I too do not agree with the regs on this
I think that you should not be allowed to give "fish" to people without a license but rather they should be allowed to give only "prepared fish"
they don't need to be cooked but I think they should be cleaned and packaged to the point of being ready to be cooked, and they should not only count against your daily limit but should be your possession limit, till they have been consumed...
isn't going to happen but