Abstract: An exploration of the issue of execution can easily avoid its structural roots within the national governance system. Instead, it always focuses on the street bureaucrats at the end of national governance. An analysis of the elements of vertical governance structure and street bureaucratic action, and a further examination of the arrangement and combination of these elements, reveal that the systematic environment of street bureaucratic action bears dual dimensions of administration and politics, a vertical structure that constantly collapses towards the primary-level, accompanied by the relative decline of primary-level administrative organizations. The conflicts in the dimensions of identity, execution, and responsibility within the structure lead to the fragmentation of street bureaucratic actions in the context, resulting in the dilemma of politics wrapping administration, administration replacing politics, administration squeezing out governance, and governance relying on administration. To reposition the primary-level administration in the vertical structure and coordinate actions and structures, it is necessary to clarify the relationship between formal and semi-formal administrations, clarify the political system logic of functional allocation between levels, and cultivate the social governance foundation of national fundamental power. This truly provides solid structural conditions and institutionalized guarantees for street bureaucratic actions to meet the expectations of superiors and respond to social needs.

Key words: primary-level administration, vertical governance, street bureaucrats, policy implementation, front-line administrative personnel