[BCPVP]

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For example, some people say the U.S. made the decision to go to war with Iraq. Does that mean everyone within the U.S. made such a decision or just certain people?

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Just the people within the organisation who decide how it will act?

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No, just people who act. Those people might tell other people what to do and then those other people act as well, but the abstraction doesn't "act".