Abstract:

 Due to its strong strength, clear goals，and urgent time requirements，the solution of the“non-progressive” policy is not only a difficult problem faced by the grass-roots implementers，but also a test for the policymakers to achieve the established goals. Based on the top-down institutional background characteristics of Chinese policies，and combined with the difference in the“ambiguity degree” in the policy refinement stage and the“negotiation degree” in the implementation stage，we construct an analytical framework of“Ambiguous Decision Making-Negotiated Implementation”. Then，we take the implementation of the“Double Reduction” policy at the grassroots level as the analysis object，on the basis of three rounds of follow-up research and field observation in 20 districts of 8 provinces，explore four different manifestations and solutions of the retardance problems of policy implementation as well. In this study，it is believed that the solutions need to be targeted according to different types of retardation and the generation mechanism. At the same time，special attention is paid to the role of grassroots governments in the implementation of policies，according to the different performances and types of problems, grassroots governments need to exert their abilities of innovation，integration，activation and macro supervision.

Key words: “non-progressive” policy, the retardance of implementation, “Double Reduction” policy, ambiguous decision making, negotiated implementation