跨部门政府数据共享的运行逻辑研究——基于理性行为理论(TRA)的分析框架

Research on the Operation Logic of Trans-department Government Data Sharing——the Analytical Framework Based on Theory of Reasoned Action

地方政府跨部门数据共享面临“不愿共享”“不敢共享”“不会共享”等诸多挑战,而学界从行政管理、数据治理和信息技术三个角度出发构建的“权力—权益—信息”三维协同机制无法阐释“纵强横弱”的实践悖论,缺少对多元行动主体与数据共享行为的过程分析。论文沿着“行为—机制”框架,借助理性行为理论(Theory of Reasoned Action, TRA),尝试将多元行动主体划分为决策层、管理层、操作层,构建基于行为态度与共享认知、主观规范与关注焦点、行为意愿与互动策略的分析框架,分别从社会效益、组织效益以及个人效益的角度构建多元行动主体共享认知体系,并分析其在政府跨部门数据共享中的关注焦点。研究表明在治理创新与预期收益权衡中决策层面临认知分歧、在利益受损与潜在风险并存中管理层面临利益冲突、在成本投入与收益补偿博弈中操作层面临激励缺位,这造成了跨部门政府数据共享的治理困境,由此导致多元行动主体采取推动/弱化、合作/抵制、配合/应付等互动策略,最终形成了跨部门数据共享的实际运行效果。

There are many challenges such as“unwillingness to share”,“daring not share”,and“inability to share”in trans-department data sharing of local governments.However,the three-dimensional collaborative mechanism of“power-rights-information”constructed by the academic circles from the perspectives of administrative management,data governance and information technology cannot explain the practical paradox of“vertical strength and horizontal weakness”,and lacks the process analysis of multiple actors and data sharing behavior.Following the framework of“behavior-mechanism”and using Theory of Reasoned Action(TRA)the author tries to divide multiple actors into decision-making level,management level and operation level and construct an analytical framework based on behavioral attitudes and shared cognition,subjective norms and focus of attention,behavioral willingness and interaction strategies.The author also constructs a cognitive system of multiple actors from the perspectives of social benefits,organizational benefits and personal benefits,and analyzes their focus in trans-department data sharing.The research shows that policy makers face cognitive differences in balancing governance innovation and expected benefits,managers face conflicts of interest in the coexistence of interests and potential risks,and operators face incentive gaps in the game of cost investment and benefit compensation,which become a governance dilemma for trans-department data sharing,cause multiple actors to adopt interactive strategies such as promotion/weakening,cooperation/resistance,cooperation/perfunctory way,and finally form the actual operation effect of trans-department data sharing.