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第5 期 杨 华 等：沟通式动员：县域上下级政府间政策协商机制及其功能 67

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Communicative Mobilization：the Negotiation Between Higher and

Lower Levels of Grass-roots Governments

YANG Hua，ZHANG Dandan

Abstract The“incremental pressure on grass-roots governments”in the implementation of public

policies has led to practical difficulties such as policy adaptations and system imbalances. However，the
space for“incremental pressure”at the higher level is also the space for“bargaining”at the lower level.
There is a communication type policy mobilization between the upper and lower levels. Taking the gover⁃
nance practice of C County as an example，this paper constructs the analytical framework of“external
pressure⁃internal consensus”，analyzes the communication mechanism between the superior and subordi⁃
nate governments in the negotiation process，and discusses the executive consensus of the superior and
subordinate collaborative governance. The study found that communicative mobilization，such as objec⁃
tive attribution，organizational coordination，institutional feedback and differentiated incentive，has built
policy implementation units comprising joint responsibilities among hierarchies，internalization of main
responsibilities and consensus of collective action between the upper and lower levels and the upper and
lower policy subjects reach an implementation consensus around the common policy objectives resulting
in the regularization of campaign-style governance，limited mobilization of non accountability system and
independent space for local implementation. Communicative mobilization，as a buffer mechanism for
pressure transmission，has changed the policy implementation path and realized the self-adjustment and
institutional resilience of the pressure system.
Key words grass-root governments；the negotiation between higher and lower levels；policy com⁃

munication；negotiation space；institutional resilience

（责任编辑：金会平）