Abstract: "Who governs the village" is an important topic in the research of grass-roots governance. Through the field study of He village in southern Anhui, it is found that with the changes of the external environment, the grass-roots government gradually has the power and ability to deeply intervene in village governance. By adjusting the micro institutional environment of village level governance, the grass-roots government has changed the village level organization from "autonomous organization" to its own "agency" in rural society, and its operation mode has changed, which is mainly reflected in the unit of organization operation, the administration of governance affairs and the standardization of governance mode. In this context, the post of village cadres has the characteristics of full-time requirements and "de value", and limits the use of informal governance means, which forms the exclusion of elite groups and the attraction to ordinary villagers and leads to the trend of "de elite" from village governance subjects. On the one hand, the "de elitism" of village governance subjects promotes the open operation of village governance power, on the other hand, it leads to the rise of institutional cost and the decline of governance efficiency in the governance process.