ISSUES, Chapter 15: Contradiction between the rules (policies and strategies) and the subject - "where the rules are non-existant, wek or inconsistent and so not good enough to enable users of the rules (subjects) to meet the objective". Where do rules become tools? The OU as an institution, or at least its senior management, seem to be quite fond of strategies and policies, so I don't think I could say this is the case, but how to implement them may be a problem for a given subject if the over-arching rules haven't been accompanied by relevant practical guidance (which is arguably a tool and hence falls under 3, above.)