id speculate they are selling the bunker to guys doing lobster and or offshore for and wanting fresh chum.
the probelm with regulating the number of harvested bunker is many fold. One is that the size would be probelmatic. So someone wants to net 1000 peanut bunker, or baby bunker, which probably give about 5 lbs of bait, woudl also be restricted at the same amount as someone which want to take 1000 adults, which would be like a 3 year supply for most people. They sell bags of like 500 peanuts at most tackle stores so people just buy them instead..
Also, even if you restrict what people can take, even if the samll peanaut bunker, they are still going to get used whether they come from a bait dealer (or tackle store as frozen or fresh), or if the person catches them themsevles . If the bunker dont get used for bait for whatever they need it for, well, they people might not end up going out fishing. So its really just a little funny trying to restrict this.
My thought is just too just get back to fishing. There reall is plenty of bunker out there, although whne the migration pattern has passed, they do appear to thin out in some areas. There really are plenty of bunker, its a amfsc managed fish. Really, the least thing needed is more restrictions on the water.