It’s interesting and the difference between the two is very important. It adds up to real dollars. Your interpretation adds a significant burden, the difference could be a project being scaled down or not happening, which in turn would be less accessible as a result. So to answer your question, depending on the occupancy totals single user cluster bathrooms can be required to have 3 total. In this scenario your interpretation requires 66.6% to be accessible (not less than 50%). In the same exact same scenario my reading of it requires 33.3% to be accessible (not more than 50%). Given that a much lower percentage of the population would require this accommodation, you are adding a lot of unjustifiable red tape. The fact that other parts of accessible design only requires 5 or 10 percent accessibility, a requirement of 66.6% is extreme fringe. I know you are trying to be cautious but requiring fringe as a baseline is not in the spirit of the codes.