Business policy texts identify numerous steps that make up the policy implementation process for private firms. On the surface, these steps also appear applicable to the implementation of public policies. However, the problems of carrying out these implementing steps in the public sector are significantly different than in the private sector due to differences in institutional environments and the motivation of participants. Reasons for difficulty include constraints of civil service rules, poor definition of relevant "technologies," difficulties in monitoring outputs, the possible need to coordinate activities of many agencies, and influences of the political environment. In order to understand the nature of policy implementation in the public sector, it is useful to focus on (1) central missions of the organizations involved, (2) technical properties of the policy or program areas, (3) degree of consensus on action, (4) possibilities and limitations of external controls, (5) structure and relations of the organizations involved and their interaction with the environment, and (6) incentives of individuals in the involved organizations. These implementation factors are important not so much for predicting the outcome of policy decisions, but for designing and managing effective policies and programs. (Author/JG)