What he *suggested*, in substance, was increasing the country's defense budget.

[z7655431]

"What he suggested, in substance, was increasing the country's defense budget." (Vocabulary for TOEIC)

What does "suggested" mean here? Does it mean "to put forward an idea or a plan for other people to think about"? Or does it mean "to state something indirectly"? See it in Oxford Learner's Dictionaries. How do I decide the meaning of it?

 

[Yankee]

My inference would be to offer an idea or plan.

 

[jutfrank]

I think the phrase in substance was the writer's way to help show the meaning of your second interpretation.