Rather, the information enters into that commonplace and practical orientation to reality which members of society regard as ‘natural’ when attending to their daily affairs. Since the explicit terms of the theory are embedded in this common-sense orientation, they cannot be understood without tacit reference toit. If, however, the theorist must be persuaded about the meaning of the terms in some prior and unexplicated way, there then exists collusion between him and those about whom he theorizes. We call this unexplicated understanding collusive because it is a hidden resource, the use of which cannot be controlled adequately.Some examples will help to clarify this point. Consider the term ‘employee’. There is little doubt that Weber presupposed, rather than neglected, a whole realm of background information in using it. Certainly employees must be human beings of either the male or female sex, normally competent adults rather than children, and in many ways familiar types of persons whose responsiveness, interests, inclinations, capacities and foibles are in a basic sense known as a matter of course. All this information is obvious, of course, but does not by any means coincide with the scientifically demonstrable or even scientifically tenable. Rather, the full meaning of the term ‘employee,’ as it is used in the theory of bureaucracy, refers to that understanding of it which fully franchised persons in society expect from one another when they converse on matters of practical import. That is, insofar as the term refers meaningfully to some determinate object, it does so only in the context of actors making common sense of it in consequential situations.Let us consider the ideal of efficiency itself.