The reasoning as I understand it is:
a) The safety test is written with no boat operation required, so there is no need for learning to drive a boat before taking the safety test. No learners permits needed. Take the safety test, then someone can teach you to drive a boat.
b) If they allowed anyone to drive with a licensed driver on board, then the second drivers, or occasional drivers would never get licenses. They want as many people safety educated as possible.
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