This study examined processes and strategies utilized by states to implement transition policies designed to facilitate coordination of the state-level service delivery systems of special education, vocational education, and vocational rehabilitation. The study used a model involving four policy instruments: mandates, inducements, capacity building, and system change. Policy documents from three states, selected for their history of transition policy development and provision of comprehensive transition services, were thematically analyzed; documents included grant applications, state legislation, state regulations, state proclamations, special transition budgets, personnel training programs, and interagency agreements. Interviews with administrators and other key stakeholders in the three states were also conducted. Six major conclusions regarding state-level transition policy implementation were drawn: (1) system change appears to occur incrementally; (2) states use varying definitions of policy instruments; (3) states rely on past practice when implementing transition policies; (4) there is evidence of structural resistance within states to implement system change policies; (5) states implement symbolic policy instruments; and (6) capacity building appears linked to system change. Recommendations to improve the integration of special education, vocational education, and vocational rehabilitation are offered. An appendix includes the interview protocol. (Contains 44 references.) (DB)