Innovation or Reconfiguration? Educational Decentralization and the Changing Architectures of Public Management

Abstract

Decentralization reforms are reshaping contemporary public management and are often presented as innovations capable of improving efficiency, accountability, and responsiveness to the citizens’ demands. Yet their implications for governance arrangements remain highly contested. This paper critically analyzes the process of educational decentralization in Portugal to explore whether it represents a genuine administrative innovation or a broader reconfiguration of state governance. The study draws on a critical interpretative policy approach informed by post-structuralist policy analysis and the sociology of public policy instruments. Based on a qualitative analysis of legislation, policy documents, planning instruments, institutional reports, and governance arrangements, it applies a threefold analytical framework—Promise, Reality, and Transformation—linking policy discourse, instruments, and governance transformation. The findings suggest that while decentralization is discursively justified by narratives of modernization and local empowerment, it is operationalized through dense regulatory architectures, policy instruments, accountability mechanisms, and digital governance infrastructures. This leads to a paradoxical decentralized centralism, in which expanded local responsibilities coexist with strengthened capacities for central coordination, evaluation, and multilevel regulation. The study contributes to debates on public management and governance transformation by showing how decentralization may reconfigure rather than diminish state power in the context of contemporary multilevel governance.