I'll tell you what, it's a no win for F&G. All the office jockeys seem to be so aware of deer numbers, elk numbers, migration times, predation, and every other issue in the world. Here's an idea....let them do their jobs, if any issues arise with below objective units, cut all non resident tags. I'd gladly pay higher tag fees so offset the cost revenue. As an Idaho native I'm really tired of the advice and "ideas" from non resident hunters.
And to answer your question, elk numbers are decent in 28, get off the road, put in your miles, glass, and you'll find elk. All easier said than done in that country. Certainly elk to be had. Good luck.