Okie, if you're going to use data, use data that represents the Western States that this issue impacts. Out of the Western States of MT, NM, WY, AZ, CO, CA, OR, ID, UT, & NV, the average number of ALL stock producers in these states that hold Federal grazing leases is about 25-30%. If you take CA and OR out of that average, the percentage jumps to 30-35%. I don't have a link to this data since it was a study conducted by someone I know to obtain a Masters in Rangeland Management, but I'm sure if you dug around you could find similar statistics. These are just the prime lease holders mind you and doesn't take into account that there's another big chunk of these smaller producers that form "grazing associations" or sub-lease portions of the grazing rights that don't figure into the percentage. I can see the figure of 3% being accurate if the rest of the US is figured into the mix, as it is in your link, but keep in mind that the largest producers in the country reside in states with little to no Federal Land.
The point is, I don't thinks it's wise to further hamper a large portion of these states agricultural economy by raising grazing fees to the tune of 1000%. Let that number sink in a little bit. If a NR antelope tag rose by 1000%, it would go from $272 to $2,720 over night. The economics of such a drastic increase are bad for everyone involved. Could this program be more fiscally sound? You bet it could, but everything comes with a cost as well. Further, in WY at least, one of the organizations with the most pull when it comes to legislative action is the Wyoming Stock Growers Association, and you can bet your bottom dollar that absolutely no bills that pertain to agriculture will ever pass into law without this groups blessing.