First, in general it is easier to help if you supply a full working program (with data) that can be run to produce a graph. You can use one of the data sets in SASHELP to illustrate your issue. It also helps to know the release of SAS you are using (9.2, 9.3, etc.). I assume you left out the "proc" by error.
Having said that, with SAS 9.3 or higher release, you can use SCALE=count to get what you want. I do not have access to SAS 9.2 right now, but if you do, you can try this code.
proc sgpanel data=sashelp.cars noautolegend;
title "PW Distribution by Concentration and Acceptance";
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