Since 1978, Federal policy has sought to encourage the development of local comprehensive service programs for pregnant and parenting adolescents through demonstration grants, research, and dissemination of information about exemplary program models. The prevailing interventive model used is based on the development of local and comprehensive medical, social, and educational services. Material prerequisites for implementing the comprehensive services model include a pre-existing social welfare infrastructure, flexible funding sources, and support from State policies and funds. Managerial resources required include leadership, coordination, community acceptance, and political support. The consequences of this approach were assessed in a study of how local comprehensive programs were developed in ten communities in four States. The assessment found many of the prerequisites for program development to be lacking in many localities. Funding mechanisms exacerbate resource disparities among communities. A more effective Federal policy would seek to compensate for differences in local capacity, eliminate service gaps, support local planning and coordination, and give emphasis to prevention. (KH)