社会组织是行政力量之外重要的城市结构力量，社会组织的治理是城市治理的重要组成部分。制度文本分析是旧制度主义的主体，它以法律文本、政策文件为研究材料，形成制度运作的法律或正式结构框架。社会组织治理呈现出"从控制到发展"之间的谱系渐变性的特征，是一种"选择性发展"、"趋势性发展"、"重点式发展"。它体现在：第一，在社会组织生存竞争中，提供服务的功能型社会组织逐步崛起；第二，政府部门为社会组织的培育发展提供了持续的资源供给与政策激励；第三，社会组织发展面临着综合监管，限制着其民主协商能力。社会组织治理的"法律—制度"框架更多地体现为行政法规、部门规章和政策文件等，法治化建设有待进一步加强。

Social organization is an important structural force in addition to the administrative force in a city, so the governing of social organization is significant for urban governance. The old institutionalism focuses on law and the central role of law in governing, accordingly the documents of law and policy constitute the formal governing framework. Social organization governing in China is characterized by a smooth change "from control to development", which is a kind of "selective development", "trend development" and "key development". First, functional social organization that provides services is gradually stronger in the survival competition; second, the government provides continuous resource supply and policy incentives for the development of social organization; third, comprehensive supervision on social organization confines its democratic consultation capacity. The "legal-institutional" framework of social organization governance reflects the tendency of "governing by documents" and "governing by departmental regulations", and the practice of the rule of law need to be further developed.