The order and effectiveness of citizen participation in public service are not directly related. This paper analyzes the relationship between citizen participation and governance effectiveness from the two dimensions of order and effectiveness. In order to improve the governance efficiency, the system design with procedural rules as the core can more fully guarantee the orderly and effective participation of citizens in public services, and realize the benign interaction and orderly cooperation between citizens and the government. Based on the procedural value dimensions of citizen participation such as whole process democracy, procedural rights and community order, and taking citizen participation in the field of environmental protection as an example, this paper constructs the whole process of citizen participation system from the aspects of public announcement mechanism, opinion expression mechanism, response absorption mechanism, supervision and evaluation mechanism and accountability mechanism, and explores the methods and strategies of citizen participation. Through the internalization of procedural value, method innovation and technology transformation of citizen participation, we can promote the modernization of governance system and governance capacity.