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It is asking about a concept; a concept from a well known theory among health policy analysts. Theory and empiricism are both important. Having a lot of data is useless if you don't have a way to interpret that data. The question does not require you to agree with the theory; only that you understand it. If you don't understand standard theories, you're not in a position to judge them.

What is a standard theory is a valueladen delineation. There is danger that the status quo needs no justification but any deviation from it does. Then people that can position their stance having been the status quo gain uncritisable acceptance.

If you don't understand alternative theories why are you in a position to reject them?
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