Abstract: This paper studies the administrative behaviors of the local governments in agriculture transformation from the constraints of policies, markets and local conditions. The study finds out the causes both to the scale dependence behavior of local governments and to small farmers' dilemma in agriculture transformation. Suggestions are presented in conclusion for the local governments to balance between external and internal conditions in their decision-making, to reshape their behavioral logic by changing intervention-type into service-type administration, providing high-quality administrative services for cultivating new agricultural management entities, and supporting small farmers to be part of modern agricultural development.