How to correctly and effectively perform government functions during the operation of “Xingchuang Tiandi” is the key point of policy implementation. The policy analysis framework of “Xingchuang Tiandi” is constructed through the grounded theory method, and the policy optimization problem is discussed from the perspective of attention allocation. Taking the number of “Xingchuang Tiandi” at the national level as the outcome variable, with the help of qualitative comparative analysis method, a comparative analysis of individual policy elements and policy element combinations is carried out. The research shows that policy elements have an impact on the implementation results in the form of combination, and are divided into three types of collaborative driving paths according to the different functions performed by the government: guarantee type, configuration type, and adjustment type. Among them, the high-attention allocation of cultivation and incubation has a significant impact on the efficient implementation of policies. Under certain conditions, the high-attention allocation of resource integration and monitoring and assessment can be substituted for each other.