At present，the entire city of Shanghai has been in a “new tripartite-structure” that consisted of “central urban area-uria-outer suburban district” in the aspect of spatial morphology，population distribution and industrial layout. The former “double dual structure” in which urban-rural dual structure and household registered dual structure coexist has been broken. Shanghai’s social governance system is incommensurate to the changed conditions because of the outstanding problems in the top and bottom part of it. In the top part mainly include the following issues：the leadership system has not been stereotyped，the coordinated mechanism of mediating social contradictions and the dynamic adjustment mechanism of the allocating governance resources have not been improved；in the bottom part mainly include the following issues：the fragmentation of the vertical and horizontal relationships restricts sub-district and town to strengthen their social governance function，the community governance system in central urban area has not been effectively established，township merger has been a significant negative impact on the grass-roots social governance in suburbs.