ABSTRACT
The centrál administration in Washington was often under the impression that the directives sent out made everything plain, or at least that the officials on the spot had all the answers and made them available. But communication was taken for granted rather than worked at in detail. Many officials were in the dark about the long-run and middle aims of the centrál administration. Hence they were in no position to translate policy goals in terms the everyday citizen could understand. There was no systematic check-up on what the citizens thought about the aims and expectations of the enterprise, and consequently but little experimenting with the devices by which more clarity could be brought into the picture. Printed materiál from national
and regional offices was often too technical or sweeping to make contact with local experience.
