TesTeq is also right: other methods of keeping lists, which don't put one action
on each page, are also perfectly good ways of organizing things and are also
among the alternatives suggested by David Allen.
About three paragraphs earlier, also on page 141, he says:
So I think it's pretty clear that the explanation of what he means by lists applies to lists of actions as well as other lists.Your lists (which, as I've indicated, could also be items in folders) will keep track of projects and someday/maybes, as well as the actions you'll need to take on your active open loops."