A study was undertaken to identify and analyze dysfunctional elements in the administration of ESEA Title I, and to determine the impact of these elements on administrative behavior and program effectiveness at the local educational level. A model of administrative behavior and hypotheses was developed, and the literature reviewed for discrepancy analysis. Unpublished Office of Education studies were also reviewed, experts interviewed, and observations made. ESEA Title I rules and regulations must be radically changed. The study has already received the attention of those who formulate Title I policy, both within the Executive Branch and in the Congress. (Author)