I'm betting dpcain will provide his thoughts but it seems like that is what they were designed to be. However, from what I heard once Hogan came to office, he wants to scrap the regional MSP dispatching plans. Of course, Hogan and the legislature hard agree on much (Hogan overrode lawmakers to reopen the Annapolis Barrack in his first year) so it seems like only time will tell.
Trunk system template planning starts pretty early and in many cases, talkgroups are included in the plan which sometimes are just never used - or eventually get used as "spares" for other than the planned purpose (hey, they are there, let's use them).