Abstract: To modernize national governance, we need to attach importance to policy systems. The policy system at central level is characterized by “cohesion and integration”. The specific form is that key individuals and their public energy fields drive the establishment of a complete policy agenda, the CPC Central Committee is the core of the integration and cohesion, and the high position promotes the formation of policy programs, and the policy legalization is tested by “procedural legitimacy + institutional legitimacy”. On the one hand, “top-down pressure transmission, bottom-up performance display, from outside to inside requirements input, from inside to outside value output” is the source of its generation. On the other hand, it makes local governance fall into path dependence and lock in the process of self-reinforcement, which becomes the resistance to the modernization of local governance. Therefore, in the process of modernization of national governance, the centralized policy system at the central level needs to be maintained, while the closed policy system at the local level needs to be improved. A feasible path is to change to “limited opening” and “orderly participation”.