摘要
公共数据概念呈扩张性演进的趋势,并可被类型化区分为公共管理数据和公共服务数据。由公共数据之“公共性”使然,各国立法政策均对公共数据开发利用有所规定,这也就对公共数据的权属配置提出一定要求。公共数据在主体身份、处理目的、权利基础和行权方式等方面均与企业数据存在较大差异,企业数据的产权结构性分置规则不能完全与之适配。公共数据权属配置的再结构化强调,应区分公共管理数据和公共服务数据设置差异化的产权结构性分置规则。具体而言,公共管理数据上存在三元权利结构,并可细化为国家的数据管理权、原始收集者的数据持有权和定限使用权、运营机构的数据经营权。公共服务数据上的产权结构与企业数据类似,提供公共服务的组织对数据同时享有持有权、使用权和经营权。数据的公共性越高,其开放共享的法定义务越强,经营权的受限程度越深。
Public data has not been explicitly defined in the existing laws and policies in China.But data produced by Party and government agencies,enterprises,and public institutions in the process of performing their public duties according to law or providing public services is defined as important strategic resources of the state.In practice,there are two ways to identify public data:the normative way of"public subject+public behavior"and the functional way of public interests.Public data is showing a trend towards expansive evolution and can be divided into public management data and public service data.The former refers to data generated by Party and government agencies and organizations empowered by laws and regulations to administer public affairs in the process of performing their statutory duties or providing public services,which has a strong public attribute.The latter refers to data generated by public service institutions(including non-profit organizations as well as enterprises)in the process of providing such public services as medical care,transportation,and energy supply.Public data differs significantly from enterprise data in terms of the subject's identity,the processing purpose,the rights basis,and the way of exercising rights.The rules of structural separation of data property rights for enterprise data cannot be directly implemented for public data.A reasonable approach to preventing public departments from"eroding"the rights of data subjects is to replace the state ownership of public data with the state right to manage public data on the basis of public contract theory.The emphasis of restructuring of public data property rights is to set different structural separation rules for public management data and public service data.Public management data has a ternary rights structure.Specifically,the state holds the management right of supply decision,organization and coordination;the agencies directly processing the data possess the rights to hold and use the data for statutory purposes;and the operating institutions have the right to operate data for profits.The management right also implies the obligation of data protection and the responsibility for data management.The property rights structure of public service data is similar to that of enterprise data,and an organization providing public service has the right to hold,use,and operate the data simultaneously.Specifically,data processed by administrative agencies and organizations empowered by laws and regulations to administer public affairs has the strongest public attributes and the processors of such data have a higher obligation to share and open the data.Data collected by public service enterprises is usually processed based on a market monopoly position.Because of the public attribute of the data,the enterprises cannot exclusively"hoard"the data,but have obligations to license others to use and operate the data.With the decrease of the public nature of data subjects,the scope of rights to use the data and the degree of the freedom to operate the data increase accordingly.
出处
《环球法律评论》
北大核心
2025年第1期105-120,共16页
Global Law Review
基金
2023年度国家社会科学基金青年项目“数据分类确权规则研究”(23CFX036)的研究成果。
