Purpose: We examine the ways state education agency (SEA) and local education agency (LEA) leaders interpret and use educational policy to guide the provision of services for multilingual students classified as English learners (ELs) in their contexts. Our inquiry focuses on the external factors leaders describe that either enable or constrain their ability to interpret and implement policies designed to expand equity for EL students. Research Method: We conduct semi-structured interviews with 17 SEA and LEA leaders across three states. We use an interview-based approach to understand how educational leaders leverage policy to guide EL services in their states and districts. Findings: Three external factors (resources to serve EL students, networks to share EL expertise, and concrete policy monitoring and guidance from the state) interact with leaders' individual understandings of and approaches to policy implementation to shape the ultimate degree to which equity is enabled or constrained for EL students in their contexts. Implications: Educational policy intends to provide SEA and LEA leaders with guidance to expand equity for ELs. However, our study suggests that the degree to which these policies expand equity for ELs in practice depends not only on the leader's understanding of the policy, but also their access to resources, human capital, and professional networks. SEA and LEA leaders that take a deep, transformative approach to implementation may partner to assess how SEAs can create external conditions that help to expand equity for ELs.