I don't think they ever intended on achieving those goals, but I believe they had to state the goals as being that low to justify some of the kill-offs they were having elsewhere in the state.
That really doesn't make sense when you consider the goals for 2F were 17 DPSM and 2G was 15 DPSM.
There is, however, a valid reason VF should not be used as an example of carrying capacity of the majority of the state. For one thing the majority of the state does not have the open space per acre providing browse.
The open space in VF does not provide any browse. The PGC will tell you that deer are browsers not grazers , so the PGC doesn't assign any habitat value to open space.