Abstract: in the process of public policy implementation, the conflict between self-interest and rationality easily leads to "the dilemma of collective action". "Economic man" and "scarce resources" hypothesis is the starting point of the game. Analysing the game in public policy implementation between horizontal governments, we can find there are four fields of the game-fighting for "experimental unit", government's record competing,"barriers" and "moral hazard" in the market, tax concessions and protection policies and regulations. Therefore, to promote the cooperation and achieve positive game, we need political selective incentives, market ownership definition and external institutional pressure in order to solve the dilemma of collective action.