Intelligence in public management: an analysis from an institutional perspective

Abstract Recent studies point out that the barriers to transition and structuring a smart government seem less technological and more institutional. Against this backdrop, this article provides an original contribution to the literature by analyzing the dimensions of intelligence in public management under the lens of institutional theory. Also, from the theoretical debate, the research develops a model of institutionalization of intelligence in public management. The card sorting technique was used to validate the four categories defined from the theoretical analysis (organizational structure, technological structure, human capital, and social engagement). These categories were defined considering the respective dimensions of intelligence: use of data and external information; organizational culture for intelligence; effective use of technologies (Big Data; Business Intelligence); evidence-based decision-making; inter-departmental and inter-organizational collaboration; database organization and unification; government agility; management efficiency and effectiveness; social engagement; innovation, co-creation, intelligence collective. The results point to the importance of incorporating elements from the institutional perspective to legitimize intelligence in government. Also, from the analysis of the card sorting stage, the results demonstrate agreement in classifying items by proposed construct, presenting itself as a future opportunity for the model to be quantitatively tested.

摘要 近期研究表明，转型与构建智慧政务（Smart Government）的阻碍更多源于制度层面，而非技术层面。在此背景下，本文以制度理论为视角，分析公共管理中的智能维度，为相关学术文献提供原创性贡献。同时，基于理论研讨，本研究构建了公共管理领域的智能制度化模型。本研究采用卡片分类法（card sorting），对理论分析得出的四大类别——组织结构、技术架构、人力资本与社会参与——进行效度验证。上述四大类别紧扣智能的各维度进行界定，具体包括：数据与外部信息的使用、智能导向的组织文化、技术的有效应用（大数据（Big Data）、商务智能（Business Intelligence））、循证决策、跨部门与跨组织协作、数据库的组织与统一、政务敏捷性、管理效率与效益、社会参与、创新共创以及集体智能。研究结果表明，纳入制度视角相关要素以实现政务智能的合法化具有重要意义。同时，通过卡片分类阶段的分析可知，研究人员对基于预设构念的条目分类达成了高度共识，这为该模型后续开展量化检验提供了可行的研究方向。