As goals are vague (or even contradictory) ,bureaucracies cannot simply deploy their expertise to determine the best way of achieving the ends of policy. Something other than the product of the “politics” end of the politics-administration dichotomy must drive the behavior of bureaucrats and bureaucracies. What is it? What determines the behavior of the cop on the beat, the teacher in the classroom, the private on the front lines? Wilson proposed several potential answers: situational imperatives (the day-to-day events operators must to respond to), peer expectations, professional values, and ideology. He also argued that rules could also substitute for goals. When goals are vague, following established procedures and “going by the book” provide operators with a guide to low-risk behavior. Wilson also argued that most large organizations , and certainly many public agencies, have their own particular personalities. They have persistent, patterned ways of thinking about the purposes of the organization and the best means to achieve those purposes. Combined, these patterns constitute organizational culture, and they serve to socialize organizational novitiates into the “way things are done around here” (1989, 91–93).