The present invention is directed to a mucoadhesive delivery system for the local or systemic administration of a pharmaceutical agent. The delivery system of the invention effectively and facilely enables transport of the pharmaceutical agent through mucosal membranes and into the vasculattire of the mucosa. The delivery system includes an at least partially water soluble bioadhesive layer and an at least partially water soluble backing layer. Incorporated within either or both of these layers are the pharmaceutical agent and a mucosal penetration enhancing agent. The mucosal penetration enhancing agent displays localized tissue irritation properties. The mucoadhesive delivery system may be in the form of a gel, film, disc or patch. It may be applied to any mucosal membrane of a patient including but not limited to those of the buccal and nasal cavities, throat, eye, vagina, alimentary tract and peritoneum.