Enacted discretion: policy implementation, local government reform and education services in Pakistan

This article examines policy implementation in the Pakistan education sector introduced by the Musharraf local government reforms between 2001 and 2009. By devolving administrative and financial powers from the provincial to local government, the reforms sought to address weaknesses in existing local government provision. Our analysis developed a process model of policy implementation that suggests that while extensive structural decentralisation did occur, in practice this was more limited leading to what we term enacted management discretion, where local managers overcame weak organisational capacity, resource constraints and increased bureaucratic control from higher tiers of provincial government to manage and deliver educational services.