نوع مقاله : مقاله پژوهشی

نویسندگان

• راضیه مهرابی کوشکی
• محمد رضا حمیدی

استادیار مطالعات بین‌الملل علم و فناوری پژوهشکده مطالعات فناوری، تهران، ایران.

چکیده

امروزه ترکیب فناوری‌های نوظهور حوزه ICT و حکمرانی انواع و اشکال نوینی از دولت را ایجاد کرده که مهم‌ترین آن‌ها به لحاظ سطح توسعه و تحول «دولت الکترونیک»، «دولت تحولی»، «دولت چابک» و «حکمرانی باز» هستند. اهمیت تحول دیجیتالی دولت در دگرگون ساختن نقش‌ها و کارکردهای بنیادین دولت‌ها و ایجاد مزایا و ارزش‌آفرینی در اداره امور عمومی است. افزایش چابکی روندها، ارتقای شفافیت، افزایش نوآوری و کارآفرینی بخش خصوصی، تعامل دوسویه و مشارکتی شهروندان و حکومت، کاهش تصدی‌گری دولت، کاستن از هزینه‌های جاری و مدیریت مشارکتی بحران‌های اجتماعی، اقتصادی و فرهنگی در خلال این تحول نهادینه می‌شود. اما هم‌نشینی فناوری‌های جدید و حکمرانی معضلات و مسائل خود را دارد و دولت‌ها در کوتاه‌مدت و بلندمدت نیاز دارند با پیامدهای بالفعل و بالقوه این فناوری‌ها بر نحوه حکمرانی آشنا شده و هم‌زمان نظام مسائل آن‌ها بررسی و حل نمایند. در این پژوهش مسئله اصلی آن است که نظام مسائل تحول دیجیتالی دولت در ایران کدام است و چگونه می‌توان از معضلات موجود عبور نمود؟ در این راستا ضمن بررسی اشکال مختلف تحول دیجیتالی دولت و نظریات موجود؛ تلاش شد با استفاده از روش تحلیل سیستم‌های نرم و نظرات نخبگان کشور در خصوص، فضای مفهومی تحول دیجیتال و  نظام مسائل تحول دیجیتالی دولت در ایران احصا و شناسایی شود و راهکارهای عبور از معضلات موجود نیز تبیین گردد.  این روش تحلیل برای فهم پدیده‌های پیچیده و چندبعدی به کار می‌رود که تعارض منافع و تفاوت دیدگاه ذی‌نفعان در آن بسیار است. این روش کمک می‌کند پدیده تحول دیجیتال در موقعیت مسئله‌زای آن در ایران شناسایی و نظام مسائل و کاستی‌های آن برجسته و تغییرات موردنیاز احصا گردد. نتایج این مطالعه نشان می‌دهد به دلیل گستردگی حوزه اثر تحول دیجیتال در دولت، این پدیده نیازمند تنظیم‌گری فرا دستگاهی است تا ضمن قانون‌گذاری مناسب به روند اجرا و حل‌وفصل انبوه مسائل آن کمک شود. حرکت ایران از دولت الکترونیک به سطوح توسعه‌یافته حکمرانی دیجیتال در صورتی به دست خواهد آمد که تحول دیجیتال دولت و نظام مسائل این پدیده موردتوجه سطوح بالای حاکمیت و در اولویت قرار گیرد. 

کلیدواژه‌ها

• تحول دیجیتال
• دیجیتالی سازی
• نظام مسائل
• دولت چابک
• دولت الکترونیک
• حکمرانی باز
• دولت تحولی
• فناوری‌های نوظهور

موضوعات

• دولت

عنوان مقاله [English]

Analysis of the System of Problems in Digital Government Transformation in Iran Using the Soft Systems Methodology (SSM)

نویسندگان [English]

• Razieh Mehrabi Koushki
• Mohammadreza Hamidi

Assistant Professor, Department of International Studies of Science and Technology, Institute for Science and Technology Studies, Tehran, Iran.

چکیده [English]

Problem Statement & Background
With the advent of the digital era and the rapid advancement of ICT technologies such as cloud computing, artificial intelligence, blockchain, and IoT, the foundational structures and governance mechanisms of governments are undergoing profound transformation. This change, often encapsulated under the term "digital transformation of government," encompasses shifts not just in technology but also in institutional behavior, public service delivery, legal frameworks, and citizen expectations. The global move from e-government to more integrated models like agile government, transformational government, and open governance illustrates the growing complexity of digital-era governance.
Iran, like many other developing countries, faces multifaceted challenges in adapting to these paradigms. Issues such as political resistance, fragmented data governance, outdated legal frameworks, insufficient financial and technical resources, and a lack of coordinated planning hinder effective transformation. The central question this research addresses is: What are the systemic issues hindering digital government transformation in Iran, and how can these challenges be identified and addressed through structured methodologies?
Research Objective
The primary aim of the study is to investigate and articulate the system of problems ("Nizam-e-Masael") surrounding the digital transformation of government in Iran. Using a structured interpretive methodology—Soft Systems Methodology (SSM)—the research seeks to:

Identify key conceptual and operational barriers to digital transformation.
Capture perspectives of key stakeholders and experts within Iran’s digital ecosystem.
Develop conceptual models that reflect stakeholder understandings and identify actionable changes.
Suggest institutional, legal, managerial, and technological reforms necessary to achieve transformative digital governance.

 
Methodology
This study employs Soft Systems Methodology (SSM), a qualitative, interpretive method developed by Peter Checkland, suitable for analyzing complex, ill-structured, human-centered problems where multiple stakeholders and perspectives exist.
Key steps included:
- Unstructured Problem Exploration – through semi-structured interviews with 11 national experts from government, academia, private sector, and civil society.
- Stakeholder Identification – mapping all key actors, including executive bodies (ministries, councils), judiciary, parliament, private tech sector, and citizens.
- Root Definitions using CATWOE – structured definitions of the situation from multiple perspectives using the CATWOE tool (Customers, Actors, Transformation process, Worldview, Owners, Environmental constraints).
- Conceptual Model Building – building models to represent ideal systems based on each major stakeholder’s worldview.
- Real-World Comparison – comparing models with current practices to identify gaps.
- Feasible and Desirable Changes – suggesting policy and structural changes.
Findings
The study identifies that Iran’s digital transformation is constrained by challenges across four domains:

Political Challenges:


Resistance to structural change due to fear of transparency and loss of control.
Political factionalism causing instrumental use or obstruction of large-scale digital projects.
Data silos and institutional security-centric data ownership models obstructing integration.


Economic Challenges:


Severe underfunding and lack of financial prioritization due to broader fiscal crises.
Lack of digital infrastructure, such as cloud platforms and broadband access.
No coherent roadmap or leadership for multi-sectoral funding and execution.


Social Challenges:


Concerns about the societal effects of digital technologies (e.g., on family, youth).
Mixed perceptions of ICT’s impact, with some blaming digitalization for rising divorce or unemployment, while others cite benefits like transparency and remote work.


Legal and Regulatory Challenges:


Outdated laws incompatible with emerging technologies (e.g., AI, Metaverse).
Lack of enabling legislation for cross-agency digital integration.
No prioritization of digital transformation in high-level legislative or strategic documents.

SSM-Based Stakeholder Findings:

Executive Branch: Lacks coherent leadership and budget alignment. Coordination across ministries is absent or fragmented.
Judiciary: Digitization efforts are sporadic and lack systemic support or coordination.
Parliament: Limited awareness of digital transformation imperatives. Legislative inertia blocks innovation.
Supreme Cyberspace Council: Weak coordination authority; recommendations often lack enforcement power.

Conceptual Models: Each of these stakeholder groups had tailored conceptual models reflecting:

Key activities (e.g., legislation drafting, budget allocation, program implementation).
Ideal vs. actual performance assessments.
Interdependencies and feedback loops.

Identified Gaps:

Lack of central vision: No unified national transformation roadmap exists.
Ineffective coordination mechanisms: Overlapping mandates and institutional silos dominate.
No performance tracking: There are no KPIs, monitoring tools, or learning systems.

________________________________________
Conclusion and Recommendations
Digital transformation of government is not a choice but a necessity for countries facing socio-economic, demographic, and political pressures. Iran’s journey from basic e-government toward full digital governance is impeded by structural, political, economic, and cultural barriers. While technologies are available, their adoption is hindered by outdated processes, limited awareness, and fragmented leadership.
The study recommends:

National Strategy Formulation: Develop and ratify a high-level digital transformation policy endorsed by all three branches of power.
Legal Overhaul: Revisit all major legal codes (data privacy, cybersecurity, digital services) with digital transformation in mind.
Institutional Reform: Designate a lead digital transformation agency with executive authority.
Capacity Building: Train government staff and lawmakers in digital governance principles.
Public Participation and Transparency: Establish feedback mechanisms to involve citizens and civil society in shaping digital policies.
Performance Measurement: Develop a national digital governance index and integrate it into annual government performance reports.

کلیدواژه‌ها [English]

• Digital transformation
• Emerging technologies
• Digitization
• E-government
• T-government
• O-government