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The garbage can models (GCMs) explain organizational decision making under conditions of
ambiguity as the result of the partially random coupling of independent streams of problems,
policies, and politics. Problems are joined to policies, in such settings, as a result of their coming
to the fore at the same time, rather than due to a rational calculation that the solution was an
optimal response to a preexisting problem.
The GCM to explain decision making in what they termed organized anarchies,
which are defined by three characteristics problematic preferences, unclear
technology, and fluid participation. Problematic preferences refers to ambiguity
regarding problems and goals. Organizational actors may be uncertain as to both
the nature of problems they face and what they hope to accomplish; inverting
rationalist models of decision making, they may discover their preferences through
acting, rather than acting to achieve their preferences.