In bargaining they tend to rely on cost-benefit analysis, mechanisms for controlling resource allocation, and to some extent political considerations. The latter is important because of the nature of the agencies' support groups. Advocates and Guardians are the direct competitors in negotiation. They react to management proposals from others. At the other end of the continuum are Guardians, agencies that attempt to protect themselves and their constituencies from interference.
Guardians are interested in preventing challenges to their routines or plans.
These agencies may prefer interest group consultation or public participation. Advocate agencies often develop alliances with Arbitrators because the Arbitrators rely on Advocates for information and opportunity to act. For example, Advocates often provide the opening to initiate planning or the support around which to build a consensus. Guardians often pursue holding actions or seek to use their constituency to show injury from an Advocate's proposals. Agency roles are typically consistent over time.