Of coarse they could specify ages. They for many years specified tou had to catch so many of one sex before you keep any of the other.
And by controlling all young aged stock you will up the ages in your herds and between natural aged mortality and the removal of up and coming stock you should be able to control numbers. If you get enough participation and enough permits issued.
As for the hunting tag issue. I don't believe you would get enough participation to actually control numbers to the extent of making a dent in the population. That's just my opinion but honestly how many guys are going to go hunt an old horse year after year?
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