Abstract: Because of the risk and function appropriateness, social co-governance possesses the theoretical foundation to intervene in public crisis. The cultivation of shared governance during the modernization process of rule of law and governance also lays the foundation for the overall integration of social governance resources in the emergency. Since the outbreak of Covid-19, the co-governance mirror image under the ternary structure of“government-market-society”has displayed different natural endowment of governance not like the before. In the context of the co-governance led by the rule of law, the establishment of such principles as“law-based emergency”, empowerment and relative liability can effectively alleviate the conflicts between public and private orders triggered by emergency measures for public crisis. By relying on the multiple generation of the information interaction mechanism, social co-governance has become the system carrier of precise decision making and socialized supervision. The development of social co-governance in the future public crisis should be based on the normative balance of empowerment and power restriction. Through the empowerment to the main body during the full process, the system transformation of social co-governance from“subjective awakening”to“incentive compatibility”can be achieved. With the help of effective evaluation of rule of law, the responsiveness of legal control in the social co-governance can be strengthened.

Key words: public crisis, social co-governance, governance modernization, outbreak of Covid-19