**1. Introduction**

As a positive extra-role behavior, voice has attracted extensive interests from scholars and gained substantial attention in the organizational behavior literature [1–3]. Public voice is a new type of voice behavior that refers to the behavior of citizens who share opinions on social media to improve the social status quo or prevent harmful practices [4]. As a pro-social behavior, public voice is vital for advancement and betterment of society [4], and it is believed that public voice plays an important role in the cooperative governance of governmen<sup>t</sup> and other organizations (e.g., enterprises, non-profit organizations) under a public health emergency. Considering that public participation in public administration and policy formulation is beneficial to governmen<sup>t</sup> performance, governments attach much importance to the public's role in policy-making, especially in the areas of environmental governance, public health, and sustainable development [5–8]. In the face of extraordinary development problems, such as economic recession, public opinion in policy-making is extremely important [9]. Thus, to ensure the timeliness and e fficiency of policy in the case of public health emergencies, the value of public voice, along with technical support from enterprise, should not be underestimated. In the COVID-19 epidemic, many governments have begun to cooperate with high-tech enterprises to formulate epidemic prevention and control policies such as the Health Code in China, COVIDWISE in Virginia, and Corona-Warn in Germany [10–13]. Public voice on social media has e ffectively promoted the evolution of epidemic control policy and tracking applications developed by enterprises, making an outstanding contribution to social stability. Thus, it is necessary to study public voice in public health emergencies in relation to the implementation of governmen<sup>t</sup> policies and the promotion of enterprises' product innovation. Public voice is also of grea<sup>t</sup> significance in further realizing cooperative governance.

Voice behavior refers to the extra-role interpersonal communication behavior in which organizational members actively make constructive suggestions to the organization for the purpose of improving work or organization status quo [14]. Previous studies on voice behavior have mainly focused on employee voice and customer voice within organizations; public voice in a broader context has received little attention. The importance of employee voice and customer voice for the sustainable development of enterprises suggests that the role of public voice in social improvement should not be underestimated, and is worthy of in-depth discussion [4]. Given that public voice can have wide ranging influence in terms of social change, this research focuses on its e ffect on the evolution of policy implemented under public health emergencies. Public voice in public health emergencies has several important characteristics: First, the target of public voice is more extensive. The targets of employee voice and customer voice are employees inside the enterprise and customers who have cooperative relationships with the enterprise, respectively. They often o ffer advice to the enterprise as a single identity. However, for public voice, the target is the general public, who have dual identities as policy participants and enterprise customers. Second, under cooperative governance, multiple subjects participate in policy-making, so the targets and content of public voice are also diverse. For example, voice to a governmen<sup>t</sup> may relate to the implementation of policy, while that to an enterprise may focus on product improvement. Third, the channels for public voice are more diverse. Employees mainly voice to supervisors face-to-face or make suggestions through the internal social networks of an enterprise, and most customer voice occurs through the virtual community created by the enterprise. As social networking sites provide a more convenient platform for people to voice their concerns and make their voices heard, the public can voice through a variety of social networking sites [4]. Finally, the effect of public voice is more significant. Public health emergencies prompt the public to respond to the policy more actively and provide timely feedback [15], which forces the governments and enterprises to absorb public opinion as soon as possible to improve policies and products. Overall, research on public voice behavior is still in its infancy. The factors driving public voice and the mechanism of its action on governmen<sup>t</sup> policies and enterprise product innovation are unclear. The purpose of this study is to address this gap and further explore the role of public voice in promoting cooperative governance under public health emergencies.

The main contributions of this paper are threefold. First, it extends the literature on voice behavior. Most studies on voice behavior have focused on employee voice and customer voice. Under cooperative governance, the public is a participant in governmen<sup>t</sup> policy as well as a customer of enterprises, ye<sup>t</sup> the mechanisms for the influence of public voice on policy and product are not clear. This paper focuses on the dynamic role of public voice in policy-making and evolution and product innovation. Second, it constructs a dynamic model of public voice to promote policy implementation under public health emergency. Studies of public participation have mainly focused on its e ffect on environmental projects and decision, as public participation is seen as highly valuable and necessary to achieve the goal of environmental pollution control [8,16,17]. However, the voice behavior of the public in the formulation and evolution of policies in public health emergencies is unknown. Finally, this paper extends the literature on cooperative governance in a public health emergency and attaches more importance to the role of public voice in the process of collaborative.

This research uses China's Health Code policy under COVID-19 as an example. This is an epidemic prevention policy whose implementation relies on a health rating system developed by Alibaba, Tencent, and other firms. The system uses opaque algorithms and individuals' data, such as physical condition and contact with an infected person, to make judgments about the infection risk of system users [18]. The system then generates a QR code corresponding to this risk level that is used as a passport. Based on the evolution process of Health Code policy, this paper downloads comments about the Health Code policy to do research. This study uses the qualitative research method of grounded theory to explore the factors driving public voice and reveals the dynamic mechanism of its influence on policy formulation and product innovation. Further, this research provides support for cooperative governance involving government, enterprises, and the public under public health emergencies.

### **2. Literature Review**
