Intend to be niggardly (4)
I believe this clue is a double definition.
'intend' is the first definition.
(meaning is a kind of intending)
'be niggardly' is the second definition.
(I've seen this before)
'to' is the link.
(Other definitions for mean that I've seen before include "Aim - low - average", "Import", "Niggardly", "Signify; tight", "design".)