Government leases and permits are run by bureaucrats - some good with a pro grazing outlook and some bad that have an anti livestock agenda and some just doing a job. They run on 10-year plans and if the plans don't have any flexibility other than reducing use, then that is what you are stuck with. The key is to get a solid allotment management plan in place and build in flexibility on season of use, pasture rotations and timing, etc. One important thing is to have the forage utilization triggers be relevant to the range management goals, which should be based on ecological site inventories and progression to a realistic goal or maintaining a desired range condition. When a government range conservationist and the permittee can work together the system can work. When they don't it is usually really hard on the permittee and then there are the third parties, usually environmental groups, mucking around trying to break the system and get rid of livestock.