Chapter 2 portrays Active – Back Sooner as ‘it’ starts to disintegrate. It shows how upon arrival in one of the municipal units charged with the implementation of the trial, the original project design is undermined and recreated by the multiple local concerns to which it must adapt or defer. Developing the analytical metaphor ‘vector of concern’ the chapter documents how contradictory decisions were being made from minute to minute, all generated by attempts to make the interventions sensible and purposeful. The chapter concludes that when implementation fails it does so because implementation is in fact a second planning phase characterised by a high degree of instability.
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