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Afterhours,
You missed one very important point, every state gets a predetermined minimum of the dingle-johnston funds, its only what's left over, that gets divided according to the number of licensed fishermen. The amount of extra funds that the costal states would get from going to a salt water license has been estimated by several groups, and they all show that the increase in federal funds would be very small, much smaller than the fees collected from the license itself.
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