Abstract: As an important subject of social governance, social work organizations garnered much attention because of its relationship with administrative governance. Trust is the premise of the cooperative order, and the current researches focus on the cooperative order embedded in the system, but insufficient attention is paid to the issue of trust embedded in the system. Based on the qualitative researches in grass-roots village and community governance in Shanghai, it has found that social work organizations, through posing themselves as professional assistants, trusting media, balancing demand and active communication, have constructed multiple trust, which include trust in the social exchange, trust based on human relationship and political trust. The construction of trust demonstrates the survival rationality of social work organizations and produces fragile cooperative relations, which are also the results of China's unique political system, the transformation limits of political and social relations and the local relationship-oriented culture. To ensure the effectiveness of social work organizations' participation in social governance, it requires not only the improvement of the system, but also the care and promotion of the construction of trust among the governance subjects.

Key words: governance of villages and communities, trust construction, social work organization