That's like- the whole point. If you as a manager set a goal, those three choices are all the choices the people under you have to meet the goal, and you often set it up so that the preferred choice (actually make things better) is impossible. Its saying that decision makers need to be aware of this and adjust your behavior.
Like you said, if they don't, the people dealing with it have no choice- so, it'd be impossible to offer advice for those people, since they have no way of actioning it (unless its convincing the decision maker of that point)
Like you said, if they don't, the people dealing with it have no choice- so, it'd be impossible to offer advice for those people, since they have no way of actioning it (unless its convincing the decision maker of that point)