Abstract: John W. Kingdon’ s “multiple-streams framework” is a classic policy innovation analysis framework. Based on the empirical analysis of the generation process of the market entry system of collective commercial construction land in Zezhou County, it was found that the multiple-streams framework could better explain the generation mechanism of this system. The “problem stream” formed by the manifestation of data and indexes, early warning of focus events, and malpractices of policy feedback, the “policy stream” constituted by policy preparation and academic research, and the “political stream” promoted by the central government’ s political pursuit, social political differences and competitive strategies of local governments, together with the policy pilot implemented by the central government, have jointly opened the “policy window” of the county-level system. It was found that the formation of the county-level rural collective commercial construction land market entry system not only depended on the three-source coupling of its own problems, policy and politics, but also was constrained by national politics, policy and law. The requirements and goals put forward by the central government have provided important policy guidance for Zezhou County, and the institutional innovation of Zezhou County also strongly supported the country’ s formal policies and institutions, which fully reflects the organic unity of top-level design and local exploration.