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Throttle position does not consider the load on the engine. You can have 0 vacuum, and 100% of the engines displacement inducted into each cylinder, per combustion event, if you have a high enough load and low enough RPM.
Higher RPM and lower load, versus lower RPM and higher load can both be achieved at 20% throttle, but the RPM would differ even with an identical throttle position.
regards
mech
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