But in order for that to be the case, the OR would be going against its wishes to extract additional benefits. Clearly the OR were planning to leave, so it was not engaged in a bluff scenario. In any event, I understand Herbert sticking to his guns, but his (the state of Utah's) position is a long shot at best, so it feels like the state is losing twice. Once from business leaving the state, and second the state not getting control of the public lands. The worst case scenario in game theory.