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If they really want to curb deaths on the water, they should require people take a class before driving a boat. Something that covers safety, the laws, operating a boat, managing passengers, etc. No need for a license, but require a certificate of completion be carried by anyone at the helm.
There are far too many jackwads that have no clue what they are doing when on the water. I'd bet this would save far more lives than the .00001% saved by requiring life vests on boats under 18'.
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