"There are policies at the top and policies at the bottom" is a common phenomenon in the process of policy implementation in China. What needs to be explained here is that "there are policies at the top and policies at the bottom" may not only have a negative impact on the goals of public policies, but also have a positive effect on the realization of public policies. If a policy wants to be well implemented and produce positive results, policy flexibility is essential. There are positive and negative policy flexibility: positive policy flexibility is to better implement policies and achieve the unity of principle and flexibility; Passive flexibility overemphasizes flexibility, which violates the basic net victory of the original policy and is also a departure from the original policy. In reality, "there are policies at the top and countermeasures at the bottom" also has many forms of expression.

First, the main manifestations of the phenomenon of "there are policies at the top and countermeasures at the bottom"

1. Implement "Add Work and Materials" and additional conditions. In the process of implementing this policy, policy implementers usually add some things that the original policy did not have, and these things are often unreasonable and infeasible. However, in order to realize their own interests, policy implementers forcibly join them, making these unreasonable and infeasible things reasonable and feasible, thus affecting the realization of the set goals. This is what we call "local policy". They verbally shouted the slogan of combining principle with flexibility in policy implementation and combining theory with practice. In fact, it is self-reliance and self-interest.

2. Symbolic and "going through the motions" execution. China's policy formulation and implementation belong to a linear network system. The normal operation of this system must follow certain rules. The lower level must strictly implement the decision of the higher level, and the seriousness and authority of the higher level policy formulation must be maintained. Opinions and opinions can be reflected step by step through formal channels and channels, but at the same time, they must be implemented in strict accordance with the time stipulated by superiors, which is the highest criterion for policy implementation. However, in the process of China's policy implementation, there are many symbolic implementations, and even resistance to implementation.

3. Change its essence and misinterpret its meaning. This phenomenon is mostly due to the fact that the policy executors carry out according to their own favorable parts. As a result, the policy is not really implemented, and even the original intention is affected. Many policy implementers often add a lot of personal understanding when implementing policies, misinterpreting the original intention of policies, leading to deviations in policy implementation. For example, on the issue of eating and drinking with public funds, the central government stipulates that public funds should be used to entertain four dishes and one soup, while grass-roots governments actually implement public funds to entertain everyone with four dishes and one soup.

Second, the reasons for the phenomenon of "there are policies at the top and countermeasures at the bottom"

In essence, "there are countermeasures at the top and policies at the bottom" is to dismember and misinterpret the higher-level policies for their own use and realize narrow local departmental interests and even personal interests. In essence, it is a negative policy adaptation and a betrayal of the original policy. The main reason for the phenomenon of "there are policies at the top and countermeasures at the bottom" is nothing more than the drive of interests.

1. The fundamental reason of "there are policies at the top and countermeasures at the bottom" is to pursue the maximization of interests. The essence of public policy is to authoritatively distribute the interests of different groups in a certain social relationship. The process of policy implementation is the redistribution of interests. It is human nature to pursue the maximization of interests. In social life, the fundamental motivation for people to engage in economic activities lies in realizing their own interests; Different social classes, groups, political parties and individuals engage in political and economic activities in order to realize their own interests by influencing policies. Therefore, interest is the main theme of political and economic activities, which will inevitably lead to various interest groups playing games for their own interests and striving to maximize their own interests.

2. The premise of the emergence of "policy above, policy below" is that the administrative supervision mechanism is too scattered. At present, although the administrative supervision mechanism with China characteristics has been formed, it is still far from perfect. In the process of implementing policies, administrative departments often have the phenomenon of "too many policies and poor government orders", thus providing conditions for "there are policies at the top and countermeasures at the bottom"

3. "There are policies at the top and countermeasures at the bottom" stems from the defects in the design of the policy itself. This mainly includes three defects: first, the content of policy provisions does not reflect the objective reality, the behavior of policy provisions does not conform to the development law of objective things, and there is a strong conflict between the implementation of policy norms and objective reality, which makes policy implementation lose its practical basis; Second, the policy objectives are wrong or vague, the policy content is chaotic, and the responsibilities and deadlines of policy activities are unscientific, which provides opportunities for policy implementers; Third, the policy system is not matched, the new policy lacks continuity, the policy levels are out of touch with each other, and the policy objectives, contents and effects conflict with each other.

Third, effective measures to deal with the phenomenon of "policies above and countermeasures below"

In China's policy implementation system, the government is the only policy executive in traditional public administration. With the development of socialist market economy, public power has become increasingly socialized with the transfer of public power management center, and its monopoly on public power has been gradually abolished. In modern society, the implementation of policies urgently requires improving the executive power of policy subjects, which is not only related to the efficiency and effectiveness of government governance, but also directly determines the effectiveness and efficiency of policy implementation.

1. Establishing a correct view of political achievements is the basic premise to curb the phenomenon of "having policies at the top and countermeasures at the bottom". To implement Scientific Outlook on Development, we must firmly establish a correct view of political achievements. To establish a correct view of political achievements, the first problem to be solved is "for whom political achievements are created", always taking the emotions of the masses as the first signal and the interests of the masses as the first choice, and effectively solving the problems concerning the vital interests of the masses. Secondly, always adhere to people-oriented and create comprehensive, coordinated and sustainable development achievements. Thirdly, to solve the problem of "how to create political achievements", we should seek truth from facts and implement it in concrete work when we think about problems, make decisions and do things.

Perfecting the monitoring system of policy implementation is an important guarantee to curb "there are policies at the top and countermeasures at the bottom". One of the important reasons why policy implementers dare to challenge the higher-level policy authority is the low legal status and insufficient authority of the policy implementation monitoring institutions.

2. Resolutely implement the principles of principle, flexibility and integrity when implementing social policies. In the implementation of the policy, we should adhere to the principled position of the policy, strictly implement the provisions and requirements of the policy, and achieve the objectives of the policy comprehensively and well. On the premise of not violating the spirit of policy principles and adhering to the policy direction, we should proceed from reality and adopt flexible and diverse implementation methods according to local conditions, so as to make the policy more suitable for the specific economic environment of various places, improve the policy and realize the policy objectives quickly and comprehensively. At the same time, in the process of social policy implementation, we should treat the policy as an organic whole and pay attention to the overall benefits of the policy. Government agencies at all levels should firmly establish the overall concept, correctly handle the relationship between the whole and the part, and coordinate the relationship between the local interests and the central interests.

All in all, for a long time, "there are policies at the top and countermeasures at the bottom" is a common social phenomenon in politics, economy, culture and other fields, and it is the direct reason why "there are orders that can't be done, there are prohibitions" and government decrees can't be implemented. China has a vast territory, complicated administrative affairs and diverse policies. Even if the supervision mechanism is perfect and there are more supporting personnel, it is impossible to put an end to all faithless policy implementation behaviors, such as "there are policies at the top and countermeasures at the bottom". Therefore, we must resolutely investigate and deal with all kinds of administrative cases such as illegal dereliction of duty, corruption and execution errors, and punish all kinds of administrative officials who violate the law and dereliction of duty mercilessly according to law. No one who breaks the law can escape punishment.