by r6751
On watch changes,normally, one activation token is taken from the watch coming on duty (per sailor). That means that, unless an ongoing busy condition transfers to the new watch, there should be at least one spot available on the new sailors.In other words, watch changes only remove one token. If a sailor had 3 and went off watch, he comes back with two.
The penalty, as you call it, is there anyway. The captain needs some task done, now! He sees his on duty crew are finished, so he changes watch to get men who can at least do one activity.
He can rest the crews later to allow more token removal, but now he must have action.