The quota for winter I is almost never filled and it gets rolled over to winter II.
So... what does it matter as long as they take the quota by the end of the year. The state goes through the expense of monitoring it and adjusting the effort so that the com fishery doesn't take the whole quota in a few weeks. The paring it out part is for them so that the little guys can have a shot and so the market doesn't get flooded.
If the industry doesn't like it, take off the effort controls. then you will see them howl when the big boats clean them out by April
The entire scup quota hasn't been filled in years, though that may change this year witht he drastically reduced quotas. The way it works, the vast majority of the quota gets divied up between winter I and winter II and only a small portion gets allocated to summer, when most of the small boats fish. Winter I quota is almost never fully caught, but instead of allowing the excess quota to be rolled over into summer, they keep it for the bigger boats and roll the shortfall into winter II. For the last five years or so the increased quota (including the winter I shortfall) in the winter II period hasn't been caught either.
So the big offshore boats get the vast majority of the quota, and can't or won't catch it, and meanwhile the small boat guys who only fish during the summer get screwed.