The 11 variables, in order of importance, that have the greatest ultimate effect in shaping national legislation on education are the following: (1) personal judgment and values of usually no more than six to ten members of Congress and staff, (2) strong views of respected and trusted friends, (3) assumptions about the economy and budget, (4) public opinion and the popular media, (5) strong views and efforts of major interest groups, (6) descriptive information about federal programs, (7) congressional hearings, (8) General Accounting Office reports and other independent reports on programs, (9) policy research studies and reports, (10) administration views and lobby efforts, and (11) program evaluation studies. (Author/IRT)