This paper analyzes the concept, characteristics and functions of public service-oriented government, and puts forward the principles and directions of building public service-oriented government in China. Keywords: public service; Function; Establishment direction 1. Definition and characteristics of the concept of public service-oriented government Public service-oriented government refers to providing public products and services according to the wishes and preferences of the public, positioning government functions according to the needs of citizens and society, and building a legal, effective, transparent, responsible and just government. Its fundamental goal is public satisfaction. Therefore, the public service-oriented government neither simply emphasizes the change of service attitude, that is, the so-called "smiling service", nor simply transforms the government's function into providing public services, but emphasizes that the provision of public services is provided in accordance with the wishes of citizens, and the fundamental goal pursued is citizen satisfaction. Generally speaking, efficiency, justice, responsibility, standardization, transparency and legality are undoubtedly the characteristics of modern government, and they are also the values and goals that any government seeking legitimacy in modern society must advocate. However, the most essential feature of modern government lies in the basic setting of its role, that is, providing public products and services according to the public's wishes and preferences and responding to the public's demands. This is also the basic point that service-oriented government is different from transparent government, responsible government, effective government and other types of government. Second, the main functions of the public service-oriented government As a public service-oriented government, it should have the following main functions: providing institutional supply services. As a representative of order, the government must provide people and society with the institutional supply of social order, that is, it must formulate an authoritative institutional framework or model for the society that everyone must abide by. There are many contents of institutional supply. Such as legal system, political system, property right system, financial system, market economy system, social security system and so on. The best and greatest service of a service-oriented government is a good institutional supply. Provide good public policy services. Service-oriented government should formulate public policies from the perspective of publicity, and formulate policies to solve the problems of stable social development and sustainable economic development. Such as environmental protection, social security, compulsory education policy, financial policy and fiscal policy. After the establishment of the basic system, the main service of the government is to provide good public policy services. Provide public goods. Theoretically speaking, the non-competitive and non-exclusive characteristics of public goods determine that they cannot be solved by the market and can only be provided by the government. The provision of public goods can be provided by social organizations with the support of the government as much as possible according to actual needs, but the government should do a good job in organization. Provide public services. Public service is the general name of the labor behavior of government agencies and their staff in meeting social needs and providing public products. In fact, it is to solve the problem of how the government provides institutional supply, how to adopt and formulate public policies, and how to provide public products. Service-oriented government requires government agencies and their staff to provide enthusiastic, fast and thoughtful services to clients in terms of service procedures, service attitudes and service efficiency under the guidance of service administration concept, rather than indifferent bureaucrats. Third, the basic principles of building a public service-oriented government: building a public service-oriented government should follow the principle of decentralization. First of all, the rational decentralization of government, market and the third sector makes the rights scientifically located and accurately returned; Secondly, decentralize power, scientifically decompose functions, and expand the autonomy of local governments, markets and the third sector; Third, through system and institutional innovation, the public can truly enjoy the right to participate in and manage political, economic and social affairs. Principle of rule of law: public service-oriented government is a government ruled by law and an orderly government. The government should administer according to law, whether it is the policy, means or procedure of service, it should be ruled by law. The principle of rule of law requires the government to establish and improve the administrative procedural law and administrative substantive law suitable for modern service administration, and reconstruct and standardize the administrative examination and approval system according to law. Principle of responsibility: service is to fulfill responsibility. The principle of responsibility requires the government to establish a complete and binding service administrative responsibility system, so that the public can effectively supervise the government and truly implement democratic administration and responsible administration. The service administrative responsibility system should be composed of economic, political, legal and moral responsibility systems. Efficiency principle: Efficiency is the unity of efficiency, achievement and function, and maximizing efficiency is the essential requirement and ultimate goal of modern management. Scientific Outlook on Development pays more attention to the government's service function. Therefore, the public service-oriented government should not only pursue quantifiable service results, but also pursue service functions that can make economy, society and nature develop in a sustainable and harmonious way. Principle of competition: The public service-oriented government is based on the modern market economy system, and the competitive government is mainly reflected in two aspects: on the one hand, it is manifested in the competitive relationship between the government and the market and the public, demanding that the power be returned to the market and the public, while benefiting the people; On the other hand, it is manifested in the competitive relationship between regional governments, which requires the introduction of enterprise management concepts to serve, promote and participate in competition, and the government can better perform its public service functions through competition. Fourth, the direction of building a public service-oriented government According to the orientation of government service functions, the following points must be achieved in building a public service-oriented government model: (1) Customer orientation of public service functions According to the new public management theory, the social responsibility of the government is to provide services to customers according to their needs. In the management of the new public, the government is no longer a closed bureaucrat above the society, but a responsible "entrepreneur", and citizens are "customers" or "customers". Entrepreneurial government should be a government that can provide high service efficiency. In order to achieve this goal, government services should be customer-oriented or market-oriented. Only a customer-driven government can provide diversified social needs and promote the improvement of government service quality. Under the traditional government public service system, the government often replaces public will with administrative plan, replaces public participation with elite design, ignores public needs and preferences, and the public's influence is limited, which directly leads to the confusion of most public organizations about who their customers or clients are, and the service level is poor. Customer-oriented or market-oriented service is the thinking choice of the transformation of public service provision from government-oriented and official-oriented to social-oriented and people-oriented, and it is also the embodiment of the correct relationship between government and society. The main ways are as follows: First, expand public participation in government decision-making. The government should listen to public opinions in advance, take public will as the first value orientation, and establish channels, rules and procedures for understanding public opinion and public participation in decision-making; Second, how should the government's public service be based on social evaluation and the evaluation of service targets, and increase the role of public opinions in evaluation. (2) Marketization of public service functions improves the efficiency of government services by introducing market competition, which is the general trend of the transformation of modern government service mode and also meets the requirements of market economy development. Experience at home and abroad shows that the production and provision of public services are separable; In terms of payment and use, the non-competitiveness and non-exclusiveness of public goods and services does not mean that they can only be provided directly by the government. By redesigning the division of labor between the government and market players and applying the principle of "whoever benefits pays", it can be provided fairly and efficiently. Therefore, we should expand the field of market competition. Here, competition can be divided into at least three categories: first, public-private competition, that is, allowing both public and private organizations to provide public services, thus promoting their competition; The second is private-to-private competition, that is, the government requires private enterprises to compete with each other to provide some public services; The third is public-to-public competition, that is, the government promotes competition among its internal organizations to achieve good service results. The scope of marketization of public service functions includes the following aspects: First, in the field of public works construction, all operating or competitive projects should create a market competition mechanism through public bidding, internal competition and contract outsourcing. And it cannot be assumed in advance that the public sector must be better than the private sector, or that the private sector must be better than the public sector. The key is to have a fair and standardized competition mechanism. Second, in addition to compulsory education, basic scientific research, social security, public safety and other basic public services that must be provided by the government, we should also create a competitive environment in the fields of public services such as education, health and sports, and use the pressure generated by the competitive mechanism to urge service providers to continuously improve their service quality. (III) Socialization of public service functions Socialization of public service functions mainly refers to transferring a large number of public service functions originally undertaken by the government to non-governmental organizations and the private sector, that is, from providing public services and public products entirely by government departments or state-owned enterprises to providing public services by social autonomous and semi-autonomous organizations and private enterprises using social forces. Some organizations, such as private sector, independent institutions, social autonomous and semi-autonomous organizations, will become providers of public goods and services and compete to provide the same public goods and services. The government realizes the socialization of public management and services through the organization, utilization and management of social forces. Socialization of public service function is a customer-centered management model (customer-oriented). The provision of public services is no longer borne by the government alone, and the government is no longer the only institution that manages public affairs. Many non-governmental organizations have joined the ranks of providing public service products, and the government can be partially or even completely freed from daily affairs and concentrate on policy formulation and implementation. For the object of public service, the socialization of public service function means giving the public the right to choose the content, method and evaluation of public service, which will force the supply subject of public service to take the public as customers and establish customer awareness. When the service is not accepted by customers, they will lose market share. (IV) Structural Adjustment of the Public Finance System The so-called public finance is a government distribution behavior that provides public goods and services to the society, and a financial management system that is compatible with the market economy system. Mainly focus on meeting social needs and making up for the defects of "market failure". From the perspective of public expenditure, government public services can be divided into two parts: economic public services and social public services. Economic public services are all kinds of investments directly made by the government to promote economic development; Social public service means that the government supports social development projects such as education, science and technology, social security, public medical care and environmental protection through transfer payments and financial means. To build a service-oriented government model, we should gradually increase the proportion of social expenditure in the public expenditure structure and constantly improve the status and role of social public services. Judging from the current situation in China, on the one hand, it is necessary to establish a public income system and gradually increase the total public income of the whole society; On the other hand, establish and improve the public * * * financial system, adjust and optimize the government's public * * * service structure, increase the government's public * * * service expenditure, focus on increasing the social public * * * service expenditure, and gradually realize the transformation from the production investment public * * * financial system to the public * * * service-oriented public * * * financial system. Adhere to the principle of "people-oriented", generally improve the social security level of all people, especially low-income groups, and shift the focus of fiscal expenditure to public education, social security, public health, public safety and public infrastructure, so as to provide a good social and economic environment for the development of the whole macro economy. (V) Establishment and optimization of public security mechanism Public security refers to a social system in which the state and society provide certain material help and welfare services to members of society in order to safeguard their basic right to subsistence, safeguard and promote social stability and economic development when they are faced with various living conditions such as birth, old age, illness, death, injury and hardship. Its essence is the redistribution of social wealth in time and space, which has obvious national, compulsory, redistributive and basic security. Its purpose is to create conditions for reform, development and stability. To build a public service-oriented government, it is necessary to establish and optimize the public security mechanism and change the government-led economic development model into the government-assisted economic development model. In the modern sense, the government should play the role of object in market activities, provide service guarantee for micro-market subjects and create a good development environment. It is the law that the government object serves and obeys the market subject. In the past, our government devoted a lot of energy to regional economic development, which often determined the rise and fall of some micro-market players and held the power. However, the public service-oriented government model requires the government to provide more services, correct the dislocation of subject and object, and ensure the spontaneous operation of the market mechanism. (VI) Construction of emergency mechanism for public emergencies There are many kinds and wide ranges of public emergencies in the world today. From public health and cyber attacks to terrorist attacks, from traffic safety to production accidents, public health, financial, political and economic emergencies affecting personal safety, food safety, ecological safety, environmental safety, national security and social stability occur from time to time, with heavy losses and great influence. The construction of government emergency capacity is not a matter of a specific department, nor is it a simple investment problem, but a system composed of government emergency functions, emergency systems and emergency inputs. Its basic overall order should be "determining the scope of emergency functions, forming the framework of emergency systems, and arranging emergency input resources". Only in this way can we maximize the overall emergency response capability. The definition of government emergency function includes three aspects: first, the division and main contents of crisis management should be accurate; Second, the functions of the central government, local governments and various departments in the system should be relatively independent, trust each other and coordinate with each other; Third, the basic resource reserve of service function should be matched with the construction of information system. (VII) Updating administrative culture Administrative culture is the soul of administrative management. At this stage, it is mainly to carry out in-depth research on the execution culture among governments at all levels and civil servants, vigorously promote the construction of government execution culture, strengthen the consciousness of execution, improve the execution mode and increase the execution intensity. We should boldly learn from the successful experience of enterprise management and the private sector, creatively use the thinking mode of entrepreneurs and the management concept of excellent enterprises, firmly establish the concept of "management is service", replace the traditional idea of "official standard" with the spirit of "entrepreneurial government", increase the initiative and timeliness of the government to serve the society and enterprises, and take customer satisfaction and the best performance as the standard to measure our work. At the same time, strengthen the efficiency concept of public management departments, introduce cost-benefit analysis, control administrative costs and improve administrative efficiency. (VIII) Improving the Quality of Civil Servants Civil servants are the personnel carriers of public service-oriented government, and their quality largely determines the ability, scope and quality of the government to provide public services. In the construction of civil servants, we should pay attention to the combination of comprehensiveness and professionalism, and change the past single talent knowledge structure and ability structure; Deepen the reform of civil servant training and teaching, so that government workers can not only master the latest government governance concepts and development trends, but also be familiar with modern administrative technologies and methods, comprehensively improve civil servants' service awareness, innovative ideas and execution ability, and establish a learning-oriented high-quality civil servant team.