That's exactly my point. The current policy is mostly against new providers (I know many think it's a policy to help them). What about my previous suggestion, like a policy to force ipv4 space holders to return ex. 10% of their ipv4 per year. Money/ effort involved with the transition is no valid concern against it, because the same would hold true for the /21 limit for new LIRs.
I would support something like this but with a few changes. I would set some milestones, let's say by the end of 2016 you need to have 5% IPv6 adoption rate or you have to return 5% from the IPs that were allocated to you before the end of 2006 (so it would be a 10 year frame). Then at the end of 2017 they would need to have 10% IPv6 adoption rate or return 10% of the IPs allocated before the end of 2007 and so on. Something like this would push the "old" ISPs to make the first steps towards IPv6 and would not affect the relatively new entrants whom would not make sense returning 50-100 IPs from their /22. I would support this, although I know it would be very difficult to ask Telefonica to return Orange or Deutsche Telekom return millions of IPs. RIPE NCC is not the police but we can all think of a way to implement this, if the community would support it. Ciprian