BigRack - I'm not trying to be argumentative, but your comments indicate to me that you have missed some of the background on this so maybe this will help (Ben knows way more about this than me, but I'll try). Basically when the population objectives were met Montana, Idaho, and Wyoming were supposed to take over management so when the population objectives were met these states put together plans.
Unfortunately Wyoming's plan was so extreme that the courts wouldn't allow it and the wolf remained on the ESA for a few years. In other words, Wyoming was screwing it up for everyone because of the "kill them all" attitude of their leaders, which was simply politics - a show for the voters that they were not going to be pushed around by the feds or "wolf lovers." In addition the wolf advocates were running their own interference campaign.
Some leaders, Rehberg comes (painfully) to mind, put together bills so extreme they didn't have a chance of passing - again, politics to impress the simplistic folks and the groups like SFW that just saw money in keeping the issue alive while simultaneously appearing to the simpletons that they were making progress.
Finally Tester/Simpson - people who actually wanted a solution - put together a reasonable rider that took the animals off the ESA and allowed Montana and Idaho (and Minnesota, Wisconsin?) to manage wolves within their borders. They were criticized by the simpletons because it didn't have the "kill them all" mentality, but it was solution.
It was also a big FU to Wyoming, since they were not allowed to be a part of it because of their extreme plan. Eventually Wyoming toned it down enough for one of the judges to allow them to manage their wolves, but Ben Lamb (and I'm sure others here) has been saying for years that it wasn't good enough and someone would successfully sue. And he has been proven correct.
I've known Ben for a dozen years and he has been closely involved with this issue much longer than that so pay attention to what he says...