Ensuring Safety At Sea
by Federal Bureau of Investigation
September 10, 2024

Imagine lounging on the deck of a cruise ship, the shimmering ocean stretching endlessly before you, ready to set sail to new horizons and countries.

While cruises promise relaxation and escape, the unfortunate reality is that serious crimes can and do happen on the high seas. The FBI, alongside its partners, works to ensure the safety of the millions of Americans traveling aboard cruise ships every year.

Cruise ship criminal jurisdiction is complicated, and keeping U.S. passengers safe at sea presents unique challenges. FBI Tampa Special Agent Mat Pagliarini and FBI Los Angeles Special Agent Matt Parker are experts at navigating the complexities of cruise ship crime from coast to coast.

Because cruise ships are registered in one country but travel through international waters, and also carry crew and passengers from many countries, when a crime occurs, more than one country may want to investigate–which raises critical questions.

"It really depends," said Pagliarini, who investigates cruise ship crime out of Florida’s Cape Canaveral. "Do we have jurisdiction based on where the ship was? What was the next port of call? Was a U.S. citizen involved?"

The location of the vessel, the nationality of the suspect or victim, the ownership of the vessel, the points of embarkation and debarkation, and the country where the vessel is registered all determine the FBI’s role and ability to investigate.

Combating Cruise Ship Crime Through Collaboration

Beyond U.S. borders, cooperation is critical for crimes at sea. Investigations are governed not only by U.S. law but also by the laws of other nations and international law. When dealing with foreign vessels, the FBI must first obtain consent to board.

Once on board, time is also critical.

FBI investigators have a small window to secure the crime scene, collect evidence, and conduct witness, victim, and suspect interviews before the vessel departs.

"You have everything you need to solve the crime on the ship," said Parker. "You have a short amount of time to do the best you can to solve this case or collect all the evidence you need to solve this case and then your crime scene leaves."

The FBI received 180 reports of alleged criminal activity on board cruises in 2023, from thefts to missing persons cases. According to both Pagliarini and Parker, sexual assaults topped the list of cruise ship crime reports they received, followed by physical assaults.

When it comes to crimes like sexual assault, the Cruise Vessel Security and Safety Act (CVSSA) of 2010 requires these incidents be reported to the FBI.

"The CVSSA basically lays down all the rules that cruise line cruise ships have to follow to be in business," said Pagliarini. "They have eight reporting requirements, and they have to notify authorities if it meets the threshold for those eight types of violations or allegations."

The eight mandated reportable incidents are homicide, suspicious deaths, missing U.S. nationals, kidnappings, assaults with serious bodily injuries, sexual assault, firing or tampering with a vessel, and theft of money or property of more than $10,000.

The FBI coordinates with the U.S. Attorney’s Office to determine if we have jurisdiction and, if so, will usually board the vessel when it docks. When working aboard the vessel, Bureau personnel emphasize protection of life, preservation of evidence, and securing the crime scene.

Parker said alcohol is often a major factor in many of the cases he has investigated, including cases involving sexual and physical assault.

"They sell those drink packages, and you may get a good deal on it financially, but you have to still take care of yourself and others."

How To Stay Safe At Sea

Passengers can help protect themselves by staying vigilant, being aware of their surroundings, securing their belongings, and promptly reporting any suspicious activity or incidents to ship security.

Pagliarini explained that typically cruise ships have their own security personnel on board. Cruise line security personal act as first responders, ensuring safety for passengers until they can hand the incident over to law enforcement.

When a crime is reported and meets one of the eight mandated reportable incidents, ship security officers connect with their U.S. shoreside-security counterparts who pass the report along to the FBI to determine jurisdiction and next steps.

In addition to reporting the incident to a cruise ship security officer as soon as possible, you can also report the incident to the FBI directly. Knowing your rights can help you speak up if something happens.

For investigators, a big challenge is delayed reporting.

Pagliarini stressed the importance of immediate reporting by victims and witnesses, especially considering the complexities of investigating crimes at sea.

Delays often occur because victims feel ashamed or uncertain and may only report the incident after discussing it with others once they return home, said Pagliarini.

"We get that a lot, or somebody has something stolen, and they don't know until they got home and then report it," said Pagliarini. "This delay complicates investigations, especially when victims are far from the location of the incident."

Parker and Pagliarini suggest passengers avoid taking valuable jewelry ... as it's easy to lose or have stolen ... be responsible when drinking, and go directly through the cruise line company when booking excursions.

They also explained that it is important to familiarize yourself with the guest services locations on the ship. And if you see an incident, do your best to be a helpful witness.

Behind every cruise ship crime incident is a human story of victims seeking justice and families grappling with loss. The FBI's Victim Services Division offers support to those affected by crimes at sea.

"It's very common if we have a juvenile involved, we make our best efforts to notify Victim Services ahead of time, and often they’ll accompany myself or whoever's going out initially on the investigation," said Pagliarini. From counseling referrals to support navigating the criminal justice process, their efforts extend to both victims and their families.

Additionally, the FBI conducts specialized training for industry partners, enhancing their ability to assist law enforcement with securing and documenting a crime scene at sea.

The collaborative approach to security at sea, along with passengers understanding how to mitigate risk, is vital to ensuring the FBI can work with partners at every level to investigate crimes on the high seas and keep Americans safe.

Federal Bureau of Investigation (FBI) | Department of Justice