In its clearest form, strategy deals solely with military issues: either a threat or an opportunity is recognised, an evaluation is made, and a military stratagem for meeting it is devised. However, as Clausewitz stated, a successful military strategy may be a means to an end, but it is not an end in itself. Where a state has a long term political goal to which it applies military methods and the resources of the state, that state can be said to have a grand strategy. To an extent, all states will have a grand strategy to a certain degree even if it is simply determining which forces to raise as a military, or how to arm them. Whilst early Rome did raise and arm troops, they tended to raise them annually in response to the specific demands of the state during that year. Such a reactive policy, whilst possibly more efficient than the maintenance of a standing army, does not indicate the close ties between long-term political goals and military organization demanded by grand strategy.