No regulation is fool-proof, and this will certainly be pushed as it will impact a number of people (just as the 15 fish per day, two days a week has).
There are a number of charters where two or three guys pay for the charter, either full or reduced rate, with the understanding that they will be fishing for only commercial sized fish and the fish will be sold by the boat, versus taking the fish home with them. It's more exciting to catch the larger fish for them, and maybe they could care less about taking them home, and just want to go out and catch a lot of big fish. When the boat gets boarded, the Captain and guys say it is not a charter, they are all just "crew". I am not sure, but I don't think "crew" needs their own license if they are on a boat with a boat license(?).
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