This article refines our understanding of the building blocks of civic capacity. It argues that the development of civic capacity depends heavily on the tractability or "wickedness" of public problems. Problem tractability, in turn, depends on leaders’ ability to manage processes of learning and bargaining strategically by influencing policy networks, governance institutions, and collective cognitive frames. Longitudinal case studies of urban growth and transportation in Seattle highlight the benefits for civic capacity of building robust networks and legitimate, transparent governance institutions, and of adjusting the frames of debate in light of situational demands. The article concludes with propositions and implications for future research.