This may sound whackey, but here is my logic.
The demand for commercial fishing is to supply the market with fish.
The demand for sport fishing is for enjoyment and fresh fish.
Not every fish lovers like to catch their own fish.
They may not have the time to go fishing.
So to balance out the budget and the resources, how about allowing fisherman to obtain multiple punch cards of their friends, relatives, neighbors, co-workers, etc...
This way a good (or lucky) fisherman can catch fish for the card holders.
Its a win win situation; except for the commercial fisherman.
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Know fish or no fish.