6.1 Recognizing that direct enforcement of Annex
V regulations, particularly at sea, is difficult to accomplish, governments
are encouraged to consider not only restrictive and punitive measures
consistent with international law, but also the removal of any disincentives,
the creation of positive incentives and initiatives to facilitate
more effective compliance, and the development of voluntary measures
within the regulated community when developing programmes and domestic
legislation to ensure compliance with Annex V.