It doesn't see the organization as wholly determined by the political environment, neither does it ignore risks. The concern in this type of analysis is to relate these types of policy to the different branches of government and the behaviors associated with each policy area.
They must be acceptable in terms of value constraints, technical constraints, and budgetary constraints.
Consensus is developed though rational argument and persuasion not bargaining. Policy flows downward from the elite to the mass. It is highly participatory and tolerant of controversy, it concentrates on the fate of the whole organization; the fate of subunits is secondary.
This model also specifies and suggests the relationship between various institutions and how they all work together and collectively contribute to a successful policy implementation.
Elites share values that differentiate them from the mass. Public policy formed in such a State will be coercive towards the proletariat and will be pleasing to the bourgeois or the dominant group.
It may center on the proper role of Congress or the President, or the relationships of government and business or citizens and businesses.