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Falling to sea is a very rare case. PFD's and life jackets might break your arm or injure you if you fall from some hight. I cannot imagine myself wearing a life jacket in a summer month.
I think the rule works:
If you forc everybody to wear PFD's on all boats, most of the boaters will give up sailing in those waters, if no body sails no body will be drowned and the rule seems to work.
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