1. What happens if you don't have a plan?

2. Who makes a plan?

Answer 1.
  People choose what to do themselves. For example, making a program
that almost
no one uses faster, maybe breaking it in some subtle way that is not
noticed for
a long time.   Adding a feature "because it can be added".  Making the
program
slower to load and larger by adding some table of data. Failure to do
something
that many people want done, but no one is inclined to do because it is
messy or
requires additional expertise not immediately at hand.

  Sometimes people suggest to other people  (like professors tell
students) what
to do.  The assumption here is the professor has better taste etc,
which is not
always true.

  You end up with a system that is a conglomeration of what people
contributed,
filtered by whoever had a last hand in deciding what to include, which
means
that occasionally good stuff gets left on the cutting room floor.

  Maybe the system ultimately becomes dysfunctional in too many ways
and is
dropped, perhaps to be replaced by something somehow "better".

Answer 2.
  Some subset of participants, maybe a steering group,
 perhaps seeking consensus from a larger
group. In an open-source (etc.) project this is unclear, since any
single individual
can take all existing code and make a project fork. Also, individuals
can  say that they don't want to do some task. This can, of course, be
just the right thing to do in some conceivable circumstances.

In a situation in which rewards are offered (e.g. money, advanced
degrees,
shares of stock, your name on a plaque), the group making the awards
sometimes
has more input on the plan.

Sometimes a plan is made by an individual (allegedly the case of Steve
Jobs at Apple).

Regarding 'grants'....
The academic (or whoever)  writes a Grant Proposal.  or Proposes to do
some work.
The funding agency accepts or rejects the proposal.  If accepted, the
agency
and the proposer typically agree to a contract.  Maybe they write a
"grant contract"
or a "grant agreement".

I mention this because Robert misused the term (and he is hardly alone
in doing so...)

A professor does not "write a grant to the NSF  or Microsoft or the
NSA".
A professor writes a PROPOSAL  or APPLIES for a grant.
The granting agency AWARDS a grant.  (or not)

RJF

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