INDIANAPOLIS, Ind. — It’s been eight months since the Hoosier Lottery Stage at the Indiana State Fairgrounds was toppled by high winds. The disaster killed seven people and injured 58.

In the wake of that tragedy, various state and local investigations have been conducted to find out what went wrong. Their conclusions have been included in an independent assessment of the disaster by Witt Associates of Washington, D.C. Its report shows the key problem as a lack of preparedness and indecision by fair officials.

Witt Associates specializes in disaster reconstruction and has spent more than six months looking at what happened at the state fairgrounds on Aug. 13, 2011. In its 181-page report, Witt listed several areas that needed to be corrected or improved, but cited four main problems that contributed to deaths and injuries.

“It was not clear who or what organization responsible for public safety during the 2011 State Fair,” stated the report.

While the Indiana State Police were responsible for traffic and safety at the fairgrounds, the Fair Commission – which oversees operations of the fairgrounds – was responsible for the overall operation of the fairgrounds, and the Indiana State Fair Commission was responsible for the safe running of individual events during the fair.

Charlie Fisher, vice president of Witt Associates, said the lack of a defined chain of command “created uncertainty and confusion.” The Witt report, in fact, details indecision taking place over whether to evacuate the stage area or allow the band Sugarland to begin its concert. By the time the decision to evacuate was made, the storm was on top of the fairgrounds.

Among the problems cited by Witt was the lack of a single person at the fairgrounds responsible for public safety; the lack of an up-to-date weather forecasting service to monitor weather conditions; and a breakdown in communications that prevented different agencies working the fair from communicating with each other.

Witt’s report said that problem was particularly noticeable immediately before and immediately after the disaster when police agencies, fair officials and emergency services were not able to communicate with each other over the radio.

Even though quarter-inch hail and wind gusts of more than 60 mph had been predicted, state fair officials did not order an evacuation and, in fact, were preparing the stage for the appearance of the band Sugarland when the storm hit. Witt’s report showed the rigging that supported the light towers at the stage wasn’t strong enough for 60-mph winds; in fact, the rigging was rated only for 40 mph.

Among the recommendations made by Witt were: creation of a coordinated emergency plan for all agencies; more vigorous training of fair personnel so they know what to do in case of severe weather events; create an Incident Commander position at the state fairgrounds to take charge in emergencies; contract with an outside agency to provide real-time weather data; and establish a university emergency warning system for staff and fairgoers that they can access through text messaging and other social media.

Witt contrasted what happened at the state fairgrounds with what happened a few miles away in Fishers where the Indianapolis Symphony Orchestra (ISO) was about to begin an outdoor concert. There, officials ordered an immediate evacuation. No one was injured.

Witt included the emergency procedures of the ISO in its state fair report, pointedly saying fair officials would do well to study and adopt its procedures for future events.

State fair officials have not yet adopted any of the just-presented guidelines, but Steve Patterson, director of administration for the Indiana Assoc. of Fairs, Festivals and Events, hopes the state moves quickly. With the county fair season just a few weeks away, Patterson said he and others with the organization are looking for guidance.

He also is involved with the Hendricks County Fair, and said each county fair organization in the state wants to make sure it is following the proper safety guidelines for its entertainment venues.

“This is something we’ve certainly talked about,” said Patterson. “Stage regulations are out there, but are we following the latest guidelines?”

Most fairgrounds have a concrete platform of some kind where concerts and other outdoor performances are staged, he said. Each of those areas already conforms to recognized standards.

“But when you put up light towers and hang speakers, that’s a gray area,” said Patterson. “Regulations say that as long as they’re attached to the stage, it’s okay, but what makes them attached? That’s an area that’s not regulated.”

Patterson said county fairs are continuing to prepare for this year, but they’re also placing more emphasis on safety and learning about proper stage construction techniques.

On the same day the report was issued, the Indiana State Fair announced its entertainment lineup for 2012. Barry Manilow, Train, Journey, Pat Benatar and Blake Shelton will all perform – but none of them will be at the state fairgrounds. 

The Hoosier Lottery Stage is closed this year and the performances will be at Banker’s Like Fieldhouse in downtown Indianapolis.