My feelings that personally two tiered would never be an issue for me. If there were no limits other than having to have the upper tier to keep fish, why would I bother. I fish catch and release. I can't remember the last time I bonked a fresh water fish, never in Alberta.
Although I do support the concept for anyone who wished to keep fish, I fear however that anyone who didn't care isn't going to bother either they are gonna just take their chances.
If there was a signifcant increase in cost I think I would vote for increased enforcement rather than two tiered licensing. It is an interesting concept.