[目的/意义]描述国家层面政府数据开放共享政策文本的形式和内容，反映国家政策的概貌，并指出当前政策存在的不足。[方法/过程]采用内容分析法对国家层面的政策文本进行分析。通过搜索引擎、专业数据库和政府门户网站检索政策文本，经数据清洗获得有效样本112份。利用Nvivo10对政策文本进行编码，归纳主题内容；利用Excel表格进行描述性统计，计算频次及百分比。[结果/结论]研究发现：我国政府数据开放共享政策起步较早，2015年开始政策数量迅猛增长；初步形成了贯穿数据生命周期的政策框架；国家各部门的政策为国家顶层设计奠定基础；国家在网络安全、基础设施、跨部门统筹等方面成绩斐然。但仍存在不足，表现在：政府数据开放共享的政策体系尚未形成；政府数据及其元数据缺乏统一的组织描述规范；数据创建与汇交、数据归档与保存和数据监管是薄弱环节；政府与公众互动的政策需扩展深化；政府数据开放共享全过程的质量管理政策有待建立；个人隐私保护政策需进一步具体化；政府数据知识产权政策亟待建立和完善。
[Purpose/significance] This paper aims to describe the form and content of the policy documents of opening and sharing government data at the national level, reflecting the general situation of the national policy and finding out the weaknesses and gaps to promote the practice. [Method/process] A content analysis of government policy documents at the national level was conducted. Policy documents were coded using Nvivo10 and thematic contents were included; descriptive statistical analysis was carried out by using Excel to calculate the frequency and percentage.[Result/conclusion] The study finds that:the policy formulation of opening and sharing government data began early, and the number of policies began to grow rapidly after 2015; a policy framework based on government data lifecycle was primarily formed; some policies of departments have laid a foundation for the formation of national policies; policies on network security, infrastructure, cross-sectoral coordination have been published in recent two years. But there are some weaknesses and gaps:the policies of opening and sharing government data are not systematic; there's no unified standard of organizing and decrypting government data and its metadata; data creation, data collection, data archiving and preservation, and data curation are weak points; data utilization policies driven by interaction between government and public need to be expanded; policies of data quality involved in the whole government data process are to be established; privacy policies needs to be further specific; intellectual property of government data is urgent to establish and improve.
[1] OECD. What is open government data?[EB/OL].[2017-06-02]. http://www.oecd.org/gov/digital-government/open-government-data.htm.
[2] 国务院.关于印发促进大数据发展行动纲要的通知[EB/OL].[2017-06-02]. http://www.gov.cn/zhengce/content/2015-09/05/content_10137.htm.
[3] The World Wide Web Foundation. Open Data Barometer fourth edition-global report[R/OL].[2017-01-10]. http://opendatabarometer.org/.
[4] The World Wide Web Foundation. Country sheet[R/OL].[2017-01-10]. http://opendatabarometer.org.
[5] ZUIDERWIJK A, JANSSEN M, CHOENNI S, et al. Design principles for improving the process of publishing open data[J]. Transforming government:people, process and policy, 2014, 8(2):185-204.
[6] ZUIDERWIJK A, JANSSEN M. Open data policies,their implementation and impact:a framework for comparison[J]. Government information quarterly,2014,31(1):17-29.
[7] ZUIDERWIJK A, JANSSEN M. A comparison of open data policies and their implementation in two Dutch ministries[C]//BERTOT J, LUNA-REYES L F, MELLOULI S. Proceedings of the 13th annual international conference on digital government research. New York:ACM,2012:84-89.
[8] HUIJBOOM N,BROEK T V. Open data:an international comparison of strategies[EB/OL].[2016-12-10].http://unpan1.un.org/intradoc/groups/public/documents/UN-DPADM/UNPAN046727.pdf.
[9] BERTOT J C, CHOI H. Big data and e-government:issues, policies, and recommendations[C]//MELLOULI S,LUNA-REYES L F,ZHANG J. Proceedings of the 14th annual international conference on digital government research. New York:ACM,2013:1-10.
[10] 朱贝,盛小平. 英国政府开放数据政策研究[J]. 图书馆论坛,2016(3):121-127, 120.
[11] 才世杰,夏义堃. 发达国家开放政府数据战略的比较分析[J]. 电子政务,2015(7):17-26.
[12] 程银桂,赖彤. 新西兰政府数据开放的政策法规保障及对我国的启示[J]. 图书情报工作,2016,60(19):7-9,3.
[13] 张晓娟,王文强,唐长乐. 中美政府数据开放和个人隐私保护的政策法规研究[J]. 情报理论与实践,2016,39(1):38-43.
[14] 黄如花,刘龙. 英国政府数据开放中的个人隐私保护研究[J]. 图书馆建设,2016(12):47-52.
[15] 黄如花,李楠. 国外政府数据开放许可协议采用情况的调查与分析[J]. 图书情报工作,2016,60(13):5-12.
[16] 赵润娣. 国外开放政府数据政策:一个先导性研究[J]. 情报理论与实践,2016,39(1):44-48.
[17] 杜妍洁,顾立平. 国外开放政府数据政策以及图书馆作用的综述[J]. 图书情报工作,2015,59(17):141-148.
[18] 罗博. 国外开放政府数据计划:进展与启示[J]. 情报理论与实践,2014,37(12):138-144.
[19] 马海群,蒲攀. 国内外开放数据政策研究现状分析及我国研究动向研判[J]. 中国图书馆学报,2015,41(5):76-86.
[20] 赵润娣. 多元视角下的中国开放政府数据政策环境研究[J]. 电子政务,2016(6):97-104.
[21] 马海群,汪宏帅. 我国政府开放数据战略的SLEPT分析及战略部署[J]. 情报科学,2016,34(3):3-8.
[22] 中国行政管理学会课题组,鲍静,贾凌民,等. 我国政府数据开放顶层设计研究[J]. 中国行政管理,2016(11):6-12.
[23] 王本刚,马海群. 开放数据安全问题政策分析[J]. 情报理论与实践,2016,39(9):25-29.
[24] 迪莉娅. "反公地悲剧"视角下的政府数据开放研究[J]. 情报理论与实践,2016,39(7):56-60,8.
[25] KONSTANTIONS A. Brits behaving badly:template analysis of newspaper content[J]. International journal of tourism anthropology,2010,1(1):15-34.
[26] BEENSTOCK J, SOWDEN S, DAVID J,et al. Are health and well-being strategies in England fit for purpose? A thematic content analysis[J]. Journal of public health,2014,37(3):461-469.
[27] ATTARD J, ORLANDI F, SCERRI A S, et al. A systematic review of open government data initiatives[J]. Government information quarterly,2015,32(4):399-418.
[28] 中国地震局.关于印发《首都圈地区地震数据产出与服务管理办法》(试行)的通知[EB/OL].[2016-12-10]. http://www.pkulaw.cn/FULLTEXT_FORM.ASPX?DB=CHL&GID=77428&KEYWORD=&ENCODINGNAME=&SEARCH_MODE=ACCURATE.
[29] 中国地震局. 地震科学数据共享管理办法[EB/OL].[2017-06-02]. http://www.cea.gov.cn/publish/dizhenj/465/527/760/20120216094234843687764/index.html.
[30] 国家海洋局.海洋赤潮信息管理暂行规定[EB/OL].[2017-06-02].http://www.soa.gov.cn/zwgk/zcgh/sthb/201211/t20121105_5406.html.
[31] 国土资源部. 关于印发《国土资源数据管理暂行办法》的通知[EB/OL].[2017-06-02]. http://www.mlr.gov.cn/zwgk/zytz/201009/t20100915_767561.htm.
[32] 国务院. 关于印发政务信息资源共享管理暂行办法的通知[EB/OL].[2017-06-02]. http://www.gov.cn/zhengce/content/2016-09/19/content_5109486.htm.
[33] 国家发展改革委,中央网信办. 关于印发《政务信息资源目录编制指南(试行)》的通知[EB/OL].[2017-08-22]. http://www.ndrc.gov.cn/zcfb/zcfbtz/201707/t20170713_854530.html.
[34] 国务院办公厅. 关于运用大数据加强对市场主体服务和监管的若干意见[EB/OL].[2017-06-02]. http://www.gov.cn/zhengce/content/2015-07/01/content_9994.htm.
[35] 国家发展改革委办公厅. 关于组织实施促进大数据发展重大工程的通知[EB/OL].[2016-12-10]. http://bigdata.sic.gov.cn/News/510/6456.htm.
[36] 中共中央办公厅,国务院办公厅. 关于全面推进政务公开工作的意见[EB/OL].[2016-12-10]. http://www.gov.cn/xinwen/2016-02/17/content_5042791.htm?from=bdhd_site.
[37] 国土资源部. 重要地理信息数据审核公布管理规定[EB/OL].[2017-06-02]. http://www.sbsm.gov.cn/article/zcfg/bmgz/200709/20070900000605.shtml.
[38] 国家卫生计生委,公安部,民政部. 关于进一步规范人口死亡医学证明和信息登记管理工作的通知[EB/OL].[2016-12-10]. http://govinfo.nlc.gov.cn/scscdfz/xxgk/cds/201411/t20141119_6292912.shtml?classid=409.
[39] 国家海洋局.关于实施海洋环境监测数据信息共享工作的意见[EB/OL].[2016-12-10].http://news.makepolo.com/3833897.html.
[40] 国家海洋局. 关于规范海洋生态环境监测数据管理工作的意见[EB/OL].[2017-06-02]. http://www.pkulaw.cn/fulltext_form.aspx?Gid=261894.
[41] 卫生部. 关于印发国家卫生统计信息网络直报管理规范(试行)的通知[EB/OL].[2016-12-10]. http://www.moh.gov.cn/mohbgt/pw10801/200804/19275.shtml.
[42] 中共中央,国务院. 国家信息化发展战略纲要[EB/OL].[2017-06-02]. http://www.gov.cn/xinwen/2016-07/27/content_5095297.htm.
[43] 国务院. 关于信息化建设及推动信息化和工业化深度融合发展工作情况的报告[EB/OL].[2016-12-10] http://www.npc.gov.cn/npc/xinwen/jdgz/2015-07/17/content_1941655.htm.
[44] 国务院. 关于促进云计算创新发展培育信息产业新业态的意见[EB/OL].[2017-06-02]. http://www.gov.cn/zhengce/content/2015-01/30/content_9440.htm.
[45] 国务院. 关于促进和规范健康医疗大数据应用发展的指导意见[EB/OL].[2016-12-10]. http://www.gov.cn/zhengce/content/2016-06/24/content_5085091.htm.
[46] 农业部. 关于推进农业农村大数据发展的实施意见[EB/OL].[2017-06-02]. http://www.moa.gov.cn/zwllm/tzgg/tz/201512/t20151231_4972005.htm.
[47] 农业部. 关于印发《"十三五"全国农业农村信息化发展规划》的通知[EB/OL].[2017-06-02]. http://www.moa.gov.cn/zwllm/ghjh/201609/t20160901_5260726.htm.
[48] 交通运输部. 关于推进交通运输行业数据资源开放共享的实施意见[EB/OL].[2016-12-10]. http://zizhan.mot.gov.cn/zfxxgk/bnssj/kjs/201609/t20160902_2083604.html.
[49] 国家统计局. 国家统计质量保证框架[EB/OL].[2017-06-02]. http://www.stats.gov.cn/tjgz/tjdt/201309/t20130924_447984.html.
[50] 国家税务总局.关于加强税收征管业务数据管理的通知[EB/OL].[2017-06-02].http://www.cq.gov.cn/publicinfo/web/views/Show!detail.action?sid=1001712.
[51] 环境保护部. 关于印发《环境监测数据弄虚作假行为判定及处理办法》的通知[EB/OL].[2017-06-02]. http://www.zhb.gov.cn/gkml/hbb/bwj/201512/t20151230_320804.htm.
[52] 国家发展改革委. 关于请组织申报大数据领域创新能力建设专项的通知[EB/OL].[2017-06-02].http://www.gov.cn/xinwen/2016-08/31/content_5103808.htm.
[53] 劳动和社会保障部. 关于做好劳动保障数据中心建设有关问题的通知[EB/OL].[2016-12-10]. http://www.mohrss.gov.cn/gkml/xxgk/201407/t20140717_136019.htm.
[54] 中国气象局. 全国智慧农业气象服务平台数据存储规范(试行)[EB/OL].[2017-06-02]. http://www.cma.gov.cn/root7/auto13139/201612/t20161213_349710.html.
[55] 卫生部. 关于印发《卫生监督信息报告管理规定(2011年修订版)》的通知[EB/OL].[2016-12-10]. http://www.moh.gov.cn/sps/s7885/201107/e7bf3bb52161435488e24617007d0bb1.shtml.
[56] 黄如花,王春迎. 我国政府数据开放平台现状调查与分析[J]. 情报理论与实践,2016,39(7):50-55.
[57] 赵蓉英,梁志森,段培培. 英国政府数据开放共享的元数据标准——对Data.gov.uk的调研与启示[J]. 图书情报工作,2016,60(19):31-39.
[58] 黄如花,李楠. 澳大利亚开放政府数据的元数据标准——对Data.gov.au的调研与启示[J]. 图书馆杂志,2017,36(5):87-97.
[59] 王芳, 慎金花. 国外数据管护(Data Curation)研究与实践进展[J]. 中国图书馆学报,2014,40(4):116-128.
[60] OECD. 2003 promise and problems of e-democracy-challenges of online citizen engagement[EB/OL].[2017-06-02].https://www.loc.gov/item/2004422479/.
[61] BATINI C,CAPPIELLO C,FRANCALANCI C,et al. Methodologies for data quality assessment and improvement[J]. ACM computing surveys,2009,41(3):No.16.
[62] DAWES S S, VIDIASOVA L, PARKHIMOVICH O. Planning and designing open government data programs:an ecosystem approach[J]. Government information quarterly,2016,33(1):15-27.
[63] VETRO A, CANOVA L, TORCHIANO M, et al. Open data quality measurement framework:definition and application to open government data[J]. Government information quarterly,2016,33(2):325-337.
[64] 相丽玲,陈梦婕. 中外政府数据开放的运行机制比较[J]. 情报科学,2017,35(4):9-14.
[65] DAWES S, VIDIASOVA L, TRUTNEV D. Approaches to assessing open government data programs:comparison of common traits and differences[C]//MISNIKOV Y,TRUTNEV D,CHUGUNOV A. Proceedings of the 20152nd international conference on electronic governance and open society:challenges in Eurasia. New York:ACM,2015:24-28.
