The author discusses improvement in quality of special education through the use of the individualized education program (IEP) as a placement, instructional, and planning tool. Conditions necessary for using the IEP effectively are listed. Implementation of the IEP as placement, instructional, and planning tools is noted to depend on four factors--policy interpretations, structure of the schools, implementation strategies employed, and macro-sociopolitical factors. Two implementation strategies presented in Federal Special Education Regulations are considered, compliance monitoring (a power-coercive strategy) and a comprehensive system of personnel development. Discussed are four principles to guide IEP development: (1) participatory planning, (2) internal consistency, (3) cooperative use, and (4) mutual supportiveness. It is pointed out that IEP implementation efforts directed toward organizational change should reflect considerations which include existing organizational structures and the application of normative principles within the referral planning and placement process. Four considerations relating to personnel development efforts are also mentioned, such as the avoidance of overreliance on inservice education as the sole procedure for developing personnel. It is concluded that locally orchestrated organizational change and personnel development can increase the utility of IEPs. (SW)