Here's an interpretation, straight from the book, though it does not cover all situations...
SITUATION 5: The defensive wrestler stands and controls the offensive
wrestler’s hands. The offensive wrestler attempts to bring the defensive
wrestler to the mat, but is unable to do so. QUESTION: Should the offensive
wrestler be called for stalling? RULING: The offensive wrestler shall not be
called for stalling in this situation because the offensive wrestler is aggressively
attempting to improve and return the defensive wrestler to the mat.