Well it’s a bit of a black box that does not have a great deal of transparency, which should be addressed. Again, accountability is good.
But, the way I have experienced this, is that the charity keeps a file of eligible program participants and their preferences (elk, mule deer, etc) and endorsements (crossbow, CHAMP, etc) abilities, along with a list of tags they have received.
Once they have a tag they compare it to their list of participants and start making calls. Most of the tags I have seen distributed were on very short notice, often less than a week. So the charity is trying to balance the needs of participants with their capabilities, their availability and their past hunts.
So this means those who have the means to hire help, the availability availability to go at a moments notice and / or the ability to hunt on their own may receive more tags than those who are less available or less capable.
It’s certainly not perfect, nor precise. But if you see a single person receive more tags than another it could be for one of many reasons.