全球治理中的跨境数据流动规制与中国参与——基于WTO、CPTPP和RCEP的比较分析

On the Regulations of Cross-border Data Flows in Global Governance and China’s Participation:A Comparative Analysis Based on WTO,CPTPP and RCEP

世界各国在跨境数据流动方面制定的不同规制造成了数据流动壁垒,但数据流动的全球性、数据要素市场的依赖性以及数字经济的整体性均呼唤国际社会对跨境数据流动进行全球治理。鉴于充分的国际法治供给是跨境数据流动全球治理的基础,我们应当构建以"善治"为宗旨、以"规则导向"为目标、以"共商共建共享"原则为归宿的跨境数据流动规制三维框架,借此阐释跨境数据流动全球治理的应然状态。当前,国际法治供给不足与需求旺盛之间的结构性失衡是造成跨境数据流动国际法治贫困的主要原因,虽然WTO、CPTPP和RCEP等多边和区域机制对规制跨境数据流动均作出了不同程度的制度回应,但仍存在多边规制发展滞后、区域规制碎片化以及共识性合作缺乏的治理困境。本文认为,在三维框架的指引下,跨境数据流动全球治理应坚持从区域规制向多边规制的形式转型、从"软法"向"硬法"的性质转变,并且一定要明确宽泛灵活性规则的明晰适用机制。中国在参与跨境数据流动全球治理时,应将国内规则外化的接轨性法治建设与国际规则内化的对接性法治发展相结合,以不断提升中国在全球数据治理领域的制度性话语权主张能力和国际公共产品的供给能力。

Disorderly and unsystematic regulations on cross-border data flows around the world create barriers to data flows.However,the global nature of data flow,the dependency of the essential elements of data market and the integrity of digital economy all call for global governance of cross-border data flows.Given that the sufficient supply of international rule of law provide the basis for global governance of cross-border data flows,we suggest to construct a three-dimensional framework for regulations of cross-border data flows which is associated not only with the purposes of“good governance”and“rule-oriented governance,”but also with the value of“extensive consultation,joint contribution and shared benefits”.At present,the structural imbalance between the insufficient supply of international law and the strong demand of international law turns up to be a exposure of the deficit of international law of cross-border data flows.Although multilateral and regional mechanisms such as WTO,CPTPP and RCEP have made institutional responses to the global governance of cross-border data flows to varying degrees,however,there are still some governance dilemmas such as lagging development of multilateral regulation,fragmentation of regional regulation and lack of consensus cooperation.This paper argues that the global governance of cross-border data flows should adhere to the transformation from regional regulation to multilateral regulation,from“soft law”to“hard law”,and clarify the clear application mechanisms of broad and flexible rules under the guidance of the three-dimensional framework.China,when participating in the global governance of cross-border data flows,should combine the externalization of domestic rules with the internalization of international rules,so as to strengthen China’s institutional discourse power and its ability to supply international public goods in global data governance.