In recent years, the debt of villages and towns is increasing and accelerated increase, which has severe negative influence on rural grassroot government construction, thus, analysis of the reasons for the emergence of the debt is an important premise to produce countermeasures. Because the debt is a special phenomenon in China’s economic transitional period, the reasons are multiple and can not be completely analyzed by a science, so, using administration science as the starting point and examining the debt by combining the producing mechanism of the debt with its realizing system are helpful to discuss the debt without considering financial revenue and to explore the systematic reason for the debt so as to obtain more solutions.