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A stabilising pattern where reform activity absorbs pressure without altering core operating constraints: performance failure → reform announcement → programs/reviews/consultations → partial/symbolic changes → legitimacy stabilisation → re-emergence of original problem. Reform becomes a legitimacy maintenance mechanism.
Large-scale public-sector reform programs introduce new strategies, consultations, and performance frameworks without imposing binding changes to budget authority, tenure, or decision rights. Reform stabilises legitimacy while leaving power structures intact.
CEA-App Section 5.2