A study examined the governing system in two Florida community colleges in order to better understand the dynamics of policymaking and policy implementation at the two-year college. The study focused on institutional characteristics, specifically communication, and how this may affect state-mandated program implementation. It was found that the communication at Urban Community College reflected the political ramifications of a power struggle between the administration and the faculty union. Administrative efforts to control and manipulate internal communication were matched by union efforts to involve external constituencies, including state officials, in the struggle. Administrators gathered and shared information informally and any attempt to control communication created a high level conflict, thus interrupting the vertical flow of information. Communication at Metropolitan Community College was loosely connected. Formal channels were available but they were not used to move important information or to make key decisions. The use of "trial balloons" and informal negotiation of key issues was commonplace. It was found that neither institution followed clear, well-articulated paths of communication. Emphasis was on appearance of compliance rather than analysis of program performance. Contains 90 references. (GLR)