Mixedbag - I will try to throw out a few answers. If I am mistating, I am sure some will step in to clarify.
The three states were told that once a certain level of was were present (30 packs over the three state area), the delisting process would start. Fair enough. It didn't take long to reach that level.
It took a few years for each state to develop their plans and submit to the USFWS for approval of the plan. In the interim, the wolves have continued to breed like......well, wolves.
This process to get the state plans accepted has been the legal harang that we all knew it would be, giving the wolves even more time to breed.
Therefore, we have been long past the original population levels that were the trigger for starting the delisting process. There was never any commitment that we would only have that many wolves, only a number to trigger the start of delisting and a baseline population that if we got below that, would trigger re-listing.
The state plans were submitted to the USFWS service for acceptance. The ID and MT plans have been accepted. The WY plan has been rejected by the USFWS. The delisting agreement states that all three states must have acceptable plans for delisting to occur.
The most recent Malloy decision was based on the issue of the USFWS allowing MT and ID to move forward with their management plans, while WY was not. The planitffs claimed that was not allowed, as it was all three states, or none. Malloy agreed.
So, we are at this point. Wyoming has its plan, and is sticking to it. There right to do so. USFWS cannot do anything about it and has to follow the decision of Malloy.
I see only two solutions for relisting - 1. Wyoming submit a different plan, something not likely to happen. 2. Congressional delisting and exempting of this non-essential experimental population from the ESA rules most other species are protected by.
Right now, seems like all the energy is being invested in option 2. If neither of these option happen, we will never see de-listing, making me feel, as I stated earlier, that the states will never again sign off on a re-introduction agreement of any species, with the Feds.
Hope that helps. And, yes, you are right, the recovery plans of each state were crafted by the citizens of the state, not the Feds.