 Solution

The baryon-to-photon ratio is extremely small, of order $10^{-9}$. Thus even when the typical photon energy is below $I$, the high-energy tail of the blackbody radiation contains enough photons above the ionization energy to reionize almost every newly formed hydrogen atom. Cosmological recombination becomes effective only when this exponentially small tail is also small compared with the baryon-to-photon ratio. Consequently recombination occurs at a temperature much lower than $I/k$, consistent with $kT\simeq 0.03I$. The exact freeze-out history also depends on reaction rates and expansion; the equilibrium estimate explains the large suppression of the temperature.