Policy as the transformation of intentions: Making multicultural education policy

This qualitative policy study applies an interactionist framework for policy analysis, especially the concept of intentions, to an examination of the construction of multicultural education policy in a midwestern U.S. school district. Intentions-purposes and goals meant to shape the behavior of actors in the future and at other sites-motivate actors to act in the policy arena, to use policy as a vehicle for realizing their purposes. Initiated in response to a racial conflict in a high school, the policy process entailed the school board's creation of a committee including many African American community members to generate recommendations for improving race relations. During the process, the school board's intentions, and those of many community members, were transformed due to the administration's reinforcement of district conventions and power structures. Race relations became multicultural issues. Community members who misconstrued the process as granting them real policy-making authority were most disappointed with the outcomes.