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In this Wednesday, April 16, 2014 file photo, South Korean rescue helicopters fly over a South Korean passenger ship, trying to rescue passengers from the ship in water off the southern coast in South Korea. The doomed ferry Sewol exceeded its cargo limit on 246 trips - nearly every voyage it made in which it reported cargo - in the 13 months before it sank, according to documents that reveal the regulatory failures that allowed passengers by the hundreds to set off on an unsafe vessel. And it may have been more overloaded than ever on its final journey. (AP Photo/Yonhap, File) KOREA OUT

In this Wednesday, April 16, 2014 file photo, South Korean rescue helicopters fly over a South Korean passenger ship, trying to rescue passengers from the ship in water off the southern coast in South Korea. The doomed ferry Sewol exceeded its cargo limit on 246 trips - nearly every voyage it made in which it reported cargo - in the 13 months before it sank, according to documents that reveal the regulatory failures that allowed passengers by the hundreds to set off on an unsafe vessel. And it may have been more overloaded than ever on its final journey. (AP Photo/Yonhap, File) KOREA OUT

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