Although Seidman’s work and Wilson’s work are discursive rather than theoretical, more explicitly theoretical efforts from organization literature seek to explain at least some elements of the political behavior bureaucracies indulge in. John Kingdon’s Agendas, Alternatives, and Public Policies (1995), for example, attempts to explain why government addresses some problems while ignoring others. Kingdon’s analysis shows that government agencies have an important role in shaping the public agenda, not so much in determining agenda priorities but in acting as key members of “policy communities.” These communities consist of actors who, through their specialized interests in particular policies and the density of their interconnections and common interests, can decide the fate of policy proposals. A fragmented community (for example, one in which agencies have conflicting goals on a particular issue) dissipates support for a policy proposal and severely limits its potential for success (Kingdon, 1995, 116–144). Although organizational context is shown here to play an important role in shaping the political role of bureaucracy, that role is not the primary focus of the theory.