网络管理视域下的地方政府信息资源集成研究
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摘要
中国的改革开放,为政府管理现代化提供了可能。但从计划经济向市场经济转轨的过程中,体制性障碍和其他诸多方面的影响对政府管理的水平和质量提出了严峻挑战,政府管理过程中暴露出许多的问题,其中较为突出的是：
(1)政府作为单一的管理主体,独掌问题的发现和处置,不利于问题的发现、解决,缺乏有效监督；
(2)政府部门职责的重叠与交叉大量存在,不利于管理流程的调整和建立量化的考核标准；
(3)基础数据的不完整,不利于政府管理现代化的推进；
(4)政府机构臃肿、管理人员过多,从而导致政府机构运行的成本越来越高；再加上管理工作分工不合理,致使管理责任难以落实,导致管理方式粗放,管理对象不具体,使政府信息获取滞后、处置被动。传统的政府管理模式,无论是其管理思想、管理理念还是管理方式、管理手段,与建设服务型政府的目标,都有着很大的不平衡性。在此情势下,政府管理必然孕育着一场革命性变革,时代呼唤产生一个全新的管理模式。
一是针对政府管理效率不高、水平低下的情况,需要解决管理方式和管理手段落后的问题；二是针对信息获取滞后和逐步衰退的情况,需要解决信息快速采集和传递方式的问题；三是针对管理责任不落实、管理方式粗放的弊端,需要解决管理空间定位量化的问题；四是针对政出多门、推诿扯皮、分散指挥、效率低下的弊端,需要解决统一管理平台、统一管理体制、集成管理职能、规范管理流程的问题；五是针对管理对象不具体、底数不清的情况,需要解决管理对象数字化和数据完整清晰的问题。而所有这些问题的解决,都离不开体制创新和信息技术的应用。
网络是近年来国际上兴起的一种重要信息技术。它是高性能计算机、数据源、互联网三种技术的有机组合和发展。综观近代科技发展史,从蒸汽机、发电机、电话到计算机,每一次根本性的变革总是伴随着依赖相关产品而形成的网络。例如,电的发明惟有经过电网的架设,才能照亮千家万户(电力网络)；汽车等交通工具的发明只有经过公路、铁路等交通网的全面建设,才能投入使用(交通网络)。而当互联网上所有的资源实现全面连通时,也会像电力网、电话网和交通网一样实现资源共享,并形成高效应用的网络化的基础,从而给人们的生产、生活方式带来巨大变革。
网络化管理是一种新的资源集成方式和组织模式,作为现代一种新型的管理模式,网络化强调责任与协调的统一：即每个成员都必须为客户需求的全过程负责,同时通过网络资源的共享得到协调与协同,以求获得最高质量的服务。作为一种新型的电子政务组织模式,网络化管理强调：从管理和服务的需求来看,以客户为导向,面向全流程；从管理和服务的提供者来看,实现资源集成,达到工作协同。
把网络化管理应用到政府日常管理实践当中,就形成了政府网络管理模式。20世纪末,世界各个国家的政府都专注于改善政府的管理,所谓网络化管理就是在不改变现有政府运营体制的基础上,重组政府业务流程,在现代信息技术的支持下把政府的管理机构、功能、运行机制等各个方面进行重新设计,从而形成业务导向的条块集成模式,为政府职能转变,建设服务型政府奠定基础,具有现实性和可操作性。可见,政府网络化管理是将网络化管理的思想应用于政府管理而形成的,依据“各司其职、优势互补、规范运作、快速反应”的原则,按照政府流程再造的要求,将政府辖区各网络内的社会管理与公共服务部门的工作内容予以集成,并以制度的形式固定下来,组成新的政府管理体系,以提高政府的管理水平和管理效率。
从世界各个国家的实践来看,在网络化管理实施之后,现代信息技术与政府管理得到了很好的结合,通过这样一个平台,实现了政府管理资源的一体化,能够及时解决问题、进行定量分析、综合评价,从而成为政府管理模式创新的有效途径。网络化管理模式最大的功效就是通过新的理念和技术的引进,使政府管理实现以下三方面的目的：一是政府的责任机制得到有形载体的支持,从而提高管理效率；二是通过现代信息技术手段打破责任的条块分割,缓和现有体制的矛盾；三是运用信息化的流程设计,促进了政府职能转变,筑构了面向公众服务的新格局。
信息资源的集成和共享是构建网络化管理模式的前提和基础,网络管理模式下的信息资源集成需要解决以下问题。
(1)网络中的组织职能需要通过集成来理顺和调整。政府组织职能的理顺和调整需要通过资源集成来进行,例如社区事务受理中心和各相关职能部门的关系需要在以客户为导向的前提下进行职能的理顺和调整,如在救助与人口管理方面需要理顺民政、劳动和公安等部门的职能等。
(2)网络中的业务流程需要通过集成来梳理与再造。例如,社会救助有一套上下承接的制度却没有一套上下承接的流程,需要在梳理现有流程的基础上进行流程再造。
(3)网络中的信息需要通过集成实现共享。需要建立统一的资源共享平台,综合服务对象的各种属性信息并充分共享。例如,城建、旅游、绿化等部门需要共享地理空间方面的信息,公安、民政、劳动等部门需要共享自然人基本信息等。
目前对于地方政府信息资源集成管理,国内外都有着广泛的研究,为我国地方政府信息资源建设,提供了大量理论依据和实践指导。然而对于政府网络化管理这一新兴管理模式,其研究尚处于探索阶段。而地方政府信息资源集成如何贯穿于整个政府网络化管理流程,只有个别文章简单涉及,尚未构建出成熟的理论和方案。
本论文旨在运用网络及信息资源集成理论,从地方政府网络化管理由传统的“综合管理”向“综合服务”转变的理念出发,对地方政府网络化管理中的信息资源集成现象及其涉及的问题进行多角度、多视野的探讨,将信息资源集成定位为破解我国行政体制条块分割顽症的治理工具。论文的研究以阐释网络化管理视域下信息资源集成的内涵及其基本原理为起点,揭示网络管理框架中信息集成的内在关系与互动规律,并据此提出了地方政府网络管理中的信息资源集成的总体框架及运行模式。进而在借鉴西方发达国家政府网络管理中信息资源集成经验的基础上,运用案例的实证分析,提出了完善我国地方政府网络管理的策略；规划了地方政府网络框架中信息资源集成的路径,从而使得政府信息资源建设能有效地改善,达到提高行政管理绩效,实现服务型政府的目标。
论文的具体研究思路如下：首先,明晰界定网络化管理与信息资源集成的内涵,并探讨信息资源集成与网络化管理的内在关系与互动规律,建立网络化管理中信息资源集成的体系及其流程。其次,通过对美国州政府、英国郡(县)政府、日本与新加坡城市政府网络化管理中信息资源集成经验的总结和分析,以它山之石为我国地方政府提供相关的改革启示和借鉴。第三,从整体上分析了地方政府网络化管理的信息集成框架,从信息资源集成框架的三个维度范畴,揭示了信息集成框架需要实现的三项基本目标。并介绍了支撑信息资源集成框架的技术平台及其结构体系、在此基础上提出了实现集成框架的策略与策略工具。第四,提出了地方政府网络管理信息资源集成化的实现路径。论文认为,集成化信息资源管理主要是用来解决网络异构系统整合的问题。文章从信息资源集成的形式化表达入手,以LEAP的集成模型为运行框架；以流程引擎与规则引擎作为其动力结构；以内容集成、数据仓库集成和数据集成为中心,通过GIS支撑服务架构传输服务,达到提高信息资源的利用效率和管理服务水平的目的。最后,以深圳市龙岗区政府“安全管理信息系统”的实证为例,在总结深圳市龙岗区政府综合安全管理信息系统集成实践经验的基础上,探讨了地方政府建构网络化管理中的信息资源集成系统的理论价值。认为,龙岗区“综合安全管理”信息系统是建立在政府网络信息资源共享的基础上的,它是以网络化为基础、以信息资源集成为核心、以“综合管理、综合治理、综合服务”三位一体为主要内容的格局。其目标是实现高效率的、主动式的、协同型的政府网络化管理模式。
本文从政府网络化管理的视角,力图探索政府信息资源集成的新途径,开拓实现服务型政府职能的新格局,在研究方法上采用理论和实证相结合的方法,具有下述创新。
1、通过实证研究,在地方政府网络化管理与信息资源集成二者的逻辑关系上取得了具有创新性的理论认识,提出了地方政府网络化与信息资源集成是形式与内容的关系,二者之间应水乳交融,互为依存。即信息资源集成是网络化管理的实质内容,网络化管理是对信息资源集成的外在表现形式,是对信息资源集成的反映与载体。地方政府网络化管理中的信息资源集成要以“群众得实惠、管理出实效”为基本价值取向,通过条块联手、集成资源、再造流程、强化监督,建立职责分明、操作有序、管理到位、执法有力、监督及时的政府管理长效信息运行机制,全面提升政府网络化管理效率。并按照“管理有序,执法有力,监督有效,服务优良”的要求,建立地方政府信息集成系统,即以基层为基础,形成地方政府信息综合管理网络化；以部门为单位,实现地方政府综合管理信息集成化；以条线为依托,完善地方政府综合管理规范化的信息流。
2、通过广泛的资料收集、文献研究以及对比,调查分析了我国网络化管理中政府信息资源的集成现状,结合发达国家在地方政府信息资源集成管理领域中的实践进展,消化吸收信息资源管理、网络化理论、公共管理等众多学科已有的研究成果,从网络化管理由传统的“综合管理”向“综合服务”转变的理念出发,提出了信息资源的集成框架是由整体的网络系统需求所决定的,它产生于网络系统的信息管理系统中,依托于信息管理系统而展开。信息资源集成框架由三个维度组成,它们分别是：资源维度(R)、服务维度(S)及应用维度(A)。信息资源在R,S,A三个维度上的集成实质上体现了信息资源集成的三项目标：信息资源组织的有序化、信息资源处理的智能化、信息资源运用的集约化。“三化”在一定约束条件下的运行,促成了信息资源集成在广度、深度及高度的演化,并通过博弈而达到的一个最优点,它是信息资源集成形成最优值的过程。
3、论文认为,地方政府网络化管理中的信息资源集成实现路径具体可分为三个层次：数据层集成、应用层集成和业务流程层集成。这三个层次的集成是在同一系统依次进行的,先有数据层集成；再有应用层集成；最后才有业务流程层集成。对于网络中的信息资源集成来说,三种集成是紧密联系,互相依存,缺一不可的。任何一种集成都以前一个层次的集成为前提；是先一个集成的继续与深化,从这个意义上来说,任何一种集成都不可能独自承担信息资源集成的大任。
由于地方政府网络化管理和信息资源集成的研究目前尚处于起步阶段,相关理论还处于发展完善之中,因此难免出现诸多不成熟的地方；同时相关的实践经验较为贫乏,加之本文选取的案例比较单一,使得研究结果运用的广泛性有待检验。
China's reform and opening up makes the modernization of local government administration become possible. However, institutional barriers and many other effects present a severe challenge to the level and quality of local government administration in the process of turning the planned economy to the market economy. There are many problems emerged in the process of local government administration, especially in the following aspects:
1. Local government, as the single management main body, controls the discovery and treatment of problems alone, which is not advantaged to discover and solve problems and lacks effective supervision.
2. There are many overlapping parts existing in the responsibilities of local government departments, which are not advantaged to adjust the management process or establish a quantized assessment standard.
3. The incomplete basic data is not advantaged to promote the modernization of local government administration.
4. The local government agencies are overstaffed and managers are superfluous, which make the operating costs of local government agencies are higher and higher. Moreover, unreasonable management space division makes it difficult to implement the responsibilities of management, resulting in extensive management style and unspecific object of management. Besides, all of these make the information acquisition of local government drop behind and dispose passively. Traditional local government administration mode is very imbalanced both in its management thinking, management concept, or management method, management control and the aim of building a service-oriented local government. Under such circumstances, the local government administration inevitably gestates a revolutionary change, and our epoch calls for a totally new management model.
Firstly, aiming at the low efficiency and low level of local government administration, we need to solve the problem of behindhand management method and management control. Secondly, aiming at the behindhand information acquisition and gradual recession, we need to solve the problem of collecting information rapidly and transfer mode. Thirdly, aiming at the disadvantage of failure to implement the responsibilities of management and extensive management style, we need to solve the problem of locating and quantifying the space management. Fourthly, aiming at the disadvantage of divided policies from various sources, shuffling responsibility and dispute, separate command and low efficiency, we need to solve the problem of unifying management platform, unifying management system, integrating management functions and regulating management process. Lastly, aiming at the unspecific object of management and unclear base number, we need to solve the problem of digitizing the object of management and making the data clear and integrated. To resolve all of these problems above, we will not be inseparable from the institutional innovation and the application of information technology.
The network is an important international information technology rising in recent years. It's the organic combination and development of three kinds of technology:high performance computer, data sources and the Internet. Looking at the history of modern science and technology, from steam engine, generator, telephone to the computer, each fundamental reform is always accompanied by the network which is formed by related products. For example, only after the setting up of electric network, can the invention of electricity illuminate millions of households(electric power network); only after building the roads, railways and other transport network, can the invention of vehicle such as cars put into use(traffic network). And when the full connection of all the resources on the Internet comes true, it will achieve to share the resources together like the electric power network, telephone network and traffic network. Moreover, it will form high efficient and applied network foundation which brings huge change to people's mode of production and lifestyle.
The network management is a new integration mode and organization pattern of resource. As a new modern management model, the network emphasizes the unity of responsibility and coordination:that means every member must be responsible for the entire process of customer's needs. At the same time, every member gets the coordination and cooperation through sharing the network resources in order to achieve the highest quality of service. As a new organizational model of e-local government, the network management emphasizes customer-oriented and face to the entire process from the demands of management and service; and from the providers of management and service, it emphasizes the integration of resources to achieve to work cooperating.
The local government network management model is formed by applying the network management to the practice of daily local government administration.In the late 20th century, all countries around the world focus their attention on improving the local government management. The network administration is recombining the operation process based on the management by the local government without changing the existing operating system. It's redesigned from the aspects of management structure, function, operating mechanism, etc. under the support from the modern information and technology. Then it forms operation-oriented horizontally and vertically integration model, to establish the foundation for the transformation of local government functions and building a service-oriented local government with realistic and feasible. Therefore, the network local government management is formed by applying the network management thinking to the local government management. According to the principle of "each performs its own functions, complementary advantages, standardized operation, rapid reaction" and the requirements of the local government process reengineering, integrating the work content of social management and public service sector in the area of local government network. Then fix it in the form of system and form a new local government management system in order to improve the local government's management level and management efficiency.
From the practical perspective of all countries around the world, the modern information and technology is combines well with the local government management after utilizing the network management. Via such a platform, it achieves the integration of local government manage resources. It's an effective way to promote the innovation of local government management model, which has the functions of initiative discovery, timely solution, quantitative analysis and comprehensive evaluation. The maximum function of applications of the network management model is managed to through the network concepts and introducing into technology to achieve the purposes of the following three aspects, which will go beyond the traditional management model:firstly, the responsibility system of local government gets the tangible carrier support, which enhances the management efficiency. Secondly, breaking the compartmentalization division of responsibility by modern information and technology, and easing the institutional contradictions. Lastly, promoting the transformation of local government functions by using information-based process design, and building a new public service-oriented pattern.
The prerequisite and foundation of building network management model is integration and sharing the information resource. It's necessary to solve the following problems for information resources integration under the network management model.
1. The organizational functions of the network need to rationalize and adjust by integration. Part of the integration of resources need to rationalize and adjust by organizational functions. For example, the relationship between community affairs center and the relevant functional departments needs to rationalize and adjust the functions under the customer-oriented, such as aid and population management needs to rationalize the functions of civil affairs, labor and public security departments.
2. The operation process in the network needs to sort out and reforge by integration. For example, there is a set of up and down system in the social assistance, but it doesn't have a set of up and down process, which needs to be reengineered on the basis of sorting out the existing process.
3. Through integrating, the information in the network can be shared. It needs to establish a unified platform for resource sharing, integrating and sharing a variety of attribute information of service objects. For example, urban construction, tourism, virescence and other departments need to share geo-spatial aspects of information, public security, civil affairs, labor and other departments need to share basic information such as a natural person.
At present, for the Local government's integrated management of information resources, it has extensive research at home and abroad. It has providing a large number of theoretical basis and practical guidance for the building of our local government information resources. However, for the local government to manage the emerging network management model, its research is still in the exploratory stage. As for the research of how the integration of local government information resources throughout the local government network management process, only a few of articles have touched it, it haven't build a mature theoretical and program.
This thesis aims to use the network and information resources integration theory, from the network management from the traditional "integrated management" to "integrated services" into the concept of proceeding, do the multi-angle, multi-perspective discussion about the phenomenon of information resources integration and its implications in the Local government network management. Integration of information resources will be positioned as a crack in China's administrative system, the chronic problem of fragmented governance tools. This thesis to illustrate the network integration of information resources management and the connotation of its basic principles as a starting point, to reveal the internal relations and interaction rules of information integration in the frame of the network management, and accordingly put forward the overall framework and operation model of the integration of information resources in the local government network management. And then learn from the experience of the integration of information resources in the western developed countries'local government network management, using case empirical analysis, putting forward a strategy of improving our local government network management; Planning the path of the integration of information resources in the frame of the local government network, thus local government information resources construction can be effectively improved, to achieve the goal of enhancing the administrative performance, constructing service-oriented local government.
Specific research ideas are as follows:First, clearly defined network management and connotation of the integration of information resources, and to explore the internal relations and interaction laws between the information resources integration and network management, establish a network management of information resources integration system and its processes. Second, through the experience and analysis of the experience of the integration of information resources in network management in the United States, the United Kingdom-gun (county) local government, city local governments in Japan and Singapore, to provide interrelated reform inspiration and reference to our local government. Third, it analyzes the information integration frame of the local government network management in its totality. It opens out the three basic objectives of the information integration frame from three dimensions category of the integration frame of the information resource. Moreover, it introduces the technology platform and its structure system which supporting the integration frame of the information resource, and puts forward the strategy and strategy tool of achieving the integration frame. Fourth, it brings forward the achieving path of integration of the information resource in the local government network management. The thesis considers, the management of integration of the information resource is mainly used to solve the problem of integrating the different constructing system of the network. It starts with the formalized expression of integration of the information resources, takes the LEAP integration model as operating frame, uses the engine and rules of the operation as its power structure, focus on the integration of content, data storage and data, via GIS supporting service frame to transfer the service, to achieve the objective of improving the using efficiency of information resources and the level of service management. Finally, it takes the demonstration of "safety management information system" in Longgang District, Shenzhen as an example, discussing the theoretical value of the information resources integration system of constructing the local government network management in the basis of summarizing the practical experience in the "safety management information system" in Longgang District, Shenzhen. The thesis considers, the "safety management information system" in Longgang District is established on sharing the information resources of local government network. Its pattern takes the network as basic, the integration of information resources as core, the "integration management, integration governance, integration service" as primary content. Its objective is to achieve high efficiency, active and coordinated local government network management model.
This thesis from the perspective of local government network management, it tries to explore new approach of Local government network management and exploits a new pattern of service-oriented local government functions. Research methods used in the theoretical combine with empirical method. It has the following innovation.
1. Through empirical research, it has made an innovative theoretical understanding of logic relationship between the local government network management and information integration. It puts forward that the local government network and the integration of information resources is the relationship between form and content; they should be in harmony, interdependent. Namely, the integration of information resources is the substance of the network management, and network management is an external manifestation, reflection and carrier of the integration of information resources. The integration of information resources in local government network management should take "people has boon, management has actual effect" as basic value orientation. It should establish a long-acting information operational mechanism of local government management with clear responsibility, well operation, management in order, forceful execution and timely supervision, and advance the efficiency of local government network management roundly by combining the piece, integrating resources, reforming operation, consolidating supervision. Moreover, it should establish local government information integration system according to the request of "management in order, forceful execution, supervision in effect, well service". That means forming local government synthetic information network in the basis of grassroots; achieving local government synthetic information integration in the unit of department; consummating local government synthetic management standardization in the support of piece.
2. Via a wide range of data collection, literature studies and comparison of investigation, it analysis the actuality of local government information resources integration our network management. It combines with progresses of developed countries'local government information resources management areas, digests and absorbs the information resource management, network theory, public administration and many other disciplines of existing research results. It starts with the concept change from the traditional "integrated management" to "integrated services" in network management and brings forward the integrated frame of information resources is determined by the whole requirements of the network system, which is produced in the information management system of network system and spread relying on the information management system. The information resources integration frame is made up by three dimensions, they are:resource dimension (R), service dimension (S) and application dimension (A). The information resources integrated in the three dimensions of R, S and A is virtually represented the three objectives of the information resources integration: organize information resources in order; dispose information resources intelligentized; apply information resources intensively. The operations of these three objectives in certain restricted condition cause the evolvement of information resources in extent, depth and height, and achieve the best point by struggling. This is the process of being perfect of the information resources integration.
3. The thesis considers that the achieving path of information resources integration in local government network management can be divided concretely into three levels:the level of data integration, the level of application integration and the level of operation integration. These three levels are going along in turn in the same system. First is the level of data integration, then is the level of application integration, last is the level of operation integration. For the information resources integration in network, the three levels of integration are close connection, inter-dependence and cannot be indivisible. Any level of integration is taking the previous one as precondition; it's the continuation and deepening of the previous level of integration. In this sense, none of the level could take on the great responsibility of integrating the information resources alone.
Currently, as the Local government of network resource management and information integration research is still at the initial stage, the relevant theory is still being developed, so there are some inevitable immature expresses; At the same time, relevant practical experience is scarce, combined with the selected cases of this thesis are simple, all these factors makes extensive use of research findings yet to be tested.
(1)政府作为单一的管理主体,独掌问题的发现和处置,不利于问题的发现、解决,缺乏有效监督；
(2)政府部门职责的重叠与交叉大量存在,不利于管理流程的调整和建立量化的考核标准；
(3)基础数据的不完整,不利于政府管理现代化的推进；
(4)政府机构臃肿、管理人员过多,从而导致政府机构运行的成本越来越高；再加上管理工作分工不合理,致使管理责任难以落实,导致管理方式粗放,管理对象不具体,使政府信息获取滞后、处置被动。传统的政府管理模式,无论是其管理思想、管理理念还是管理方式、管理手段,与建设服务型政府的目标,都有着很大的不平衡性。在此情势下,政府管理必然孕育着一场革命性变革,时代呼唤产生一个全新的管理模式。
一是针对政府管理效率不高、水平低下的情况,需要解决管理方式和管理手段落后的问题；二是针对信息获取滞后和逐步衰退的情况,需要解决信息快速采集和传递方式的问题；三是针对管理责任不落实、管理方式粗放的弊端,需要解决管理空间定位量化的问题；四是针对政出多门、推诿扯皮、分散指挥、效率低下的弊端,需要解决统一管理平台、统一管理体制、集成管理职能、规范管理流程的问题；五是针对管理对象不具体、底数不清的情况,需要解决管理对象数字化和数据完整清晰的问题。而所有这些问题的解决,都离不开体制创新和信息技术的应用。
网络是近年来国际上兴起的一种重要信息技术。它是高性能计算机、数据源、互联网三种技术的有机组合和发展。综观近代科技发展史,从蒸汽机、发电机、电话到计算机,每一次根本性的变革总是伴随着依赖相关产品而形成的网络。例如,电的发明惟有经过电网的架设,才能照亮千家万户(电力网络)；汽车等交通工具的发明只有经过公路、铁路等交通网的全面建设,才能投入使用(交通网络)。而当互联网上所有的资源实现全面连通时,也会像电力网、电话网和交通网一样实现资源共享,并形成高效应用的网络化的基础,从而给人们的生产、生活方式带来巨大变革。
网络化管理是一种新的资源集成方式和组织模式,作为现代一种新型的管理模式,网络化强调责任与协调的统一：即每个成员都必须为客户需求的全过程负责,同时通过网络资源的共享得到协调与协同,以求获得最高质量的服务。作为一种新型的电子政务组织模式,网络化管理强调：从管理和服务的需求来看,以客户为导向,面向全流程；从管理和服务的提供者来看,实现资源集成,达到工作协同。
把网络化管理应用到政府日常管理实践当中,就形成了政府网络管理模式。20世纪末,世界各个国家的政府都专注于改善政府的管理,所谓网络化管理就是在不改变现有政府运营体制的基础上,重组政府业务流程,在现代信息技术的支持下把政府的管理机构、功能、运行机制等各个方面进行重新设计,从而形成业务导向的条块集成模式,为政府职能转变,建设服务型政府奠定基础,具有现实性和可操作性。可见,政府网络化管理是将网络化管理的思想应用于政府管理而形成的,依据“各司其职、优势互补、规范运作、快速反应”的原则,按照政府流程再造的要求,将政府辖区各网络内的社会管理与公共服务部门的工作内容予以集成,并以制度的形式固定下来,组成新的政府管理体系,以提高政府的管理水平和管理效率。
从世界各个国家的实践来看,在网络化管理实施之后,现代信息技术与政府管理得到了很好的结合,通过这样一个平台,实现了政府管理资源的一体化,能够及时解决问题、进行定量分析、综合评价,从而成为政府管理模式创新的有效途径。网络化管理模式最大的功效就是通过新的理念和技术的引进,使政府管理实现以下三方面的目的：一是政府的责任机制得到有形载体的支持,从而提高管理效率；二是通过现代信息技术手段打破责任的条块分割,缓和现有体制的矛盾；三是运用信息化的流程设计,促进了政府职能转变,筑构了面向公众服务的新格局。
信息资源的集成和共享是构建网络化管理模式的前提和基础,网络管理模式下的信息资源集成需要解决以下问题。
(1)网络中的组织职能需要通过集成来理顺和调整。政府组织职能的理顺和调整需要通过资源集成来进行,例如社区事务受理中心和各相关职能部门的关系需要在以客户为导向的前提下进行职能的理顺和调整,如在救助与人口管理方面需要理顺民政、劳动和公安等部门的职能等。
(2)网络中的业务流程需要通过集成来梳理与再造。例如,社会救助有一套上下承接的制度却没有一套上下承接的流程,需要在梳理现有流程的基础上进行流程再造。
(3)网络中的信息需要通过集成实现共享。需要建立统一的资源共享平台,综合服务对象的各种属性信息并充分共享。例如,城建、旅游、绿化等部门需要共享地理空间方面的信息,公安、民政、劳动等部门需要共享自然人基本信息等。
目前对于地方政府信息资源集成管理,国内外都有着广泛的研究,为我国地方政府信息资源建设,提供了大量理论依据和实践指导。然而对于政府网络化管理这一新兴管理模式,其研究尚处于探索阶段。而地方政府信息资源集成如何贯穿于整个政府网络化管理流程,只有个别文章简单涉及,尚未构建出成熟的理论和方案。
本论文旨在运用网络及信息资源集成理论,从地方政府网络化管理由传统的“综合管理”向“综合服务”转变的理念出发,对地方政府网络化管理中的信息资源集成现象及其涉及的问题进行多角度、多视野的探讨,将信息资源集成定位为破解我国行政体制条块分割顽症的治理工具。论文的研究以阐释网络化管理视域下信息资源集成的内涵及其基本原理为起点,揭示网络管理框架中信息集成的内在关系与互动规律,并据此提出了地方政府网络管理中的信息资源集成的总体框架及运行模式。进而在借鉴西方发达国家政府网络管理中信息资源集成经验的基础上,运用案例的实证分析,提出了完善我国地方政府网络管理的策略；规划了地方政府网络框架中信息资源集成的路径,从而使得政府信息资源建设能有效地改善,达到提高行政管理绩效,实现服务型政府的目标。
论文的具体研究思路如下：首先,明晰界定网络化管理与信息资源集成的内涵,并探讨信息资源集成与网络化管理的内在关系与互动规律,建立网络化管理中信息资源集成的体系及其流程。其次,通过对美国州政府、英国郡(县)政府、日本与新加坡城市政府网络化管理中信息资源集成经验的总结和分析,以它山之石为我国地方政府提供相关的改革启示和借鉴。第三,从整体上分析了地方政府网络化管理的信息集成框架,从信息资源集成框架的三个维度范畴,揭示了信息集成框架需要实现的三项基本目标。并介绍了支撑信息资源集成框架的技术平台及其结构体系、在此基础上提出了实现集成框架的策略与策略工具。第四,提出了地方政府网络管理信息资源集成化的实现路径。论文认为,集成化信息资源管理主要是用来解决网络异构系统整合的问题。文章从信息资源集成的形式化表达入手,以LEAP的集成模型为运行框架；以流程引擎与规则引擎作为其动力结构；以内容集成、数据仓库集成和数据集成为中心,通过GIS支撑服务架构传输服务,达到提高信息资源的利用效率和管理服务水平的目的。最后,以深圳市龙岗区政府“安全管理信息系统”的实证为例,在总结深圳市龙岗区政府综合安全管理信息系统集成实践经验的基础上,探讨了地方政府建构网络化管理中的信息资源集成系统的理论价值。认为,龙岗区“综合安全管理”信息系统是建立在政府网络信息资源共享的基础上的,它是以网络化为基础、以信息资源集成为核心、以“综合管理、综合治理、综合服务”三位一体为主要内容的格局。其目标是实现高效率的、主动式的、协同型的政府网络化管理模式。
本文从政府网络化管理的视角,力图探索政府信息资源集成的新途径,开拓实现服务型政府职能的新格局,在研究方法上采用理论和实证相结合的方法,具有下述创新。
1、通过实证研究,在地方政府网络化管理与信息资源集成二者的逻辑关系上取得了具有创新性的理论认识,提出了地方政府网络化与信息资源集成是形式与内容的关系,二者之间应水乳交融,互为依存。即信息资源集成是网络化管理的实质内容,网络化管理是对信息资源集成的外在表现形式,是对信息资源集成的反映与载体。地方政府网络化管理中的信息资源集成要以“群众得实惠、管理出实效”为基本价值取向,通过条块联手、集成资源、再造流程、强化监督,建立职责分明、操作有序、管理到位、执法有力、监督及时的政府管理长效信息运行机制,全面提升政府网络化管理效率。并按照“管理有序,执法有力,监督有效,服务优良”的要求,建立地方政府信息集成系统,即以基层为基础,形成地方政府信息综合管理网络化；以部门为单位,实现地方政府综合管理信息集成化；以条线为依托,完善地方政府综合管理规范化的信息流。
2、通过广泛的资料收集、文献研究以及对比,调查分析了我国网络化管理中政府信息资源的集成现状,结合发达国家在地方政府信息资源集成管理领域中的实践进展,消化吸收信息资源管理、网络化理论、公共管理等众多学科已有的研究成果,从网络化管理由传统的“综合管理”向“综合服务”转变的理念出发,提出了信息资源的集成框架是由整体的网络系统需求所决定的,它产生于网络系统的信息管理系统中,依托于信息管理系统而展开。信息资源集成框架由三个维度组成,它们分别是：资源维度(R)、服务维度(S)及应用维度(A)。信息资源在R,S,A三个维度上的集成实质上体现了信息资源集成的三项目标：信息资源组织的有序化、信息资源处理的智能化、信息资源运用的集约化。“三化”在一定约束条件下的运行,促成了信息资源集成在广度、深度及高度的演化,并通过博弈而达到的一个最优点,它是信息资源集成形成最优值的过程。
3、论文认为,地方政府网络化管理中的信息资源集成实现路径具体可分为三个层次：数据层集成、应用层集成和业务流程层集成。这三个层次的集成是在同一系统依次进行的,先有数据层集成；再有应用层集成；最后才有业务流程层集成。对于网络中的信息资源集成来说,三种集成是紧密联系,互相依存,缺一不可的。任何一种集成都以前一个层次的集成为前提；是先一个集成的继续与深化,从这个意义上来说,任何一种集成都不可能独自承担信息资源集成的大任。
由于地方政府网络化管理和信息资源集成的研究目前尚处于起步阶段,相关理论还处于发展完善之中,因此难免出现诸多不成熟的地方；同时相关的实践经验较为贫乏,加之本文选取的案例比较单一,使得研究结果运用的广泛性有待检验。
China's reform and opening up makes the modernization of local government administration become possible. However, institutional barriers and many other effects present a severe challenge to the level and quality of local government administration in the process of turning the planned economy to the market economy. There are many problems emerged in the process of local government administration, especially in the following aspects:
1. Local government, as the single management main body, controls the discovery and treatment of problems alone, which is not advantaged to discover and solve problems and lacks effective supervision.
2. There are many overlapping parts existing in the responsibilities of local government departments, which are not advantaged to adjust the management process or establish a quantized assessment standard.
3. The incomplete basic data is not advantaged to promote the modernization of local government administration.
4. The local government agencies are overstaffed and managers are superfluous, which make the operating costs of local government agencies are higher and higher. Moreover, unreasonable management space division makes it difficult to implement the responsibilities of management, resulting in extensive management style and unspecific object of management. Besides, all of these make the information acquisition of local government drop behind and dispose passively. Traditional local government administration mode is very imbalanced both in its management thinking, management concept, or management method, management control and the aim of building a service-oriented local government. Under such circumstances, the local government administration inevitably gestates a revolutionary change, and our epoch calls for a totally new management model.
Firstly, aiming at the low efficiency and low level of local government administration, we need to solve the problem of behindhand management method and management control. Secondly, aiming at the behindhand information acquisition and gradual recession, we need to solve the problem of collecting information rapidly and transfer mode. Thirdly, aiming at the disadvantage of failure to implement the responsibilities of management and extensive management style, we need to solve the problem of locating and quantifying the space management. Fourthly, aiming at the disadvantage of divided policies from various sources, shuffling responsibility and dispute, separate command and low efficiency, we need to solve the problem of unifying management platform, unifying management system, integrating management functions and regulating management process. Lastly, aiming at the unspecific object of management and unclear base number, we need to solve the problem of digitizing the object of management and making the data clear and integrated. To resolve all of these problems above, we will not be inseparable from the institutional innovation and the application of information technology.
The network is an important international information technology rising in recent years. It's the organic combination and development of three kinds of technology:high performance computer, data sources and the Internet. Looking at the history of modern science and technology, from steam engine, generator, telephone to the computer, each fundamental reform is always accompanied by the network which is formed by related products. For example, only after the setting up of electric network, can the invention of electricity illuminate millions of households(electric power network); only after building the roads, railways and other transport network, can the invention of vehicle such as cars put into use(traffic network). And when the full connection of all the resources on the Internet comes true, it will achieve to share the resources together like the electric power network, telephone network and traffic network. Moreover, it will form high efficient and applied network foundation which brings huge change to people's mode of production and lifestyle.
The network management is a new integration mode and organization pattern of resource. As a new modern management model, the network emphasizes the unity of responsibility and coordination:that means every member must be responsible for the entire process of customer's needs. At the same time, every member gets the coordination and cooperation through sharing the network resources in order to achieve the highest quality of service. As a new organizational model of e-local government, the network management emphasizes customer-oriented and face to the entire process from the demands of management and service; and from the providers of management and service, it emphasizes the integration of resources to achieve to work cooperating.
The local government network management model is formed by applying the network management to the practice of daily local government administration.In the late 20th century, all countries around the world focus their attention on improving the local government management. The network administration is recombining the operation process based on the management by the local government without changing the existing operating system. It's redesigned from the aspects of management structure, function, operating mechanism, etc. under the support from the modern information and technology. Then it forms operation-oriented horizontally and vertically integration model, to establish the foundation for the transformation of local government functions and building a service-oriented local government with realistic and feasible. Therefore, the network local government management is formed by applying the network management thinking to the local government management. According to the principle of "each performs its own functions, complementary advantages, standardized operation, rapid reaction" and the requirements of the local government process reengineering, integrating the work content of social management and public service sector in the area of local government network. Then fix it in the form of system and form a new local government management system in order to improve the local government's management level and management efficiency.
From the practical perspective of all countries around the world, the modern information and technology is combines well with the local government management after utilizing the network management. Via such a platform, it achieves the integration of local government manage resources. It's an effective way to promote the innovation of local government management model, which has the functions of initiative discovery, timely solution, quantitative analysis and comprehensive evaluation. The maximum function of applications of the network management model is managed to through the network concepts and introducing into technology to achieve the purposes of the following three aspects, which will go beyond the traditional management model:firstly, the responsibility system of local government gets the tangible carrier support, which enhances the management efficiency. Secondly, breaking the compartmentalization division of responsibility by modern information and technology, and easing the institutional contradictions. Lastly, promoting the transformation of local government functions by using information-based process design, and building a new public service-oriented pattern.
The prerequisite and foundation of building network management model is integration and sharing the information resource. It's necessary to solve the following problems for information resources integration under the network management model.
1. The organizational functions of the network need to rationalize and adjust by integration. Part of the integration of resources need to rationalize and adjust by organizational functions. For example, the relationship between community affairs center and the relevant functional departments needs to rationalize and adjust the functions under the customer-oriented, such as aid and population management needs to rationalize the functions of civil affairs, labor and public security departments.
2. The operation process in the network needs to sort out and reforge by integration. For example, there is a set of up and down system in the social assistance, but it doesn't have a set of up and down process, which needs to be reengineered on the basis of sorting out the existing process.
3. Through integrating, the information in the network can be shared. It needs to establish a unified platform for resource sharing, integrating and sharing a variety of attribute information of service objects. For example, urban construction, tourism, virescence and other departments need to share geo-spatial aspects of information, public security, civil affairs, labor and other departments need to share basic information such as a natural person.
At present, for the Local government's integrated management of information resources, it has extensive research at home and abroad. It has providing a large number of theoretical basis and practical guidance for the building of our local government information resources. However, for the local government to manage the emerging network management model, its research is still in the exploratory stage. As for the research of how the integration of local government information resources throughout the local government network management process, only a few of articles have touched it, it haven't build a mature theoretical and program.
This thesis aims to use the network and information resources integration theory, from the network management from the traditional "integrated management" to "integrated services" into the concept of proceeding, do the multi-angle, multi-perspective discussion about the phenomenon of information resources integration and its implications in the Local government network management. Integration of information resources will be positioned as a crack in China's administrative system, the chronic problem of fragmented governance tools. This thesis to illustrate the network integration of information resources management and the connotation of its basic principles as a starting point, to reveal the internal relations and interaction rules of information integration in the frame of the network management, and accordingly put forward the overall framework and operation model of the integration of information resources in the local government network management. And then learn from the experience of the integration of information resources in the western developed countries'local government network management, using case empirical analysis, putting forward a strategy of improving our local government network management; Planning the path of the integration of information resources in the frame of the local government network, thus local government information resources construction can be effectively improved, to achieve the goal of enhancing the administrative performance, constructing service-oriented local government.
Specific research ideas are as follows:First, clearly defined network management and connotation of the integration of information resources, and to explore the internal relations and interaction laws between the information resources integration and network management, establish a network management of information resources integration system and its processes. Second, through the experience and analysis of the experience of the integration of information resources in network management in the United States, the United Kingdom-gun (county) local government, city local governments in Japan and Singapore, to provide interrelated reform inspiration and reference to our local government. Third, it analyzes the information integration frame of the local government network management in its totality. It opens out the three basic objectives of the information integration frame from three dimensions category of the integration frame of the information resource. Moreover, it introduces the technology platform and its structure system which supporting the integration frame of the information resource, and puts forward the strategy and strategy tool of achieving the integration frame. Fourth, it brings forward the achieving path of integration of the information resource in the local government network management. The thesis considers, the management of integration of the information resource is mainly used to solve the problem of integrating the different constructing system of the network. It starts with the formalized expression of integration of the information resources, takes the LEAP integration model as operating frame, uses the engine and rules of the operation as its power structure, focus on the integration of content, data storage and data, via GIS supporting service frame to transfer the service, to achieve the objective of improving the using efficiency of information resources and the level of service management. Finally, it takes the demonstration of "safety management information system" in Longgang District, Shenzhen as an example, discussing the theoretical value of the information resources integration system of constructing the local government network management in the basis of summarizing the practical experience in the "safety management information system" in Longgang District, Shenzhen. The thesis considers, the "safety management information system" in Longgang District is established on sharing the information resources of local government network. Its pattern takes the network as basic, the integration of information resources as core, the "integration management, integration governance, integration service" as primary content. Its objective is to achieve high efficiency, active and coordinated local government network management model.
This thesis from the perspective of local government network management, it tries to explore new approach of Local government network management and exploits a new pattern of service-oriented local government functions. Research methods used in the theoretical combine with empirical method. It has the following innovation.
1. Through empirical research, it has made an innovative theoretical understanding of logic relationship between the local government network management and information integration. It puts forward that the local government network and the integration of information resources is the relationship between form and content; they should be in harmony, interdependent. Namely, the integration of information resources is the substance of the network management, and network management is an external manifestation, reflection and carrier of the integration of information resources. The integration of information resources in local government network management should take "people has boon, management has actual effect" as basic value orientation. It should establish a long-acting information operational mechanism of local government management with clear responsibility, well operation, management in order, forceful execution and timely supervision, and advance the efficiency of local government network management roundly by combining the piece, integrating resources, reforming operation, consolidating supervision. Moreover, it should establish local government information integration system according to the request of "management in order, forceful execution, supervision in effect, well service". That means forming local government synthetic information network in the basis of grassroots; achieving local government synthetic information integration in the unit of department; consummating local government synthetic management standardization in the support of piece.
2. Via a wide range of data collection, literature studies and comparison of investigation, it analysis the actuality of local government information resources integration our network management. It combines with progresses of developed countries'local government information resources management areas, digests and absorbs the information resource management, network theory, public administration and many other disciplines of existing research results. It starts with the concept change from the traditional "integrated management" to "integrated services" in network management and brings forward the integrated frame of information resources is determined by the whole requirements of the network system, which is produced in the information management system of network system and spread relying on the information management system. The information resources integration frame is made up by three dimensions, they are:resource dimension (R), service dimension (S) and application dimension (A). The information resources integrated in the three dimensions of R, S and A is virtually represented the three objectives of the information resources integration: organize information resources in order; dispose information resources intelligentized; apply information resources intensively. The operations of these three objectives in certain restricted condition cause the evolvement of information resources in extent, depth and height, and achieve the best point by struggling. This is the process of being perfect of the information resources integration.
3. The thesis considers that the achieving path of information resources integration in local government network management can be divided concretely into three levels:the level of data integration, the level of application integration and the level of operation integration. These three levels are going along in turn in the same system. First is the level of data integration, then is the level of application integration, last is the level of operation integration. For the information resources integration in network, the three levels of integration are close connection, inter-dependence and cannot be indivisible. Any level of integration is taking the previous one as precondition; it's the continuation and deepening of the previous level of integration. In this sense, none of the level could take on the great responsibility of integrating the information resources alone.
Currently, as the Local government of network resource management and information integration research is still at the initial stage, the relevant theory is still being developed, so there are some inevitable immature expresses; At the same time, relevant practical experience is scarce, combined with the selected cases of this thesis are simple, all these factors makes extensive use of research findings yet to be tested.
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