中共中央政治局第十九次集体学习强调要加强应急管理体系及能力现代化建设，现实中突发的公共卫生事件也对建立突发公共卫生事件应急治理体系及能力现代化提出了紧迫要求和挑战。文章聚焦于突发公共卫生事件的协同治理困境，旨在通过文献概念辨析和突发公共卫生事件防控实践措施两条主线来探讨目前应急处置中在协同治理方面存在的主要问题，在提炼从应急管理到应急治理的理论分析框架的同时，剖析了实践中存在的国家层级的政府机关协同治理困境、地方层级的泛政府主体治理困境、央地垂直关系治理困境，以及政府机构与社会团体、公民个体之间的协同治理困境的形成过程及其原因，从强化法律保障、构建信息共建共享平台、建立贯穿全过程的协商机制三个宏观角度提出我国突发公共卫生事件应急治理的完善路径，以期为应急管理到应急治理的转型，为实现应急治理体系及能力现代化寻找努力方向。

The requirement for the construction and improvement of the modernization of the emergency management system and emergency management capability was emphasized in Fourth Plenary Session of the 19th CPC Central Committee and the 19th group study of the Political Bureau of the CPC Central Committee. In reality, the public health emergency also poses urgent requirement and shows challenges for the establishment of the emergency management system for public health emergency and the modernization of governance capabilities. This paper focuses on the dilemma of the collaborative governance of the public health emergency, aims to explore the core problems in the collaborative governance and emergency response through two lines, ie.,the literature review and concept analysis, and public health emergency prevention and control. By refining the theoretical analysis framework from emergency management to emergency governance, it analyzes the formation process and causes of the different collaborative governance, including the plight of the nation level government agencies′ collaborative governance in practice, the dilemma of the pan government subject governance at the local level, the dilemma of the vertical central government and local government governance, and the cooperative governance dilemma between social group sand individuals. By strengthening the legal guarantees, constructing information sharing platforms, and establishing an integral consultation mechanism with a view of transforming emergency management to emergency governance, it looks for the direction of efforts to realize the modernization of emergency governance system and governance capabilities.