I think there are a couple of reasons why the commercials, wherever they are, will need a larger share of the available fish if they go from gillnets to any kind of seine or reef net.

Money.

A gillnetter is an independent operator. If he catches 100 fish, he sells those 100, to his profit.

If he is made to go from gillnet to seine he will need another person to help. If all he catches is 100 fish, he loses money because he has to pay the crew.

If the intent is to keep a cap on the commercial harvest then it will be necessary to reduce the number of licenses until the new gear becomes profitable.