Unofficial personnel plays a crucial role in promoting effective governance at the grassroots level. This research focuses on the organizational transforming process of unofficial personnel in Chengzhen， Fujian Provicnce，specifically the shift from specialized managers to comprehensive inspection teams. Utilizing “control rights” theory， it explores the inherent differences between these two types of unofficial personnel， and reveals the structural forces driving the transformation of unofficial personnel organizational forms. The study finds that the fundamental distinction between specialized managers and comprehensive inspection teams lies in the distribution of control rights， which means the essence of the organizational transforming in Chengzhen is the township government is striving for the actual “Control rights” of unofficial personnel. Moreover， in the situation of “low governance rights”，township government is facing the tension between limited governance resources and complex and pluralistic governance tasks， which driving the Chengzhen Government to transform the working form of unofficial personnel and strive for the “control rights” over unofficial personnel. Accordingly， it is suggested to promote dynamic balance in staffing，coordinate the use of staffing resources， delegate “control rights” of unofficial personnel， strengthen grassroots governments’ ability to manage and clearly delineate the responsibilities and duties of both unofficial personnel and official personnel.