Abstract: This paper mainly discusses how governments make decisions by using reference groups in the development of open data, and makes clear the direction of the development of open data website influenced by peers. By revealing the complex dynamics of peer influence, research on the development of institutional environment and information system can be enriched, and references for the development of open data of Chinese government are also provided. Hypotheses are proposed based on prospect theory and institutional theory, and data collection and hypothesis verification are conducted based on previous research models. It is concluded that municipal governments tend to take the principle "doctrine of the mean" to direct the development of OGD platforms when facing the trait-based reference group, while it will take the radical route when facing the institution-based reference group. The two reference groups play different regulatory roles, prompting the government to dynamically adjust the development direction of OGD. However when open data has developed to a certain stage, the government should gradually abandon the golden mean, and focuses on improving the core capabilities of government data openness.

Key words: Public information system, Peer influence, Open government data, Reference group, Decision factor, Prospect theory, Institution theory