Under the 2013 rules, a boat otherwise subject to the Racing Rules of Sailing could be involved in an incident where there was significant damage or injury and yet would not be subject to any penalty. The typical example is where two boats collide prior to the preparatory signal as they are tacking back and forth below the start line waiting for the sequence. It is not an uncommon mistake, but under the 2013 rules, one boat could cause such damage to another boat that that boat can't continue sailing, yet the 2013 rules provide for no penalty in that instance (other than a potential but unlikely RRS ).

The 2017 change to the Preamble to Part 2, and RRS (b), now allow a boat to be penalized before the start, after a general recall and between races.  The Preamble to Part 2 now clearly states that RRS  applies to boats that are sailing in or near the racing area and intend to race, are racing, or have been racing. RRS (b) specifically exempts RRS  when a boat has caused injury or serious damage.

The only issue with this new policy is the question, when is a boat not in or near the racing area.  This will be more of a subjective decision left to the protest committee, but it would seem that it wouldn't apply until a boat has sailed to where she believes she will be racing and/or she begins to maneuver as if she were in the racing area.

The important thing to remember as a competitor is that you are obligated to retire under RRS (b) if your boat caused injury or serious damage, full stop.  If you are involved in such an incident in or near the racing area, and you believe your boat broke a rule and caused injury or serious damage, you must retire from the next race even if you were not racing at the time of the incident.