A quick review of FL law, it seems the State can impose possible fines of $30,000 or more, and arrest and imprison the operators of illegal charters. I would not be surprised that impoundment isn't also permitted. Someone with better knowledge of FL law than me can correct that info as necessary. So it would seem that the lack of serious enforcement is the issue? To me, it would be some kind of criminal homicide statute that would attach if a death resulted from a lack of PFD's? If there were minors aboard it could be child endangerment even without an injury?