FTA demanding a recovery plan is a result of the project failing. Unfortunately, the Pro-elevated heavy rail at any cost crew successfully fooled many people for a long time.  Now, perhaps the cat is out of the bag.  FTA documents state that it is not necessary to go elevated, heavy rail all the way to Ala Moana.  Planning for at-grade rail and/or BRT from Middle Street would be one way to avoid any sort of required reimbursement to FTA.