RE: the number of acres and number of cows...
In some of the drier regions base property for holding a grazing permit is on the water you own/control and not on the land. Regardless, the idea of reciprocal base property was done away years ago and IIRC through the court system. Meaning, you do not have to have to be able to produce the forage on your base property to feed the number of animals on your permit. Base property could be a parking lot. That same change in base property rule has allowed some non-forage producing entities to hold grazing permits. Some of which have been 'championed' on this very site.
Poor range management & disregard for carrying capacities on said range is bad land use regardless of who the manager or owner is.