Prevention of Future Deaths reports · 2025

Liam Allan

Regulation 28 report to prevent future deaths, reference 2025-0132, written 30 Jan 2025. A coroner writes one of these when an inquest reveals a risk that could cause further deaths unless something changes.

Date of report30 Jan 2025
Reference2025-0132
DeceasedLiam Allan
CoronerAnton Van Dellen
Coroner areaWest London
CategoryPolice related deaths
Sourcejudiciary.uk record · original PDF
Responses published5

The report

Text extracted from the PDF text layer. Reproduced verbatim, including the scan's own layout.

REGULATION 28: REPORT TO PREVENT FUTURE DEATHS

NOTE: This form is to be used after an inquest.

REGULATION 28 REPORT TO PREVENT FUTURE DEATHS

THIS REPORT IS BEING SENT TO:

London Borough of Richmond upon Thames

London Fire Brigade (LFB)

(cid:127)
(cid:127) National Fire Chiefs Council (NFCC)
(cid:127) Kingston Council
(cid:127)
(cid:127) Wandsworth Borough Council
(cid:127)
(cid:127) Royal Borough of Kensington & Chelsea
(cid:127) Westminster City Council
(cid:127)
(cid:127)
(cid:127)

London Borough of Hammersmith & Fulham

(cid:127)
(cid:127)
(cid:127) Royal Borough of Greenwich
(cid:127) Newham Council
(cid:127)
(cid:127)
(cid:127)

London Borough of Barking and Dagenham
London Borough of Bexley
London Borough of Havering

Lambeth Council
Southwark Council
The Mayor and Commonalty and Citizens of the City of London ("the City of
London")
Tower Hamlets Council
Lewisham Council

CORONER

2

3

I am Dr Anton van Dellen, HM Assistant Coroner, for the coroner area of West
London
CORONER’S LEGAL POWERS

I make this report under paragraph 7, Schedule 5, of the Coroners and Justice Act 2009
and Regulations 28 and 29 of the Coroners (Investigations) Regulations 2013.
INVESTIGATION and INQUEST

An investigation was commenced into the death of Liam Stephen Allan aged 23.  The
investigation concluded on 17 January 2025.  The conclusion in the inquest was:

Liam's death was an accident.  However, there were some inadequacies by the Police in
his arrest and the subsequent rescue attempt that probably more than minimally
contributed to his death.  Additionally, there were failures and omissions in the rescue of
Liam that possibly, more than minimally, contributed to his death.

The medical cause of death was

1a Drowning / Immersion

4

CIRCUMSTANCES OF THE DEATH

Liam was arrested by a Police Officer alongside the River Thames on the evening of 26
August 2022.  Liam then jumped into the river from the riverside and subsequently
drowned.  The arresting officer did not notice a buoyancy aid that was on a bridge by the
stairs.  This possibly, more than minimally, contributed to the death.  Further arriving

 officers failed to notice and observe the buoyancy aid.  This failure did not contribute to
the death.  Numerous police officers gave evidence that they did not see the buoyancy
aid because it was very dark.

The response by the police service to the first radio transmission by the arresting officer
after Liam entered the water was broadly timely and appropriate with regard to the
relevant resources being notified.  This was done via electronic messaging from the
Police Computer Aided Dispatch (CAD) system to most emergency services, such as the
RNLI and the London Ambulance Service (LAS).  However, notification to the London Fire
Brigade (LFB) by the Police has to be done by telephone as the LFB does not use the
more rapid CAD-mediated system to transfer vital life-saving information to it.  The
evidence heard at the inquest was that this delays transmission of information to the LFB
from the Police by 90 to 120 seconds.

5

CORONER’S CONCERNS

During the inquest, the evidence revealed matters giving rise to concern. In my opinion
there is a risk that future deaths could occur unless action is taken. In the circumstances
it is my statutory duty to report to you.

The MATTERS OF CONCERN are as follows. –

(cid:127)  The lighting of buoyancy aids on the riverside is not adequate, meaning that they are
not able to be identified rapidly and then deployed without delay in an emergency
situation.

(cid:127)  Buoyancy aids are more visible when painted with white stripes and/or reflective

white stripes.  However, not all buoyancy aids are so painted, meaning that they are
not able to be identified rapidly and then deployed without delay in an emergency
situation.

(cid:127)  The process for alerting the LFB by the Metropolitan Police Service (MPS) uses a

telephone to transmit information from the MPS to the LFB, rather than using a CAD-
mediated system to transfer information electronically from the Police to the LPB
which is faster than transmitting information by telephone.  This delay means that
there is a risk that future deaths could occur due to a delay in the LFB being alerted
by the Police and a corresponding delay to the LFB's subsequent response to an
emergency incident.

6

ACTION SHOULD BE TAKEN

In my opinion action should be taken to prevent future deaths and I believe you
have the power to take such action.

7

YOUR RESPONSE

You are under a duty to respond to this report within 56 days of the date of this report,
namely by 29 April 2025.

 Your response must contain details of action taken or proposed to be taken, setting out
the timetable for action. Otherwise, you must explain why no action is proposed.

8

COPIES and PUBLICATION

I have sent a copy of my report to the Chief Coroner and to the following Interested
Persons:

(cid:127)  Father of Liam Stephen Allan
(cid:127)  Mother of Liam Stephen Allan
(cid:127)  Brother of Liam Stephen Allan
(cid:127)  Metropolitan Police Service (MPS)
(cid:127) 

Independent Office for Police Conduct

I am also under a duty to send a copy of your response to the Chief Coroner and all
interested persons who in my opinion should receive it.

I may also send a copy of your response to any other person who I believe may find it
useful or of interest.

The Chief Coroner may publish either or both in a complete or redacted or summary
form. He may send a copy of this report to any person who he believes may find it useful
or of interest.

You may make representations to me, the coroner, at the time of your response, about
the release or the publication of your response.
30th January 2025

9

Responses

5 responses published against this report on judiciary.uk. A response is a body's written reply to the coroner's concerns; publication is at the discretion of the Chief Coroner's office, so an absent response does not mean nobody replied.

Response from City of London (PDF)
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Response from London Borough of Barking and Dagenham (PDF)
Barking &
Dagenham

Dr Anton van Dellen Fiona Taylor
HM Assistant Coroner Chief Executive
West London Coroner Service Town Hall
25 Bagleys Lane Barking
Fulham IG11 7LU

London SW6 2QA
Phone: 020 8227 2981
Email:

16 June 2025

Dear Dr Van Dellen,
Liam Stephen Allan (Deceased) — Case 25548493

Thank you for your letter dated 23 April 2025 and the enclosed Regulation 28 Report following
the inquest into the tragic death of Liam Stephen Allan.

The London Borough of Barking and Dagenham (LBBD) wishes to express its condolences to
Mr Allan’s family and acknowledges the important matters raised in the Prevention of Future
Deaths Report. We are committed to ensuring that action is taken to mitigate future risks
associated with our riverside and watercourse areas.

Current Position
LBBD acknowledges its responsibilities from both riparian landowner and various health and
safety perspectives. While the Borough currently implements a general duty of care across its
open spaces and water-adjacent areas, we acknowledge the need for a coordinated and risk-
based approach to identifying and mitigating foreseeable dangers.
Planned Actions
We will be undertaking the following steps as part of our proactive response:
1. Comprehensive Survey and Asset Mapping
A Borough-wide survey of all waterbodies and riverside locations will be initiated to:
e Identify current locations and conditions of buoyancy aids, signage, fencing, and
other safety infrastructure.
e Highlight gaps or deteriorated assets that require immediate or future attention.
This task will be coordinated by our Drainage Engineer, working in conjunction with other
LBBD landowners and service departments, to ensure all relevant areas (including
Parks, Housing, and Highways) are assessed.
2. Risk Assessment Criteria

Each water-adjacent site will be assessed using the following criteria:
e The nature of the watercourse (e.g., depth, flow rate, physical hazards).

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Barking &
Dagenham

e Public access levels and demographics (e.g., areas used by children or school
groups).

e Visibility and accessibility for rescue operations.

e Presence of hazards such as steep banks, culverts, weirs, or areas with difficult
egress.

e Known areas with historical incidents or near misses, to the extent that this data is
accessible.

3. Standardisation of Safety Equipment

Following the assessment:
¢ We will install or upgrade buoyancy aids in high-risk locations, prioritising high-
traffic public access areas.
e Aids will be clearly marked with reflective white stripes or similar enhancements
to improve visibility in low light.
e Consideration will be given to the lighting of buoyancy aids, especially in locations
used during evening hours or with known low visibility.

4. Inspection and Maintenance Regime

Once installation and upgrades are complete, a structured inspection and maintenance
programme will be implemented to:

e Ensure ongoing functionality and visibility of equipment.

« Replace damaged or missing assets promptly.

Timetable

- Survey and asset mapping to commence by early July 2025.

- Risk assessments and recommendations expected by October 2025.

-  Installation/upgrades and inspection regime to follow in late 2025, subject to

resource availability.

Cross-Agency and Emergency Communication Issues
While our Borough does not manage emergency communications between the Metropolitan
Police Service and the London Fire Brigade, we strongly support improvements in this area.
We will work with the Local Resilience Forum and relevant partners to advocate for enhanced
inter-agency communication, particularly in critical response scenarios.

We trust the above addresses the concerns outlined in your report. We remain committed to
ensuring the safety of our communities and welcome any further input from your office.

Yours sincerely,

Chief Executive

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Response from London Borough of Havering (PDF)
Head of Highways, Traffic and 
Parking 

Telephone:  01708 433769 
email:  

Textphone:  01708 433175   

Date: 23 June 2025 

West London Coroner Service 
25 Bagleys Lane 
London  
SW6 2QA 

Also by email 

Dear Sir, Madam, 

Inquest: Liam Stephen Allan, Deceased. D.O.D 27 August 2022  

We are in receipt of the HM Coroners Prevention of Future Death Report (“the Report”) in 
relation to Mr Liam Allan, deceased, case 25548493. 

I note you have sent the report to all London boroughs with Thames River frontage. Other 
boroughs will have inland waterways, parks with lakes and rivers and other sections of rivers 
and streams under their ownership as land or riparian owner. I note you did not send the 
report to the Port of London Authority (PLA), who are responsible for river safety generally, 
or the Royal National Lifeboat Institute, who have a presence on the River Thames and 
respond to emergency incidents, or the Coastguard. 

A few years ago the PLA set up the Tidal Thames Water Safety Forum. You may wish to 
consider sending the Coroner’s report to that group. For the reasons given below the London 
Borough of Havering (“the Council”) is not a member. 

As you go toward central London from the east, along the River Thames, the environment 
changes from that in Havering to continuous sections of Thames Path and public space next 
to the river. In Havering there are relatively short sections of accessible Thames Path 
(neither council owned nor highway maintained at public expense), private wharfs and built 
up industrial areas.  

There are no bridges or river crossings over / under the Thames in Havering’s part of East 
London. 

It is noted the Coroner has referenced three Matters of Concern which I address in turn 
below. 

1.       Inadequate Lighting of Buoyancy Aids 

 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 As far as my enquiries have determined, the Council does not own any Thames Riverside 
buoyancy aids. The provision, maintenance and any lighting of buoyancy aids will often fall 
to riparian land owners.  The Council does own inland bodies of water and publically 
accessible places next to these. Consideration and review of risk assessments as to the 
provision of life buoys at these sites was recently given. Further consideration as to the 
lighting of these will now be given and this will be completed within three months of this 
letter. The report findings will be reviewed as part of risk assessment processes going 
forward. The report findings have also been shared with known riparian owners in case they 
have publically accessible lifesaving equipment. 

2.       White Stripes Applied to Buoyancy Aids to increase visibility 

Whenever the Council procures new buoyancy aids we will ensure the purchase is as per 
the relevant British Standard foremost and the application of a white stripe(s) will be 
required. 

3.       Communications between Emergency Services 

We consider this to be a matter for the emergency services to address. For this reason, no 
action by the Council is proposed. 

In addition to our response to your Matters of Concern above we will also ensure all relevant 
departments within the Council are made aware of your Report. As part of the review of the 
Local Plan, the Local Planning Authority will consider whether there is scope to include a 
policy for developers developing land adjacent to water to provide and maintain lifesaving 
equipment, so as to secure incremental improvements wherever possible. 

Yours sincerely 

Head of Highways, Traffic and Parking
Response from London Fire Brigade (PDF)
London Fire Brigade Headquarters 
169 Union Street  London  SE1 0LL 
T 020 8555 1200  
london-fire.gov.uk 

The London Fire Commissioner is the 
fire and rescue authority for London 

Date  30 April 2025 

Dr Anton van Dellen  
His Majesty’s Assistant Coroner  
West London Coroner’s Court 
25 Bagley's Lane  
London 
SW6 2QA 

Dear Coroner 

Response to Regulation 28: Prevention of Future Deaths Report 

I write in response to the Regulation 28 Report to Prevent Future Deaths [‘PFD report’] you issued 
following the inquest touching the death of Liam Allan. 

The London Fire Brigade [‘LFB’] was not an interested person in the proceedings to investigate the 
circumstances of Mr Allan’s death.  It has not been possible to ascertain the evidence presented to you 
during the course of this inquest.    

Set out below are actions taken by LFB in relation to the matters of concern raised in your PFD report.  
These do not take account of any material you may have heard during the course of the inquest 
touching Mr Allan’s death. 

Radio communications  

Following recommendations of the Grenfell Tower Inquiry in respect of radio communications at 
incidents, LFB has made significant changes to its radio system - Airwave Digital Main-Scheme Radio 
system.  The changes improved communications between emergency services on incident grounds.  
This enables greater interoperability of the different operational talk systems used by the Metropolitan 
Police Service [‘MPS’] and LFB.  

In late 2022, further improvements to sharing of electronic incident records by emergency services 
came through the introduction of the Multi Agency Incident Transfer [‘MAIT’] System.  MAIT allows 
emergency services control rooms to share incident data electronically.  LFB along with the MPS are 
upgrading their systems to accommodate this.  However robust radio communications between 
control rooms are currently in place to share incident information via a secure radio network.   

Emergency service control rooms have the capability to talk directly to each other.  This is done in 
accordance with a memorandum of understanding signed by all London Emergency Service Control 
Rooms for swift passage and sharing of incident information.  This direct communication between 
control rooms is done via a dedicated airwave talk group channel  

 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 Both the MPS and LFB are progressing the ability to exchange this information electronically.  Whilst 
that work continues, the fastest way for the MPS to request the resources of the LFB at an incident is 
through a dedicated telephone line or via the dedicated airwave channel.   

Water safety 

Water safety along the Thames is an important part of the broader prevention work at LFB, in 
discharging its obligations under the Fire and Rescue Services Act 2004.  

Currently LFB chairs the Tidal Thames Water Safety Forum.  The Brigade also sits on the London Water 
Safety Partnership.  Membership of these bodies provides LFB with the means to participate in and 
influence improvements in safety of persons in the vicinity of the Thames and other waterways in 
London.  

LFB has worked with London Local Authorities to support them installing throwline boards at multiple 
points along the River Thames.  Each throwline board contains a thowbag and foil blanket. These 
boards not only contain rescue equipment but provide precise geolocation detail, which can be used 
by LFB control staff to dispatch crews in the event of an incident.   

The need for additional throwline boards along the Thames is regularly reviewed.   

Since Mr Allan’s death in August 2022, LFB has undertaken a number of activities aimed at improving 
safety along the River Thames.  These include the following: 

1.  Working with London Local Authorities to help ensure the proper installation of water safety 

equipment at key points, linked to emergency services control rooms.   

2.  On 25th July 2023 – World Drowning Prevention Day - writing to Chief Executives of all 

London Local Authorities urging a review of water rescue equipment and arrangements.  
Several water safety events were held on this day at venues including Teddington lock, 
Hampton Court Palace and Hampton canoe club. 

3.  On 20th September 2023 an additional 10 throwline boards was installed in the vicinity of the 
point where Mr Allan drowned in Kingston-upon-Thames.  In partnership with the London 
Boroughs of Richmond-upon-Thames and Kingston-upon-Thames, over 34 throwline boards 
have been installed along the Thames.  

4. 

In the Richmond and Kingston areas of the Thames, as part of borough partnership initiatives 
in 2023/24, LFB provided throwlines and training in their use, to businesses, cafes, bars and 
restaurants along the river.  Training in throwline use has also been provided to parks patrols.   

5. 

In July 2024 a water safety room was opened at Twickenham Fire Station to provide training 
and education for river safety.  The opening was covered by the broadcast media. 

6.  A number of multi-agency training exercises have been held to test and improve the 

emergency response on the Thames. 

7.  LFB has strengthened its operational working with  Surrey Fire and Rescue Service to improve 

the response to emergencies on the Thames. 

8. 

In May 2024, LFB Control had added details of water rescue resources held by neighbouring 
Fire and Rescue Services.  This allows control room operators so assess whether LFB resources 
could be nearer to an incident and deployed more quickly if needed. 

9.  From February 2025, LFB Control staff monitor ES3 channel - the Coastguard channel - and 

broadcast any incident on the Thames to which LFB can respond.   

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 I hope this response provides you with the necessary assurance that LFB is working to address the 
matters raised in your report.  

Yours sincerely 

London Fire Commissioner
Response from National Fire Chiefs Council (PDF)
Dr Anton Van Dellen 
Coroner’s Area for West London 

Sent by email to: 

7 May 2025 

Dear Dr Anton Van Dellen 

c/o 71-75 Shelton Street 
Covent Garden 
London 
WC2H 9JQ 
www.nfcc.org.uk 

Thank you for raising the concern in relation to the death of Liam Stephen Allan on 26 
August 2022. It is with great sadness that I read about the circumstances of his death. The 
National Fire Chiefs Council (NFCC) is committed to a culture of learning and improvement 
and seeks to support fire and rescue services to embed a learning culture. We actively 
track Prevention of Future Deaths reports that relate to fire and rescue services or similar 
relevant activities such as emergency response driving and share them with our members 
to ensure all opportunities to improve are taken.  

In your report you have identified NFCC as being an organisation that has the power to 
take action to prevent future deaths associated with delays in control rooms transferring 
information between agencies via the telephone rather than using a CAD-mediated system 
to transfer information electronically. 

We recognise the seriousness and devasting impact that can occur from ineffective and 
untimely sharing of information between emergency services. This has been captured 
within the Fire Control Fire Standard which requires fire and rescue services in England to 
provide fire control employees with effective systems and arrangements to mobilise 
appropriate resources and share incident related information with operational employees, 
other fire controls and other organisations.  

To support this further, effective working with partner agencies is a critical part of our Fire 
Control Guidance. This includes multi-agency hazards and control measures on the 
following: 

Ineffective communication between fire control and other agencies 
Inaccurate situational awareness during a multi-agency incident: Fire Control 

• 
• 
•  An uncoordinated response to a multi-agency incident: Fire Control 
•  Learning in isolation from other agencies: Fire Control 

One of the control measures is to establish effective communication systems between fire 
control and other agencies. Within this guidance it gives several strategic actions including 

Registered office: National Fire Chiefs Council Limited, 71-75 Shelton Street, Covent Garden, London, United Kingdom, WC2H 9JQ.  
Registered in England as Limited Company No. 03677186.  Registered in England as Charity No. 1074071.  VAT Registration No. 902 
1954 46 

 
 
 
 
 
 
  
 
 
 
 the consideration of configuring mobilising systems to integrate with electronic methods of 
communication. This will take a variety of forms within fire and rescue services and be 
agreed locally with their relevant partners.  

There is a Multi-Agency Information Transfer (MAIT) system that can be used by UK fire 
controls and partner agencies. This system provides a method for organisations to share 
incident information electronically and is currently being implemented in all fire control 
rooms in England. It will enable interoperability between different systems and facilitate 
electronic information exchange between fire control rooms. This system could, therefore, 
facilitate electronic information exchange between emergency control rooms of all 
responding agencies should they sign-up also.  

We seek to support fire and rescue services to improve the effectiveness and maximise the 
use of digital systems and this is key priority for us in the Fit for the Future strategic plan, 
which was developed in partnership with the Local Government Association and National 
Employers (England). This has led to the development of various pieces of guidance and 
tools on our Digital, Data and Technology webpages, and we continue to look at how we 
can influence innovation across the UK fire and rescue community. 

For this tragic death of Liam Stephen Allan, we have been in liaison with London Fire 
Brigade to ensure that all learning captured from the incident is processed through our 
NFCC Organisational Learning arrangements. By doing this, we will not only be able to 
share key learning points with other UK fire and rescue services, but we will also be able to 
reflect on national guidance to ensure that fire and rescue services are adequately 
addressing the risks of similar incidents from occurring.  

Yours sincerely  

Chair 
National Fire Chiefs Council 

Registered office: National Fire Chiefs Council Limited, 71-75 Shelton Street, Covent Garden, London, United Kingdom, WC2H 9JQ.  
Registered in England as Limited Company No. 03677186.  Registered in England as Charity No. 1074071.  VAT Registration No. 902 
1954 46

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