237uncodified, but excited literature. Evaluation has generally meant study of the achievements and values of programs, with particular emphasis on the success or failure of specific efforts to change the impacts of schools on some or all of their clients.This review attempts to frame a larger interpretation of the impact of policy decisions on schools by reviewing the literature of the 1960s and 1970s. Our interpretation suggests that two fundamentally different frameworks predominated as ways of policy development and policy impact assessment (Allison, 1971). These views are labeled the rational-systems analysis approach and the negotiations-authority approach. They differ most in their conception of goals. The rational-systems analysis approach contends that goals are capable of clear, unequivocal statements and of being ordered in some ranking or priority fashion. The negotiations-authority approach contends that goals are ambiguous, equivocal, and intangible, and they are difficult if not impossible to order in some ranking or priority fashion (Cohen & March, 1974).We suggest that during the 1960s the systems analysis approach dominated thinking about development and implementation of policy. By the early 1970s, however, a series of problems, most notably described in the research on implementation, was uncovered, and the systems analysis approach now is being replaced by the authority-negotiations frame. We begin by examining these frameworks in some detail. The second section of the review deals with two issues. The first is the role of the federal government in educational policy during the 1960s and 1970s. Acting through the executive, judicial, legislative, and administrative branches, the federal government was involved intimately in fostering educational change. A second issue was that stability was being sought in a number of characteristics of local school systems. The issues of stability and change, and of frequent tensions between national and local interests, dominate this section. The final section of the review pulls together the general argument made and then suggests some lines of future inquiry.
ALTERNATIVE EXPLANATIONSAt least two major frameworks can lend coherence to the question of the impact of policies on schools. These frameworks provide different ways of describing and analyzing the world of policy. The first is systems analysis, and the second involves a family of slightly different models with common elements, labeled in this review as the negotiations model and the professional authority models.
Systems AnalysisCertainly the best known device for examining the impact of policy on schools is the systems analysis approach. The systems analysis approach sug-, 1972) have received the most attention. In Equality of Educational Opportunity, Coleman and his associates consciously adopted a model which sought to assess multiple factors as they influence school achievement. The use of multiple regression techniques allowed Coleman to manipulate the data in ways that assessed various source...