It appears the end goal is to simply reduce the number of fish encounters per angler. The rest of the stuff doesn't really matter.

If that is indeed the goal and you are simply trying to figure out how to do it, I see the following as the two easiest solutions:

1) Do not allow fishing from a floating device. For those that have lived this rule in other places, it effectively eliminates certain types of fishing (plug pulling, side drifting, etc.). On larger water, it almost guarantees that some fish will be in water that can't be fished.

2) Lottery/draw system to reduce the number of anglers. You might as well put a giant price tag while you are at it because you will generate a fair amount of revenue while still filling up every angler slot that is allowed. I've predicted for years that this type of system is how things will eventually shake out.

The problem is that some or most will feel "wronged" no matter what is done. Locals will argue they should get a fee-free opportunity to fish "their" river. Many of us will lose out on our "favorite" way of fishing, whatever that may be.