In theory, not put into practice (2,5)
I believe the answer is:
on paper
(Other definitions for on paper that I've seen before include "Theoretically" , "Propane (anag.)" , "Planned (in theory)" , "In writing" , "Where Times staff work" .)
I believe the answer is:
on paper
(Other definitions for on paper that I've seen before include "Theoretically" , "Propane (anag.)" , "Planned (in theory)" , "In writing" , "Where Times staff work" .)