So here are the variables as I see them:
1/ No accurate counting of private boats (or rec fishermen)
2/ No accurate accounting of days fished by each rec
3/ Keeping short fish? I know for a fact that several charter boats in my area allow the keeping/fast cutting of "close enough" sub-legal fish, so that their fares "go home with something." Obviously no numbers of that catch quantity. (I know this because it came right out of the mouth of some charter captains that I know). Also, we see what goes back in the water from the decks of party boats that fish right next to us. Obvious cheating.
4/ Variable catch results boat to boat/man to man.
5/ I know charter boats must fill out a trip report. Anyone ever check the veracity of those reports? How often?
6/ Boats fishing "NY-area grounds" from NJ. We throw back sub-19" fish (19.5" fish now). NJ boats fishing right next to us put those fish right in their boxes - and sail back to NJ. All legal as most of this fishing occurs outside NYS waters (Federal), but creates an obvious skewing of the NY landings
7/ Right out of a draggerman's mouth while I was at Mark Flynn's old shop - NY boats drag to the West in the morning, land their fish in NJ (illegally? Maybe, I don't know), then drag the same exact trawl line back to the East and land those fish in NY (also probably now illegally). According to him, the fluke will swim to the drag-disturbed bottom to feed on whatever the drag net stirred up. Those fish get caught up on the return trawl. GPS track plotters are the devil's doing.
8/ Every now and then a dragger gets bagged for illegal catch quantities. Those reports are few and far between. As I see it, no real accounting for whatever other boats are doing this. I suppose insufficient personnel to properly police this practice.