cohoangler - this is enlightening. Thanks.

This leads to my other big question (and I apologize if this is pedantic)...

Why does NMFS basically rubber-stamp the plan when tribes and state have an agreement at NOF, but when they don't (like now), the path forward with NMFS is totally unclear? I understand there's more work when there are 2 plans instead of 1, but going from rubber-stamping to "totally unclear" is a vast difference.