"Ticketless, drunken and drugged-up thugs" could have caused death as they stormed Wembley before the Euro 2020 final, says a review into the disorder.
The report by Baroness Casey said there was a "collective failure" in planning for the match, which about 2,000 people got into illegally.
It noted 17 mass breaches of disabled access gates and emergency fire doors.
Lady Casey said the "appalling scene of disorder" as England played Italy led to a "day of national shame".
Her report said there was a "collective failure" in planning for the match on July 11, including a "vulnerable" stewarding operation lacking experience partly because of the pandemic and the police deployment arriving "too late".
The knowledge that about 25,000 of Wembley's 90,000 seats would be left empty because of Covid restrictions contributed to a "perfect storm" of factors.
"We are genuinely lucky that there was not much more serious injury or worse, and need to take the toughest possible action against people who think a football match is somehow an excuse to behave like that.
The Metropolitan Police made 51 arrests connected to the final, 26 of which were made at Wembley, and says its investigation is ongoing.