I don't think a majority of 28% is that big a deal. When you compare it to America where there is only two major political parties, is seems small because the winner typically has a percentage of over 50%. If you added just 1 more more major political party then the amount of votes to win could be like 34%. There is also the factor of uncounted votes that people mentioned before.
That's not how the BM system works. Everyone has 7 votes: 4 go towards your first choice, 2 to your second choice and 1 to your third choice.
If
everyone in the realm puts the same person in first place, that person only gathers 4/7=57% of the vote. 28% means half the people put the person in first place, or some other combination of second and third place.
