Entirely possible you are correct, also my wording was a bit messy. I generally try to refrain from disagreing with you since you seem to kick my ass with facts, knowledge and history. I am getting my history on this from the White Paper the G&F put out about NR elk license allocation in 2015. It has some language that 1997 was the first year they issue cow/calf tags and at that time they were full priced and subject to the 7250 allocation. Also in 97 the G&F formed a committee to evaluate how to increase NR elk licenses. This effort was stopped in 1998 when WyOGA sued the G&F for their method of allocating NR deer and elk licenses. In 1999 they created the reduced price Type 6&7 which was not in the 7250 allocation. It doesn't expressly say this in the WP but I assumed the creation of 6&7 was done to some degree to appease WyOGA about the corresponding decrease in NR Gen tags. I believe 1999 was the first year a person could get two elk tags, one FP, one RP. Not certain I am right. 2011 was the first year a person could get two reduced price elk tags, either one FP and 1 RP, or 2 RP licenses. The WP has some language that this was done because of the number of leftover tags at the time. Then in 2013 they went to up to 3 elk licenses with 1 FP and 2 RP or 3 RP. I recall this was done for the same reason, too many leftover tags people not killing enough cows.
Does this agree with your recollection?