doesn't work to acheive what? Where? Under what circumstances?
I agree that badly drafted law and poor enforcement may lead to poor outcomes. Also, legislation and regulation is not the 100% cure - education, social pressure, the power of insurance companies to require proof, all contribute.
But every year we see posts like the op - a constant stream of complaints about poor boat-handling, navigation, colregs compliance, harbour bylaw compliance. Just as there is a claim that legislating licincing and registration don't work, its obivious the status quo is not working either.