If it isn't open to EVERYONE, then you are going to see people get CO ID cards to get around it. Or they are going to play "hey mister" to get it.
Or even worse, make their CO friends drive all over the place to get it for them...
They guy who flew in 55 pounds and got caught in Boulder received a $10k fine and 2 years probation. The Feds did not prosecute.
THEY DO NOT CARE ABOUT INDIVIDUALS. I know Donkey, but Barkowitz was the exception.