Abstract: The repeated appearance of alienation in the grassroots policy implementation of campus football has become an institutional issue and hard to crack in China.With methods of field survey and in-depth interview, the case of F town in Z county of Jiangsu Province is analyzed, combined with need theory, organization theory and institutionalism theory. It puts forward an exploratory framework of "need·organization·system" to explain grassroots policy implementation process of campus football.The result shows that each subject affects the process with their own specific needs, and the completeness of grassroots implementation of organizations and systems directly affects the logical creation of the campus football policy implementation.To optimize policy implementation process effectively, the construction of executive organization system must be improved and the innovation of grassroots system must be focused on under the condition of meeting the reasonable needs of policy subjects.The suggestion includes improving the top-level design of campus football policy, coordinating the construction of grass-roots implementation system from the overall strategic perspective, promoting the reform of the grass-roots organization system of campus football, and reshaping the order of power cooperation among departments and the rigid constraint of execution alienation.