Change in rural schools is difficult to achieve because the diversity of these schools does not allow for one set implementation program. Small rural schools are an integral part of the rural community, and as such are as different as the part of the country where they are located. Change in rural areas is unsuccessful due to: the amount of bureaucratic red tape involved in programs; lack of community involvement in each stage of implementation; community resistance to change from current programs; attempts to implement one set program in all rural schools; lack of acceptance of change agents in the rural community; and little local consensus about the importance of the problem defined at the national level. Implementation of programs compatible to existing programs have a higher success rate than noncompatible programs, but when outside funding is withdrawn innovative programs generally disappear. Programs must offer a variety of methods and techniques within a broad conceptual framework that allows local decision makers to determine which educational needs have priority in their communities and how these needs can best be addressed. Grassroots programs have a better chance of success than national programs introduced by "outside" agencies. (AH)