Most of the fishermen I see tend to use their commonsense when fishing. If the swell looks bad or the location is bad, they come appropriately attired. DPI officers cant be everywhere and the only way a police would end up fining anyone would be post an incident. I've seen neither at my spots and I don't think they even visit such places.
I've seen more tourists and kids jumping all over. Some even high. More people hit the beach at unmarked locations and take more risks and ultimately get in to more trouble. I don't really see how making it mandatory to wear a pfd when fishing would work. Heck I know this guy who fishes without a licence.
I think the key to this is more information distributed. If you see some one, doesn't matter if they cant speak English but try and get them to understand the need for safety
That said I saw this chap fishing on the rocks with me wearing thongs and the swells were bad last weekend. I should have mentioned that this was not safe but somehow was hesistant.
We can educate and the authorities can do their best but as adults we need to make our own decisons. Just about everyone has access to the internet and is aware of these issues