To determine how federal assistance and regulation affect the programs and operation of the educational system at the school and district level, this study concentrates on the cumulative effects of a number of categorical programs and related civil rights mandates. The focus of the 8-state study was on 20 school districts, from which 56 elementary and 25 secondary schools were selected. Onsite interviews with approximately 900 school and district respondents formed the primary data source, supplemented by information from documents and telephone interviews. Areas examined were target students' access to services that are considered appropriate; organizational and administrative features of schools and school districts; and local decision-making. General conclusions reached were that federal and state policies for special populations have substantially improved and expanded services for the intended target students; these policies have increased the structural complexity of schools and districts; and programs settle in more comfortably over time. (MLF)