This　paper　takes　digital　gap　as　the　background,　analyzing　the　characteristics　of　universal　service,　and　on　the　basis　of　empirical　study　to　the　macro-effect　of　China＇s　telecom　universal　service,　proposes　the　countermeasures　to　telecom　universal　service　from　government＇s　administration　structure　and　regional　development　model.　At　development　model,　it　suggests　implementing　the　non-equilibrium　development　principles　including　the　potential　growth　pole　regarded　as　the　core,　the　existing　growth　pole　regarded　as　the　assist　and　non-growth　pole　developed　appropriately,　which　based　on　growth　pole　theory.