The developmental education process is fraught with challenges that act as barriers to student success. This report proposes a framework comprising three sets of opposing forces for understanding the dysfunction of the developmental system. The authors outline the framework and then, using CUNY as a case study, describe how each of the three sets of tensions shape policies, practices, and student progression patterns in developmental education. Finally, based on the CUNY case study, the authors discuss suggestions for reconciling the opposing forces involving consistency with flexibility, efficient assessment aligned with treatment, and support for progression while maintaining academic standards.