Policies formulated by the State need to be implemented into the local domain through a hierarchical refinement or re-planning process in order to achieve its policy objectives. The process of transforming text form into realistic form goal under the discourse of State power is not a process of straight line，but presents a variety of execution deviation or aliasing. The result of policy implementation is not only caused by the unilateral strategic choice of grass-roots government，but also restricted by the embedded political ecology，local environment and the interest game among the executive subjects. The choice of local ethics，pressure system and maximization of benefits is an important factor that affects the deviation of policy implementation. The logic of grass-roots governance not only follows the non-personified layer rationality， but also follows the relationship rationality of the differential order pattern and the instrumental rationality of seeking profit and avoiding harm. Under the background of rule governance required by the rule of law， policy implementation should find an appropriate balance mechanism between section rationality，relationship rationality and instrumental rationality，in order to effectively respond to the real needs of the target and the defects of the lack of flexibility of the policy itself，and to bridge the tension between the State’ s overall control of policy implementation and the discretionary powers in practiceof the“street bureaucrats”.