Sentence:  Since accurate base maps are necessary for any planning program , the first step taken by the planning division to implement the long range state plan has <WSD>been</WSD> to prepare two series of base maps - one at a scale of 1 inch to a mile , and the second a series of 26 sheets at a scale of 1 inch to 2000 feet , covering the entire state . 
Meaning of the word marked with <WSD> tags:  form or compose