Logic suggests that policy directs strategy, which in turn leads to tactics to execute that strategy. These tactical considerations then become the foundation for development of supporting technologies. The technologies developed lead to acquisition of the equipment necessary to support the tactics. This logic, adopted from business and economic models, is the basis of the Planning Programming and Budgeting Systems.
Experience suggests that the real paradigm works differently. Organizational knowledge built on an understanding of environment and mission enlarged by study and experience forms the foundation of tactics. From this basis, an understanding of national interests, a sense of the history of conflict, a grasp of the capabilities of potential enemies, and an appreciation of technology all drive tactical opportunities. These in turn establish the designs for development of technologies and future acquisitions. Equipment developed makes possible improved, advanced, or different tactical possibilities. These new tactics in turn allow changes to strategy. Such changes may or may not then be reflected in policy.