Why did the DNR wait 3 additional years to close commercial fishing ???

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Here is the creel surveys as provided by the DNR, please note some rather interesting facts on this spreadsheet.

1989 - the quota system was installed
1990 - the CamAm Investigation starts
1993 - the CamAm Investigation ends with charges being filed.
1996 - the DNR finally closes commercial perch fishing on Lake Michigan when the number of females hits a low of just 5%.

Why would the DNR continue to let commercials harvest perch when the number of females was below 20% let alone 5%. Also notice the come back in the number of females once commercial fishing was closed? Quota years were the hardest on female perch.