Linking Policy Intention and Policy Implementation

This article argues that (1) the clarity of a policy intention depends upon the appropriateness of the organizational form to implement it, and (2) the assumptions held by policymakers regarding organization form, in practice, often lead to offsetting or contradictory implementations. The study examines a major recent policy reorganization-Florida's transformation of eight autonomous human services agencies into a single department. Its avowed purposes were to integrate and decentralize services. Elmore's (1978) fourfold model is employed to assess those intentions. The findings indicated that implementation became troubled as policymakers adopted inappropriate organizational assumptions to support their intentions. The conclusions suggest that implementation had to accommodate opposing dimensions of organizational strategy and managerial structure.