Salmo -
In your Skagit example have you included the substantial punk fishery during the keep season? When there was an ongoing creel census on the Skagit it was common during the keep season that 60% of the total number of anglers counted on a given angler count were plunkers. Often more than 50% of the total Skagit angler effort was downstream of the pipeline at Sedro Woolley.

Most up river anglers never see that effort so in their mind it doesn't exist. The first time I ran a boat from the lower North Fork to above Rockport I was shocked at the extent of the plunk fishery. While you and I may not care to fish in that manner many do and they represent significant angler interest. For some reason they are not be fans of CnR.

Tight lines
S malma