Fiscal Note — 1781 HB, Boater Safety and Education (State Parks and Recreation Commission)

Summary

Individual State Agency Fiscal Note for bill number 1781 HB, titled Boater safety and education, from agency 465, the State Parks and Recreation Commission. Part I lists estimated cash receipts to the Boating Safety Education Certification Account-Non-Appropriated of 9,040,000 for 2023-25, and operating expenditures from that account of 7,541,000 for 2023-25. The narrative states that Section 3 would direct the commission to administer boater safety education in the form of a paddle education card. A Ten-Year Analysis follows.

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Full text

Individual State Agency Fiscal Note

Bill Number: 1781 HB Title: Boater safety and education Agency: 465-State Parks and
Recreation Commission

Part I: Estimates
No Fiscal Impact

Estimated Cash Receipts to:
ACCOUNT FY 2024 FY 2025 2023-25 2025-27 2027-29
Boating Safety Education Certification 4,520,000 4,520,000 9,040,000 7,919,930 4,317,670
Account-Non-Appropriated 09B-6
Total $ 4,520,000 4,520,000 9,040,000 7,919,930 4,317,670

Estimated Operating Expenditures from:
FY 2024 FY 2025 2023-25 2025-27 2027-29
FTE Staff Years 7.8 7.8 7.8 7.8 7.8
Account
Boating Safety Education Certification 4,928,000 2,613,000 7,541,000 4,342,391 3,459,346
Account-Non-Appropriated
09B-6
Total $ 4,928,000 2,613,000 7,541,000 4,342,391 3,459,346

Estimated Capital Budget Impact:

NONE

The cash receipts and expenditure estimates on this page represent the most likely fiscal impact. Factors impacting the precision of these estimates,
and alternate ranges (if appropriate), are explained in Part II.

Check applicable boxes and follow corresponding instructions:
If fiscal impact is greater than $50,000 per fiscal year in the current biennium or in subsequent biennia, complete entire fiscal note
X
form Parts I-V.
If fiscal impact is less than $50,000 per fiscal year in the current biennium or in subsequent biennia, complete this page only (Part I).

Capital budget impact, complete Part IV.

X Requires new rule making, complete Part V.

Legislative Contact: Emily Poole Phone: 360-786-7106 Date: 02/09/2023
Agency Preparation: Rob Sendak Phone: (360) 902-8836 Date: 02/09/2023
Agency Approval: Frank Gillis Phone: (360) 902-8538 Date: 02/09/2023
OFM Review: Matthew Hunter Phone: (360) 529-7078 Date: 02/09/2023

Form FN (Rev 1/00) 182,701.00 Request # -1
FNS063 Individual State Agency Fiscal Note 1 Bill # 1781 HB
Part II: Narrative Explanation
II. A - Brief Description Of What The Measure Does That Has Fiscal Impact
Significant provisions of the bill and any related workload or policy assumptions that have revenue or expenditure impact on the responding agency by
section number.

NEW SECTION. Sec. 3. (1). This bill would direct the commission to administer boater safety education in the form of a
paddle education card and require individuals to obtain a paddle education card before operating a human powered vessel
and to begin implementation by 1/1/2024.

NEW SECTION. Sec. 3. (2). (a). This bill requires the commission to produce a human powered vessel safety checklist
and for that checklist to be reviewed by anyone renting human powered vessels for short-term use.

NEW SECTION. Sec. 3. (2). (b). This bill directs the commission to adopt minimum curriculum standards for paddle
education, and to approve and provide accreditation to human powered vessel education courses operated by volunteers,
non-profits and commercial entities.

NEW SECTION. Sec. 3. (2). (c). This bill directs the commission to approve and provide accreditation to human powered
vessel safety courses for human powered vessels operated by volunteers or commercial or non-profit organizations.

NEW SECTION. Sec. 3. (2). (d). This bill directs the commission to develop and equivalency exam that may be taken as
an alternative as the human powered vessel safety education course.

NEW SECTION. Sec. 3. (2). (e). This bill directs the commission to establish a fee of the paddle education card to fund all
commission activities related to the human powered vessel safety education program.

NEW SECTION. Sec. 3. (2). (e). This bill directs the commission to develop an electronic option for a paddle education
card that can be stored digitally in addition to a physical card.

NEW SECTION. Sec. 3. (2). (f). This bill directs the commission to establish a fee for the replacement of the paddle
education card that covers costs.

NEW SECTION. Sec. 3. (2). (g). This bill directs the commission to consider and evaluate public agency and commercial
opportunities to assist in program administration with the intent to keep the costs to a minimum.

NEW SECTION. Sec. 3. (2). (h). This bill directs the commission to approve and provide accreditation to human powered
vessel safety courses offered online.

NEW SECTION. Sec. 3. (2). (i). This bill directs the commission to coordinate with the Department of Licensing to offer a
voluntary registration program for human powered vessels.

Sec. 4. (3). A boater education card expires and is no longer valid 20 years after the date of issuance.

Sec. 5. (1). The exemption for persons operating a vessel with a mechanical power of 15 horsepower or greater is being
removed. Which means now all vessel operators, regardless of motor size, will now need to obtain a boater education card
before operating a motor vessel.

Sec. 5. (1). (b). (i). No person shall operate or permit the operation of human powered vessels unless the person has in their
possession a paddle education card.

Sec. 5. (1). (b). (ii). No person shall operate a human powered vessel if they are under 12 years old unless accompanied by
a person 16 years or older who has obtained a paddle or boater education card.
Boater safety and education 465-State Parks and Recreation Commission
Form FN (Rev 1/00) 182,701.00 Request # -1
FNS063 Individual State Agency Fiscal Note 2 Bill # 1781 HB
Sec. 5. (2). (i). People born before January 1, 1955, will now be required to obtain a boater education card to operate a
motor vessel of any size horsepower.

Sec. 5. (2). (b). This bill directs the commission to adopt a digital option for boater education cards and paddle education
cards.

Sec. 5. (5). The boating program would need to design a human powered vessel safety operating and equipment checklist
for rental agents of human powered vessels to deliver and review with folks who rent from them.

This legislation would have substantial revenue and expenditure impacts to the State Parks Boating Program.
II. B - Cash receipts Impact
Cash receipts impact of the legislation on the responding agency with the cash receipts provisions identified by section number and when appropriate, the
detail of the revenue sources. Description of the factual basis of the assumptions and the method by which the cash receipts impact is derived. Explanation
of how workload assumptions translate into estimates. Distinguished between one time and ongoing functions.

There is a $10 administration fee for both the Boater Education Card (BEC) and the Paddle education Card (PEC). All
revenue assumptions stem from this one price point for customers. We believe there would be 2,716,380 cards issued in the
next 10 years and we project cash receipts of $27,163,800.

Assuming four new revenue streams if this bill is enacted.
1.) New Paddle Education Cards. NEW SECTION. Sec. 3. (1).
2.) New Boater Education Cards for people born before 1955. Sec. 5. (2). (i).
3.) New Boater Education Cards for motor operators of vessel with less than 15hp motors. Sec. 5. (1).
4.) Renewal of Boater and Paddle Education Cards every 20 years. Sec. 4. (3).

Revenue Assumptions: 10-year analysis
• 1/1/24 implementation date with years 2024-2033 analyzed.
• $10/card throughout 10-year period of analysis.
• 184,000 new Boater Education Cards (first time holders)
• 128,380 renewed Boater Education Cards (75% renewal rate)
• 2,170,000 paddle education cards issued. (Per RCO SCORP data: 52% of Washingtonians participate in paddle sports
with 50% compliance rate).
• 202,000 new boater education cards from individuals with under 15HP vessels. (Using USCG data that 2/3 of all
accidents are from vessels less than 16’).
• 32,000 new boater education cards from people born prior to 1955. (Per OFM age projection data and RCO SCORP
data: 1/3 of Washingtonians participate in recreational motorboating with 50% compliance rate).
• Assume any remaining funds from the BEC and the PEC will be spent for MLE agency mission partnership.
II. C - Expenditures
Agency expenditures necessary to implement this legislation (or savings resulting from this legislation), with the provisions of the legislation that result in
the expenditures (or savings) identified by section number. Description of the factual basis of the assumptions and the method by which the expenditure
impact is derived. Explanation of how workload assumptions translate into cost estimates. Distinguished between one time and ongoing functions.

If enacted as written, SB 5597 would create a large administrative lift by the boating program. Over the next 10 years, we
believe there would be over 2,700,000 new boater and paddle education cards issued by a program that has currently issued
over 450,000 cards in the last 17 years. There is no phase-in language in this bill as there was with the original boater
education card, which means, there would be some heavy up front (one-time) costs associated with getting this program up
and running. For instance, our data storage capacity would need to be increased by 10-fold to prepare for the upcoming
volume of card holders. Our current system is not built for this capacity. There is also direction for a technology component
where a digital card is now an option for both the PEC and the BEC. Both IT focused services will need to be procured
under contract with a state security design review. It will be expensive, and it will take time. And there will be on-going

Boater safety and education 465-State Parks and Recreation Commission
Form FN (Rev 1/00) 182,701.00 Request # -1
FNS063 Individual State Agency Fiscal Note 3 Bill # 1781 HB
operation and maintenance of the database and digital card platform which we will also need to procure through the state.
We assume 2 additional full time IT staff added to our team to procure, manage, and maintain these technology items.

If enacted as written, we will need to do outreach and deliver education to the greater recreational boating and paddling
public on the new laws. This would include one-time costs associated with web design, paid social, billboards, events,
campaigns, and other outreach mediums to educate boaters and paddlers and to connect them to the appropriate resources
for compliance with the new laws. We project 1 additional full-time Communications Consultant to deliver communication
and outreach services. There will also be on-going costs for operational services associated with promotional outreach and
education.

If enacted as written, our team would need to adopt national education standards for the paddle education curriculum, and
we would need to design a new paper exam and study guide for the Paddle Education Card certification. There will be
ongoing costs associated with the printing and supply of education materials for the mandatory PEC. Our team would also
need to update the paper exam and study guide for the BEC. There will be ongoing costs associated with the printing and
supply of education materials for the mandatory BEC. There would be one-time costs associated with the creation of the
human powered watercraft operating and safety checklist that rental agents would need to use to educate customers who
would be renting from them. We would need to add 1 full-time Program Specialist to assist with workload management.

If enacted as written, we would need to add 2 full time Customer Service Specialists to manage the PEC and BEC
application process and to respond to all customer correspondence. In 2022, our team of 1 customer service specialist
processed 21,518 BEC’s, responded to 4,457 emails and took 3,318 phone calls. We assume 452,000 new BEC’s and
PEC’s in year one of implementation.

The Boating Program is responsible for Marine Law Enforcement training, so officers are well equipped to educate the
public, enforce recreational boating and paddling laws, investigate accidents and assist boaters and paddlers in distress. If
enacted as written, we would need to train our marine law enforcement instructors on the new laws and on the skills and
techniques for best safety practices when operating human powered watercraft. Our team would need to create new
instruction courses for officers of our approved law enforcement agencies. Human powered watercraft operation, safety
and enforcement are not techniques and skills currently taught. These would all be ongoing annual expenses. There would
be one-time costs associated with creating and revising education modules and materials in our Basic Marine Law
Enforcement Academy. We assume on adding 1 full-time Program Coordinator to support workflow in our MLE
programming.

One-time Expenditures:
• IT: Digital Boater & Paddle Education Cards, Data Systems Build, Online records Management. $2.5m
• Rule Making Administrative Costs: $50,000
• RCW’s, WAC’s, Law Tables, Public Input (25% Boating Program Manager and 25% PS5’s)

FTE Additions
• 2 IT - 1 Data Management and 1 App Development
• 1 Communications Consultant 3
• 1 Program Specialist 3 in education
• 2 Customer Service Specialist 3
• 1 Program Coordinator for MLE operational support
• .75 administrative support for building internal capacity to create systems, functions, and processes to deliver efficient
public service. Obtaining public input on the process, coordinating with partner agencies, building external support for new
laws: 25% Boating Programs Manager - WMS, 25% Education Coordinator – PS5, 25% MLE Coordinator - PS5
• 7.75 FTE on-going annual expense of $646,518/year beginning in 2024.

On-Going Expenditures
• IT maintenance & Operation: 10% of total one-time cost per year = $250,000. Over 10 years = $2.5m

Boater safety and education 465-State Parks and Recreation Commission
Form FN (Rev 1/00) 182,701.00 Request # -1
FNS063 Individual State Agency Fiscal Note 4 Bill # 1781 HB
• Outreach: web, videos, paid social, billboards, promote new laws, one sheets
• Education Materials: print graphics, exams, home study course books, mailings
• Marine Law Enforcement: Paddle Education Enforcement, on-water training, BMLE module creation, Instructor
training, Priority for 49 approved MLE Agencies to partner with program to educate and enforce recreational boating and
paddling laws.

Total 10-year projected expenses: $21,126,667
Total 10-year projected revenue: $27,163,800
Total remaining that may be distributed to approved marine units per statue over 10 years: $6,037,133

Part III: Expenditure Detail
III. A - Operating Budget Expenditures
Account Account Title Type FY 2024 FY 2025 2023-25 2025-27 2027-29
09B-6 Boating Safety Non-Appr 4,928,000 2,613,000 7,541,000 4,342,391 3,459,346
Education opriated
Certification Account
Total $ 4,928,000 2,613,000 7,541,000 4,342,391 3,459,346

III. B - Expenditures by Object Or Purpose
FY 2024 FY 2025 2023-25 2025-27 2027-29
FTE Staff Years 7.8 7.8 7.8 7.8 7.8
A-Salaries and Wages 478,902 478,902 957,804 957,804 957,804
B-Employee Benefits 167,616 167,616 335,232 335,232 335,232
C-Professional Service Contracts
E-Goods and Other Services 4,261,482 1,956,482 6,217,964 3,039,355 2,156,310
G-Travel 20,000 10,000 30,000 10,000 10,000
J-Capital Outlays
M-Inter Agency/Fund Transfers
N-Grants, Benefits & Client Services
P-Debt Service
S-Interagency Reimbursements
T-Intra-Agency Reimbursements
9-
Total $ 4,928,000 2,613,000 7,541,000 4,342,391 3,459,346

III. C - Operating FTE Detail: List FTEs by classification and corresponding annual compensation. Totals need to agree with total FTEs in
Part I and Part IIIA

Job Classification Salary FY 2024 FY 2025 2023-25 2025-27 2027-29
Boating Program Manager - WMS 104,592 0.3 0.3 0.3 0.3 0.3
Band 3
Communications Consultant 3 58,704 1.0 1.0 1.0 1.0 1.0
Customer Service Specialist 3 43,800 2.0 2.0 2.0 2.0 2.0
IT App Development - Journey 88,428 1.0 1.0 1.0 1.0 1.0
IT Data Management - Entry 71,184 1.0 1.0 1.0 1.0 1.0
Program Coordinator 42,696 1.0 1.0 1.0 1.0 1.0
Program Specialist 3 61,632 1.0 1.0 1.0 1.0 1.0
Program Specialist 5 85,020 0.5 0.5 0.5 0.5 0.5
Total FTEs 7.8 7.8 7.8 7.8 7.8

III. D - Expenditures By Program (optional)
NONE

Boater safety and education 465-State Parks and Recreation Commission
Form FN (Rev 1/00) 182,701.00 Request # -1
FNS063 Individual State Agency Fiscal Note 5 Bill # 1781 HB
Part IV: Capital Budget Impact
IV. A - Capital Budget Expenditures
NONE

IV. B - Expenditures by Object Or Purpose
NONE

IV. C - Capital Budget Breakout
Acquisition and construction costs not reflected elsewhere on the fiscal note and description of potential financing methods.
NONE

IV. D - Capital FTE Detail: FTEs listed by classification and corresponding annual compensation. Totals agree with total FTEs in Part IVB.

NONE
None.

Part V: New Rule Making Required
Provisions of the bill that require the agency to adopt new administrative rules or repeal/revise existing rules.

This legislation would require State Parks to revise or create several RCWs, WACs, and law tables.

Boater safety and education 465-State Parks and Recreation Commission
Form FN (Rev 1/00) 182,701.00 Request # -1
FNS063 Individual State Agency Fiscal Note 6 Bill # 1781 HB
Ten-Year Analysis
Bill Number Title Agency
1781 HB Boater safety and education 465 State Parks and Recreation Commission

This ten-year analysis is limited to agency estimated cash receipts associated with the proposed tax or fee increases. The Office of Financial Management
ten-year projection can be found at http://www.ofm.wa.gov/tax/default.asp .

Estimates
No Cash Receipts Partially Indeterminate Cash Receipts Indeterminate Cash Receipts

Estimated Cash Receipts

Name of Tax or Fee Acct Fiscal Year Fiscal Year Fiscal Year Fiscal Year Fiscal Year Fiscal Year Fiscal Year Fiscal Year Fiscal Year Fiscal Year 2024-33
Code 2024 2025 2026 2027 2028 2029 2030 2031 2032 2033 TOTAL
Boater Education Card Fee 09B 4,520,000 4,520,000 4,755,430 3,164,500 2,826,810 1,490,860 1,460,140 1,525,780 1,377,040 1,523,240 27,163,800

Total 4,520,000 4,520,000 4,755,430 3,164,500 2,826,810 1,490,860 1,460,140 1,525,780 1,377,040 1,523,240 27,163,800

Biennial Totals 9,040,000 7,919,930 4,317,670 2,985,920 2,900,280 27,163,800

Narrative Explanation (Required for Indeterminate Cash Receipts)
There is a $10 administration fee for both the Boater Education Card (BEC) and the Paddle education Card (PEC). All revenue assumptions stem from this one price point for
customers. We believe there would be 2,716,380 cards issued in the next 10 years and we project cash receipts of $27,163,800.

FNS066 Ten-Year Analysis 1
Ten-Year Analysis
Bill Number Title Agency
1781 HB Boater safety and education 465 State Parks and Recreation Commission

Narrative Explanation (Required for Indeterminate Cash Receipts)
• 32,000 new boater education cards from people born prior to 1955. (Per OFM age projection data and RCO SCORP data: 1/3 of Washingtonians participate in
recreational motorboating with 50% compliance rate).
• Assume any remaining funds from the BEC and the PEC will be spent for MLE agency mission partnership.

Agency Preparation: Rob Sendak Phone: (360) 902-8836 Date: 2/9/2023 2:14:36 pm
Agency Approval: Frank Gillis Phone: (360) 902-8538 Date: 2/9/2023 2:14:36 pm
OFM Review: Phone: Date:

FNS066 Ten-Year Analysis 2

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