When you realize how many different entities have to negotiate and sign off on a settlement, it's amazing that short sales happen at all.
Though the bank may be servicing the loan, they're just a minor party to the deal (hence their lack of enthusiasm). They have to negotiate separately with all leinholders and the PMI insurer. Since most loans were packaged and sold as investments, getting a signoff from the actual holder(s) of the mortgage (the investor) can take forever.
The convoluted system that securitized packages of mortgages for sale to individual an institutional investors is the problem. There are so many entities who have an interest in a particular mortgage that getting the terms changed (i.e. allowing the short sale) is next to impossible.
"Short pay programs ARE NOT WORKING."
They certainly aren't, but don't expect that to change anytime soon. The securitzed mortgage concept was not designed to allow terms to be easily changed. That's the same reason getting a loan modification is like pulling teeth.