Re: [quicwg/base-drafts] congestion window increase on every ACKed packet could result in bursty sends (#3094)

[Vidhi Goel <[e-mail]>]

There are two routes that we can take:
1. Specify clearly what 'delay` refers to in the below statement, which is done in #3351
```
Sending multiple packets into the network without any delay between them
creates a packet burst that might cause short-term congestion and losses. 
```
OR
2. Change MUST pace to SHOULD and remove the 10 MSS burst size limit and provide general recommendation if an implementation doesn't pace. Something like:
```
Implementations SHOULD either use pacing or use another mechanism 
(for example, limit congestion window increase as specified by RFC 3465)
to introduce delay between successive transmissions. Implementations
that don't pace are at risk of underutilizing the network.
```

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