You nailed it, if your mission is to pick up a downed pilot you get within range of THE downed pilot (it has to be the specific one in the mission, random downed pilots are out of luck) and a menu pops up for the rescue. Assuming you're on the surface, if you're submerged and in range you won't get the rescue popup until you surface. If your mission does not include rescuing a downed pilot you can cruise through a sea of the poor beggars with no option to interact in any way.
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