This paper is concerned with the conceptual problems of developing an administrative planning system for local school districts. Specific planning procedures will be published later as part of a completed PPBS model. Definitions of certain concepts lead to a "Typology of Planning Behavior," which distinguishes three levels of planning and planning behavior: (1) system planning at the political or community level, which involves the community and the school district; (2) system planning at the operational level by the school system as a whole; and (3) subsystem planning utilizing individual teachers in preparing specific objectives. System planning at the political level is primarily an explication of the community's long-range goals for education. System planning at the operational level involves a statement of more explicit objectives and the setting of target dates. Subsystem planning incorporates actual subject area programs and program elements to meet quantitatively stated objectives within a precisely defined time span. Three previous papers are: ED 028 539, ED 028 540, and ED 033 447. (DE)