The stability system and the local social economic environment are the structural factors that create the predicament of grass-roots governance, the group mentality of grass-roots cadres is the subjective factor that forms the predicament of grassroots governance and the choice of action strategy determines the direct effect of governance practice. Structural constraints will affect the group mentality and governance strategy of grass-roots cadres, while the group mentality of grass-roots cadres will affect the choice of their governance strategies, while the governance practice of grass-roots cadres can make difference based on local situations“. Structure, mentality, action”, these three factors’s coupling make the dilemma constantly be reproduced.