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<br />1-19 <br /> <br /> <br />0026 H " <br /> <br />combined judgment of the planning participants. Estimated output <br /> <br /> <br />of the "Without Plan" was compared to the projected demands to <br /> <br /> <br />determine the remaining needs requiring attention during the plan- <br /> <br /> <br />ning process. The "Without Plan" provided a base from which the <br /> <br /> <br />planning proceeded. This also enabled measurement of the outputs <br /> <br /> <br />to be accomplished under the Recommended Plan. <br /> <br /> <br />Development of the "Without Plan" conditions was a sizeable <br /> <br /> <br />undertaking since it involved analyses of all functions and future <br /> <br /> <br />conditions. In some cases, the "Without Plan" satisfied the esti- <br /> <br /> <br />mated needs, opportunities, and requirements. In others, it <br /> <br /> <br />pointed out major deficiencies which were considered in the plan <br /> <br /> <br />formulation activities. <br /> <br /> <br />Plan Formulation <br /> <br /> <br />The results of the inventory of needs and resources were <br /> <br /> <br />compared with the output of the "without Plan" and the residual <br /> <br /> <br />demand used to develop alternative plans to meet the two planning <br /> <br /> <br />objectives. Plans were prepared to emphasize the national economic <br /> <br /> <br />development objective in one case, and to emphasize the preserva- <br /> <br /> <br />tion or enhancement of environmental quality in another. A Recom- <br /> <br /> <br />mended Plan was formulated utilizing elements of both the NED and <br /> <br /> <br />EQ Plans. In many cases these elements were compatible. In other <br /> <br /> <br />cases, however, plan elements were in conflict and adjustments or <br /> <br /> <br />"tradeoffs" were made to come as close as possible to resolving <br /> <br /> <br />the conflicts. <br /> <br /> <br />These adjustments, or "tradeoffs," received little public <br /> <br /> <br />acceptance and were openly opposed by some agencies participating <br /> <br /> <br />in the study. To provide a guide to those dealing with the <br /> <br /> <br />contents of this report in the future, a brief description of the <br />