A theory of policy implementation, as opposed to policy results, would allow analysts to estimate how government programs would actually work. To help achieve such a theory, a general framework is presented along with testable propositions about the implementation of federal programs. Implementation is defined as including two components: the statutorily required actions must be carried out, and such actions must encompass both formal compliance and the necessary organizational routines. Previous implementation theory was not historically rooted and did not cover all relevant factors. The present propositions use as their framework a typology of federal programs into distributive policies, regulatory policies, and redistributive policies. Twenty propositions are discussed--six each for distributive and regulatory programs and eight for redistributive programs. The propositions touch on the programs' support patterns, bureaucratic requirements, methods of implementation, corruption problems, target populations, goal ambiguity, and internal regulation. The propositions are middle range, bounded within history by contemporary U.S. culture and based on assumptions about American politics. Yet analysts can test them by predicting program consequences or suggesting changes in program strategies or management techniques. (Author/RW)