PFD report

Anthony John WILLIAMSON · Prevention of Future Deaths report

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Issued 7 Aug 2020•Cornwall and Isles of Scilly

Report record

Published report and response evidence

This page connects the concerns raised in this report with statements found in recipients’ published responses. A link shows a clear evidence connection; it does not assign responsibility.

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Concerns
3

Raised in this report

Recipients
2

Named on the report

Responses found
2

Of 2 recipients

Stated actions
16

Described in responses

Recipients and published responses

Source document

Full report text

This is the full text from the original published report.

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Concerns and recipient responses

Select any concern, action or position to view the source wording.

Concerns raised3

  1. Failure to mitigate shortfalls in lifeguard service with additional emergency service resource
    Part of recurring concern: Unreliable lifeguard provision for aquatic safety
  2. Lack of a published public plan for managing reduced lifeguard service
    Part of recurring concern: Unreliable public information about beach lifeguard coverage
  3. Lack of adequate coastguard cover around the Cornish coastline
Responses linked to these concerns

Each statement is shown once, even when linked to more than one concern.

Actions described in response An action is something a recipient says it has done, is doing, or plans to do in response to a concern raised.6

  1. Action

    Work closely with Surf Life Saving GB on beach safety services and additional coastal surveillance.

    Stated by Maritime and Coastguard AgencyStated in progressThe respondent said that this action was in progress when they made their response on 19 October 2020.
  2. Action

    Deploy additional Coastguard vehicle patrols to high-risk coastal areas for summer surveillance and rapid search-and-rescue response.

    Stated by Maritime and Coastguard AgencyStated in progressThe respondent said that this action was in progress when they made their response on 19 October 2020.
  3. Action

    Implement and maintain COVID-secure Coastguard response arrangements and appropriate search-and-rescue procedures.

    Stated by Maritime and Coastguard AgencyStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.

Respondent positions A position is what a recipient says about a concern when it does not describe a specific action.5

  1. Position

    The RNLI is responsible for addressing concerns about its risk-based lifeguard deployment during the pandemic.

    Stated by Maritime and Coastguard AgencyRedirects responsibilityThe respondent said that another organisation was responsible for deciding or taking action.

Source evidence

How this individual concern was interpreted

PFD Monitor created a concise, searchable interpretation from the report wording shown below. Response links show a clear evidence connection; they do not assign responsibility.

PFD Monitor interpretation

Failure to mitigate shortfalls in lifeguard service with additional emergency service resource

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? ”

Is this part of a recurring concern?

Yes — Unreliable lifeguard provision for aquatic safety.

Open source report

Source evidence

How this individual concern was interpreted

PFD Monitor created a concise, searchable interpretation from the report wording shown below. Response links show a clear evidence connection; they do not assign responsibility.

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? ”

Is this part of a recurring concern?

Yes — Unreliable public information about beach lifeguard coverage.

Open source report

Source evidence

How this individual concern was interpreted

PFD Monitor created a concise, searchable interpretation from the report wording shown below. Response links show a clear evidence connection; they do not assign responsibility.

PFD Monitor interpretation

Lack of adequate coastguard cover around the Cornish coastline

Wider context from the report

“My current cause for concern is to ensure that there is an adequate level of coastguard cover around the Cornish coastline. To what extent, if at all, has the Coronavirus pandemic caused a reduction in the level of coastguard protection in comparison to 2019? If there has been a reduction in the level of cover, how has this been mitigated? Is the amount of cover now at an acceptable level? ”

Is this part of a recurring concern?

No recurring-concern membership is currently published.

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

Work closely with Surf Life Saving GB on beach safety services and additional coastal surveillance.

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”

Source location

2020-0153-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
Page 1 · 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 Coastguard vehicle patrols to high-risk coastal areas for summer surveillance and rapid search-and-rescue response.

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

2020-0153-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

Implement and maintain COVID-secure Coastguard response arrangements and appropriate search-and-rescue procedures.

Verbatim wording from the response

“In response to your causes for concern, I can reassure you that since the beginning of the Coronavirus pandemic, there has been no reduction in the service HM Coastguard provide for search and rescue purposes. Our network of Coastguard Operations Centres maintained emergency provision for the UK coast throughout national lockdown and we continue to do so. COVID secure environments are in place both in the control rooms and for our volunteer Coastguard Rescue Teams when responding to incidents. These arrangements are continually reviewed in line with updated guidance and are closely monitored. Working with contractors who provide the Search and Rescue Helicopter capability for UK Search and Rescue, we have ensured appropriate procedures have been implemented and followed, linking with our own clinical Governance Board requirements.”

Source location

2020-0153-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
Page 1 · 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

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 action was interpreted

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

PFD Monitor interpretation

Provide roving and observational patrols, casualty care, and community access to RNLI rescue equipment at unguarded beaches.

Verbatim wording from the response

“The RNLI undertook a significant number of preventive measures including:”

Source location

2020-0153-Response-from-the-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

Roll out RNLI lifeguarding cover to 177 beaches during the 2020 season, including 47 beaches in Cornwall.

Verbatim wording from the response

“At a Gold meeting on 27 May 2020, it was proposed to look at extending the service beyond 70 beaches. This proposal was subsequently approved by Trustees on the basis that the initial 70 beach model was now proven. Plans were put in place to rollout to an additional 100 beaches by early July, providing cover on c. 170 beaches for the peak season. Work was then undertaken to identify the additional beaches and ensure they could be lifeguarded safely. The rollout of those beaches took place in the period June to August alongside the ongoing rollout to the initial 70 beaches.”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 6 · 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 responsible for addressing concerns about its risk-based lifeguard deployment during the pandemic.

Verbatim wording from the response

“I am aware that because of the pandemic a risk-based approach has been taken by the RNLI to the deployment of lifeguards. However, the RNLI who provide most lifeguard services in the UK will be able to address this point in more detail. The RNLI maintained communication and shared plans throughout this transition period with HMCG regarding the provision of a lifeguard service and their arrangements with Local Authorities.”

Source location

2020-0153-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

There has been no reduction in HM Coastguard’s search and rescue service during the pandemic.

Verbatim wording from the response

“In response to your causes for concern, I can reassure you that since the beginning of the Coronavirus pandemic, there has been no reduction in the service HM Coastguard provide for search and rescue purposes. Our network of Coastguard Operations Centres maintained emergency provision for the UK coast throughout national lockdown and we continue to do so. COVID secure environments are in place both in the control rooms and for our volunteer Coastguard Rescue Teams when responding to incidents. These arrangements are continually reviewed in line with updated guidance and are closely monitored. Working with contractors who provide the Search and Rescue Helicopter capability for UK Search and Rescue, we have ensured appropriate procedures have been implemented and followed, linking with our own clinical Governance Board requirements.”

Source location

2020-0153-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

An immediate full lifeguarding service could not be delivered because achievable cover depended on advance notice of relaxed public restrictions.

Verbatim wording from the response

“At the same time as planning the service within the constrictions set out above, the Chief Executive wrote to the Prime Minister and the Department of Transport explaining that it would be impossible to deliver an immediate full service: the level of lifeguarding service which it”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 5 · 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

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 the public’s use of beaches and related safety decisions rests with the landowner or occupier.

Verbatim wording from the response

“In April 2020, the RNLI started work on what steps could be taken to try and mitigate the absence of lifeguards on beaches. However, as set out above, any legal responsibility for the public’s use of beaches is a matter for the landowner/occupier.”

Source location

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

Open published response

Other statements in published responses

These actions and other statements could not be clearly connected to one concern in this report.

Recipient-stated actions An action is something a recipient says it has done, is doing, or plans to do in response to a concern raised.10

  1. 1

    Produce public beach-safety guidance with the National Water Safety Forum for beach and landowners during COVID-19.

    Stated by Maritime and Coastguard AgencyStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.
  2. 2

    Negotiate revised council contracts and agree protocols for lifeguards’ safe return to work despite closed facilities.

    Stated by Royal National Lifeboat InstitutionStated in progressThe respondent said that this action was in progress when they made their response on 19 October 2020.
  3. 3

    Review beach signage with landowners and place bespoke daily warning signs on unguarded beaches where possible.

    Stated by Royal National Lifeboat InstitutionStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.
  4. 4

    Establish Government and Lifeguard Stakeholder groups to resolve dependencies and support safe lifeguard-service rollout.

    Stated by Royal National Lifeboat InstitutionStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.
  5. 5

    Produce Covid-19 lifeguard guidance and develop casualty-care mitigations for safe lifeguarding operations.

    Stated by Royal National Lifeboat InstitutionStated in progressThe respondent said that this action was in progress when they made their response on 19 October 2020.
  6. 6

    Co-author guidance for authorities, owners, managers and operators on reducing drowning and water-related injury risks during Covid-19.

    Stated by Royal National Lifeboat InstitutionStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.
  7. 7

    Check emergency access at higher-risk beaches and report access or emerging beach-condition concerns to HM Coastguard.

    Stated by Royal National Lifeboat InstitutionStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.
  8. 8

    Establish Gold, Silver and Bronze command teams to coordinate pandemic impacts, strategies and lifeguarding decisions.

    Stated by Royal National Lifeboat InstitutionStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.
  9. 9

    Work with local surf lifesaving clubs to support beach safety and drowning prevention.

    Stated by Royal National Lifeboat InstitutionStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.
  10. 10

    Develop and apply nine safety tests governing the safe rollout of lifeguard services, including restrictions, staffing, resources, approvals, distancing and PPE.

    Stated by Royal National Lifeboat InstitutionStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.

Recipient positions A position is what a recipient says about a concern when they do not describe a specific action.1

  1. 1

    Beach owners, primarily local councils and the National Trust, are responsible for beach facilities and safety measures information.

    Stated by Maritime and Coastguard AgencyRedirects responsibilityThe respondent said that another organisation was responsible for deciding or taking action.

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

Produce public beach-safety guidance with the National Water Safety Forum for beach and landowners during COVID-19.

Verbatim wording from the response

“Also working with the National Water Safety Forum, (HMCG is a member) guidance was produced providing information¹ for beach and landowners to help maintain the safety of the public and staff on beaches during COVID-19.”

Source location

2020-0153-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

Negotiate revised council contracts and agree protocols for lifeguards’ safe return to work despite closed facilities.

Verbatim wording from the response

“In May 2020, planning work was ongoing including casualty care mitigations, and guidance for lifeguards during the Covid-19 pandemic was being produced. Revised contract negotiations with Councils were required, in particular around some of the challenges to agree protocols for the lifeguards’ safe return to work as facilities such as lavatories and car parks remained closed. A Government group and Lifeguard Stakeholder group were established to ensure lifeguard services could be rolled out safely, ensuring any dependency issues were resolved. These groups were subordinate to and fed into the Silver team.”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 6 · 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

Review beach signage with landowners and place bespoke daily warning signs on unguarded beaches where possible.

Verbatim wording from the response

“• Reviewing beach signage with local landowners”

Source location

2020-0153-Response-from-the-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

Establish Government and Lifeguard Stakeholder groups to resolve dependencies and support safe lifeguard-service rollout.

Verbatim wording from the response

“In May 2020, planning work was ongoing including casualty care mitigations, and guidance for lifeguards during the Covid-19 pandemic was being produced. Revised contract negotiations with Councils were required, in particular around some of the challenges to agree protocols for the lifeguards’ safe return to work as facilities such as lavatories and car parks remained closed. A Government group and Lifeguard Stakeholder group were established to ensure lifeguard services could be rolled out safely, ensuring any dependency issues were resolved. These groups were subordinate to and fed into the Silver team.”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 6 · 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

Produce Covid-19 lifeguard guidance and develop casualty-care mitigations for safe lifeguarding operations.

Verbatim wording from the response

“In May 2020, planning work was ongoing including casualty care mitigations, and guidance for lifeguards during the Covid-19 pandemic was being produced. Revised contract negotiations with Councils were required, in particular around some of the challenges to agree protocols for the lifeguards’ safe return to work as facilities such as lavatories and car parks remained closed. A Government group and Lifeguard Stakeholder group were established to ensure lifeguard services could be rolled out safely, ensuring any dependency issues were resolved. These groups were subordinate to and fed into the Silver team.”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 6 · 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

Co-author guidance for authorities, owners, managers and operators on reducing drowning and water-related injury risks during Covid-19.

Verbatim wording from the response

“• Co-authored guidance for local authorities, owners, managers and operators on maintaining the safety of the public and staff on coastal beaches during Covid-19. The guidance outlined the planning and practical steps to reduce risk from drowning and water-related injury.”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 8 · 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

Check emergency access at higher-risk beaches and report access or emerging beach-condition concerns to HM Coastguard.

Verbatim wording from the response

“• On higher risk beaches, checking emergency access and reporting any concerns to HM Coastguard”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 8 · 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

Establish Gold, Silver and Bronze command teams to coordinate pandemic impacts, strategies and lifeguarding decisions.

Verbatim wording from the response

“At the start of the pandemic on 9 March 2020, the RNLI set up a command/crisis team with Gold and Silver teams. The purpose of these teams was to assess and manage the impact of the pandemic, including setting organisational strategies, priorities and decision making, and ensuring the coordinated and consistent implementation of those decisions. Importantly, it also made sure that the many interdependencies were considered. The Gold and Silver teams are in addition to the normal Executive Team. There was also a Bronze team which consisted of the regional lifesaving leads and central support managers.”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 3 · 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 local surf lifesaving clubs to support beach safety and drowning prevention.

Verbatim wording from the response

“• Working with local surf lifesaving clubs”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 8 · 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

Develop and apply nine safety tests governing the safe rollout of lifeguard services, including restrictions, staffing, resources, approvals, distancing and PPE.

Verbatim wording from the response

“Nine tests were developed to ensure lifeguard services could be rolled out safely including: Government restrictions allowing people to use the beaches creating a legitimate need; Government rules allowing practices that would facilitate the responsible delivery of a service; capacity existing for testing of staff; Trustee and ET approvals in place; resources being available including people, equipment and infrastructure; support teams to be mobilised and sustained for the duration of any deployment; social distancing could be maintained between the teams and the public; appropriate PPE was available; and teams remained willing to work based on their assessment of risk.”

Source location

2020-0153-Response-from-the-RNLI.pdf
Page 6 · 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 owners, primarily local councils and the National Trust, are responsible for beach facilities and safety measures information.

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

2020-0153-Response-from-Maritime-and-Coastguard-Agency_Redacted.pdf
Page 2 · response
Published 19 October 2020

Open published response
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Information checked against the published report and official responses · Data reviewed 7 Sep 2026 · About data quality and limitations

Data last updated 7 September 2026