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Used other than figuratively or idiomatically: see on, paper. examples
(figuratively) Based on debatable inference; in theory. quotations examples
From those of the former generation who were in the fulness of age when I came into public life, which was while our controversy with England was on paper only, I soon saw that nothing was to be hoped.
August 25, 1814, Thomas Jefferson, letter to Edward Coles
Hutchinson, the current champion at 50 miles, is on paper the fastest rider in the field for Sunday's event
June 06, 2002, Graham Snowdon, The Telegraph
Allen Gregory DeLongpre: Hey, just throwing out a random hypothetical to you. Let's say there's a new kid in school, and on paper he should be killing it, but for some reason the other kids don't like him? Why do you think that would be?
2011 Allen Gregory, "Pilot" (season 1, episode 1)
Before 1914, coal was a true cash-cow, and on paper, the GWR looked to have hit the jackpot by being handed all the railways in the South Wales coal fields.
2021 August 25, Richard Foster, “The rise and fall of railway's Big Four...”, in RAIL, number 938, page 55