This "may" clause seems that it would favor "team racing," where you work together to beat someone. Team racing is illegal.
Well, "team racing" has a different set of rules than "fleet racing".
Nitpick aside, you are correct. In fleet racing, if two boats collude, then they break Rule 2 "Fair Sailing". If they deliberately set out to do so, then they might also be protestable under Rule 69 "Gross Breach of Sportsmanship".
Regards,
Eric
