近几年提高在线公共服务水平逐渐成为各国政府门户网站建设的重点，中国政府也为此做出了积极的探索。在中国政府积极地推动与明确的政策引导下，政府门户网站作为在线公共服务提供的主要平台，逐步构建成为具有“省部、市、区县”纵向空间结构和“政府信息公开、在线服务、互动交流”横向功能划分的一套成熟而复杂的体系。当然，伴随着政府门户网站的普及，中国政府门户网站的体系构建中也存在着不均衡现象，特别是在区县级政府门户网站尤为突出。通过对山东省139区县门户网站的调查发现，区县级政府门户网站在线公共服务的优先级缺失具体表现：一方面，不同区县间门户网站雷同、缺乏针对本区县实际需求的在线公共服务优先级设计；另一方面，各个区县门户网站公共服务建设往往追求“大而全”，缺乏根据优先级设计的资源配置的轻重缓急，导致各项服务水平相当，服务深度不足。本文针对上述现实问题，借鉴已有的理论成果，构建了优先级设定应该依循的分析框架，即“‘公民采纳’与‘政府信息能力’双因素”分析框架。其中公民采纳影响因素包括对政府的信任、感知有用性、感知易用性、对互联网的信任；职能部门的政府信息能力构成包括及时准确把握用户需求的能力、准确定位服务成熟度的能力、信息技术的应用能力、部门的系统整合能力。本文最后给出了设定优先级的实施方案建议。首先，设定主体方面，以“政府办公厅”主导的多主体共同设定优先级。其次，设定理念方面，主观评议与多指标评价相结合的设定方法。最后，设定流程方面，按照信息流的观点可以将其分为三个阶段，即信息收集、加工处理——评估用户的公民采纳与各部门的政府信息能力；信息转化——利用分析框架得出优先级设定方案；信息反馈——在线公共服务优先级反作用于公民采纳。

In recent years, improving the level of online public services of the government portal website has been the focus concerned by the governments of many countries including China. The Chinese government has taken positive measures to establish an integrated portal website system which can serve various levels of the government by the publication of government information, the online service and interaction. The popularity of portal website rose gradually from provincial government to county government. However, many government portal websites perform poorly in terms of online public service priority, especially the county government portal. This paper surveyed 139 portal websites of the county governments in Shandong province to outline the issues in online public service priority. For one hand, many portal websites of the county governments provide seriously homogeneous services, which ignore the local actual needs. For the other hand, they put so much effort to build a “large and complete” portal that they do not allocate the service resources according to the priorities. This paper built a priority analytical framework for portal websites of the county governments, which based on two dimensions including citizen adoption and government's information ability. The citizen adoption part contains the citizen’s trust to the government and internet, perceived ease of use and perceived ease usefulness. The government's information ability part contains the abilities to grasp the user needs timely and accurately, to apply information technology and to make system department integration. This paper also put forward some implement proposals to establish service priorities for the county government portal. Firstly, they should establish priorities oriented by the Government Office. Secondly, they should adopt an integrated method including both subjective evaluation and objective evaluation. Finally, they should define the service procedure according to the information flow which can be divided into three parts: information collection, information transformation and information feedback.