No, everyone does not have to have a CDL. I've run into this on more than one occasion, with and without my horse trailer. This is part of the problem why I have been stopped for blowing off a scale, lectured for not having DOT numbers, ticketed for no medical card and HOS violations. DOT rules do not apply in every situation, even if the CVEU of NYS says so. You might very well be the guy who wrote me in Sept. 2017 for no medical card and HOS violation because of no log. That joker did not look at the back of my license (front says A, back says A - noncommercial) or listen when I kept repeating, I am NOT commercial. Did waste a bunch of my time roadside though.