It appears to be more of a user group issue. Maybe the guides are lumped together as one user group and sportsanglers are lumped as another. It is your opinion that the guides are taking more than their fair share of fish. This is mostly due to non-local illegal guides.

In the states, guides are part of the sportsangler user group and as such have equal access to fishing opportunities. If you are trying to limit the amount of rods for guides, it truly sounds like an allocation issue (who gets to catch the fish.)

Its easy for me suggest improvements, knowing I will never be part of the solution implementation, but that won't stop me. It seems as though you are using the "Boot Camp" approach when you punish everyone when only a small fraction of the group is breaking the law. This doesn't solve the problem of illegal guiding, you will simply push them onto another river and will deny access to those who are abiding by the law.

Law enforcement has to be part of the solution and catching illegal guides needs to be made a higher priority. The "we don't have the resources" excuse is an easy way out. Come up with a another solution.
1.) One suggestion I would make would be with local help set up surveilance operations targeting those you believe to be the biggest abusers. Now that sounds like fun!
2.) An increased surcharge could be part of generating revenue to hire additional CO's. I know its common to charge non-residents surcharges for fishing in Canada, maybe this can be increased, but remember you are discouraging visitors.

Non locals are not charged extra surcharges down here and guides have full access to all sportsangling area's, so the differences in fishing "cultures" is part of the problem. Down here, eventually you will get nailed if you are fishing illegally, but I would assume many guides don't feel they are breaking a major law because of the differences in what is acceptable guiding practices in the states vs. Canada.