Since the theory of public governance emerges, the experts and scholars argued the problem of “what governance is”,and there are still considerable differences. Because all the experts and scholars cannot reach a basic consensus to this issue so that all pay less attention to the problem “how to carry out governance or governance is how to be organized”. According to Habermas’s communicative activities theory, in the nature,public governance is a communicative activity.Therefore, based on consultation ,the main body should enhance mutual understanding reach consensus, and establish a network of public governance cooperation mechanisms,at last, achieve the goal of public governance.