Hello Harshit, 

You seem to imply that downscaling depends strictly on CPU utilization 
levels. This is in fact not exactly the case, there are more factors 
involved; following policies may be adopted:

- Average CPU utilization (not identical to target utilization)
- HTTP load balancing serving capacity, which can be based on either 
utilization or requests per second.
- Stackdriver Monitoring metrics. 

Scaling algorithms are not easy to describe. One factor that comes to mind 
is historic in nature: CPU charge for a certain past period, for instance. 
You may find related detail in the Scaling characteristics 
<https://cloud.google.com/appengine/docs/flexible/python/flexible-for-standard-users#scaling_characteristics>
 
sub-chapter of the "App Engine Flexible Environment for Users of App Engine 
Standard Environment", which refers to Autoscaling policy and target 
utilization <https://cloud.google.com/compute/docs/autoscaler/#policies>.

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