The United States Congress has recently enacted federal education legislation such as Goals 2000 that promotes unprecedented levels of comprehensive planning and service integration of state and local levels. In preparation for such federal initiatives, the Arizona Department of Education (ADE) contracted with the Morrison Institute for Public Policy at Arizona State University to analyze state issues relevant to comprehensive service delivery, especially as it relates to Arizona's at-risk population. This report discusses: (1) state level technical assistance options to support Arizona schools in delivering comprehensive services and (2) implications for state policymakers. Data were obtained through interviews with ADE personnel, a literature review, a statewide survey of Arizona principals, a survey of other states, and a survey of identified at-risk sites. The introduction describes the purpose and background of Arizona's Comprehensive At-Risk Education (CARE) Project. The first section discusses national and Arizona practitioner-based frameworks for education reform. The second section reviews research on the state role in education reform. The third section outlines Arizona's status in supporting comprehensive services and further actions to be taken. The integration of at-risk programs in a context of schoolwide improvement is discussed in the fourth section. It is recommended that: (1) Arizona move away from "at-risk" programs to more holistic school improvement, and (2) the state consider granting sites that receive at-risk funds greater flexibility in exchange for results-oriented accountability. Two tables and eight figures are included. Appendices contain information on teacher institutes in three states, a summary of ADE interview responses, a copy of the at-risk site questionnaire, and a side-by-side comparison of program applications. (LMI)