controlled hunt

Controlled Hunt area 3.1*

I was fortunate to draw a controlled hunt cow tag, in area 3.1*. I am not that familiar with the area. I have read the special instructions and I am a little confused. I know there are restrictions but, the part that says " The portions of 3, 4 and 6, on and within one mile of private land" (Then it gives all the locations) "and then follow the entire unit 3 boundary to point of beginning"

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?