There is confusion around that language in the beneficial ownership survey. It asks for the licence-holder, and the licence-holder may be a person who is operating that lease, who may be leasing it. Licence-holder is not the same as licence owner.
If a large company, for example, owns a lot of licences, they may not report that way and they might not be forced to report that way because they're not holding the licence. When someone is fishing, it's transferred to their boat and if it's transferred to their boat, then they're holding that licence.