Where you stand depends on where you sit.
Miles was a US budget official. Its predictive use is that an official's position on reorganisation can be read off their current post more reliably than off their stated principles.
In practice
- A director opposes centralising IT while running a division, and champions it two years later running IT.
- A department head's view on the new reporting line can be predicted from the org chart with more accuracy than from anything they have said.