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Guiding Opinions of the State Council on Strengthening the Building of a Digital Government [Effective]
国务院关于加强数字政府建设的指导意见 [现行有效]
Guiding Opinions of the State Council on Strengthening the Building of a Digital Government 


(No. 14 [2022] of the State Council) (国发〔2022〕14号)

The people's governments of all provinces, autonomous regions, and municipalities directly under the Central Government; and all ministries and commissions of the State Council and all institutions directly under the State Council: 各省、自治区、直辖市人民政府,国务院各部委、各直属机构:
Strengthening the building of a digital government is an inevitable requirement for adapting to a new round of technological revolution and the trend of industrial transformation, leading and driving the development of digital economy and the building of a digital society, creating a favorable digital ecology, and accelerating digital development, is a fundamental and leading project for building a network power and digital China, is an important measure for innovating upon the concept and method of government governance, forming a new pattern of digital governance, and promoting the modernization of the national governance system and governance capacity, and is of great significance for accelerating the transformation of government functions and building a law-based government, a uncorrupted government and a service-oriented government. For the purposes of implementing the major decisions and deployments of the CPC Central Committee and the State Council for strengthening the building of a digital government, the following opinions are hereby put forward. 加强数字政府建设是适应新一轮科技革命和产业变革趋势、引领驱动数字经济发展和数字社会建设、营造良好数字生态、加快数字化发展的必然要求,是建设网络强国、数字中国的基础性和先导性工程,是创新政府治理理念和方式、形成数字治理新格局、推进国家治理体系和治理能力现代化的重要举措,对加快转变政府职能,建设法治政府、廉洁政府和服务型政府意义重大。为贯彻落实党中央、国务院关于加强数字政府建设的重大决策部署,现提出以下意见。
I. Current development status and general requirements   一、发展现状和总体要求
1. Current development status. (一)发展现状。
Since the 18th National Congress of the CPC, the CPC Central Committee and the State Council have proceeded from the overall situation of promoting the modernization of the national governance system and governance capacity, accurately grasped the development trends and characteristics of global digitization, networking, and intelligence, and made a series of major deployments by centering on the implementation of the strategy for cyberpower and the strategy for big data. Through the joint efforts of all parties, the construction and application of business information systems of the governments at all levels have achieved remarkable results, positive progress has been made in data sharing, development and utilization, the efficiency of integrated government affairs services and regulation has been greatly improved, innovative practices such as “one visit at maximum,” “one-website processing,” “management on one website,” “one network collaboration,” and “immediate processing upon acceptance of complaints” have emerged continuously, digital technology has played an important supporting role in the prevention and control of the COVID-19 Outbreak, and the achievements of digital governance has continuously emerged, having laid a solid foundation for entering a new stage for the building of a digital government. However, concurrently, there are still some outstanding problems in the building of a digital government. Mainly due to insufficient top-level design, imperfect system and mechanism, weak innovation and application ability, and data barriers that still exist, there are still many outstanding shortcomings in the network security guarantee system, and the digital awareness and digital literacy of cadres need to be improved, and there is still a relatively big gap between the level of digitalization of government governance and the modernization requirements of national governance. 党的十八大以来,党中央、国务院从推进国家治理体系和治理能力现代化全局出发,准确把握全球数字化、网络化、智能化发展趋势和特点,围绕实施网络强国战略、大数据战略等作出了一系列重大部署。经过各方面共同努力,各级政府业务信息系统建设和应用成效显著,数据共享和开发利用取得积极进展,一体化政务服务和监管效能大幅提升,“最多跑一次”、“一网通办”、“一网统管”、“一网协同”、“接诉即办”等创新实践不断涌现,数字技术在新冠肺炎疫情防控中发挥重要支撑作用,数字治理成效不断显现,为迈入数字政府建设新阶段打下了坚实基础。但同时,数字政府建设仍存在一些突出问题,主要是顶层设计不足,体制机制不够健全,创新应用能力不强,数据壁垒依然存在,网络安全保障体系还有不少突出短板,干部队伍数字意识和数字素养有待提升,政府治理数字化水平与国家治理现代化要求还存在较大差距。
At present, China has embarked on a new journey of building a modern socialist country in an all-round way, promoting the modernization of the national governance system and governance capabilities, and adapting to the people's growing needs for a better life, which has put forward new and higher requirements for the building of a digital government. The trend of digital transformation of the economy and society shall be proactively followed, the dividends of digital development shall be fully released, and greater efforts shall be made to make breakthroughs in reform and innovation, to create a new situation in the building of a digital government in an all-round way. 当前,我国已经开启全面建设社会主义现代化国家的新征程,推进国家治理体系和治理能力现代化、适应人民日益增长的美好生活需要,对数字政府建设提出了新的更高要求。要主动顺应经济社会数字化转型趋势,充分释放数字化发展红利,进一步加大力度,改革突破,创新发展,全面开创数字政府建设新局面。
2. General requirements. (二)总体要求。
(1) Guiding thought. 1.指导思想。
The great banner of socialism with Chinese characteristics shall be held high, the guidance of Xi Jinping Thought on Socialism with Chinese Characteristics in a New Era shall be insisted on, the spirit of the 19th CPC National Congress and all the Plenary Sessions of the 19th CPC Central Committee shall be comprehensively implemented, the important thought of General Secretary Xi Jinping on building China into a cyberpower shall be implemented in an in-depth manner, the decisions and deployments of the CPC Central Committee and the State Council shall be diligently implemented, the new development concept shall be implemented in a complete, accurate and comprehensive manner on the basis of the new development stage, a new development pattern shall be built, the digital technology shall be extensively applied in government management services, the optimization of government governance processes, innovation upon models, and improvement of performance capabilities shall be promoted, a new digital and intelligent form of government operation shall be established, the role of building a digital government in leading digital economy, digital society, and digital ecology shall be fully maximized, the high-quality development of economic society shall be promoted, the people's sense of gain, happiness, and security shall be continuously enhanced, and strong support shall be provided for advancing the modernization of the state's governance system and governance capacity. 高举中国特色社会主义伟大旗帜,坚持以习近平新时代中国特色社会主义思想为指导,全面贯彻党的十九大和十九届历次全会精神,深入贯彻习近平总书记关于网络强国的重要思想,认真落实党中央、国务院决策部署,立足新发展阶段,完整、准确、全面贯彻新发展理念,构建新发展格局,将数字技术广泛应用于政府管理服务,推进政府治理流程优化、模式创新和履职能力提升,构建数字化、智能化的政府运行新形态,充分发挥数字政府建设对数字经济、数字社会、数字生态的引领作用,促进经济社会高质量发展,不断增强人民群众获得感、幸福感、安全感,为推进国家治理体系和治理能力现代化提供有力支撑。
(2) Basic principles. 2.基本原则。
The overall leadership of the Party shall be insisted on. The Party's core leading role in overseeing the overall situation and coordinating all parties shall be fully maximized, the major decisions and deployments of the CPC Central Committee and the State Council shall be comprehensively implemented, and the Party's overall leadership shall be insisted on and strengthened throughout all respects of the building of a digital government and throughout the entire process of digital reform of and institutional innovation upon government, to ensure the correct direction of the building of a digital government. 坚持党的全面领导。充分发挥党总揽全局、协调各方的领导核心作用,全面贯彻党中央、国务院重大决策部署,将坚持和加强党的全面领导贯穿数字政府建设各领域各环节,贯穿政府数字化改革和制度创新全过程,确保数字政府建设正确方向。
The people-centered principle shall be insisted on. Satisfying the people's yearning for a better life shall be constantly regarded as the starting point and end point of the building of a digital government, joint efforts shall be made to solve the problems of difficulty, slowness and complexity in handling affairs that are strongly reflected by enterprises and the public, digital inclusiveness shall be insisted on, and the “digital divide” shall be eliminated, to make the achievements of the building of a digital government benefit all the people more extensively and fairly. 坚持以人民为中心。始终把满足人民对美好生活的向往作为数字政府建设的出发点和落脚点,着力破解企业和群众反映强烈的办事难、办事慢、办事繁问题,坚持数字普惠,消除“数字鸿沟”,让数字政府建设成果更多更公平惠及全体人民。
The leading role of reform shall be insisted on. By focusing on the urgent needs of economic and social development, joint efforts shall be made to strengthen reform thinking, attention shall be paid to the organic combination of top-level design and grass-roots exploration, and the dual driving of technological innovation and institutional innovation, digital reform shall be utilized to assist in the transformation of government functions, reform and innovation in all respects of government governance shall be promoted, and the rule of law in government governance and in-depth integration of digitization shall be promoted. 坚持改革引领。围绕经济社会发展迫切需要,着力强化改革思维,注重顶层设计和基层探索有机结合、技术创新和制度创新双轮驱动,以数字化改革助力政府职能转变,促进政府治理各方面改革创新,推动政府治理法治化与数字化深度融合。
Data empowerment shall be insisted on. The data governance systems and standard systems shall be established and improved, data aggregation, integration, sharing, openness, development and utilization shall be strengthened, the lawful and orderly flow of data shall be promoted, the role of data as a basic resource and an innovation engine shall be fully maximized, the scientific level of government decision-making and the efficiency of management services shall be improved, and new power for economic and social development shall be generated. 坚持数据赋能。建立健全数据治理制度和标准体系,加强数据汇聚融合、共享开放和开发利用,促进数据依法有序流动,充分发挥数据的基础资源作用和创新引擎作用,提高政府决策科学化水平和管理服务效率,催生经济社会发展新动能。
Overall coordination shall be insisted on. The system concept and system integration shall be strengthened, the level of intensive building of a digital government shall be comprehensively improved, the promotion of technology integration, business integration, and data integration shall be coordinated, cross-level, cross-regional, cross-system, cross-departmental, and cross-business collaborative management and service levels shall be improved, the effective connection and overall promotion of reforms in related fields and the “14th Five-Year Plan” shall be effectively conducted, and the coordinated development of the building of a digital government and digital economy and digital society shall be promoted. 坚持整体协同。强化系统观念,加强系统集成,全面提升数字政府集约化建设水平,统筹推进技术融合、业务融合、数据融合,提升跨层级、跨地域、跨系统、跨部门、跨业务的协同管理和服务水平,做好与相关领域改革和“十四五”规划的有效衔接、统筹推进,促进数字政府建设与数字经济、数字社会协调发展。
Safety and control shall be insisted on. The overall concept of national security shall be fully implemented, the unity of promoting development and legal management shall be insisted on, equal attention shall be paid to security and controllability, opening up and innovation, various laws and regulations on cybersecurity shall be strictly implemented, a supporting security protection system that integrates systems, management, and technology shall be comprehensively built, to effectively guard the bottom line of cybersecurity. 坚持安全可控。全面落实总体国家安全观,坚持促进发展和依法管理相统一、安全可控和开放创新并重,严格落实网络安全各项法律法规制度,全面构建制度、管理和技术衔接配套的安全防护体系,切实守住网络安全底线。
(3) Main goals. 3.主要目标。
By 2025, the top-level design of a digital government that is compatible with the modernization of the government's governance capabilities will be more complete, the overall coordination mechanism will be more complete, the government's digital government system frameworks such as the digital performance capabilities, security guarantees, institutional rules, data resources, and platform support will be basically formed, significant progress will be made in the digitization and intelligence of the government's performance of duties, important progress will be made in the government's scientific decision-making, precise social governance, and efficient public services, and the building of a digital government will play an important role in serving major strategies of the Party and the state, promoting high-quality economic and social development, and building a service-oriented government to the people's satisfaction. 到2025年,与政府治理能力现代化相适应的数字政府顶层设计更加完善、统筹协调机制更加健全,政府数字化履职能力、安全保障、制度规则、数据资源、平台支撑等数字政府体系框架基本形成,政府履职数字化、智能化水平显著提升,政府决策科学化、社会治理精准化、公共服务高效化取得重要进展,数字政府建设在服务党和国家重大战略、促进经济社会高质量发展、建设人民满意的服务型政府等方面发挥重要作用。
By 2035, the digital government system framework that is compatible with the modernization of the national governance system and governance capabilities will be more mature and complete, and a digital government featuring overall coordination, agility, efficiency, intelligence and precision, openness and transparency, and fairness and inclusiveness will be basically completed, to provide strong support for the basic realization of socialist modernization. 到2035年,与国家治理体系和治理能力现代化相适应的数字政府体系框架更加成熟完备,整体协同、敏捷高效、智能精准、开放透明、公平普惠的数字政府基本建成,为基本实现社会主义现代化提供有力支撑。
II. Building a collaborative and efficient digital performance capability system for the government   二、构建协同高效的政府数字化履职能力体系
The digital transformation of performance of duties by the government and operation of government affairs shall be comprehensively promoted, the intensive construction, interconnection, and coordination of the government affairs application systems in various industries and fields shall be promoted in a coordinated manner, administrative management and service methods shall be innovated upon, and the efficiency of the government's performance of duties shall be comprehensively improved. 全面推进政府履职和政务运行数字化转型,统筹推进各行业各领域政务应用系统集约建设、互联互通、协同联动,创新行政管理和服务方式,全面提升政府履职效能。
1. Strengthening the monitoring of and analysis on big data of economic operation and improving the ability of economic adjustment. (一)强化经济运行大数据监测分析,提升经济调节能力。
Digital technology shall be extensively applied in macro-control decision-making, economic and social development analysis, investment supervision and management, financial budget management, digital economy governance, and other respects, to comprehensively improve the digital level of the government's economic regulation. The integration, aggregation and governance of economic data shall be strengthened. A basic database of economic governance shall be comprehensively built, the whole-chain and whole-process governance and application of key data related to the national economy and people's livelihood shall be strengthened, and the transformation and upgrading of traditional industries and the high-quality development of emerging industries shall be empowered. Big data shall be utilized to strengthen economic monitoring and early warning. The statistical monitoring and comprehensive analysis capabilities covering the full cycle of economic operation shall be strengthened, research and judgment on economic trends shall be strengthened, cross-cycle policy design shall be assisted in, and counter-cyclical adjustment capabilities shall be improved. The precision and coordination of economic policies shall be improved. The role of the national planning comprehensive management information platform shall be fully maximized, the dynamic perception of economic operation shall be strengthened, the effective connection of economic policies in various fields shall be promoted, and the scientificity, predictability and effectiveness of economic adjustment policies shall be continuously improved. 将数字技术广泛应用于宏观调控决策、经济社会发展分析、投资监督管理、财政预算管理、数字经济治理等方面,全面提升政府经济调节数字化水平。加强经济数据整合、汇聚、治理。全面构建经济治理基础数据库,加强对涉及国计民生关键数据的全链条全流程治理和应用,赋能传统产业转型升级和新兴产业高质量发展。运用大数据强化经济监测预警。加强覆盖经济运行全周期的统计监测和综合分析能力,强化经济趋势研判,助力跨周期政策设计,提高逆周期调节能力。提升经济政策精准性和协调性。充分发挥国家规划综合管理信息平台作用,强化经济运行动态感知,促进各领域经济政策有效衔接,持续提升经济调节政策的科学性、预见性和有效性。
2. Vigorously promoting smart regulation and improving the market regulation capabilities. (二)大力推行智慧监管,提升市场监管能力。
Digital technology shall be fully utilized to support the establishment of a new regulatory mechanism, accelerate the establishment of an all-round, multi-level, and three-dimensional regulatory system, and realize ex-ante, interim, and ex-post regulation in all areas of the entire chain, to effectively supervise and maintain a fair and competitive market order. The level of precise regulation by digital means shall be improved. The digital management of the list of regulatory matters shall be strengthened, multi-source data shall be used to accurately “portrait” market entities, and risk research and judgment, prediction and early warning shall be strengthened. The construction of a regulation work platform featuring “double randomness and one disclosure” shall be strengthened, and differentiated regulation shall be implemented according to corporate credit. The digital traceability regulation of all entities, all varieties, and the entire chain in key fields shall be strengthened. The level of regulation coordination shall be improved through integrated online regulation. “Internet plus regulation” shall be vigorously promoted, a national integrated online regulation platform shall be built, the collection, sharing and effective use of regulation data and administrative law enforcement information shall be promoted, governance of regulation data shall be strengthened, cross-regional, cross-departmental, and cross-level collaborative regulation shall be promoted, and cross-border regulatory capabilities in digital trade shall be enhanced. The intelligence level of regulation shall be improved with new regulatory technology. New regulatory methods such as off-site, IoT perception, mobile, and penetration shall be fully utilized to make up for the shortcomings of regulation and improve the regulation efficiency. Supervision of internet on the basis of internet shall be strengthened, regulation and law enforcement in key areas such as the platform economy shall be strengthened, and the regulation capacity of new technologies, new industries, new business types, and new models shall be comprehensively improved. 充分运用数字技术支撑构建新型监管机制,加快建立全方位、多层次、立体化监管体系,实现事前事中事后全链条全领域监管,以有效监管维护公平竞争的市场秩序。以数字化手段提升监管精准化水平。加强监管事项清单数字化管理,运用多源数据为市场主体精准“画像”,强化风险研判与预测预警。加强“双随机、一公开”监管工作平台建设,根据企业信用实施差异化监管。加强重点领域的全主体、全品种、全链条数字化追溯监管。以一体化在线监管提升监管协同化水平。大力推行“互联网+监管”,构建全国一体化在线监管平台,推动监管数据和行政执法信息归集共享和有效利用,强化监管数据治理,推动跨地区、跨部门、跨层级协同监管,提升数字贸易跨境监管能力。以新型监管技术提升监管智能化水平。充分运用非现场、物联感知、掌上移动、穿透式等新型监管手段,弥补监管短板,提升监管效能。强化以网管网,加强平台经济等重点领域监管执法,全面提升对新技术、新产业、新业态、新模式的监管能力。
3. Actively promoting innovation upon digital governance models and improving the social management capabilities. (三)积极推动数字化治理模式创新,提升社会管理能力。
The transformation of the social governance model from one-way management to two-way interaction, and from offline to online and offline integration shall be promoted, and joint efforts shall be made for improving digital governance capabilities in fields such as conflict resolution, prevention and control of social security, public security, and grassroots social governance. The ability to resolve social conflicts shall be improved. The “Fengqiao Experience” in the new era shall be insisted on and developed, the level of online administrative reconsideration, online complaints, online mediation, smart legal aid, etc., shall be improved, and the prevention, investigation and resolution of the source of conflicts and disputes shall be promoted. The intelligentization of the social security prevention and control system shall be promoted. The construction of the “Xueliang Project” and the public security big data platform shall be strengthened, the application of digital means in national security, social stability, cracking down upon crimes, interaction in public security, and other respects shall be deepened, and the ability for prediction, early warning and prevention of various risks shall be improved. The smart emergency response building shall be strengthened. The emergency command communication network shall be optimized and improved, and the digital and intelligent level of emergency regulation and management, command and rescue, material support, and social mobilization shall be comprehensively improved. The precision level of grassroots social governance shall be improved. The action of “Internet plus Grassroots Governance” shall be implemented, a new-type grassroots management service platform shall be established, the construction of smart communities shall be promoted, and the ability of grassroots smart governance shall be enhanced. 推动社会治理模式从单向管理转向双向互动、从线下转向线上线下融合,着力提升矛盾纠纷化解、社会治安防控、公共安全保障、基层社会治理等领域数字化治理能力。提升社会矛盾化解能力。坚持和发展新时代“枫桥经验”,提升网上行政复议、网上信访、网上调解、智慧法律援助等水平,促进矛盾纠纷源头预防和排查化解。推进社会治安防控体系智能化。加强“雪亮工程”和公安大数据平台建设,深化数字化手段在国家安全、社会稳定、打击犯罪、治安联动等方面的应用,提高预测预警预防各类风险的能力。推进智慧应急建设。优化完善应急指挥通信网络,全面提升应急监督管理、指挥救援、物资保障、社会动员的数字化、智能化水平。提高基层社会治理精准化水平。实施“互联网+基层治理”行动,构建新型基层管理服务平台,推进智慧社区建设,提升基层智慧治理能力。
4. Continuously optimizing digital services that benefit enterprises and facilitate people, and improving the public service capabilities. (四)持续优化利企便民数字化服务,提升公共服务能力。
The functions of the national integrated government affairs service platform shall be continuously optimized, the digital and intelligent level of public services shall be comprehensively improved, and the multi-level and diversified service needs of enterprises and the public shall be continuously met. An extensively available service system shall be established. The pivotal role of the national integrated government affairs service platform featuring “one-website processing” shall be fully maximized, the unity and comprehensive integration of online and offline standards for government affairs services, and the homogeneity of services shall be promoted, and an integrated government affairs service system that is online all the times, that have multiple channels, and that may be handled nationwide shall be established. Smart and convenient service capabilities shall be improved. The integrated handling of administrative affairs service matters shall be promoted, service methods such as “free application and immediate enjoyment” and “direct platform of people's livelihood,” shall be promoted, a new mode of mobile affairs handling services shall be created, and the ability of active service, precise service, collaborative service and smart service shall be improved. High-quality and convenient enterprise-related services shall be provided. Digital technology shall be used to boost and deepen the reform of “separating permits from business licenses,” exploration shall be made for new methods to reduce licenses and simplify approval after obtaining licenses such as “one industry, one license,” and reduction of links, materials, time limits, and costs for enterprise-related approval shall be promoted. The service for enterprises during the full life cycle shall be strengthened, and one-website processing of enterprise-related approval, precise forwarding of preferential policies for enterprises, and direct enjoyment of policies shall be promoted. Fair and inclusive livelihood services shall be explored. Exploration shall be made for promoting “multi-card integration” and “multi-code integration,” promoting the digital application of basic public services, actively creating a digital life network featuring multiple participation and complete functions, and improving inclusive, basic, and save service capabilities. By focusing on the needs of special groups such as the elderly and the disabled, online and offline service channels shall be improved, the information barrier-free construction shall be promoted, and the outstanding difficulties encountered by special groups in the use of intelligent technology shall be effectively solved. 持续优化全国一体化政务服务平台功能,全面提升公共服务数字化、智能化水平,不断满足企业和群众多层次多样化服务需求。打造泛在可及的服务体系。充分发挥全国一体化政务服务平台“一网通办”枢纽作用,推动政务服务线上线下标准统一、全面融合、服务同质,构建全时在线、渠道多元、全国通办的一体化政务服务体系。提升智慧便捷的服务能力。推行政务服务事项集成化办理,推广“免申即享”、“民生直达”等服务方式,打造掌上办事服务新模式,提高主动服务、精准服务、协同服务、智慧服务能力。提供优质便利的涉企服务。以数字技术助推深化“证照分离”改革,探索“一业一证”等照后减证和简化审批新途径,推进涉企审批减环节、减材料、减时限、减费用。强化企业全生命周期服务,推动涉企审批一网通办、惠企政策精准推送、政策兑现直达直享。拓展公平普惠的民生服务。探索推进“多卡合一”、“多码合一”,推进基本公共服务数字化应用,积极打造多元参与、功能完备的数字化生活网络,提升普惠性、基础性、兜底性服务能力。围绕老年人、残疾人等特殊群体需求,完善线上线下服务渠道,推进信息无障碍建设,切实解决特殊群体在运用智能技术方面遇到的突出困难。
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