My understanding of the situation is that landowners apply for vouchers through a drawing process just like hunters apply for tags. With money to be made through the sale of vouchers, more landowners are applying, so no one knows what they will get until after the drawing. In other words, landowners who may have promised somebody vouchers, may have come up with no vouchers to meet the commitments. This is how its been explained to me, by a landowner or 2 in Colorado.