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In 1992, after almost five years of effort, New Jersey -- the nation''s most densely populated state -- adopted a new plan designed to guide local land-use decisions and state spending and regulatory policies in areas such as transportation, environmental protection, and economic development. The plan''s recommendations, however, were not binding on state or local officials. This case examines how two governors -- Democrat James Florio and his successor, Republican Christine Todd Whitman -- have confronted the question of plan implementation. It ends with Whitman being forced to confront several controversial policy disputes just as she was preparing for her 1997 reelection campaign.