Abstract: In theory,policy refinement is expected to eliminate policy ambiguity.Local governments can progressively achieve clearer policy objectives,better-adapted policy instruments,finer technical standards,and more explicit evaluation criteria by embedding policies into local contexts and detailing tasks layer by layer.However,within complex context,policy ambiguity provides intermediate layer governments with a degree of autonomy,potentially causing them to deviate from the intended path during policy refinement.This deviation is manifested either as the continuation of ambiguity due to insufficient refinement or the imposition of additional burdens due to over-refinement.The formation of such deviations in policy refinement involves four mechanisms: boundary crossing in multi-task scenarios,responsibility shifting in mismatched authority and accountability situations,risk aversion in uncertain conditions,and performance competition in local competitive environments.These factors cause intermediate layer governments to adopt different approaches during policy refinement,ultimately resulting in deviations.While the continuation of ambiguity and the imposition of additional layers can enhance the flexibility of intermediate layer governments in handling uncertainties and prevent bureaucratic execution power decay,they also have negative effects,such as impeding policy actions and increasing primary-level burdens.To address these issues,it is necessary to promote balanced coordination between tasks and resources,establish and improve responsibility lists based on policy powers,enhance the capacity of intermediate layer governments to manage uncertainty risks,and refine the performance evaluation methods.The analysis of the function of policy refinement in mitigating policy ambiguity demonstrates that the relationship between policy refinement and policy clarity is not linear.This finding contributes to a more rational and comprehensive understanding of the role and positioning of policy refinement.

Key words: policy refinement, policy ambiguity, continuation of ambiguity, layer-by- layer pressure, policy implementation