First, the training certificate is not a license, although you could view it as such. Second, the government would make no money on the training certificate, NRA/Cleet instructors would, or gun shops that offered the class through an NRA/Cleet instructor.
The reason for doing what he did is two fold: 1) Having separate laws for OC and CC make it easier. States that have the two tied together have more problems than those that have separate permits (According to Russell) 2) Having a training certificate that costs far less than the CCL would allow more people to take advantage of the ability to open carry. The approximate $200 fee can be a lot of money to some people, especially retired persons who are on a very limited income.
I wouldn't expect them to say the those with a CCL are already covered as the training in the SDA class in regards to safety is about zero. The class covers the law a bit, and all you have to do is squeeze the trigger with the muzzle in a fairly safe direction. Nothing about safety is required.
This is all unnecessary bull crap.