I would be willing to bet that some of the intent here is safety. Last year 4 people died on the bar near Buoy 10 just on a weekend that I was there. I am a very experienced skipper and water safety instructor with CPR and first aid training and I was in the soup out there and saw the dangers first hand. A less experienced skipper in a smaller boat could kill himself and his customers. Witness the experienced guide who killed half his passengers crossing the bar out of Tillamook this year. The water there is very dangerous and kills lots of people. Part of the charter licensing is a much more extensive training and certification program. That alone doesn't make a safe skipper but in this day and age of lawsuits and libilities gone wild I think government errs on the safe side.