The globalization and information era provides cost-effective virtual platforms for the multiple interest demands and leads to a society characterized by high complexity and uncertainty. In the context of the increasing demand for service-oriented government and the growing administrative power of social organizations，cooperative governance has become an inevitable choice of social administration innovation. Cooperative governance has multiple subjects and governance methods，which determines the necessity of legalizing cooperative governance and balancing rights and power. Cooperative governance in Chaoshan District is based on local conditions，thereby presenting regional characteristics and achieving good results. However，the poor legal environment restricts sustainable development of cooperative governance in this area. Based on the analysis of present situation，this paper puts forward four innovation paths of legalizing cooperative governance：rebuilding legal concepts；promoting local legislation；creating legal atmospheres；improving supervision systems.