Abstract: The key to the implementation of public policy lies in the effective compliance of the target groups. However, Public policy generally faces the compliance challenges from the target groups. Understanding and eliminating the compliance barriers of target groups has become a "big issue" in public policy. Tthis paper takes the implementation of the grassland grazing prohibition and rest policy as an example to explore the generation process of compliance barriers and their influencing factors. The study found that policy cost spillover triggered weak compliance behaviors such as"illegal grazing" and "institutional arbitrage"among herders. The policy enforcement department have failed to providetimely external regulatory constraints in, which led to the "reproduction" of herdsmen's weak compliance behavior. Therefore, it is necessary to combine policy costs with policy regulation, by designing reasonable cost-sharing mechanism and improving policy regulation, to enhance the policy compliance of target group.