Strategic Plan of the National Recreational Boating Safety Program 2012-2016: Continuity, but Change Fred Messmann, Chair

Outline of presentation Introduction Plan structure Strategies by objective Discussion and NBSAC approval or modification

INTRODUCTION: Principles, Characteristics, and Numerical goals

Broad plan goals Foster the development of a robust “safety culture” among the boating public Reduce injuries and fatalities Use appropriate and focused combination of outreach initiatives, regulation, and enforcement Convince the public that any regulations “codify prudence” and are not unduly burdensome

Safety culture Culture definitions: A set of learned beliefs, values and behaviors; the way of life shared by the members of a society, Shared values (what is important) and beliefs (how things work) that interact with an organization’s structures and control systems to produce behavioral norms. More simply, culture is “how things work” or “the way we do things”

Four key features of a robust safety culture Flexible Reporting Informed Learning

Four key features of a robust safety culture Flexible Adapt to change as new data or information becomes available Reporting Accident data reported and entered into BARD for analysis Learning BARD and other data analyzed to develop learnings Informed Mindful, learning cultures make informed choices

Plan characteristics Evolutionary rather than revolutionary Focus on continuous improvement, but sets the stage for more robust performance initiatives including Mandatory education Assess feasibility and benefits of mandatory life jacket wear for certain vessels Continuous improvements; not mere replication Assumes active participation of partners

Plan goals Developed using both judgment of subject matter experts and statistical trend extrapolation Plan incorporates objectives to develop improved basis for goal setting so that future will be “data-driven” Goals believed realistic Plan is a “living document” to be revised as new information becomes available

Numerical goals Numerical goals 5-year moving averages Fiscal year Number of injuries deaths Total casualties 2012 3,295 677 3,972 2013 3,212 672 3,884 2014 3,132 666 3,798 2015 3,054 661 3,715 2016 2,997 656 3,653 Numerical goals 5-year moving averages

Why are goals so modest? Fatality rates have dropped dramatically since the 1960s, but Progress slowed in recent years as “low hanging fruit” already harvested More dramatic changes in future will require different approaches Gray line is plot of actual data Blue line is plot of fitted model

Targets within objectives Defined where feasible for various objectives and strategies Designed to be SMART: Specific Measurable Agreed Realistic Time-based

Are we there yet? Throughout the planning process the Jeff Hoedt kept asking the planning team “Are we there yet?”—meaning “Have we reached the practical limits of intervention?” The team acknowledged that progress is becoming more difficult, but concluded that the status quo was not satisfactory

Doing the right things right Plan architects believe that plan attempts to do the “right things” Plan execution requires “doing the right things right” and depends upon the joint actions of boating safety partners Success depends upon many factors not under control of USCG, including partner actions and boating public response

Structure

Plan structure Plan consists of eleven objectives and associated implementation strategies for each Objectives and strategies mutually supporting, integrated, and interdependent—therefore objectives have no priority ordering Objectives Strategies Goals

Plan architects Each objective leader was supported with a great team! Boating Education Cecilia Duer Outreach Larry Meddock Advanced Boating Education Pam Dillon Life Jacket Wear Dorothy Takashina Operator Compliance-Nav Rules Maureen Healey Boating Under the Influence Richard Moore Manufacturer Compliance Marcia Kull Operator Compliance-Safety Equip Margaret Podlich Accident Reporting Fred Messmann Research and Development Dan Maxim Effective Grants J.J. Marie and John Fetterman Each objective leader was supported with a great team!

Objectives and component strategies

Objective 1: Education Core Concepts Data support value of boating safety education But data gaps remain: more and better data needed Strategies also aimed to strengthen State and Federal requirements Effectiveness of boating safety education to be measured

Strategies: Objective 1 1.1: Track the Number of Certificates - States 1.2: Track the Number of Certificates - USCG 1.3: Strengthen Boating Education Laws – States 1.4: Strengthen Boating Education Laws – Federal 1.5: Measure Effectiveness of Education Methods

Objective 2: Outreach Core Concepts Outreach is key to plan success New media and new audiences included in plans Search for impact measures to optimize outreach effort Focus on key messages (life jackets, BUI, and NAVRULES)

Strategies: Objective 2 2.1: Develop a system for measuring the effectiveness of all media outreach efforts utilized within the first year of this Strategic Plan 2.2: National Outreach Work Group 2.3: Deliver Messages through Grassroots Efforts 2.4: Deliver Branded Messages through Traditional Mass Media 2.5: Deliver Branded Messages through Non-Traditional/New/Social Media 2.6: Reach the Segment of the Boating Public with Limited English Proficiency 2.7: Deliver Messages via Law Enforcement Officers 2.8: Deliver Messages via Marine Dealer Network

Objective 3: Advanced and/or on-water, skills-based education Core Concepts: Education important and advanced or on-water skills based opportunities potentially valuable, but We need to learn more about options and their effectiveness and then Set reasonable targets once benefits understood

Strategies: Objective 3 3.1: Track Participation in and Effectiveness of Advanced Education and On-Water, Skills-based Boating Education Courses 3.2: Coordinate Best Practices for On-Water, Skills-based Boating Education Courses 3.3: Set Numerical Targets for Participation in Advanced Education and On-Water, Skills-based Boating Education Courses

Objective 4: Life jackets Core Concepts: Drownings account for majority of boating fatalities Increased life jacket wear rates key determinant of success in reducing fatalities Need to continue to track progress, but also to evaluate other options to “move the needle”

Strategies: Objective 4 4.1: Track and Evaluate Life Jacket Wear Rates 4.2: Continue the Life Jacket Wear Rate Tiger Team 4.3: Engage all RBS Professionals in Public Demonstrations of Inflatable Life Jackets 4.4: Continuously Improve Life Jacket Testing and Approval Standards 4.5: Evaluate and Assess the Benefits and Feasibility of Mandatory Life Jacket Wear Regulations that Target the At-Risk Population(s) as Identified in Strategy 4.2 4.6: Evaluate Life Jacket Loaner Programs 4.7: Address Life Jacket Wear in Boat Owners/Operators Manuals

Objective 5: NAVRULES Core Concepts: Data show that NAVRULES violations account for a significant proportion of boating injuries Increased knowledge of and compliance with NAVRULES another key component of Strategic Plan

Strategies: Objective 5 5.1: Expand the Number of States with Mandatory Boating Safety Classes for NAVRULES Violators 5.2: Implement and Revise Curriculum for Officer Training to help ensure Strict Enforcement of NAVRULES 5.3: Increase Navigation Rule Awareness Among Boaters 5.4: Improve Consistency in Recording NAVRULES violations as contributing factors in BARD

Objective 6: BUI Core Concepts: Data demonstrate BUI a major determinant of boating fatalities Reducing the incidence of BUI a major objective of the Strategic Plan No “simple solution” evident, but options exist

Strategies: Objective 6 6.1: Measure Alcohol and/or Drug Use in Recreational Boating 6.2: Train Marine Law Enforcement Officers on BUI Detection 6.3: Expand Nationwide Use of the Validated Standardized Seated Sobriety Tests 6.4: Analyze Individual State Efforts to Link BUI Violations with Driver’s Licenses 6.5: Conduct BUI Awareness and Enforcement Campaign 6.6: Improve Accuracy of Reporting Alcohol and/or Drug Use in Recreational Boating Accidents 6.7: Test and Evaluate a Pilot Project to Assist in Setting Future Targets (Measures)

Objective 7: Manufacturer Compliance Core Concept: Broad objective is to decrease preventable accidents by inspecting registered manufacturing facilities to ensure compliance with Federal Safety Regulations

Strategies: Objective 7 7.1: Identify Problem Boats/Manufacturers 7.2: Test/Target Recreational Boats with Flotation Issues 7.3: Manufacturer Outreach 7.4: Conduct and support research to identify new products, new designs or new safety standards that would reduce boating injuries and deaths

Objective 8: Operator compliance with required safety equipment Core Concepts: Required safety equipment believed necessary Importance of required and recommended equipment not fully understood by public Need to simplify and focus outreach efforts

Strategies: Objective 8 8.1: Evaluate Incidents of Non-Compliance with specific USCG Required Safety Equipment 8.2: Analyze Required and Recommended Equipment 8.3: Assess effectiveness of current boater education outreach and law enforcement programs to achieve higher compliance rates with USCG Safety Equipment carriage requirements, including life jackets 8.4: Enhance Compliance Outreach 8.5: Simplify the Message 8.6: Increase Boaters’ Knowledge of Safety Equipment 8.7: Encourage Purchase of Required Safety Equipment

Objective 9: Boating Accident Reporting Core Concepts: Accurate and timely BAR data essential input to Strategic Plan Strategies to deal with under-reporting essential and promising options exist Numerous other opportunities to increase utility of data

Strategies: Objective 9 9.1: Recommendations of the “Regulatory Review and Accident Reporting Requirement Regulation” Task Force 9.2: Develop a two-tiered boating accident notification/reporting system requiring operator (or owner) notification of the accident to the state reporting authority or designee, with required state follow-up investigation and gathering and submission of all required report data by the state authority. Continually evaluate innovative technology for reporting (coordinate with strategy 2.2). 9.3: Clarify through policy and regulation, which watercraft qualify for boating accident reporting 9.4: Include exclusive state waters in accident reporting requirements

Strategies: Objective 9 - cont.2 9.5: Clarify which boating-related injuries qualify for reporting by adopting OSHA standards for “medical treatment beyond first aid” as the standard for recreational boating injury reporting 9.6: Consider revising reportable boating accident criteria to exclude incidents where the vessel was underway and being used as a swimming platform or a person voluntarily leaves the vessel as the first event 9.7: Create a Decision Matrix that will simplify the boating accident and casualty reporting decision-making process for state reporting authorities, their designees, boating accident investigators and the boating public

Strategies: Objective 9 – cont.3 9.8: Establish and enforce the responsibility and accountability of first responders for notifying of an accident or casualty and of state reporting authorities for investigating and submitting boating accident report data 9.9: Amend the Code of Federal Regulations (CFR) to specify the essential elements of information required to be included in the initial notification of a boating accident 9.10: Amend the Code of Federal Regulations (CFR) to abstain from including specific data elements and require that essential elements of boating accident report information be specified in a US Coast Guard policy document 9.11: Revise the former guidance document CG-449, and make it available in a condensed version through electronic media

Strategies: Objective 9 – cont.4 9.12: Examine the feasibility of harmonizing commercial and recreational boating accident cause data. 9.13: Continue to research methods for statistical adjustment of accident totals to help extrapolate unreported accidents. 9.14: Draft text for inclusion in Boating Statistics discussing possible errors and limits to interpretation of data extracted from BARD. 9.15: Examine the suitability of additional models of accident causation (human factors) for use in describing fatal recreational boating accidents.

Strategies: Objective 9 – cont.5 9.16: Assist the states in conducting training, education and outreach efforts directed toward the boating public and accident investigators and regarding boating accident notification and reporting regulatory and policy revisions 9.17: Vessel Identification System (VIS) 9.18: Link BARD to VIS 9.15: Manufacturer Participation in VIS

Objective 10: “Data Central” Core concepts: Develop and improve accident and exposure data Investigate ways to improve response and/or compensate for non-response in accident reporting Analyze data to learn more about determinants of accidents and effectiveness of countermeasures

Strategies: Objective 10 10.1: Conduct National Boating Survey 10.2: Conduct lifejacket research 10.3: Measure exposure and use for risk analysis 10.4: Improve BARD data 10.5: Analyze BARD data 10.6: Assess and compensate for non-response 10.7: Assess priority for non-compliance work 10.8: Analyze data on boaters with limited English proficiency 10.9: Review Performance Report Part II 10.10: Reduce the regulatory backlog for RBS regulations

Objective 11: Effectiveness of non-profit grants Core Concepts: Non-profit grants provide important research NBSAC should be fully familiar with study results to function effectively Need to provide public access to effective grant products

Strategies: Objective 11 11.1: Review Non-Profit Organization Grants 11.2: Provide public access to effective grant products

Discussion and NBSAC approval or modification

Things to keep in mind Plan is linked: Changes to strategies in one objective may impact other objectives Goals keyed to content: Changes to strategies may impact goals for fatalities and injuries Objectives and strategies negotiated by group with diverse expertise and viewpoints Focus on substance—editorial changes will be handled off-line

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