Journal of Accident Investigation
Journal of Accident Investigation
Journal of Accident Investigation
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an adult PFD wear requirement. The survey indicated that<br />
86 percent <strong>of</strong> the respondents opposed a requirement for adult<br />
boaters to wear PFDs while underway in all boats. When asked for<br />
all the reasons why they would not support such a requirement,<br />
76 percent <strong>of</strong> the respondents indicated that the skipper can<br />
make the decision, 64 percent indicated that wearing PFDs was<br />
not necessary in all types <strong>of</strong> boats, and 61 percent indicated that<br />
additional regulations were not necessary. More than a third<br />
indicated that they would boat less if they were required to wear<br />
PFDs while underway. However, in the same survey, 62 percent<br />
<strong>of</strong> the respondents supported a PFD wear requirement based on<br />
certain types <strong>of</strong> boats, and 78 percent supported a requirement<br />
that all children 12 and under wear a PFD while underway.<br />
When the organizers <strong>of</strong> the International Boating and Water<br />
Safety Summit in March 200 surveyed attendees, they found<br />
that 6 percent <strong>of</strong> the 23 respondents agreed or strongly agreed<br />
that PFDs should be mandatory for those in boats under 22 feet.<br />
Personal choice appeared to be the basis for resistance to any<br />
Federal or State legislation, but was tempered by the realization<br />
that some boating activities are more risky than others and may<br />
require more aggressive action.<br />
Personal choice—whether stated in terms <strong>of</strong> boat captain<br />
discretion or as freedom <strong>of</strong> choice—was <strong>of</strong> primary concern to<br />
many forum participants. Balancing government oversight with<br />
intervention and individual freedom and responsibility was a<br />
common theme, especially in light <strong>of</strong> the perceived economic<br />
impact <strong>of</strong> a mandatory PFD requirement on boaters and the<br />
boating industry. Participants were concerned, too, that a<br />
mandatory wear requirement would be difficult to enforce and<br />
would divert limited enforcement resources from potentially<br />
more dangerous boating activities. Forum participants wished to<br />
proceed cautiously on untested policy solutions and not divert<br />
attention from targeted law enforcement, boater education,<br />
and an emphasis on personal responsibility.<br />
Presentations <strong>of</strong> PFD technology by the Coast Guard and the<br />
Personal Flotation Device Manufacturers Association (PFDMA)<br />
illustrated the wide range <strong>of</strong> PFDs and the work being done to<br />
improve the comfort and style <strong>of</strong> PFDs. Options range widely—<br />
from the traditional “lifejacket” style to float coats and suits, and<br />
a variety <strong>of</strong> water sports-related designs for specific applications.<br />
Of particular interest was the new line <strong>of</strong> inflatable PFDs that,<br />
according to the presenters, are more comfortable and wearable<br />
(but are not approved for all recreational boating activities,<br />
such as riding a personal watercraft). Forum participants agreed<br />
that most boaters are not aware <strong>of</strong> the extensive range <strong>of</strong> PFD<br />
technology that is available.<br />
Although the BOAT/US survey provided some insight into<br />
why boaters do not wear PFDs, there apparently has been no<br />
comprehensive research to date that specifically considers<br />
boater attitudes towards PFD wear or attempts to uncover<br />
factors that would lead to increased PFD wear, especially among<br />
PERSONAL FLOTATION DEVICES IN RECREATIONAL BOATING<br />
boaters in small boats on calm waters where the risks are not<br />
apparent. The personal watercraft experience does provide<br />
some anecdotal evidence showing that, when a mandatory<br />
PFD wear requirement is combined with a concerted effort<br />
by industry to integrate PFDs into all aspects <strong>of</strong> recreational<br />
boating, resistance to PFD use by adults can be reduced and<br />
compliance increased. The Personal Watercraft Industry<br />
Association (PWIA) presentation illustrated the use <strong>of</strong> a<br />
marketing model to integrate PFD use into personal watercraft<br />
recreational boating. In that approach, PFD use was promoted<br />
by manufacturers, retailers, and personal watercraft media,<br />
and PFD design and fashion were integrated into the sale <strong>of</strong><br />
boats and accessories. Before personal watercraft legislation<br />
was introduced requiring everyone aboard personal watercraft<br />
to wear PFDs, they accounted for a disproportionate number<br />
<strong>of</strong> recreational boating deaths and injuries. By 2003, all States<br />
had enacted legislation requiring everyone aboard personal<br />
watercraft to wear PFDs. As a result, despite a more than<br />
0 percent increase in the number <strong>of</strong> registered personal<br />
watercraft from 1997–2003, the number <strong>of</strong> injuries and the<br />
number <strong>of</strong> deaths due to drowning and other causes declined<br />
(table ). Further, the rates for drowning, other types <strong>of</strong> fatalities,<br />
and injuries in accidents per 100,000 registered personal<br />
watercraft in 2003 were less than half those <strong>of</strong> 1997. The Coast<br />
Guard’s observational study during 1998–2002 found PFD wear<br />
among adults on personal watercraft to be the highest among all<br />
boaters, ranging between 93 to 97 percent.<br />
Forum discussions revealed that much more can be done<br />
by the recreational boating industry. Boat shows <strong>of</strong>ten do not<br />
prominently display PFDs, and manufacturers, retailers, and<br />
recreational boating organizations rarely make available boating<br />
safety literature that addresses or advocates PFD use. Only the<br />
personal watercraft industry, and to some extent the paddle<br />
sports industry, have successfully integrated PFD use into the<br />
recreational boating experience.<br />
TAKING ACTION TO IMPROVE ADULT PFD USE<br />
A mandatory PFD wear requirement was not opposed by<br />
all <strong>of</strong> the forum participants. In its presentation, the Coast<br />
Guard’s National Boating Safety Advisory Council (NBSAC)<br />
stated its concern that the proportion <strong>of</strong> fatalities resulting<br />
from drowning had not changed. Initially, NBSAC believed<br />
that boater education efforts would positively affect PFD use,<br />
and requested that the Coast Guard coordinate with NASBLA<br />
to develop a program to encourage mandatory safe boating<br />
education. NBSAC also recommended that the Coast Guard<br />
engage in PFD public awareness campaigns targeting specific<br />
risk groups such as hunters, anglers, paddlers, and personal<br />
watercraft operators. Unfortunately, data continue to show<br />
that PFD use has not increased despite these public safety<br />
campaigns. At the forum, NBSAC reiterated its 2003 resolution<br />
NTSB JOURNAL OF ACCIDENT INVESTIGATION, SPRING 2006; VOLUME 2, ISSUE 1 71