states, organizational behavior can be understood “less as deliberate choices of leaders and more
as outputs of large organizations functioning according to standard patterns of behavior” (Allison
1969, 698). This model is associated with three primary assumptions or claims.
First, actors are not unitary. Rather there are multiple actors, or subsidiaries that play a
role in determining outcomes. Each actor has a distinct set of goals, priorities, and standard
operating procedures. Actors operate according to the parochial interests of their position, which
may or may not be consistent with the broader interests of the state. So while organizations may
be responsive to orders from above, “a large part of what they do will be determined within the
organization. Thus, each organization perceives problems, processes information, and performs a
range of actions in quasi-independence” (Allison, 700).
Second, standard operating procedures (SOP) detail organizations’ behavior. Action must
be coordinated because complex routines require the participation of many individuals.
Specified and detailed procedures structure and coordinate the input of individuals and are
paramount to achieving an organization’s desired goal. SOPs are the method used for
coordinating the necessary tasks. SOPs set “standard” frameworks of operating and thus all
performance is structured according to these previously established routines. As Allison
contends, “the preeminent feature of organizational activity is its programmed character.” The
results are therefore outputs, rather than unique outcomes (Allison 1969).
Third, organizations can “learn” despite the routine oriented nature of organizational
behavior. Change in procedure, however, tends to be incremental because adaptations develop
around and are incorporated into existing patterns of procedures (Allison 1969, 701).
Considerable change is more likely to occur in response to significant crises or failures.
Using the theoretical assumptions of the bureaucratic politics model we can generate
three important expectations for why and how policy change on military prostitution occurs.
9
Convention