Control Illusion: The Failure of Instruction Hierarchies in Large Language Models

Abstract: LLMs are increasingly deployed with hierarchical instruction schemes, where certain instructions (e.g., system-level directives) are expected to take precedence over others (e.g., user messages). Yet, we lack a systematic understanding of how effectively these hierarchical control mechanisms work. We introduce a systematic evaluation framework based on constraint prioritization to assess how well LLMs enforce instruction hierarchies. Our experiments across six state-of-the-art LLMs reveal that models struggle with consistent instruction prioritization, even for simple formatting conflicts. We find that the widely-adopted system/user prompt separation fails to establish a reliable instruction hierarchy, and models exhibit strong inherent biases toward certain constraint types regardless of their priority designation. While controlled prompt engineering and model fine-tuning show modest improvements, our results indicate that instruction hierarchy enforcement is not robustly realized, calling for deeper architectural innovations beyond surface-level modifications.