Policy implementation in organizations has been described in the literature as a process of adaptation. A study was performed to investigate three basic linkages specified in the traditional rational adaptation paradigm during the implementation of a new budget structure in a multicampus community college district. Loose coupling between elements of the paradigm was found to be a dominant feature of the process, suggesting the implementation is perhaps best described as more intentionally (than actually) rationally adaptive. The research raises the question that intervention strategies of a different order may be necessary to effect future educational change. (Author)