And she points out that it was Nesta who she is accountable to on this.

A Crown of Swords

Chapter 34
Ta’veren

"Yes, but there is the matter of the Bargain." That word was plainly capitalized in Harine's tone. "The Jendai Prophecy says you will bring us to glory, and all the seas of the world will be ours. As we give to you, you must give to us. If I do not make the Bargain well, Nesta will hang me naked in the rigging by my ankles and call the First Twelve of Clan Shodein to name a new Wavemistress." A look of utter horror stole across her face as those words came out of her mouth, and her black eyes went wider and wider by the word with disbelief. Her Windfinder goggled at her, and Derah and Taval tried so hard not to, their eyes fastened to the table, that it seemed their faces might break.

I bring up the previous Bargain with Nesta because Zaida didn't actually get Traveling, she used the knowledge as her leverage to get the LAND she wanted. The Sea Folk want land throughout the world so they can expand their trading empire beyond the coasts, with or without Traveling this has been something they bargained for, Harine's Bargain gives us plenty of evidence that they wanted it before Traveling and the wording makes it clear that it was a broader mandate than her one clan. She used the authority of the MotS to bind the entire SF people. Something I very much doubt she could have done without prior authorization which leads to Nesta giving the order to secure the land as what they wanted from the Bargain. Harine made a Bargain she knew she would get punished for in order to obtain it, but realistically her Bargain is vastly more far reaching than Zaida's as it also give the SF land in Tear, Illian and Arad Doman as well as Cairhein. Her concessions are the problem.

Zaida's Bargain was viewed as favorable because she got the land without giving up much of anything, essentially labor. In fact, they could have found a spot outside of Andor along the river to set up a trade enclave and still used Traveling to great effect, but they want land close to the major cities to make trade easier. Zaida managed this with a minimum cost to her people and secured a strong alliance with the most powerful nation in the region.

Elayne isn't actually all that wrong about the enclaves. In order to trade inside of Andor the goods will eventually have to enter Andor from the Enclave and will eventually be subject to taxes. Traveling doesn't change that, all it does is make transportation faster and easier. Certainly the Sea Folk will have enormous profits from the enclaves, but the governments of these nations also stand to profit from both tax revenue as well as diversification of goods.