I do not think safety is being penalized. Either the equipment is always going to be there when you are racing i.e. permanent or it is not.
If it is a part of the boat that can be easily detached then the onus is on you to convince the measurer that it is always going to be there and is not likely to be changed or removed.
A purpose built bracket that fits a specific bit of equipment is probably going to do that. a bag tied on with a bit of string is unlikely to.
Even if you had a specific rule about permanently attached safety equipment you would still have to convince the measurer that it was permanent.
