目标-工具-效力:中国数字政府建设政策的三维图景

摘要/Abstract

摘要： 数字政府建设已经成为有力有效推进中国式现代化的前沿阵地，是创新政府治理理念、全面形成数字治理新格局的重要内容。为进一步完善数字政府建设的政策体系，在“目标-工具-效力”三维框架下，本文综合运用内容分析法和PMC指数模型对2015-2021年间国家层面出台的54份数字政府建设政策文本进行了量化考察。研究发现，虽然数字政府建设的政策目标体现了以人民为中心和数据赋能政务服务改革的工作思路，政策工具覆盖较为全面，政策效力也整体作用良好，但仍存在政策目标多样性有待丰富、政策工具结构不合理、政策内容预测和反馈机制乏力的问题。据此，应从强化政策设计的“全局意识”、用足“软硬兼施”的政策“工具箱”、建立政策“全身体检”和“政策巡视”制度三个方面，持续优化我国数字政府建设的顶层设计。

关键词: 数字政府, 政策三维分析框架, 内容分析法, PMC指数模型

Abstract: Digital government construction has become the forefront of China's modernization, and it is an important part of innovating the concept of government governance and comprehensively forming a new pattern of digital governance. To further improve the policy sys-tem of digital government construction, under the three-dimensional framework of “Objective-Tool-Effectiveness”, this paper comprehen-sively uses the content analysis method and PMC index model to conduct a quantitative inspection of 54 digital government construction policies, which were issued at the national level from 2015 to 2021. The study finds that although the policy objectives of digital govern-ment construction reflect the people-centered and data-enabled government service reform motivation, the policy tools have a wide cover-age and the overall policy effectiveness is good, there are still many problems such as inadequate diversity of policy objectives, unbal-anced structure of policy tools, and lack of policy content prediction and feedback mechanism. Therefore, we should continue to optimize the top-level design of digital government construction in China from three aspects:strengthening the big-picture thinking in policy de-sign, making full use of the policy toolbox that includes both hard and soft tactics, and maintaining general review and regular inspection of policies.

Key words: digital government, three-dimensional policy analysis framework, content analysis, PMC index model

姚怡帆, 张相, 叶中华. 目标-工具-效力:中国数字政府建设政策的三维图景[J]. 管理评论, 2024, 36(5): 248-259.

Yao Yifan, Zhang Xiang, Ye Zhonghua. Objective-Tool-Effectiveness: A Three-dimensional Picture of Digital Government Construction Policies in China[J]. Management Review, 2024, 36(5): 248-259.

参考文献

[1] 李云新,于业芹.省域"互联网+政务服务"的推进机制与政策特征——基于政策文本的内容分析[J].电子政务, 2018,(3):81-91 Li Y. X., Yu Y. Q. Promotion Mechanism and Policy Characteristics of Provincial "Internet Plus Government Service" -Content Analysis Based on Policy Text[J]. E-Government, 2018,(3):81-91
[2] 孟溦,王勰祎.基于二维分析视角的长三角城市群政府数据开放共享政策分析[J].电子政务, 2020,(3):82-90 Meng W., Wang X. Y. Analysis of Government Data Open Sharing Policies in the Yangtze River Delta Urban Agglomeration from a Two Dimensional Analysis Perspective[J]. E-Government, 2020,(3):82-90
[3] 雷浩伟,廖秀健.省级政府大数据发展应用政策的规制导向与执行优化研究——基于政策文本的分析[J].公共管理与政策评论, 2022,11(2):114-134 Lei H. W., Liao X. J. Research on the Regulatory Guidance and Implementation Optimization of Big Data Development and Appli-cation Policies of Provincial Governments:Based on the Analysis of Policy Texts[J]. Public Administration and Policy Review, 2022,11(2):114-134
[4] 刘亚亚,曲婉,冯海红.中国大数据政策体系演化研究[J].科研管理, 2019,40(5):13-23 Liu Y. Y., Qu W., Feng H. H. A Research on Evolution of China's Big Data Policy System[J]. Science Research Management, 2019,40(5):13-23
[5] 彭川宇,刘月.政府数据开放政策三维分析框架构建及实证研究[J].图书情报工作, 2021,65(6):12-22 Peng C. Y., Liu Y. Construction and Empirical Study of Three Dimensional Analysis Framework of Open Government Data Policy[J]. Library and Information, 2021,65(6):12-22
[6] 姜景,姜娅新,杜惠.政策工具视角下的数字政府研究——基于我国45份政策文本的量化分析[J].智库理论与实践, 2022,7(2):14-23 Jiang J., Jiang Y. X., Du H. Study on Digital Government from the Perspective of Policy Tools-Based on Quantitative Analysis of 45 Policy Texts in China[J]. Think Tank:Theory&Practice, 2022,7(2):14-23
[7] 胡峰,温志强,沈瑾秋,等.情报过程视角下大数据政策量化评价——以11项国家级大数据政策为例[J].中国科技论坛, 2020,(4):30-41 Hu F., Wen Z. Q., Shen J. Q., et al. Quantitative Evaluation of Big Data Policies from the Perspective of Information Process:Taking 11 National Big Data Policies as an Example[J]. Forum on Science and Technology in China, 2020,(4):30-41
[8] 马续补,李洋,秦春秀,等.基于三维分析框架的公共信息资源开放政策体系研究[J].管理评论, 2020,32(8):143-154 Ma X. B., Li Y., Qin C. X., et al. Research on the Policy System of Opening Public Information Resources Based on Three Di-mensional Analysis Framework[J]. Management Review, 2020,32(8):143-154
[9] 冉连,张曦.地方政府数据开放全生命周期安全管理政策研究——基于全国17个省级政府的政策文本分析[J].情报杂志, 2021,40(8):111-118 Ran L., Zhang X. Research on the Safety Management Policy of the Whole Life Cycle of Local Government Data Opening-Based on the Policy Text Analysis of 17 Provincial Governments[J]. Journal of Intelligence, 2021,40(8):111-118
[10] 张永安,耿喆.我国区域科技创新政策的量化评价——基于PMC指数模型[J].科技管理研究, 2015,35(14):26-31 Zhang Y. A., Geng Z. The Quantitative Evaluation of Regional Science and Technology Innovation Policy:Based on the index of PMC Model[J]. Science and Technology Management Research, 2015,35(14):26-31
[11] 周海炜,陈青青.大数据发展政策的量化评价及优化路径探究——基于PMC指数模型[J].管理现代化, 2020,40(4):74-78 Zhou H. W., Chen Q. Q. Quantitative Evaluation and Path Selection of the Big Data Development Policy:Based on the Index of PMC Model[J]. Modernization of Management, 2020,40(4):74-78
[12] 董纪昌,袁铨,尹利君,等.基于PMC指数模型的单项房地产政策量化评价研究——以我国"十三五"以来住房租赁政策为例[J].管理评论, 2020,32(5):3-13 Dong J. C., Yuan Q., Yin L. J., et al. Research on Quantitative Evaluation of Single Real Estate Policy Based on PMC Index Model-Taking China's Housing Rental Policy Since the 13th Five-year Plan as an Example[J]. Management Review, 2020,32(5):3-13
[13] 宋大成,焦凤枝,范升.我国科学数据开放共享政策量化评价——基于PMC指数模型的分析[J].情报杂志, 2021,40(8):119-126 Song D. C., Jiao F. Z., Fan S. Quantitative Evaluation of China's Open and Sharing Policies of Scientific Data:Based on PMC Index Model[J]. Journal of Intelligence, 2021,40(8):119-126
[14] 彭纪生,仲为国,孙文祥.政策测量、政策协同演变与经济绩效:基于创新政策的实证研究[J].管理世界, 2008,(9):25-36 Peng J. S., Zhong W. G., Sun W. X. Policy Measurement, Policy Collaborative Evolution, and Economic Performance:An Em-pirical Study Based on Innovation Policies[J]. Journal of Management World, 2008,(9):25-36
[15] 赵雪芹,蔡铨,王英.我国个人信息保护政策的文本分析——基于政策工具、社会系统论、政策效力的三维分析框架[J].现代情报, 2021,41(4):17-25 Zhao X. Q., Cai Q., Wang Y. Textual Analysis of China&Apos's Personal Information Protection Policy-Based on the Three-dimensional Analysis Framework of Policy Tools, Social System and Policy Effectiveness[J]. Journal of Modern Information, 2021,41(4):17-25
[16] Van den Hoogen Q. L. New Local Cultural Policy Evaluation Methods in the Netherlands:Status and Perspectives[J]. Interna-tional Journal of Cultural Policy, 2014,20(5):613-636
[17] 彭小兵,彭洋.乡村振兴中地方政府的注意力配置差异与治理逻辑研究——基于410份政策文本的扎根分析[J].中国行政管理, 2022,(9):80-88 Peng X. B., Peng Y. Research on the Differences of Attention Allocation and Governance Logic of Local Governments in Rural Revitalization-Based on the Grounded Analysis of 410 Policy Texts[J]. Chinese Public Administration, 2022,(9):80-88
[18] Howard C. Testing the Tools Approach:Tax Expenditures versus Direct Expenditures[J]. Public Administration Review, 1995,(2):439-447
[19] Cutcher L., Ormiston J., Gardner C.' Double-taxing' Indigenous Business:Exploring the Effects of Political Discourse on the Transfer of Public Procurement Policy[J]. Public Management Review, 2020,22(9):1398-1422
[20] Linder S. H., Peters B. G. Research Perspectives on the Design of Public Policy:Implementation, Formulation, and Design[J]. Implementation and the Policy Process:Opening up the Black Box, 1990,(1):51-66
[21] Blair R. Policy Tools Theory and Implementation Networks:Understanding State Enterprise Zone Partnerships[J]. Journal of Public Administration Research and Theory, 2002,12(2):161-190
[22] Tummers L. Public Policy and Behavior Change[J]. Public Administration Review, 2019,79(6):925-930
[23] Carter N., Bryantlukosius D., Dicenso A., et al. The Use of Triangulation in Qualitative Research[J]. Oncology Nursing Forum, 2014,41(5):545-547
[24] Gil-Garcia J. R., Dawes S. S., Pardo T. A. Digital Government and Public Management Research:Finding the Crossroads[J]. Public Management Review, 2018,20(5):633-646
[25] Estrada M. A. R. Policy Modeling:Definition, Classification and Evaluation[J]. Journal of Policy Modeling, 2011,33(4):523-536
[26] 胡春艳,张莲明."好"政策的执行效果也好吗?——基于容错纠错政策的实证检验[J].公共行政评论, 2021,14(3):Hu C. Y., Zhang L. M. Does Good Policy Mean Good Effect?-Empirical Analysis Based on the Policies of Fault Tolerance and Error Correction[J]. Journal of Public Administration, 2021,14(3):4-23
[27] 刘国佳,韩玮,陈安.基于三维分析框架的突发公共卫生事件应对政策量化研究——以新冠肺炎疫情为例[J].现代情报, 2021,41(7):13-26 Liu G. J., Han W., Chen A. Quantitative Study of Public Health Emergency Response Policies Based on a Three-dimensional Analysis Framework-taking the COVID-19 as an Example[J]. Journal of Modern Information, 2021,41(7):13-26
[28] Baldwin E. Why and How does Participatory Governance Affect Policy Outcomes?Theory and Evidence from the Electric Sector[J]. Journal of Public Administration Research and Theory, 2020,30(3):365-382
[29] 李燕,高慧,尚虎平.整合性视角下公共政策冲突研究:基于多案例的比较分析[J].中国行政管理, 2020,(2):108-116 Li Y., Gao H., Shang H. P. Research on Public Policy Conflict from the Perspective of Integration:A Comparative Analysis Based on Multiple Cases[J]. Chinese Public Administration, 2020,(2):108-116