This report reviews and synthesizes the findings of the survey and fieldwork as presented in Volumes II and III. In particular, it summarizes the evidence concerning the effects of federal change agent policy. Section 1 introduces the report. Section 2 describes the theoretical approach that served as the basis for data collection and analysis. Sections 3 and 4, respectively, present findings about the innovative process and about the factors affecting implementation and continuation. These sections do not present the actual analyses but use footnotes to refer to evidence presented in the other volumes. Section 5 goes beyond immediate data to raise questions about the policy instruments used in federal change agent programs. These policy implications are tentative for several reasons. First, this report presents only the findings of the first year of a two-phase study. Second, this is exploratory research--in effect the work consists of hypotheses that require more refined testing. Nonetheless, since policy can seldom afford the slow pace of scientific confirmation, conclusions supported by both the evidence and experience are offered. (Author)