Home-based healthcare transitions depend on administrative work that rarely appears in outcome statistics: verifying Medicare eligibility and homebound status, authenticating physician orders under the face-to-face encounter requirement, reconciling medications carried across hospital, pharmacy, and agency records, and closing the loop between a hospital discharge summary and the first home visit. This critical policy review argues that continuity of home health care is better explained as the product of five administrative governance domains, referral and intake, the clinical-administrative interface, care-transition handoff, escalation and safety-net response, and quality and compliance, than as a single index or technology. Building on the Donabedian structure-process-outcome tradition and on transitional-care research associated with Haggerty, Naylor, Coleman, and Kripalani, the paper develops a governance framework that assigns each domain a defined mechanism, a regulatory or practice anchor under the Medicare Conditions of Participation, and a measurable reliability indicator. It specifies seven falsifiable propositions linking administrative reliability measures to continuity outcomes, states the comparison and holdout conditions a valid test requires, and lays out a five-stage policy adoption pathway from governance charter through protected multi-site evaluation. The review does not report new empirical estimates; no authorized dataset was analyzed. Its contribution is a domain-specific taxonomy, a measurement matrix anchored to home health agency operations, and a research agenda that separates predictive association from causal claims about continuity of care. The central conclusion is that policy aimed at continuity of home health care should target the administrative mechanisms that produce or block it, verification, authentication, reconciliation, handoff, and escalation, rather than a composite quality score alone.