Barrier-free environment is the urgent requirement of the disabled and the elderly to equally participate in social life.However, there is sharp gap between the larger and the reality of the barrier-free environment construction system in China. Based on the dales of barrier-free environment construction from 2010 to 2014 and the theory of social governance，it is found out that the discrete action subject is the main influential factor which leads to the dilemma situation in barrier-free environment construction.I t is of urgent necessity to insist on cooperative governance. Then it is possible to construct coordinating mechanism of equal dialogue，coordinative integration and shared responsibility among the state， marked，social organizations and citizens.