for the process;
we refer to this agency as the “lead agency.” These
interactions may be, and probably should be, based
on a participation plan (point y) that foresees how
and when this interaction is supposed to happen,
who is to be involved, and which questions should
be addressed (Creighton 2005). The plan may be,
and in our
view should be, designed, i.e., constructed
rationally with a clear purpose in mind
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