This preliminary planning study undertakes to develop a detailed picture of what the National Institute of Education might become. It addresses five major categories of questions concerning the proposed Institute: (1) its objectives, (2) program, (3) organization, (4) relationship with the educational system, and (5) initial activities. This report attempts to provide a coherent, reasonably detailed set of answers to these categories of questions. It conveys a picture of the NIE derived from discussions and meetings with a wide range of individuals from government, education, and the research and development community, and from examination of prior studies of the organization of R&D institutions. The purpose of this report is to present a sufficiently detailed picture of initial activities of NIE to be helpful to those concerned with the Institute's creation. Planning for the NIE is and must be a continuing process. This plan which is truly preliminary should be viewed by the reader as part of a continuing evolution. A bibliography listing the major published sources consulted during this study is included. (ON)