Abstract: Toto is the type of lottery which mainly takes football match results as the guessing object with the highest proportion of sports lottery sales and the largest amount of public fund in China. At present, only a small percentage of lottery public fund is allocated to football causes, which is against the principle that "comes from the people and benefit the people".It fails to meet the policy requirements of the "General Plan of the Football Reform and Development in China", or the general practice of the international lottery industry.On the basis of complying with existing regulations and the interests of existing entities, the Pareto improvement ideas were applied.That is, the incremental public fund of the Toto should be moderately diverted to football causes.This improvement process is suggested to be carried out steadily in stages; the special Funds should be earmarked for youth football causes to bridge its huge funding gap and highlight its significance. At the same time, an independent supervision audit institution should be established with timely detailed release of its use and proper coordination with other institutions.