event to ensure compliance.

2.2 The Liquor Control Reform Act 1998

For any event where alcohol is supplied, the Liquor Control Reform Act 1998 becomes a controlling statute. The objectives of this Act are to minimize harm arising from the misuse and abuse of alcohol and to facilitate the responsible development of the liquor, tourism, and hospitality industries.

To achieve these objectives, the Victorian Commission for Gambling and Liquor Regulation (VGCCC) imposes specific conditions on liquor licenses. These conditions often mandate the presence of crowd controllers. The "Crowd Controller Condition" on a license is legally binding. It specifies the number of guards required, the times they must be present, and their specific duties (e.g., monitoring the entrance). Failure to adhere to these conditions can result in the immediate closure of the bar or the entire event by a Licensing Inspector or Victoria Police, in addition to significant fines for the licensee.

2.3 The Labour Hire Licensing Act 2018

The introduction of the Labour Hire Licensing Act 2018 marked a significant shift in the regulation of the security industry. The Act was established in response to inquiries that found widespread exploitation, wage theft, and tax evasion in the labour hire sector.

Under this Act, the provision of security staff is classified as a "labour hire service." Consequently, any business that supplies security guards to an event organizer (the host) must be licensed by the Labour Hire Authority (LHA).

• Host Obligations: Section 3 of the Act places a strict obligation on the "host" (the event organizer) to only use licensed providers.
• Penalties: Engaging an unlicensed provider is a serious offence. Penalties can exceed $160,000 for an individual and $650,000 for a corporation.
• Supply Chain Responsibility: The Act effectively pierces the corporate veil, preventing organizers from claiming ignorance regarding the employment practices of their contractors. If an organizer engages a provider who underpays staff or operates illegally, the organizer can be held accessorily liable.

3. Financial Realities: Costs, Wages, and the "Race to the Bottom"

Perhaps the most critical area of risk for modern event organizers lies in the financial structure of their security contracts. The Labour Hire Authority has made it clear: contract prices that are "too good to be true" are almost certainly illegal.

3.1 The "Cheaper is Illegal" Principle

The security industry operates under the Security Services Industry Award 2020, which sets the federal minimum wages and conditions for security workers. When combined with state-based statutory costs (Superannuation, Portable Long Service Leave, WorkCover), there is a mathematical "floor price" below which it is impossible to legally employ a guard.

The LHA uses contract pricing as a primary indicator of non-compliance. If a security company quotes a rate that is lower than the minimum legal cost of employing the worker, they must be cutting corners. This usually manifests as:

• Wage Theft: Paying workers "cash in hand" below the award rate.
• Phoenixing: Failing to pay tax or superannuation and then liquidating the company to avoid debts.
• Unlicensed Guards: Using untrained or unlicensed staff who are cheaper to employ but pose a massive safety risk.

For the event organizer, accepting such a quote is not a "bargain"—it is a liability trap. If a "cash in hand" guard injures a patron or is injured themselves, the organizer's insurance may be void, and they may face prosecution for facilitating a black-market economy.

3.2 Detailed Cost Breakdown (2025-26 Financial Year)

To assist hosts in identifying compliant providers, the LHA publishes an annual guide titled "Cost of Meeting Minimum Legal Obligations." The figures for the 2025-26 financial year provide a transparent benchmark for pricing.

The following breakdown illustrates the minimum cost a security business incurs to employ a Level 1 Permanent (Full-time/Part-time) guard. These figures include the base hourly rate, casual loading (if applicable), leave accruals, superannuation, and levies.

Note: These figures do NOT include the security company's profit margin, administration costs, uniforms, or equipment. Therefore, the charge rate to the client must be significantly higher than these figures.

Weekday Operations (Monday - Friday)

Weekend Operations

Public Holidays

If a security provider is quoting a flat rate, or pricing below the minimum Award wage, it strongly suggests they may be underpaying staff and failing to meet basic compliance obligations.

3.3 Understanding the Statutory Levies

Organizers often see line items in quotes they do not understand. It is vital to recognize these as mandatory legal protections for workers:

• Portable Long Service Leave (1.8%): The security industry is characterized by transient employment. To ensure workers do not lose their long service leave entitlement when changing employers, the Victorian Government established the Portable Long Service Authority. Employers must pay a levy of 1.8% of the worker's ordinary pay into this scheme. Failure to pay this is a red flag for LHA auditors.
• Superannuation (12%): The Superannuation Guarantee is a federal requirement. The LHA and the ATO share data to identify employers who fail to make these contributions.
• WorkCover Insurance (~3.641%): Security is a high-risk industry. Employers must hold WorkCover insurance to protect workers in the event of injury. The premium rate is set by WorkSafe Victoria and is currently around 3.64% of remuneration. A provider operating without this insurance exposes the host to direct litigation if an injury occurs.

4. Operational Requirements: Ratios and Deployment

Determining the number of security guards required for an event is not a matter of guesswork. It is a calculated decision based on risk assessments, license conditions, and industry standards.

4.1 The "2 plus 1" Standard for Licensed Events

For events where alcohol is served, the most widely accepted standard in Victoria is the "2 plus 1" ratio. This ratio is frequently imposed as a condition of license by the VGCCC and serves as the baseline for police expectations.

The Rule:

• Two (2) crowd controllers are required for the first 100 patrons.
• One (1) additional crowd controller is required for every additional 100 patrons (or part thereof).

This creates a linear scaling of security presence that ensures adequate coverage as the crowd size increases.

4.2 Risk-Based Adjustments and Non-Licensed Events

While the "2 plus 1" rule is the standard for licensed venues, it is not a "one size fits all" solution. The Guidelines for Public Events published by the Victorian Government emphasize that security numbers should be determined by a Risk Assessment.

Factors increasing the ratio (e.g., 1:50):

• Demographics: Events attracting a demographic with a history of behavioural issues or conflicting groups.
• Nature of Event: High-energy music festivals, combat sports, or events with complex layouts (multiple stages, hidden corners).
• Duration: Events running for long periods where intoxication levels may accumulate over time.
• Environment: Outdoor events with porous perimeters requiring more staff to secure the fence line.

Factors potentially decreasing the ratio (e.g., 1:200):

• Low Risk: Community fetes, seated theatre performances, or daytime family events where alcohol is incidental or not served.
• Police Discretion: Organizers can negotiate lower ratios for low-risk events, but this must be approved in writing by the local Police Service Area Manager or the VGCCC during the licensing process. It is dangerous to assume a lower ratio without this approval.

4.3 Deployment and Positioning

Security is ineffective if guards are not positioned correctly. The Design Guidelines for Licensed Venues and police advice suggest the following critical deployment zones:

• Entrances: To perform ID checks, bag searches, and refusal of entry. This is the first line of defence.
• Exits: To prevent unauthorized entry and ensure emergency egress routes remain clear.
• Bar Areas: To monitor for intoxication and support bar staff in refusing service.
• Roaming/Floating: To respond to incidents within the crowd and monitor amenities (toilets) for drug use or health issues.
• External Perimeter: To manage queues and ensure patrons leave the area quietly (amenity control).

5. Risk Management and Emergency Planning

Security operations must be anchored in a robust planning framework. For major events (typically those with over 5,000 attendees), a formal Risk Management Plan consistent with AS/NZS 31000 is a requirement. However, even small community events must have a documented Emergency Management Plan (EMP) to satisfy insurance and council permit requirements.

5.1 The Emergency Management Plan (EMP)

The EMP is the operational manual for the event's safety response. It ensures that when a crisis occurs, the response is structured, practiced, and effective, rather than reactive and chaotic. Based on templates provided by the Victorian Department of Health and local councils, a compliant EMP must contain specific sections.

Key Components of an EMP:

• Emergency Control Organisation (ECO): This defines the chain of command. It identifies who is the "Chief Warden" (often the Event Manager or Head of Security) and who are the "Area Wardens." It ensures that in an emergency, there is a single point of truth for decision-making.
• Communication Tree: A visual flowchart detailing the communication protocol.
  • Example: Guard A spots fire → Radios Security Supervisor → Supervisor assesses and radios Event Operations Centre (EOC) → EOC calls 000 and initiates evacuation tone.
  • This prevents multiple people calling 000 with conflicting information and ensures the police Forward Commander is met by a designated liaison.
• Evacuation Diagrams: The EMP must include site maps identifying:
  • Assembly Areas (primary and secondary).
  • Emergency Egress Routes (which must be kept separate from incoming emergency vehicle access).
  • Firefighting equipment locations (extinguishers, hose reels).
  • First Aid Posts.
• Risk Assessment Matrix: A table listing potential hazards (e.g., severe weather, structure collapse, gas bottle explosion), their likelihood and consequence, and the specific mitigation strategies (controls) in place.

5.2 Hostile Vehicle Mitigation (HVM)

In the current security climate, protecting crowds from vehicles is a priority. The "Crowded Places Strategy" requires organizers to consider HVM.

• Traffic Management: Security guards are often deployed to man road closures.
• Physical Barriers: The use of concrete bollards or water-filled barriers to prevent vehicles from entering pedestrian zones.
• Warning: Security guards should not be used for traffic control on public roads unless they hold specific VicRoads traffic management accreditation. Their role is typically limited to controlling access to private event areas.

5.3 The Party Safe Program

For private parties and smaller gatherings, Victoria Police offer the Party Safe Program. This is a risk mitigation tool that encourages organizers to register their event with local police.

• Registration: Organizers should register at least one week prior to the event via the police website or local station.
• Benefit: Registration ensures that police are aware of the event's location, size, and nature. If a neighbour calls with a noise complaint or if gatecrashers arrive, police have the intelligence to respond appropriately.
• Limitation: Registration does not provide police security for the party. Police have explicitly stated that they are not private security guards. The organizer remains responsible for hiring private security to control access and manage guests. The program emphasizes that "Gatecrashing" is a major risk that can be mitigated by hiring licensed crowd controllers to manage the door.

6. Penalties, Enforcement, and Case Studies

The consequences of failing to adhere to these security requirements are severe. The Victorian regulatory bodies have demonstrated a willingness to use their full powers to prosecute non-compliance.

6.1 Labour Hire Authority Enforcement

The LHA has been particularly active in the security and horticulture sectors.

• License Cancellation: The LHA can cancel a provider's license if they are found to be non-compliant with legal obligations. Once cancelled, the business cannot legally operate, effectively shutting it down.
• Civil Penalties: The Supreme Court of Victoria has issued massive penalties. In a recent case involving unlicensed operations and "fit and proper person" failures (in the analogous horticulture sector), penalties totalled over $750,000 for the companies and directors involved. The LHA has stated that the security industry is a specific focus for similar compliance actions due to the prevalence of sham contracting.
• Personal Liability: Directors can be held personally liable. In the case of Ung Services Pty Ltd, the director was personally fined over $96,000 for his role in the company's non-compliance.

6.2 Wage Theft and Industrial Relations

While the Wage Theft Act 2020 (Vic) faced constitutional challenges, the principle of pursuing underpayment remains a priority for the Fair Work Ombudsman and the Wage Inspectorate Victoria.

• Accessorial Liability: Event organizers who turn a blind eye to underpayments can be prosecuted as accessories to the contravention. If a security company is paying guards $20/hr cash (well below the legal minimum), and the organizer accepted this quote knowing it was below cost, the organizer is complicit in the wage theft.

6.3 Liquor Licensing Sanctions

The VGCCC conducts regular inspections of licensed events. If inspectors find that the "Crowd Controller Condition" is not being met (e.g., only 2 guards present when the license requires 4), they can issue:

• On-the-spot fines (Infringement notices).
• Enforceable Undertakings: Legally binding agreements where the licensee commits to specific rectifications (often at great cost) to avoid prosecution.
• License Suspension: Immediate suspension of the liquor license, forcing the bar to close during the event.

7. Conclusion: The Path to Compliance

Delivering a safe and successful event in Victoria requires a professional approach to security. The era of the "bouncer" has been replaced by the era of the "Risk Management Professional." Event organizers must navigate a landscape defined by strict liability, complex industrial relations laws, and high community expectations.

To ensure compliance and safety, organizers should follow this strategic checklist:

1. Define the Requirement: Use the "2 plus 1" ratio as a baseline but conduct a specific Risk Assessment to determine if more resources are needed.
2. Verify the Provider: Ensure the security company holds a current Private Security Business License and a Labour Hire License. Check the LHA public register.
3. Validate the Cost: Scrutinize the quote. If the hourly rate is below the LHA benchmarks (e.g., below $50/hr for a weekday), ask "how?". If the answer implies cash payments or "flat rates," reject the provider immediately to avoid liability.
4. Plan the Response: Develop a comprehensive Emergency Management Plan including communication trees and evacuation maps.
5. Check the Guards: On the day of the event, physically check the licenses of the staff to ensure they are Crowd Controllers, not just Security Guards.
6. Engage with Police: Register the event via Party Safe or local liaison to ensure emergency services are aware of your activity.

By adhering to these standards, event organizers do more than satisfy a regulator; they build a foundation of safety that allows their event to thrive.