use plans, indicating the overall scale of devel-
opment which must be accommodated and
providing a basis for plan evaluation. The
projections should not, however, be construed as
numbers to which plans must strictly adhere. In
plan preparation, recommendations may be
made to alter the projected course of events,

particularly as they affect the distribution of
population, economic activity, and urban land
use, in order to bring about a more efficient,
attractive, and environmentally sound settlement
pattern. Simply stated, projections are intended
to represent what "might be" in the absence of
plans; plans recommend what should be.

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