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Equal Inputs, Unequal Outputs: How Capacity Limits Policy Implementation

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Title: Equal Inputs, Unequal Outputs: How Capacity Limits Policy Implementation
Language: English
Authors: Amanda Lu (ORCID 0000-0001-9406-0933), Kaylee T. Matheny (ORCID 0000-0002-9939-4155)
Source: Educational Evaluation and Policy Analysis. 2026 48(1):189-213.
Availability: SAGE Publications. 2455 Teller Road, Thousand Oaks, CA 91320. Tel: 800-818-7243; Tel: 805-499-9774; Fax: 800-583-2665; e-mail: journals@sagepub.com; Web site: https://sagepub.com
Peer Reviewed: Y
Page Count: 25
Publication Date: 2026
Sponsoring Agency: Institute of Education Sciences (ED)
Contract Number: R305B140009
Document Type: Journal Articles
Reports - Research
Education Level: Higher Education
Postsecondary Education
High Schools
Secondary Education
Descriptors: Educational Policy, Program Implementation, Higher Education, Dual Enrollment, Grants, Federal Aid, Equal Education, Barriers, High School Students
Laws, Policies and Program Identifiers: Pell Grant Program
DOI: 10.3102/01623737241310832
ISSN: 0162-3737
1935-1062
Abstract: As education researchers continue to investigate policies at scale and across diverse contexts, scholars must develop a better understanding of mechanisms shaping policy effects. In this study, we use the case of a federal initiative allowing high school students to use the Pell Grant for dual enrollment to investigate how institutions' capacities shaped policy efficacy. We find that colleges' capacities for policy implementation depended on their pre-existing resources ("foundational capacity"), the resources to execute the policy given policy-induced constraints ("execution capacity"), and the resources to provide the target population with access to the policy ("provision capacity"). We contend that institutions that may benefit the most from equitable policies also have the least capacity to implement them.
Abstractor: As Provided
IES Funded: Yes
Entry Date: 2026
Accession Number: EJ1496351
Database: ERIC
FullText Text:
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  Data: Equal Inputs, Unequal Outputs: How Capacity Limits Policy Implementation
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  Data: <searchLink fieldCode="AR" term="%22Amanda+Lu%22">Amanda Lu</searchLink> (ORCID <externalLink term="https://orcid.org/0000-0001-9406-0933">0000-0001-9406-0933</externalLink>)<br /><searchLink fieldCode="AR" term="%22Kaylee+T%2E+Matheny%22">Kaylee T. Matheny</searchLink> (ORCID <externalLink term="https://orcid.org/0000-0002-9939-4155">0000-0002-9939-4155</externalLink>)
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  Data: <searchLink fieldCode="SO" term="%22Educational+Evaluation+and+Policy+Analysis%22"><i>Educational Evaluation and Policy Analysis</i></searchLink>. 2026 48(1):189-213.
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  Data: SAGE Publications. 2455 Teller Road, Thousand Oaks, CA 91320. Tel: 800-818-7243; Tel: 805-499-9774; Fax: 800-583-2665; e-mail: journals@sagepub.com; Web site: https://sagepub.com
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  Data: 25
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  Data: Institute of Education Sciences (ED)
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  Data: <searchLink fieldCode="EL" term="%22Higher+Education%22">Higher Education</searchLink><br /><searchLink fieldCode="EL" term="%22Postsecondary+Education%22">Postsecondary Education</searchLink><br /><searchLink fieldCode="EL" term="%22High+Schools%22">High Schools</searchLink><br /><searchLink fieldCode="EL" term="%22Secondary+Education%22">Secondary Education</searchLink>
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  Label: Laws, Policies and Program Identifiers
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  Data: <searchLink fieldCode="SU" term="%22Pell+Grant+Program%22">Pell Grant Program</searchLink>
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  Data: 10.3102/01623737241310832
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– Name: Abstract
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  Data: As education researchers continue to investigate policies at scale and across diverse contexts, scholars must develop a better understanding of mechanisms shaping policy effects. In this study, we use the case of a federal initiative allowing high school students to use the Pell Grant for dual enrollment to investigate how institutions' capacities shaped policy efficacy. We find that colleges' capacities for policy implementation depended on their pre-existing resources ("foundational capacity"), the resources to execute the policy given policy-induced constraints ("execution capacity"), and the resources to provide the target population with access to the policy ("provision capacity"). We contend that institutions that may benefit the most from equitable policies also have the least capacity to implement them.
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  Data: 2026
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      – SubjectFull: High School Students
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      – SubjectFull: Pell Grant Program
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