That advisory panel recommends that anyone in a human-powered vessel, regardless of length, must wear a PFD.
I've noted, in my home waters, that kayakers universally wear life jackets, while rowers, especially those in shells, never wear them. Neither do the people in outrigger canoes, especially those racing
Hawaiian style. It's as if each sub-culture within the rowing/paddling community has its own take on PFDs.
While collegiate sailors are required to wear PFDs at all regattas, those who race
crew (rowing) don't even carry PFDs on their boats.
I'd much rather see each distinct sport set its own standards for safe participation. The USCG is considered one of the five branches of the US armed forces. I find it offensive that any branch of the military should be allowed to impose regulations
on the civilian population, even for their own good. This is government at its worst.