It took some experimentation, but I found the problem.  It works fine if I fast travel to the tavern, but if I walk through the side door, then Froyla does not appear and he remains on the ship.  I fixed the problem and updated ERAS.  The same problem exists in COAS and GOF too, so I fixed it in all of them and now, if you walk through the door, the extra passenger appears in the tavern; the problem exists because of a lack of sufficient "goto" locators in the tavern for a larger number than 3 passengers for the same tavern location.