官方文档是这么写的：(http://developer.android.com/about/versions/android-3.1.html#launchcontrols)
Launch controls on stopped applications
Starting from Android 3.1, the system's package manager keeps track of applications that are in a stopped state and provides a means of controlling their launch from background processes and other applications.
Note that an application's stopped state is not the same as an Activity's stopped state. The system manages those two stopped states separately.
The platform defines two new intent flags that let a sender specify whether the Intent should be allowed to activate components in stopped application.
FLAG_INCLUDE_STOPPED_PACKAGES— Include intent filters of stopped applications in the list of potential targets to resolve against.FLAG_EXCLUDE_STOPPED_PACKAGES— Exclude intent filters of stopped applications from the list of potential targets.
When neither or both of these flags is defined in an intent, the default behavior is to include filters of stopped applications in the list of potential targets.
Note that the system adds FLAG_EXCLUDE_STOPPED_PACKAGES to all broadcast intents. It does this to prevent broadcasts from background services from inadvertently or unnecessarily launching components of stoppped applications. A background service or application can override this behavior by adding the FLAG_INCLUDE_STOPPED_PACKAGES flag to broadcast intents that should be allowed to activate stopped applications.
Applications are in a stopped state when they are first installed but are not yet launched and when they are manually stopped by the user (in Manage Applications).
解决方案：1、在发广播的时候加上intent.setFlags(Intent.FLAG_INCLUDE_STOPPED_PACKAGES)
2、把apk放在/system/app/下