Résumé : Based on formal hearings of public decision makers in a real-life case study, this paper seeks to open the black box of collective cognition in pandemic preparedness process prior to the Covid 19 episode. By showing the evolution of labelling issues of stakes before the crisis, we propose a behaviourist reading to understand drifting of strategic intentionstowards operational stakes in public policies. Moreover, this contribution articulates organisational concepts such as implementation gaps, and ‘muddling through’ processes to explain interactions during the crisis between strategic management and crisis management. The article concludes on the need and the constraints of a strategic crisis management more agile. From a methodological point of view, this paper shows the interest of qualitative analysis combining static and longitudinal analysis.