A review of education policy and practice indicates a paradox in policy implementation. Policy outcomes most often differ significantly from intended purposes and provisions enacted. This paper re-conceptualises this policy phenomenon, drawing on the post-modernist conception of policy as both "text" and "discourse" as an approach for understanding and unmasking the messiness and contested nature of education policy processes. The choice of approach is based on three factors. First, the choice is grounded in its efficacy in explicating and legitimatising the issues of power within the policy arena. Second, the choice is based on the potential of the approach in integrating social and political theories of discourse with more linguistically oriented approaches to the study of policy. Third, the preference of approach follows from its potential to draw on language as a resource for reading into and/or analysing complex social issues. (Contains 6 notes.)