PFD report

Jan KLEMPAR · 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
15

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. Lack of publicly available information on beach lifeguard cover
    Part of recurring concern: Unreliable public information about beach lifeguard coverage
  2. Lack of a published plan for mitigating lifeguard-cover shortfalls
    Part of recurring concern: Failure to reliably develop and review risk-reduction plansPart of recurring concern: Unreliable public information about beach lifeguard coverage
  3. Reduced or absent lifeguard cover on Cornish beaches
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.5

  1. Action

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

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

    Develop and implement a risk-based 2020 lifeguarding rollout, providing cover on 177 beaches, including 47 beaches in Cornwall.

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

    Provide roving and observational patrols, casualty care and access to rescue equipment at beaches without normal lifeguard cover.

    Stated by Royal National Lifeboat InstitutionStated 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.7

  1. Position

    The RNLI cannot provide lifeguarding unless the landowner or occupier requests or consents to the service.

    Stated by Royal National Lifeboat InstitutionUnable to actThe respondent said that a constraint prevented them from taking the relevant 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

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? ”

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 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? ”

Is this part of a recurring concern?

Yes — Failure to reliably develop and review risk-reduction plans; 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

Reduced or absent lifeguard cover on Cornish beaches

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? ”

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

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

Develop and implement a risk-based 2020 lifeguarding rollout, providing cover on 177 beaches, including 47 beaches in Cornwall.

Verbatim wording from the response

“During April, the options were fully worked-up and considered by Gold team, the Executive Team and the Trustees. It was agreed that lifeguarding would be provided on approximately 48 beaches. The beaches that would be lifeguarded would be based on risk and professional judgement, ensuring a geographic spread across the UK and Channel Islands so that the UK beach going public would be able to visit an RNLI lifeguarded beach once restrictions permitted. Of those 48 beaches, approximately 25 are ‘Easter’ beaches and primarily southwest based. At the beginning of May, the plan was increased to cover 70 beaches having discussed the intention to provide cover across 70 beaches with the Maritime and Coastguard Agency.”

Source location

2020-0152-Response-from-RNLI.pdf
Page 4 · 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 access to rescue equipment at beaches without normal lifeguard cover.

Verbatim wording from the response

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

Source location

2020-0152-Response-from-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

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

The RNLI cannot provide lifeguarding unless the landowner or occupier requests or consents to the service.

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

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

An immediate full lifeguarding service was impossible because its level 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 could provide would depend on the amount of notice the RNLI was given of the relaxing of public restrictions.”

Source location

2020-0152-Response-from-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

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

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

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

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

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

    Establish Gold, Silver and Bronze teams to coordinate the organisational response to Covid-19 impacts on lifeguarding.

    Stated by Royal National Lifeboat InstitutionStated completedThe respondent said that this action was complete when they made their response on 19 October 2020.
  2. 2

    Co-author guidance for coastal 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.
  3. 3

    Establish Governance 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.
  4. 4

    Work with local surf lifesaving clubs to support beach safety and mitigation measures.

    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

    Develop nine safety tests covering restrictions, approvals, resources, staffing, facilities, distancing, PPE and willingness before lifeguard deployment.

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

    Check emergency access on higher-risk beaches and report access concerns and emerging hazards 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.
  7. 7

    Produce Covid-19 casualty-care mitigations and lifeguard guidance to support 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.
  8. 8

    Review beach signage with landowners and deploy bespoke warning signage 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.
  9. 9

    Deliver a joint publicity campaign with RNLI promoting personal responsibility, avoiding inflatables, and contacting the Coastguard in emergencies.

    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.
  10. 10

    Produce guidance with the National Water Safety Forum for beach and landowners on maintaining public and staff safety 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.

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 teams to coordinate the organisational response to Covid-19 impacts on lifeguarding.

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

2020-0152-Response-from-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

Co-author guidance for coastal 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

2020-0152-Response-from-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 Governance 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 Governance 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

2020-0152-Response-from-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

Work with local surf lifesaving clubs to support beach safety and mitigation measures.

Verbatim wording from the response

“• Working with local surf life saving clubs”

Source location

2020-0152-Response-from-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 nine safety tests covering restrictions, approvals, resources, staffing, facilities, distancing, PPE and willingness before lifeguard deployment.

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

2020-0152-Response-from-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

Check emergency access on higher-risk beaches and report access concerns and emerging hazards to HM Coastguard.

Verbatim wording from the response

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

Source location

2020-0152-Response-from-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

Produce Covid-19 casualty-care mitigations and lifeguard guidance to support 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 Governance 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

2020-0152-Response-from-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 deploy bespoke warning signage on unguarded beaches where possible.

Verbatim wording from the response

“• Reviewing beach signage with local landowners”

Source location

2020-0152-Response-from-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

Deliver a joint publicity campaign with RNLI promoting personal responsibility, avoiding inflatables, and contacting the Coastguard in emergencies.

Verbatim wording from the response

“This year we have been working closely with our RNLI partners on a joint publicity campaign to encourage the public to take personal responsibility, discouraging people from using inflatables and to dial 999 and call the Coastguard in an emergency. Also reminding the public that beach lifeguards can’t be everywhere this summer, please see HM Coastguard blogspot¹ (posts of 15 & 20 May). RNLI colleagues will be able to provide a more detailed answer about this year’s approach taken to lifeguarding services.”

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 action was interpreted

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

PFD Monitor interpretation

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

Verbatim wording from the response

“Also working with the National Water Safety Forum, (HMCG is a member) guidance was produced providing information² for beach and landowners to help maintain the safety of the public and staff on beaches during COVID-19.”

Source location

2020-0152-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