The underlying ambition of fee-free education is to increase school access. This study reflects on decentralisation in the decision-making process and implementation of fee-free policies. We compare two policies at the high school level in Ghana to evaluate the differences and commonalities in how they responded to school access. We used interviews and secondary sources of data for qualitative content analysis. Haddad and Demsky's rationality framework of education policymaking served as the analytical guide. The results show that Free Senior High School policy (FSHS) increased access to education by responding to the existing problem of low rate of transition from lower secondary to upper secondary education, unlike Progressive Free Senior High School policy (PFSHS). However, the desirability of access is over-prioritised in the current FSHS -- unlike in the PFSHS, leaving gaps in administration, educational facilities and resources: challenges attributable to the concentration of centralised administrative decisions during policy formulation and implementation. We propose remedial measures to address these challenges.