Community is where government agencies，corporations and social organizations encounter each other，it is one of the key issues to integrate resources for community construction. In Shanghai，the community is geologically defined as a sub-district and under administration of the sub-district office which is legally an extension of the district government. The overall influence of governmental administration in the community has its advantages as well as disadvantages. Resources in community are lack of integration and cannot be used efficiently to benefit people in need. It is one of the most urgent problems，which has it root in Shanghai’s way to treat the community as an unit of local governmental administration. So to make community resources well integrated，it is necessary to have institutional reform of Shanghai’s community development model.