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Kingdon's multiple streams approach has recently been applied to study implementation across sectors or levels of government. Building on these contributions, we suggest that two streams are especially important in shaping implementation: organisational problem constructions and political pressure from the centre. These variables produce a four-way typology of implementation modes. We test the model by analysing implementation of UK targets on asylum, defence and climate change, drawing on 54 semi-structured interviews with policy actors. The analysis shows how organisations can shift between modes of implementation over time, responding to changes in organisational problems and central political commitment to the policy.