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 governance 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 subordinate 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 objective 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.