政府開 放數(shù)據(jù)工具包

iii

Contents

1.PlanningandManagementofOpenDataProgrammes1

A.PreliminaryPhase2

B.DevelopmentPhase5

C.Roll-outPhase10

D.StandardPracticePhase10

2.MakingOpenDataInventoriesandCatalogues11

A.Phase1:PreparingaMasterListofHigh-ValueDatasets12

B.Phase2:ClassifyingDatasetsintheMasterList14

C.Phase3:ReleasingDatasetsfromtheInventorytotheOpenDataCatalogue16

D.Phase4:UpdatingtheOpenDataInventoryandCatalogue22

3.OpenDataPlatforms23

A.Option1:OnlineDownload23

B.Option2:DataPortal24

C.Option3:ApplicationProgrammingInterfaces(APIs)25

D.KeyFeaturesofOpenDataPlatforms25

E.OpenDataPlatformSolutions27

4.EvaluationofOpenDataProgrammes30

A.Step1:Initiation31

B.Step2:EvaluationofReadiness31

C.Step3:EvaluationofPublishing34

D.Step4:EvaluationofImpact35

E.Step5:GapsandActionPlanReport35

5.OpenDataQuality37

A.LegalCriteria38

B.PracticalCriteria38

C.TechnicalCriteria39

D.SocialCriteria40

E.OpenDataQualityAssuranceProcess40

1.PlanningandManagementofOpenData

Programmes

Awell-designedplanisessentialforsuccessfullyimplementingasustainableopendataprogramme

withthedesiredimpact.Whenexecutingopendataprogrammesorprojects,aone-size-fits-all

approachwillnotbeeffective.Eachcountry,cityandindividualgovernmentalorganizationhasits

uniquecontext.

Thisplanwasdevelopedbasedonglobalreferencesthatincludeastudycarriedoutjointlybythe

UnitedNationsDevelopmentProgramme(UNDP)andthePartnershipforOpenData(WorldBank,

OpenDataInstituteandOpenKnowledge),1theEuropeanDataPortal'sOpenDataGoldbookforData

ManagersandDataHolders2andsuccessfulinternationalopendataprogrammessuchasthoseof

theUnitedKingdom,Australiaandothercountries.ThepresenttoolkitisalsobasedontheESCWA

CapacityDevelopmentmaterialonOpenData.3

Theplanconsistsoffourphases,witheachphasecontaininganumberofkeytasks.

#PhaseKeytasks

?Runthebaselinedatamaturityassessment;

IPreliminaryphase

?Developtheopendatastrategy.

?Developtheopendatapolicy;

?Createtheopendataportal;

?Prioritizeandpublishthedatasetsthatshouldbereleasedfirst;

2Developmentphase

?Recruitthecentralteamforcoordinatingtheopendata

initiative/programme;

?Buildhumancapacity.

?Publishmorehigh-valuedatasets;

3Roll-outphase?Improveorganizationalcapacity;

?Promotetheuseofthepublishedopendata.

4StandardpracticephaseMaintainthesustainabilityoftheopendataprogramme.

See:https:〃/orticle/how-to-plan-cind-budget-an-open-dcito-in計idtive.

See:h甘ps:〃www.europeandotopo「tal.eu/sites/defoult/files/european_doto_portal_?_open_doki_goldbook.pdf.

See:/publications/open-government-greater-public-sector-transparency-occountability.

A.PreliminaryPhase

Inthisphase,theorganizationshouldaimtosecurethepoliticalandadministrativesupport

requiredtosuccessfullyimplementtheplanandtodevelopthebusinesscasefortheopendata

(OD)initiative.

Thisphaseusuallystartswithaseniordecisionmakerauthorizingexploratoryworkandnormally

endswithapoliticaldeclarationtolaunchtheopendatainitiative.4

Example:InDubaianopendatacommitteewasformedinDecember2014bydecreeofthecity'scrownprince

andchairmanoftheexecutivecouncil.5ThecommitteeinitiatedtheGovernment'seffortsinthisdomain,which

laterledtotheestablishmentoftheDubaiDataportal.6

1.DevelopingtheOpenDataStrategy

Todevelopanopendatastrategy,itisrecommendedtofirstconsiderthefollowing:

?Maketheprocessopenandcollaborativebycommunicatingthestrategydesignplanstoallstakeholders,

includingthepublic,andofferingthemcontinuousupdates;

?Makeitengagingbyallowingthepublictocontributetothedesignofthestrategythroughpublicconsultation;

?Alignthestrategicdestinationwithhigher-levelorganizationalornationalobjectivesandagendas.

Example:InJune2017,theIrishGovernmentlaunchedapublicconsultationonthedraftofthecountry'sopen

datastrategyfortheperiod2017-2022.7

2.OutlineoftheOpenDataStrategy

(a)ContextandBackground

Thissectionshould:

(1)Offerareviewofthelocalenvironmentinwhichthisstrategywasdesignedandwillbeimplemented;

(2)Cover,ataminimum,otherrelatedplansandactivitiesoftheorganization;

(3)Coverotherpoliticalandsocioeconomiccircumstancesinthecityorcountry.

4See:http$:///article/how-to-plan-and-budget-an-open-data-initiative/.

5See:/news/uae/government/dubai-open-data-committee-formed-1.1429600.

6Dubaidata.ae.

7See:.ie/blog/ministerdonohoelaunchespublicconsultotionprocessforthenationalopendatastrategy2017-

2022.

Example:ThedatastrategyforLondon(DataforLondon)8coversthecontextundertheuPolicyContexf*and

??StrategicOverview1*sections.TheIwosectionsdescribethedatalandscapeinLondonpriortothestrategy

andthestrategy*slinkagestootherpolicyareas,includingenergypolicyandthebroadersmartcitiesagenda.

(b)StrategicDirection

Thiscanbeshapedasthe“vision“orthe“mission“oftheprogramme,offeringacleardescription

ofthesituationtheprogrammeaspirestoachieve.

Example:InEdmonton,Canada,theopendatastrategyhasthevisionof"leadingthewaytoanopen,smartand

resilientcity".9Thekeywordsinthisstatement(suchasresilient)shouldshapetheremainingsectionsofthe

strategy,especiallytheobjectivesandprinciples.

(c)Objectives

Theobjectivesprovideaquantifiableversionofthestrategicdirection.Consequently,theyhaveto

bespecific,measurable,attainable,relevantandtimely(SMART).

Example:InAustralia'su0penDataStrategyfortheDepartmentofHealthinQueensland*',objectivesare

groupedintothemes.Thethemeofimprovingdataqualityhasthefollowingtwoobjectives:ensuredatais

releasedwithinsetstandardsandinaccordancewithlegislativeandotherprotections;andreviewcurrently

availabledatasetstoensurelinksareactive.10

(d)StakeholdersandGovernance

(1)Identifythestakeholdersoftheopendataprogramme(thismaydifferbetweenArabcountriesdependingon

theirlocalpoliticalandsocioeconomiccontexts);

(2)Identifystakeholders'expectedroles.

Example:TheOpenDatoStrategyinIrelandincludesthefollowinglistofstakeholders:Politicalleadership,

publicsectororganizations,legislatures,businessesandstart-ups,civilsocietyandc計izens,informotion

professionalsandlibrarians,researchersandscientistsandmedia.Additionally,theroleofthelegislature,for

example,istodraftandenactanylegislationneededatanystageoftheODprogramme.

(e)Actions

Identifytheactionsthatneedtobetakentoachievethedefinedobjectives.Asawhole,theactions

shouldmovefromthecurrentsituationtotheaspiredone.

8See:h甘ps:〃.uk/dokiset/83215e9c-o55e-4fl5-810c-8d3b59bce6bc/data-for-london-a-city-data-strategy.

9See:https://www.edmonton.ca/city_government/documents/PDF/CityofEdmonton_OpenDataStrategy.pdf.

10See:.au/_data/assets/pdf_file/0030/436809/open-data-strategy.pdf.

Example:InLondon'sdatastrategy,oneactionstatesthatuwewillassess,planandbuildapan-LondonCentre

ofDataInnovation”.”

(f)MetricsforMeasuringProgress

Insomeorganizations,thesearecalledkeyperformanceindicators.WhatevertheGoldbookname,

theyshouldbecarefullyselectedandfrequentlymeasured(forinstance,quarterlyorannually).

Example:ThreekeymeasuresinLondon'sDataStrategyareinstitutionalcapability,socialcapabilityand

innovationcapability.*12

(g)ReleaseofOpenData

Atleastoneoftheobjectivesshoulddefinetheorganization'stargetforitsopendatainventoryand

catalogue.Thisshouldexplainthenumberoftargeteddatasetsandtheirdomainsor

departments/sections.

Example:IntheOpenDataPlanofNewYorkCity,adetailedlistofthedatasetsscheduledforreleasebetween

2015and2018wasidentified,withthenameoftheagencythatownseachdatasetamongotherdetails.13

(h)Principles

Principlesarethesetofcommitmentsthatguidetheoverallimplementationofthestrategy.This

sectionenablestheopendatateamtoemphasizethekeyprinciplesthatareessentialforpromoting

thecultureofopennessandparticipation.

(i]Otherelements

Thestrategydocumentmaycontainothersections,suchasbudgetestimatesandkeysuccess

factorsandthemesunderwhichtheobjectivesandactionsmaybegrouped.

"See:.uk/dataset/83215e9c-o55e-4fl5-810c-8d3b59bce6bc/data-for-london-a-city-data-strategy.

12See:.uk/dataset/83215e9c-a55e-4fl5-81Oc-8d3b59bce6bc/data-for-london-a-city-data-strategy.

13See:h甘ps:〃www1./assets/home/downloods/pdf/reports/2015/NYC-Open-Data-Plan-2015.pdf.

B.DevelopmentPhase

1.DevelopingtheOpenDataPolicy

Awell-writtenpolicyisanessentialcomponentforamatureandsustainableopendataprogramme.

Thepolicyshouldaddressbothinternalandexternalstakeholderswiththefollowingaims:

(a)Outlinethedetailsoftheorganization'scommitmenttopublishing,sharingandconsumingdata;

(b)Helpinternalstakeholders(suchasdataowners)identifyandprioritizereleasesofopendataaccordingto

astandardprocess;

(c)Helpexternalstakeholders(suchasdevelopers)understandhowtheorganizationwillbereleasingitsdata

andhowtheycanbeinvolved;

(d)Serveasacentralreferenceforallstakeholdersonhowthevariousopendataactivitiesshouldbecarried

outandhowthedifferentstakeholderscommunicateandcollaborate;

(e)Provideacommonunderstandingoftheessentialsofopendata(beginningwithdefinitions)sothatall

stakeholdershavethesameexpectationsoftheprogramme.

Similartothestrategy,theopendatapolicyshouldbedevelopedthroughanopenandengaging

process.

2.Opendatapolicyoutline

Opendatapolicyoutlinesandfullopendatapolicieshavebeencompiledinthefollowinglocations

intheArabregionandbeyond:

Jordan:TheOpenDataPolicyreleasedbytheMinistryofInformationandCommunications

Technology(nationallevel).

Qatar:TheOpenDataPolicyissuedbytheMinistryofTransportandCommunications(national

level).

UnitedStates:CityofSeattleOpenDataPolicy(citylevel).

Australia:TheTransportOpenDataPolicyreleasedbyTransportforNewSouthWales

(departmentlevel).

Thesamplescoverdifferentcountriesanddifferentlevels(national,cityanddepartmentlevels)to

demonstratehowsomeofthepolicyelementscanbeapproacheddifferentlyaccordingtothe

governancelevel.

(a)ContextandBackground

Atminimum,thecontextsectionshouldcoverthefollowing:

(1)Referencetothestrategyoranyotherprogrammethatledtothecreationofthepolicy;

(2)Referencetoanyotherlegislation,policiesorguidelinesrelevanttothispolicyorthepracticeofsharing

Governmentdata.

Example:InJordan,theopendatapolicyoftheMinistryofInformationandCommunicationsTechnologyrefersto

Jordan'sThirdNationalPlan2016-2018,undertheOpenGovernmentPartnership(OGP)Initiative,amongother

references.14

(b)BasicsofOpenData

Thissectionshould,atminimum,coverthedefinitionsofclosed,sharedandopendata.

Example:Qatar'sopendatapolicydedicatesasectiontodefinitionsandacronymscoveringopendata

concepts.Inaddition,thepolicyexplainsthe5-StarLinkedOpenDatamodel.'5

(c)PurposeandScope

Thissectionshouldinclude:

(1)Theobjectiveofthepolicy;

(2)DefinitionofthetargetGovernmentorganizationsandNGOsexpectedtoadheretothepolicy(forinstance,

allGovernmentdepartmentsinacity);

(3)Definitionofthetypesofdatatargetedbythepolicy(forinstance,allGovernmentdataownedbythese

organizations).

Examples:TheOpenDataPolicyoftheCityofSeattlestatesthatthepolicy“coversdatacreated,collectedand

maintainedbytheCityofSeattleorbycontractorsorthirdpartiesonbehalfoftheCityofSeattle1',16Another

exampleisAustralia'sTransportOpenDataPolicy,issuedbyTransportforNewSouthWales,whichidentified

fiveobjectivesforthepolicy,includingthesimplificationandfoci葉ationofthereleaseofappropriatedata.17

(d)PolicyProvisionsorDirectives

Thisisthecoreofthepolicyandshouldcovertheorganization'skeymessagesonhowtorunthe

opendataprogramme.Anygoodpolicyshouldcoverthefollowingelements:

Governance:Definesthevariousstakeholders,rolesandresponsibilitiesandtheinterrelations

betweenthem.

14See:.jo/OGD-Policy_en.pdf.

15See:.qa/en/documents/document/open-data-policy.

16See:/Documents/Departments/SeattleGovPortals/CityServices/OpenDataPolicyV1.pdf.

17See:.au/system/files/media/documents/2017/open-data-policy.pdf.

Example:InQatar,sincethescopeofthepolicyisnational,itrequireseveryGovernmentagencytoassign

responsibilitytoaseniorofficertooverseetheadministrationandimplementationofopendataactivitiesand

thevariousresponsibilitiesdetailedinthepolicy.Moreover,thepolicydetailstherolesandresponsibilitiesof

thecentralagency(whichistheMinistryofTransportandCommunications)andotheragenciesinaseparate

appendix.

Dataselectionandrelease:Specifiestheapproachforidentifyingandprioritizingdataforrelease,

inotherwords,howtheopendatainventoryandcataloguewillbecreatedandmaintained.

Datalicensing:Describesthelicenceunderwhichdatasetswillbepublished,inadditiontothe

processofclearingrightsduringdatacollection.

Example:TheopendatapoliciesofQatar,JordanandSeattlerequiretheuseofanopenlicenceanddefinethat

licence.However,theopendatapolicyofTransportforNewSouthWalesgoesastepfurtherandrecommends

CreativeCommonsasastandardlicencetobeused.

Privacyandsecurityconsiderations:Defineswhatisconsideredpersonaldatathatcanbeused

toidentifyanindividual,andthusshouldnotbeincludedinpublisheddatasets.Opendata

programmesintheArabStatesmustgivespecialattentiontothisissueconsideringthatmany

countriesstilllacklegislationregulatingtheissue.

Example:TheopendatapolicydevelopedbyTransportforNewSouthWalesreflectsthelegalframework

concerningprivacyanddatasecurity.Itrequirestheremovalofupersonaloridentifyinginformationfrom

datasetsinlinewiththeGovernmentInformationPublicAccessActthePrivacyandPersonalInformation

ProtectionAct1998(NSW)orotherapplicablelegislation".

Dataqualityandpublishingstandards:Specifiestherecommendedstandardformats,theuse

ofmetadataandotherstandards.

Examples:InJordan,thepolicyaddressestheissueatabroaderlevelundertheBOpenDataPrinciples”section

andrequirespublisherstocreatetheneededprocessestoensureadherencetothestatedgenera!principles.

ThepolicyinQatar,however,providesmoredetailedmeasuresandrequiresalldatasetstobepublishedinan

openformatlistingtheformatsthatareconsideredopen(CSV,Jason).Thepolicyalsodefinesmetadataand

requiresittobemaintained.

Reviewandmeasuringprogress:Identifiesthemetricsthatwillbeusedtomeasurethe

successfulimplementationofthepolicy;shouldbeaccompaniedbyacleartimelineandreview

process.

Example:TheopendatapolicyinQatarcontainsaclearlistoftargetsthatallGovernmentagenciesneedto

accomplishandacleartimeline(inmonths)foreachtarget.Onetarget,forexample,statesthateach

Governmentagencyisrequiredtodevelopitsownopendataplanwithinfivemonths.

Engagingdatausers:Theusersinthiscontextaretheexternalstakeholders(researchers,

developersandthegeneralpublic).Thisengagementimprovesthequalityofpublisheddata,helps

inguidingitsreleaseandensuresitseaseofuse.

Example:TheopendatapolicyoftheCityofSeattlecontainsasectionforstakeholderengagementwith

recommendationsonhowthisengagementshouldbecarriedout.

(e)OtherElements

Thepolicydocumentmayoffersomestandardmanagerialortechnicaltemplatesortools.

3.OpenDataTeam

Mostsuccessfulopendatainitiativeshaveasmallcentralteam,ataskforcethatleadsand

coordinatestheworkwithintheorganizationandalsoacrossotherinvolvedGovernment

organizationsandNGOsiftheprogrammeisatthecityornationallevels.Thetablebelowliststhe

recommendedjobtitlesandtheirresponsibilities.Whileviewingtherolessuggestedinthelist,the

followingshouldbetakenintoconsideration:

?Thelistisnotexhaustiveandmerelyprovidesastartingpoint;

?Thereisnofixedandone-to-onerelationshipbetweenrolesandteammembers;

?Certainrolesmaybemoresignificantandcrucialthanothersdependingontheneedsoftheorganizationand

thematurityoftheopendataprogramme;

?ThecentralteamisusuallyoverseenbyasteeringcommitteeoradvisoryboardwithintheGovernment.

Role/TitleSuggestedResponsibilities

ProgrammeSponsorSecurespoliticalandlegislativesupportandapprovalsasnecessary.

Leadstheentireprogrammewithitsvarioustracks,includingthedevelopmentof

ChiefDataOfficer

theopendatastrategy,policyanddataprioritizationandrelease.

?Inchargeoftheprocessofdraftingthesuitableopenlicense;

LegalAdvisor

?Leadsthedevelopmentofanynecessarylegislation.

?Sponsorsthedevelopmentoftheopendataportal;

Portal/ITManager

?Providesadviceandguidanceonagency-specifictechnologicalissues.

?Providesdetailedtechnicalknowledgeonopendata;

SubjectMatterExpert?Participatesinregularreviewactivitiestoensurethatdatasetsarepublished

andupdatedasrequired.

Role/TitleSuggestedResponsibilities

?LeadsthecommunicationworkoftheinitiativewithintheGovernment

includingbriefingpoliticalsponsorsandraisingexternalawareness;

?Leadscommunicationswithstakeholdersandpartnersoutsidethe

CoordinatorGovernment,includingtheciviccommunity;

?Managestheprocessandparticipationinactivities;

?Arrangessuitabletrainingandcapacity-buildingactivities;

?Actsastheprogramme'sfocalpointforpartnersandstakeholders.

Publishesdataonthedataportalasrequiredbytheapprovedprocessand

DataPublisher

qualitystandards.

Sources:/smarterwithgartner/understanding-the-chief-data-officer-role/;

/article/how-to-plan-and-budget-an-open-data-initiative/;and

.au/sites/default/files/Toolkit/Open-Data-Process-Guide.pdf.

4.Capacity-Building

Trainingandcapacity-buildingshouldcontinuethroughouttheentirelifespanoftheopendata

programme.Whilecertaininitialopendatatrainingandorientationactivitiesmaybecarriedout

duringthepreliminaryphase,itisimportanttodesignacomprehensiveandongoingtraining

programmefortheopendatateamandpublicservantstodrivetheinitiativeforwardandspreadan

opendataculture.

Theactualskillgapandtrainingneedsshouldbeidentifiedinthedatamaturityassessment

conductedinthepreliminaryphase.Nevertheless,examplesoftheskillsneededmayincludethe

following:18

?Basicconceptsandpracticesofopendata;

?Managementtheopendataportal;

?Publishingofdataandtheuseoftheportalsoftwarebyrelevantstaff;

?Fordatapublishers,findinghigh-valuedatasetsandprioritizingtheirrelease;

?Skillsrelatedtolegal,privacyandsecurityaspects;

?Skillsneededforsuccessfullyengagingwiththepublicandstakeholders.

Thetrainingprogrammemayincludestudyvisitstocountriesandorganizationswithadvancement

programmesandinitiativesintheopendatadomain.

See:/article/how-to-plan-and-budget-an-open-data-initiative/.

C.Roll-outPhase

Themainfocusduringthisphaseisonpublishingincreasingamountsofopendatasets.This

requiresimprovingtheinternalcapacityoftheopendatateamandtheorganization(s)involvedand

promotingtheuseofthepublisheddatabythepublicandthetargetusers.

Examplesofthekeyareasorganizationsmayneedtofocusonduringthisphaseincludethe

following:

(1)Processessurroundingtheprioritizationandreleaseofopendataneedtobeimprovedtocopewiththe

increaseinthenumberofpublisheddatasetsandtorespondproperlytotheneedsandexpectationsofdata

users;

(2)Theopendatateamwillneedtohandlesomedifficult(orprecedent-setting)casesofdatarelease,including

privacyandanonymization,amongotherissues;

(3)Theopendataportalmayneedtobeimprovedtoaddfeaturesthatwerenotavailableinitsinitialversion.

Thisdecisionshouldbetakeninthelightofthefeedbackfromtheopendatateamandusers;

(4)Developer-orientedeventssuchashackathonsmaybeheldtopromotetheuseofpublisheddatasets.

Hackathonsaredesignsprint-likeeventsthatgatherbothdatasuppliersandteamsofapplicationdevelopers

inordertogeneratenovelusesofdata;

(5)Datainnovationchallengesandcompetitionsoutsidethedevelopercommunitymaybecarriedoutaswell,to

promotetheinnovativeuseofdatabydifferentsegmentsofsociety.

D.StandardPracticePhase

Bythisphase,theopendataprogrammeshouldhavereachedastagewherethepublicationand

updateofdataarepartsofthenormalbusinessandstandardproceduresofGovernment

organizations.However,asmalleropendatateamorunitmaystillbeneededtoensurethatthe

policyandprocessesstayinsyncwithrequirementsandthattheopendataportalisworking

effectivelytomeetitsobjectives.19

Themainfocusshouldbeonensuringthelong-termsustainabilityoftheopendataprogramme,

andthisislikelytorequirethefollowingtasks:

(1)Frequentreviewandupdateoftheopendatastandardsandreferences(forinstance,thepolicy);

(2)Updateandmaintenanceoftheopendataportal;

(3)Continuedpublicationofdatasetsinalignmentwiththeprioritizationplansanduserneeds;

(4)Frequentandcontinuousevaluationoftheopendataprogrammetoassessthelevelofprogressachievedand

identifyareasforimprovement;

(5)MaintainingengagementwithdatausersinsideandoutsidetheGovernment.

Ibid.

2.MakingOpenDataInventories

andCatalogues

Thissectionaimstohelpopendatateamsbyprovidingguidelinesforcreatingopendata

inventoriesandcatalogues,whichisanessentialpracticeinanysuccessfulopendataprogramme.

Theterms“inventory