Abstract: The complex and changeable situation of epidemic prevention and control has put forward new requirements for emergency volunteer service. As an important force of social governance, volunteer service should strengthen its capacity of prevention, rescue, resource integration and rapid action in emergency management. However, in the current process of volunteer service participation in emergency management, there are still some challenges, such as insufficient institutional guarantee, inadequate organizational skills, weak technical linkage and low degree of talent specialization, which lead to insufficient linkage efficiency and affect the enthusiasm of volunteer teams, the protection of volunteers’ rights and interests and the efficiency of volunteer service participation. Based on the theory of collaborative governance of public crisis, this paper constructs a four-level linkage model of “system-organization-technology-talent” for volunteer service participation in emergency management, to clarify the current challenges and difficulties of volunteer service participation in emergency management. In addition, it explores the optimization strategies of system empowerment, organization empowerment, technology empowerment and talent empowerment, to promote the effective linkage of volunteer service participation in emergency management, and optimize the effective path to respond to public health emergencies.