Eric,
I make my living as a Biologist and work quite frequently with the WDFW. Although artificial production is not my area of expertise, I will take a stab at explaining some of the delays you may be experiencing. Realize that smolt production is tied to a list of variables that may or may not change on an annual basis. These variables include broodstock availability, rearing capacities, juvenile growth rates, release timing (based on size and water conditions), disease problems, and funding scenarios (becoming a big issue). Other factors to consider might include new research related to hatchery/wild interaction, species interation and competition, stock success, carrying capacity, etc. Most recently, fish managers have been bombarded with ESA issues. Is the current stock acceptable? Near my home, we are now for the first time forced to use native summer steelhead broodstock for example. New strategies are being developed on how best to collect native brood while meeting all requirements of the ESA....a massive undertaking. Sometimes there are too few wild fish to mine for brood which further complicates things.
My point is that the outplanting of smolts is much more than simply picking a number and sticking to it. It's very dynamic and changing all the time, much like our rivers. As far as delays are concerned, I won't deny that all agencies could do a better job of this. Happy angling to you.
jed