社区社会资本是社区的软实力和政府治理社区的有效工具。然而，城市社区中社会资本形成缓慢、政府在形成过程中参与手段单一，现有手段的有效性也受到质疑，制约社区治理水平的提升。基层政府在社区社会资本的形成中如何有效发挥作用，一直是令实践界颇感困惑的问题。已有相关文献表明，政府通过直接参与策略和间接参与策略创造有利于以信任、互惠机制、横向参与网络为核心要素的社区社会资本形成的条件，促进社区社会资本形成。但是少有研究关注政府直接参与策略的有效性、两类策略的适用情境及其创造社区社会资本形成条件的具体机制。在此背景下，本文着力探究城市基层政府创造社会资本形成条件的行动策略与效果机制，包括基层政府的行动策略、行动策略的有效性以及发挥作用的具体机制。基于社会资本、城市研究和协作治理理论，本文提出政府行动策略—适用情境—社区社会资本形成条件的理论框架。为检验该理论框架，本文以成都市为例，通过半结构化访谈、焦点小组座谈、参与式观察，收集36万余字访谈资料、9万余字田野笔记和300余份政策文件等资料。通过编码与比较案例分析，分析经验数据，进而阐释政府的直接参与策略和间接参与策略发挥作用的情境及其影响机制。研究发现，政府的直接参与和间接参与策略在特定适用情境下创造了社会资本形成条件，从而促进社区社会资本形成；策略有效性的发挥依赖于政府资源投入充足程度、中间组织活动能力、社区冲突状况等情境性因素的组合，充足的政府资源投入、较弱的中间组织活动能力及高度社区冲突时，直接参与策略比间接参与策略更有效；政府参与策略有助于创造合作经历，直接参与策略对规则共识的形成至关重要，冲突背景催化了参与激励的产生。本研究为协作治理中多方合作、政府支持社会、社会回应政府的互动关系提供实证依据，回答政府直接参与策略在社会资本形成过程中的有效性问题，细化了对政府各类行动策略适用情境的认识，阐释政府行动策略影响社会资本形成条件的机制。同时，研究为城市政府明确在社区治理和社会治理中职责定位，形成与社会、市场合作的制度格局，分类有效施策提供实践工具包。

Community social capital is the soft power of community governance and an effective tool for the grassroots government in grassroots governance. However, new social capital takes time to formulation in urban community, and the government participates in a single means in the formation process. The effectiveness of existing means has also been questioned, which restricts the improvement of the government‘s community governance. How the grassroots government can play a role in the formation of community social capital effectively has always been a problem that has puzzled the practitioners. Relevant literature has shown that the government can play an active role in the construction of social capital and promote the formation of community social capital. The main path is to create a network of trust, reciprocity, and horizontal participation through direct and indirect participation, which are conditions for the formation of community social capital. However, few studies have focused on the effectiveness of the government‘s direct participation strategy, the contexts of the two types of strategies, and the specific mechanism of creating conditions for the formation of community social capital.The study focuses on exploring the action strategy and effect mechanism of the urban grassroots government to create the conditions for the formation of social capital, including the action strategy of the grassroots government, the effectiveness of the action strategy, and the specific mechanism of its function. Based on the theory of social capital, urban research and collaborative governance, this paper proposes a theoretical framework of “government action strategy-contexts-community social capital formation conditions”.In order to test against this theoretical framework, this study takes Chengdu as an example, through semi-structured interviews, focus group discussions, and participatory observation, collecting more than 360,000 words of interview data, more than 90,000 words of field notes, and more than 300 policy documents. Through open coding and comparative case analysis, empirical data are analyzed, and then the context and impact mechanism of the government‘s direct and indirect participation strategies are explained.The study found that the government‘s direct participation strategy and indirect participation strategy created conditions for the formation of social capital in specific contexts, thereby promoting the formation of community social capital; and the effectiveness of the strategy depends on combinations of resource munificence of governments, the ability of intermediate organizations and community conflict situation. Combination of contextual factors such as sufficient government resource input, weak intermediary organization activity ability and high community conflict, direct participation strategy is more effective than indirect participation strategy; government participation strategy helps to create cooperative experience, the direct participation strategy is crucial to the formation of rule consensus, and the conflict context catalyzes the generation of participation incentives.This study provides an empirical basis for the interactive relationship between the government supporting the society and the society responding to the government in collaboration theory, responses to question of the effectiveness of the government‘s direct participation strategy in the process of social capital formation, and refines the government‘s various action strategies. The understanding of the applicable situation explains the mechanism by which government action strategies affect the conditions for the formation of social capital. At the same time, the study provides a practical toolkit for the city government to clarify its role in community governance and social governance, form an institutional pattern of cooperation with society and the market, and implement effective policies by category.