This paper took the college affiliated to a ministry for example to discover the formalization of colleges organizational functions are mainly reflected in the virtual allocation of power,the virtualimplementation of responsibility and thevirtual distribution of interests with in - depth interview analysis. The fundamental reason is that the positioning,functions and power boundaries between uni- versities and colleges are not clearly defined. Specifically,the relationship between universities and secondary colleges is unequal,the colleges have“equal dependence”path dependence,the responsibilities of universities and colleges are isomorphic,the academic characteristics of colleges are eliminated,the resource allocation is fragmented,the overall integration ability of colleges is lacking,the responsibility boundary of universities and colleges is unclear,the main responsibility of colleges is weakened,and the evaluation sys- tem is one - way and top - down,service functions of colleges is alienate,etc. This paper holds that“Holistic College”should be built to realize the functions of secondary colleges effectually by giving secondary colleges the decision - making power of major affairs,build- ing a multi governance system,strengthening the integration and optimization of the colleges functions,improving the diversified super- vision and assessment mechanism for the responsibilities of colleges,and strengthening the needs and problem orientation of teachers and students.