LJ 8 Develop National Use Recommendations for Personal Flotation, Rescue, and Other Flotation Devices
Develop and implement national recommendations for use of life jackets, personal flotation devices (PFDs), rescue and other flotation devices while boating, swimming, or participating in other water related activities.
See new publication:
U.S. National Water Safety Action Plan Coalition, Inc. (USNWSAP). National Recommendations for U.S. Coast Guard Approved Personal Flotation Device (PFD) and Life Jacket Use—A Working Document. 2026. (https://watersafetyplan.us/wp-content/uploads/2026/05/National-Recommendations-for-PFDs-and-Life-Jackets-Final-5-26.pdf)
Includes National Implications 3, 29 & 30; Specifically addresses Action Recommendation LJ 8.
Spectrum level: Changing Organizational Practices Promoting Community Education
Evidence level: Medium
Rationale:
After many years of use the term “personal flotation device” or “PFD” in safety and awareness campaigns it remains unfamiliar and confusing to the general public. The general public continues to respond and accept “life jacket” as the general term to describe all wearable types of “PFDs”. Consistent recommendations would help alleviate the confusion that the general public has regarding what type of life saving and personal protectice device is needed for specific water-related activities. Consistent recommendations will help government and community organizations to develop and implement water safety campaigns that are accurate and clear.
Anticipated Impact:
After implementing this recommendation, you can expect to experience the following outcomes:
- Developing and implementing national recommendations for use of life jackets, personal flotation devices (PFDs), rescue and other flotation devices leads to less confusion regarding what type of life saving and personal protective devices needed for specific water-related activities.
- Developing and implementing national recommendations for use of life jackets, personal flotation devices (PFDs), rescue and other flotation devices leads to greater government and community organization development and implementation of accurate and clear water safety campaigns.
Evidence:
Stakeholders have identified that terms used (life jacket vs PFD) are confusing, and that there is need for information that are more easily understood. There is also confusion about the differing messages promoted by organizations such as whether life jackets should be used by swimmers or non-swimmers. Water safety experts agree that it is essential to have effective communication to support laws and enforcement of mandatory life jacket wear, and that terminology needs to be culturally and linguistically accessible. The National Boating Safety Advisory Council (NBSAC), under Resolution Number 2008-81-02, recommends and supports the use of the term “life jacket” in national, regional, and local boating safety marketing campaigns, education programs and initiatives in order to communicate effectively with the boating public as the term “personal flotation device” or “PFD” was an unfamiliar term to the general public. Given the efficacy of life jackets in preventing drowning among boaters, it is reasonable to promote life jackets or approved floatation devices for recreational swimmers, especially in a non-lifeguarded area. Observations, policy reviews, and educational materials all indicate that life jackets for swimmers have some acceptability among both user and prevention specialists and aquatic organizations. Additionally, it is important to keep equity and cultural approaches in mind in making national recommendations.
Evidence Sources:
Mangione T. (ed). (2021). Summary of suggestions for increasing life jacket use. Unpublished survey notes from online survey conducted with persons indicating interest in life jackets via https://www.watersafetyusa.org/nwsap.html
Cox K.L., Bhaumik S., Gupta M., & Jagnoor J. (2022). Facilitators and barriers of life jacket use for drowning prevention: Qualitative evidence synthesis. Journal of Safety Research, Feb(80), 135-147. https://doi.org/10.1016/j.jsr.2021.11.010
Giles A.R., Castleden H., & Baker A.C. (2010). We listen to our elders. You live longer that way: Examining aquatic risk communication and water safety practices in Canada's north. Health Place, 16(1),1-9. https://www.doi.org/10.1016/j.healthplace.2009.05.007.
Bennett E., & Quan L. (2018) Wearing life jackets while swimming in open water. International Journal of Aquatic Recreation and Education, 11(2), 1-3. https://www.doi.org/10.250035/ijare.11.02.02
National Boating Safety Advisory Council. (2008) Resolution number 2008-81-02: Use of the term life jacket. https://homeport.uscg.mil/Lists/Content/Attachments/443/NSBAC%2081%20Resolution%202008-81-02%20Use%20of%20the%20Term%20Life%20Jacket.pdf
Beale-Tawfeeq A., Quan L., Bennett E., & Fielding, R. R. (2020). Promoting equity, social justice, and saving lives with life jacket and clothing policies. International Journal of Environmental Research and Public Health, 17(18), 6440. https://doi.org/10.3390/ijerph17186440
Francis E. (2023). A drowning prevention policy framework. Doctoral dissertation, Royal Roads University, Canada. http://dx.doi.org/10.25316/IR-19179
High Risk Populations Addressed:
Populations whose risk of drowning decreases the most with the implementation of this recommendation may have one or more of the following characteristics:
- Individuals who primarily speak a language other than English
- Boaters
- Recreational swimmers
- Children age 1-4
Evaluation Metrics:
Indicators of long-term impact:
- Consensus and consistent messaging for the appropriate use of life jackets, personal flotation devices (PFDs), instructional flotation devices, and non-U.S. Coast Guard approved flotation in recreational swimming settings
- The terms “life jacket”, “personal flotation device” (PFD), “rescue device”, “swim aid”, and “buoyancy device” understood and selected appropriately dependent on the activity by people nationwide
Indicators of intermediate impact:
- National, state, and local agencies are following the National Boating Safety Advisory Committee’s and U.S. Coast Guard’s recommendation regarding the term “life jacket”
- Increased use of life jackets while swimming or playing in open water or pools as deemed appropriate
Indicators of initial impact:
- Agencies review their resources and materials to ensure the terms are being used correctly
- Increase in the number of organizations at the national, state and local level adopting recommendations
Implementation:
Consider the following to ensure successful implementation:
- Create uniform recommendations and terminology for the devices in this action recommendation.
- Develop more accurate and easy-to-understand definitions for devices that are not U.S. Coast Guard approved and, or, that are used as part of swimming and learn to swim programs.
- Establish relationships with influencers, agencies, and manufacturers.
- Promote visuals that model safe practices with life jacket use.
- Create education to help people find accurate information regarding life jackets and what the information on the new USCG and Transport Canada approved life jacket labels mean.
- Consider how to find ways to increase life jacket wear among teens and adults while swimming in open water.
- Explore ways to achieve greater understanding of appropriate life jacket terminology and use, and develop partnerships to aid in these efforts within diverse communities.
- Develop consensus among organizations as well as experts.
Challenges to Implementation:
When implementing this recommendation, you might encounter challenges related to the following factors:
- Establishing consensus among all stakeholders on the terminology and description of different devices may be difficult.
- Even if terminology is agreed upon it may be challenging to ensure it is being used correctly by everyone.
- The new life jacket labelling in Newtons may be confusing for people, and there is a lack of easy-to-understand visuals to help.
Potential Facilitators:
The following factors might facilitate the implementation of this recommendation:
- Use the momentum and partnerships already in place from organizations that are working together to currently align messaging (such as Water Safety USA organizations: American Red Cross, YMCA of the USA, Safe Kids Worldwide, National Safe Boating Council, U.S. Coast Guard, and U.S. Army Corps of Engineers).
- Analyze where there is concurrence and where there are clear differences among organizations and experts to narrow the focus for consensus building.
GAP Recommendation:
More research needs to be done on effective flotation devices for swimming activities.