Each of the following sentences has two blanks. Select the most appropriate pair of words from the options given to fill in the blanks so that the sentence is grammatically and contextually correct. Despite the apparent simplicity of the policy framework, its implementation remained ______ due to conflicting bureaucratic interests, thereby rendering the intended reforms largely ______ in practical terms.

The sentence presents a contrast: although the policy seems simple, its implementation faces problems due to conflicting bureaucratic interests. This indicates difficulty, disagreement, or friction. Therefore, the first blank must convey conflict or dispute, which aligns with “contentious.” The second part says the reforms were not successful in practice. Hence, the word must reflect lack of effectiveness, making “ineffectual” appropriate. Other options fail because: “seamless” contradicts conflict “transparent” and “structured” do not imply difficulty “progressive” and “impactful” contradict failure Thus, the sentence conveys that internal conflicts made reforms ineffective.