“Bureaucratic categories and organizational boxes do more than simply separate relevant from irrelevant information. They also produce the social optics that policymakers and bureaucrats use to see the world. Before policymakers can act, they first must come to create a definition and understanding of the situation, and that understanding is mediated by how the institution is organized to think. ...How organizations categorize and carve up the world has a profound impact on how policymakers see the world.”