This paper determines relationships between three elements of the American policy process: legislature, agency, and administrative clientele. It concerns interrelationships between these elements and their affect to agency functions. A model is constructed; revealing the policy process, illustrating behavior patterns responsible for normal functioning and failure of policies and programs. The model develops through study of a single policy area. Supplemental data are provided from a survey. The paper concludes that the process is based on legislation-- causing activity in an agency or substantial change in programs; agency actions, seated in its own organizational objectives, and resultant to internal conflicts; and by clientele behavior, determined by agency actions or inactions. This model may help predicting policy outcomes, but only after similar but more comprehensive studies.