Recurring concern

Unreliable public information about beach lifeguard coverage

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First reported 28 May 2020•Latest report 7 Aug 2020

Definition

What this concern includes

Includes failures to publish, update or communicate clear information about beach lifeguard coverage, patrol locations and timings, reduced or absent service, and planned mitigation through coastguard or other emergency resources.

Not included

  • Excludes actual shortages, staffing levels or deployment failures where the public-information process is not itself deficient.
  • Excludes general beach-safety warnings, water-hazard signage and public information unrelated to communicating lifeguard coverage or its mitigation.
  • Excludes failures in lifeguard rescue performance or emergency response after coverage information has been communicated reliably.
  • Excludes generic government accountability or beach-safety policy deficiencies without a direct failure to provide public information about lifeguard coverage.
Reports
4

Distinct published reports

Individual concerns
5

A report can raise multiple concerns

Date range
2020–2020

First to latest report issue date

Stated actions
6

Described in published responses

Reports over time

Reports over time

Reports about this concern issued each year.

* 2026 is projected from reports observed to 7 Sep 2026.

Most frequent recipients

Most frequent recipients

Reports about this concern sent to each recipient.

Maritime and Coastguard Agency4
Royal National Lifeboat Institution4
Department for Transport2

Concerns and responses across reports

Only concerns grouped under this recurring concern are included. Select any concern, action or position to view the source wording.

  1. Cornwall and Isles of Scilly

    AI-generated summary

    Anthony John WILLIAMSON · Prevention of Future Deaths report

    This summary was generated using AI from the published report. Please read the original report for the complete account.

    Report summary

    Anthony John Williamson, an experienced kayaker, departed from Trebarwith Strand in a group and was later recovered from the sea after coming out of his kayak in heavy swells at Cambeath Point. He could not be resuscitated, and a final post-mortem cause of death was awaited. Concerns were raised about the adequacy of coastguard cover during the Coronavirus pandemic and whether reduced lifeguard services were being mitigated by additional emergency-service resources.

    Read the report on judiciary.uk

    Source evidence

    How this individual concern was interpreted

    PFD Monitor created a concise, searchable interpretation from the report wording shown below.

    PFD Monitor interpretation

    Lack of a published public plan for managing reduced lifeguard service

    Wider context from the report

    “It is not clear to me whether there were lifeguards on duty at Trebarwith Strand or elsewhere in north Cornwall at the time of this incident. My further, current cause for concern is that, where there may be a reduced lifeguard service, how any shortfall may be mitigated by additional coastguard or other emergency service resource. Is there a published plan giving notice to the public on how the situation is being managed? ”

    Source location

    Anthony John WILLIAMSON · Prevention of Future Deaths report
    Page 2 · concerns

    Open source report

    Source evidence

    How this respondent action was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Deliver local, regional and national beach-safety communications through media, social media, websites, radio, television, leaflets and stakeholder distribution.

    Verbatim wording from the response

    “• Local social media and PR campaigns”

    Source location

    2020-0153-Response-from-the-RNLI.pdf
    Page 7 · response
    Published 19 October 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    There is no legal duty to provide lifeguarding, and service provision requires landowner or occupier request or consent.

    Verbatim wording from the response

    “The report is clear that although the RNLI chooses to provide a lifeguarding service, it has no legal duty to do so. Importantly, it cannot provide any service unless the landowner/occupier requests or consents to it. It is entirely a matter for the landowner/occupier whether they ask and contract with the RNLI to provide a lifeguarding service, should they determine to provide a service as a risk control measure.”

    Source location

    2020-0153-Response-from-the-RNLI.pdf
    Page 2 · response
    Published 19 October 2020

    Open published response
  2. Cornwall and Isles of Scilly

    AI-generated summary

    Jan KLEMPAR · Prevention of Future Deaths report

    This summary was generated using AI from the published report. Please read the original report for the complete account.

    Report summary

    Jan Klempar was swimming in the sea at Porthcurno in west Cornwall, where no lifeguards were on duty despite the beach ordinarily having lifeguard cover. The concerns raised relate to reduced or absent lifeguard cover on Cornish beaches, public information about coverage, and plans to mitigate shortfalls through additional emergency resources.

    Read the report on judiciary.uk

    Source evidence

    How this individual concern was interpreted

    PFD Monitor created a concise, searchable interpretation from the report wording shown below.

    PFD Monitor interpretation

    Lack of publicly available information on beach lifeguard cover

    Wider context from the report

    “1) I have previously written drawing to your attention my concerns about a reduced level of lifeguard cover on Cornish beaches (Pender deceased.) I understand that from a position of no lifeguard cover (Whitsun Bank Holiday) there is now some service at a number of the main beaches. It is not clear to me whether the level of service will be further increased to 2019 levels or whether there will be a reduced service for the rest of the summer season? Is there a published plan available to the public that sets out where lifeguard cover will be provided and specifies the beaches, if any, that will either have a reduced service or no service this year in comparison to 2019? Given the difficulties with international travel currently, and the consequent likelihood of high numbers of tourists in Cornwall, it seems to me this information needs to be made readily available so the public can inform themselves of the risks of bathing at a given beach. 2) Where there may be a reduced or no lifeguard cover at particular beaches, is there a published plan specifying how any shortfalls may be mitigated through the provision of additional resource from the coastguard or other emergency provider? ”

    Source location

    Jan KLEMPAR · Prevention of Future Deaths report
    Page 2 · concerns

    Open source report

    Source evidence

    How this individual concern was interpreted

    PFD Monitor created a concise, searchable interpretation from the report wording shown below.

    PFD Monitor interpretation

    Lack of a published plan for mitigating lifeguard-cover shortfalls

    Wider context from the report

    “1) I have previously written drawing to your attention my concerns about a reduced level of lifeguard cover on Cornish beaches (Pender deceased.) I understand that from a position of no lifeguard cover (Whitsun Bank Holiday) there is now some service at a number of the main beaches. It is not clear to me whether the level of service will be further increased to 2019 levels or whether there will be a reduced service for the rest of the summer season? Is there a published plan available to the public that sets out where lifeguard cover will be provided and specifies the beaches, if any, that will either have a reduced service or no service this year in comparison to 2019? Given the difficulties with international travel currently, and the consequent likelihood of high numbers of tourists in Cornwall, it seems to me this information needs to be made readily available so the public can inform themselves of the risks of bathing at a given beach. 2) Where there may be a reduced or no lifeguard cover at particular beaches, is there a published plan specifying how any shortfalls may be mitigated through the provision of additional resource from the coastguard or other emergency provider? ”

    Source location

    Jan KLEMPAR · Prevention of Future Deaths report
    Page 1 · concerns

    Open source report

    Source evidence

    How this respondent action was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Disseminate beach-cover information and safety messages through websites, social media, press, broadcast media, campaigns and stakeholder leaflets.

    Verbatim wording from the response

    “In our letter dated 24 July 2020, we set out that there have been numerous announcements setting out which beaches would be patrolled and by what date. The RNLI’s local media team in Cornwall worked very closely with Cornwall County Council’s media department and announcements/press releases frequently appeared on Cornwall County Council’s website giving updates as beaches were added. For example:”

    Source location

    2020-0152-Response-from-RNLI.pdf
    Page 7 · response
    Published 19 October 2020

    Open published response

    Source evidence

    How this respondent action was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Work with Surf Life Saving GB on additional beach safety services and public risk-awareness provision.

    Verbatim wording from the response

    “HM Coastguard have been working closely since the start of the pandemic with Surf Life Saving GB (SLSGB) who run a programme of Beach Safety services that range from the full lifeguarding provision to providing the public with advice about how to keep safe, by raising awareness of the risks. The SLSGB volunteers are providing a service in some areas in the evenings after RNLI/other lifeguards have left for the day as an additional facility for the Coastguard (RNLI lifeguards normally work from 10am to 6pm and only at certain times of the year).”

    Source location

    2020-0152-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
    Page 2 · response
    Published 19 October 2020

    Open published response

    Source evidence

    How this respondent action was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Deploy additional HM Coastguard vehicle patrols to high-risk coastal areas during the busy summer season.

    Verbatim wording from the response

    “To help provide extra surveillance as a Category 1 responder throughout the busy summer season, we have been deploying more HM Coastguard vehicle patrols to high risk areas to keep a look out for any incidents at the coast enabling a swift response to search and rescue if required.”

    Source location

    2020-0152-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
    Page 2 · response
    Published 19 October 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Existing announcements, websites, social media and safety campaigns were considered sufficient to inform the public about limited lifeguard coverage and beach risks.

    Verbatim wording from the response

    “The RNLI believes that it and its partners including the County Council, HM Coastguard and the Police put out a significant and widespread number of press releases and/or details on websites, informing the public that there was limited lifeguard cover, confirming which beaches had cover, the dates of that cover and providing a link to the RNLI website which set out all this information.”

    Source location

    2020-0152-Response-from-RNLI.pdf
    Page 9 · response
    Published 19 October 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    The RNLI is the main provider of beach lifeguards and can provide detailed information about the lifeguarding approach.

    Verbatim wording from the response

    “The provision of lifeguards on beaches is not the responsibility of the MCA as we do not have any statutory or specific responsibilities for beach safety; RNLI are the main provider of beach lifeguards on the coast. Beach Lifeguard Units are classified by the HM Coastguard as additional facilities that provide a service for the local council or landowner. We can ask them to assist with the response to an incident, we cannot task them as we would for a RNLI lifeboat (lifeboats are a declared facility). In fact, lifeguards often find themselves in a position to inform the Coastguard operations centres of an incident, where additional assistance is required.”

    Source location

    2020-0152-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
    Page 1 · response
    Published 19 October 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Landowners, chiefly local councils and the National Trust, are responsible for beach facilities and safety measures.

    Verbatim wording from the response

    “Information about beaches, the facilities available and safety measures are the responsibility of the landowners, the majority of which are local councils and the National Trust. Details about the facilities available and safety measures in place can be found on most beach owners’ websites.”

    Source location

    2020-0152-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
    Page 2 · response
    Published 19 October 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Responsibility for beach users’ safety rests with the landowner or occupier, rather than the RNLI.

    Verbatim wording from the response

    “The report is clear that although the RNLI chooses to provide a lifeguarding service, it has no legal duty to do so. Importantly, it cannot provide any service unless the landowner/occupier requests or consents to it. It is entirely a matter for the landowner/occupier whether they ask and contract with the RNLI to provide a lifeguarding service, should they determine to provide a service as a risk control measure.”

    Source location

    2020-0152-Response-from-RNLI.pdf
    Page 2 · response
    Published 19 October 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Beach lifeguard provision is outside the respondent’s statutory and specific responsibilities for beach safety.

    Verbatim wording from the response

    “The provision of lifeguards on beaches is not the responsibility of the MCA as we do not have any statutory or specific responsibilities for beach safety; RNLI are the main provider of beach lifeguards on the coast. Beach Lifeguard Units are classified by the HM Coastguard as additional facilities that provide a service for the local council or landowner. We can ask them to assist with the response to an incident, we cannot task them as we would for a RNLI lifeboat (lifeboats are a declared facility). In fact, lifeguards often find themselves in a position to inform the Coastguard operations centres of an incident, where additional assistance is required.”

    Source location

    2020-0152-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
    Page 1 · response
    Published 19 October 2020

    Open published response
  3. Cornwall and Isles of Scilly

    AI-generated summary

    Gillian Louisa DAVEY and Michael PENDER · Prevention of Future Deaths report

    This summary was generated using AI from the published report. Please read the original report for the complete account.

    Report summary

    On 25 May 2020, Gillian Louisa Davey died after a pleasure craft capsized off the north Cornish coast, trapping her underneath, and Michael Pender died after being rescued from the sea off Treyarnon Bay, apparently having been caught in a rip current. The principal concern was that there was no lifeguard cover on any Cornish beach that day, with uncertainty about when professional lifeguard services would resume and concern about further loss of life.

    Read the report on judiciary.uk

    Source evidence

    How this individual concern was interpreted

    PFD Monitor created a concise, searchable interpretation from the report wording shown below.

    PFD Monitor interpretation

    Lack of publicly available information on planned lifeguard patrol locations and timing

    Wider context from the report

    “On the day of these incidents, there was no lifeguard cover on any Cornish beach. How this state of affairs arose will be a matter for the future. My immediate concern is that the beaches in Cornwall remain unguarded. There have been numerous reports on social media and in the general press of volunteers from surf lifesaving clubs and elsewhere performing rescues or intervening to prevent an incident from developing. I have seen mention that the RNLI hopes to provide some lifeguard cover at 70 beaches but I have not seen a plan confirming which beaches will be patrolled and by when. This information needs to be put in the public domain at the first opportunity. Unless and until there is a professional lifeguard service back on the beaches in Cornwall, I fear it will be inevitable that there will be further loss of life. ”

    Source location

    Gillian Louisa DAVEY and Michael PENDER · Prevention of Future Deaths report
    Page 2 · concerns

    Open source report

    Source evidence

    How this respondent action was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Revise and expand summer RNLI lifeguard coverage by working with landowners and councils to confirm additional beach cover.

    Verbatim wording from the response

    “Our original plan was to have lifeguard patrols on 70 beaches this summer. It was a conservative plan and made and announced when many things were still unknown. We now have a better idea of the journey out of lockdown for all parts of the UK, understand the new regulations with which we must comply as an employer and service provider and, most importantly, feel we can properly manage the risks associated with coronavirus. We were on 18 beaches last weekend, 8 of which are in Cornwall, and we are revising our original plans and exploring which additional beaches we can lifeguard this summer. To this end, we are working hard with 55 landowners and local councils to ensure as many beaches as possible will have RNLI lifeguard cover.”

    Source location

    2020-0121-Response-from-RNLI_Redacted.pdf
    Page 2 · response
    Published 30 July 2020

    Open published response

    Source evidence

    How this respondent action was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Make public announcements detailing confirmed beaches and timings for the lifeguard-service rollout.

    Verbatim wording from the response

    “With so many local landowners to work with, and so many dependencies, it will take time to confirm individual beaches and timings, but we will make public announcements more detail over the next few weeks.”

    Source location

    2020-0121-Response-from-RNLI_Redacted.pdf
    Page 2 · response
    Published 30 July 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Beach safety is outside the agency’s statutory or specific responsibilities.

    Verbatim wording from the response

    “The Department for Transport and the Maritime & Coastguard Agency have an interest in maritime safety generally because we want to see fewer accidents and less demand on the emergency services that we coordinate to respond to search and rescue missions. That is why we promote initiatives such as the annual Maritime Safety Week alongside partner organisations and we use our social media and other channels to communicate safety campaigns and messages. We do not have any statutory or specific responsibilities for beach safety.”

    Source location

    2020-0121-Further-response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
    Page 1 · response
    Published 30 July 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Beach safety and lifeguarding provision fall outside the respondent’s remit, which is limited to coordinating coastal and sea search-and-rescue responses.

    Verbatim wording from the response

    “In your report, under Section 6, you say that the Department for Transport, the RNLI and the Maritime and Coastguard Agency (MCA) have the powers to take action in respect to providing a lifeguard service on beaches in Cornwall, to help prevent the future loss of life. The MCA, which includes Her Majesty’s Coastguard, is an executive Agency of the Department for Transport. I am therefore replying on my own behalf, and also on behalf of the Secretary of State for Transport, the Right Honourable Grant Shapps MP. The MCA has a responsibility to respond to calls for assistance as the emergency responder with the remit for search and rescue at the coast and at sea. Our role is to coordinate the emergency response drawing from the matrix of search and rescue resources that are available and appropriate. However, we have no remit for beach safety or the provision of lifeguarding.”

    Source location

    2020-0121-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
    Page 1 · response
    Published 30 July 2020

    Open published response
  4. Cornwall and Isles of Scilly

    AI-generated summary

    Gillian Louisa DAVEY and Michael PENDER · Prevention of Future Deaths report

    This summary was generated using AI from the published report. Please read the original report for the complete account.

    Report summary

    On 25 May 2020, Gillian Davey, aged 17, was trapped under a capsized pleasure craft near Padstow and could not be resuscitated. On the same day, Michael Pender, aged 63, was rescued after apparently being caught in a rip current while swimming off Treyarnon Bay, but could not be resuscitated. The principal concern was that no Cornish beach had lifeguard cover that day and that beaches remained unguarded, with a fear of further loss of life until professional lifeguard services returned.

    Read the report on judiciary.uk

    Source evidence

    How this individual concern was interpreted

    PFD Monitor created a concise, searchable interpretation from the report wording shown below.

    PFD Monitor interpretation

    Unavailability of public information on planned beach patrol locations and timing

    Wider context from the report

    “These incidents both occurred on Bank Holiday Monday. Ordinarily, I understand the RNLI is responsible for the provision of lifeguard cover (during peak season) at something in the order of 240 beaches. On the day of these incidents, there was no lifeguard cover on any Cornish beach. How this state of affairs arose will be a matter for the future. My immediate concern is that the beaches in Cornwall remain unguarded. There have been numerous reports on social media and in the general press of volunteers from surf lifesaving clubs and elsewhere performing rescues or intervening to prevent an incident from developing. I have seen mention that the RNLI hopes to provide some lifeguard cover at 70 beaches but I have not seen a plan confirming which beaches will be patrolled and by when. This information needs to be put in the public domain at the first opportunity. Unless and until there is a professional lifeguard service back on the beaches in Cornwall, I fear it will be inevitable that there will be further loss of life. ”

    Source location

    Gillian Louisa DAVEY and Michael PENDER · Prevention of Future Deaths report
    Page 2 · concerns

    Open source report

    Source evidence

    How this respondent action was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Revise and expand summer RNLI lifeguard coverage by working with landowners and councils to confirm additional beach cover.

    Verbatim wording from the response

    “Our original plan was to have lifeguard patrols on 70 beaches this summer. It was a conservative plan and made and announced when many things were still unknown. We now have a better idea of the journey out of lockdown for all parts of the UK, understand the new regulations with which we must comply as an employer and service provider and, most importantly, feel we can properly manage the risks associated with coronavirus. We were on 18 beaches last weekend, 8 of which are in Cornwall, and we are revising our original plans and exploring which additional beaches we can lifeguard this summer. To this end, we are working hard with 55 landowners and local councils to ensure as many beaches as possible will have RNLI lifeguard cover.”

    Source location

    2020-0121-Response-from-RNLI_Redacted.pdf
    Page 2 · response
    Published 30 July 2020

    Open published response

    Source evidence

    How this respondent action was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Make public announcements detailing confirmed beaches and timings for the lifeguard-service rollout.

    Verbatim wording from the response

    “With so many local landowners to work with, and so many dependencies, it will take time to confirm individual beaches and timings, but we will make public announcements more detail over the next few weeks.”

    Source location

    2020-0121-Response-from-RNLI_Redacted.pdf
    Page 2 · response
    Published 30 July 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Beach safety is outside the agency’s statutory or specific responsibilities.

    Verbatim wording from the response

    “The Department for Transport and the Maritime & Coastguard Agency have an interest in maritime safety generally because we want to see fewer accidents and less demand on the emergency services that we coordinate to respond to search and rescue missions. That is why we promote initiatives such as the annual Maritime Safety Week alongside partner organisations and we use our social media and other channels to communicate safety campaigns and messages. We do not have any statutory or specific responsibilities for beach safety.”

    Source location

    2020-0121-Further-response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
    Page 1 · response
    Published 30 July 2020

    Open published response

    Source evidence

    How this respondent position was interpreted

    PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

    PFD Monitor interpretation

    Beach safety and lifeguarding provision fall outside the respondent’s remit, which is limited to coordinating coastal and sea search-and-rescue responses.

    Verbatim wording from the response

    “In your report, under Section 6, you say that the Department for Transport, the RNLI and the Maritime and Coastguard Agency (MCA) have the powers to take action in respect to providing a lifeguard service on beaches in Cornwall, to help prevent the future loss of life. The MCA, which includes Her Majesty’s Coastguard, is an executive Agency of the Department for Transport. I am therefore replying on my own behalf, and also on behalf of the Secretary of State for Transport, the Right Honourable Grant Shapps MP. The MCA has a responsibility to respond to calls for assistance as the emergency responder with the remit for search and rescue at the coast and at sea. Our role is to coordinate the emergency response drawing from the matrix of search and rescue resources that are available and appropriate. However, we have no remit for beach safety or the provision of lifeguarding.”

    Source location

    2020-0121-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
    Page 1 · response
    Published 30 July 2020

    Open published response
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Data last updated 7 September 2026