On a controlled hunt of 50 tags. 37 residence and 13 no residence. Why does the state only draw 5 of the tags for out of state? When the state and wildlife would benifit more if they drew the remaining 8 hunters who had that as their 1st choice?

Nonresident Tag Limitations (page 82 of the 2012 Big Game Rules Book) In controlled hunts with 10 or fewer tags, not more than one nonresident tag may be issued. In controlled hunts with more than 10 tags, except unlimited controlled hunts, not more than 10 percent of the tags may be issued to nonresidents.