Mandatory Wear of PFDs/Lifejackets

Transport Canada Wear Rate Study

September 28^th, 2023

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Background

• Recreational boating is a popular activity in Canada, with as many as 12.4 million annual participants.

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• Canada averages 111 recreational boating fatalities each year, the highest number of deaths within the marine sector.

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• While fatality numbers fluctuate, they have not shown any consistent downward trends.

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Background (cont.)

• Although the overall number of fatalities has declined since 1990, the average number of deaths due to the improper use, or absence, of a Personal Flotation Device (PFD) or lifejacket has not decreased significantly in several decades.
• Low PFD/lifejacket usage is a widely established risk factor for recreational boating fatalities.
• Improper use or lack of a PFD/lifejacket accounts for 89% of recreational boating fatalities.
• Between 2008 and 2017, a PFD or lifejacket was worn properly in only 13% of recreational boating fatalities.

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• The Small Vessel Regulations require the carriage of PFDs/lifejackets on board pleasure craft, but only require them to be worn in a few, limited scenarios.

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Mandatory Wear Research Initiatives

• In 2019, Marine Safety and Security began working with a behavioural scientist to conduct a research project on the topic of mandatory wear.

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• This project was aimed at examining PFD/lifejacket use, identifying which demographics most often do or do not wear PFDs/lifejackets in certain circumstances, while also exploring the motivations for or against their usage among recreational boaters.

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• The project consisted of an online survey to assess PFD/lifejacket perceptions (completed in 2020), and on-site observations (completed in 2021) to record PFD/lifejacket usage.
• Final phase of the project was held in summer 2022 to test the effectiveness of new messaging approaches to promote the use of PFDs/lifejackets.

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Online Survey: Results

• In September 2020, TC launched an online survey assessing PFD/lifejacket usage and perceptions among recreational boaters.
• The survey was active until December 31, 2020.
• Approximately 2,000 responses were received.

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• While the use of PFDs/lifejackets varied widely dependent on skill level and vessel type, reported wear rates increased dramatically when children are on board the vessel.

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• Participants across skill levels generally agreed that not wearing some form of flotation device while boating was irresponsible.

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Lifejacket use by skill level

“I wear a lifejacket/PFD all the time”

Perception by skill level on whether a lifejacket/PFD should be worn if children are on board

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Perception of boaters by skill level on whether not wearing a lifejacket/PFD is irresponsible

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On-site Observations (Summer 2021)

• On-site observations were conducted during the 2021 boating season at selected marinas across the country.

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• Office of Boating Safety regional employees observed wear rates among recreational boaters on different vessel types, engaged in different activities.

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• Observers also utilized a variety of tools to track weather conditions which may have impacted wear rates (wind speed, water temperature, etc.) and recorded any observed changes these conditions had on the behaviour of key demographics.

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• Results from these on-site observations were compared with results from the online survey, to develop a true situational portrait of Canadians’ usage of PFDs/lifejackets.

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Results: General Wear Rates

• Across all sites, observers documented 4,117 boaters across 1,660 vessels.

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• Of the total number of observed boaters, 34% were wearing a PFD or lifejacket.

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• Wear rates were highest among children
• 67% wear rate for minors vs. 29% for adults.

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Demographics: Age/Sex

• Children aged 6-12 years had the highest wear rates (75%).

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• Women had slightly higher wear rates (38%) relative to men (31%).

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Vessel Characteristics

• Wear rates varied drastically between boat types.

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• Personal Watercraft (PWC) had the highest wear rates (94%) while motorised boats had the lowest (25%).

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Vessel Characteristics (cont.)

• Wear rates decreased as boat size increased.
• Wear rates were 59% for boats under 16 ft.
• Wear rates were only 20% for boats greater than 46 ft.

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• When the vessel operator was wearing a PFD/lifejacket, wear rates among passengers were 85%.
• When not wearing a PFD/lifejacket, the passenger wear rate was only 16%.

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Key Takeaways

• Vessel type (motorised, PWC, etc.) and size have significant effects on boaters’ likelihood to wear a PFD/lifejacket.

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• Younger passengers and females are more likely to wear a PFD/lifejacket relative to older passengers and men.
• PFD/lifejacket wear rates for minors were nearly double that of adults.

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• Passengers are much more likely (46X) to wear a PFD/lifejacket when the operator is wearing one, suggesting a “role-modelling” effect.

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Phase 2 Observations (Summer 2022)

• Legislation alone will not substantially increase wear rates and reduce fatalities. Expanded, sustained education and outreach initiatives are needed to enhance compliance and encourage a shift in safety culture.

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• Phase 2 of TC’s observation project was held in summer 2022 to test the effectiveness of different messaging approaches promoting the use of PFDs/lifejackets.
• Separate posters, each with a different message and image displayed, were placed at the same sites where observations were conducted in 2021, with observers again monitoring boater wear rates.
• Some sites had a marked TC enforcement officer to test the effectiveness of a messenger.
• This Phase concluded on September 24, 2022.

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• Results were compared with the 2021 observations. Messages that show the greatest impact may be used to revamp education and outreach strategies.

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Preliminary Results

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• Overall PFD/lifejacket wear rates remained consistent between the two seasons of observations.

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• While signage had little impact on the wear rates of boaters overall, an increase in wear rates among boat operators specifically was observed in areas with a sign in place.

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Key Takeaways (Phase 2)

• While boaters overall did not substantially change their behaviours around PFDs/lifejackets with this type of signage in place, there was a small impact on the behaviour of vessel operators specifically.
• Given that Phase 1 showed the behaviour of the operator had a substantial impact on the wear rates of passengers on board their vessels, targeted outreach to operators may increase wear rates overall.

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• Although enhanced signage did not substantially increase wear rates, alternative outreach (videos, focused education campaigns, etc.) may have stronger impacts.

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• Consistent overall wear rates between the Phase 1 and Phase 2 observations may demonstrate that education and outreach alone have a limited impact on increasing wear rates and additional measures may be needed.

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Next Steps

• Results from the online survey and 2021 observations have been taken into account while developing criteria for possible regulatory amendments to require the mandatory wear of PFDs/lifejackets.
• Details surrounding these criteria will be outlined and discussed in the following presentation.

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• Key takeaways from the Phase 2 observations will be considered in the development of future education and awareness campaigns regarding PFD/lifejacket wear.
• Results as to the effectiveness of the selected medium, and receptiveness of the target audience, will be taken into account when developing outreach strategies.

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Please forward all comments or questions to:

Geoffrey Tasker

Policy Analyst

Legislative, Regulatory and International Affairs

Marine Safety and Security - Transport Canada

geoffrey.tasker@tc.gc.ca

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Honey Walsh

National Manager

Office of Boating Safety

Marine Safety and Security - Transport Canada

honey.walsh@tc.gc.ca

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