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Years ago, and at least in the 70's when I started striped bass fishing, charter boats never let people keep more than 1 fish. You keep 1 fish and the rest go to market. Simple rule understood by all, and people kept what they were allowed to keep. Then when there were no bass they went for other fish. It wasn't complicated.
Charter boats don't need to let people keep 2 fish to stay in business and I find that most of the charter guys who think they need 2 fish are relatively new to the business.
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