欧盟的规则,全球的标准?数据跨境流动监管的“逐顶竞争”

EU Rules,Global Standards?The"Race to the Top"in the Regulation of Cross-border Data Flows

欧盟的数据政策,对内始终服务于以公平贸易与基本权利为代表的欧盟共同价值观,对外则具有明确的法律输出动机,从附带性输出发展为战略性输出,意在成为全球数据规则和标准的制定者。欧盟数据跨境流动监管表现为两类法律输出途径,一是数据规则的显性输出,以充分性认定和标准合同条款为典型,二是数据标准的隐性输出,以欧洲法院司法审查为代表。欧盟数据监管模式的全球输出是数据监管全球趋同的范例,对此,传统法律移植、私人法律移植、规范性力量和布鲁塞尔效应可以提供多元理论解释。欧盟模式的全球化表明,数据规则和标准越严格,法律趋同越容易实现,现阶段数据跨境流动的全球监管也确实呈现“逐顶竞争”趋势。但在全球价值链下,特定数据监管模式的全球扩张暗含价值提取逻辑,欠发达国家恐面临“数据殖民”风险,强监管的局限性和破坏性尚未被充分识别。市场才是全球数据监管竞争的底层逻辑,我国应对数据市场松化监管,坚持自由市场和合同自由原则,为数字产品和服务的典型合同设置任意性规范,为数字产品和服务提供替代市场。

The EU’s data policy has always served the EU’s common values of fair trade and fundamental rights internally,and has a clear legal export motive externally,evolving from incidental export to strategic export,with the intention of becoming a global data rule and standard setter.The EU’s regulation of cross-border data flows is characterized by two types of legal export:the explicit export of data rules,typified by adequacy decisions and standard contractual clauses,and the implicit export of data standards,represented by judicial review by the CJEU.The global export of the EU data regulation model is an example of global convergence in data regulation,for which traditional legal transplants,private legal transplant,normative power and the Brussels effect can provide multiple theoretical explanations.The globalization of the EU model shows that the stricter the data rules and standards,the easier it is to achieve legal convergence.It is also true that the current global regulation of cross-border data flows does show a trend of“race to the top”.However,in the context of global value chains,the global expansion of specific data regulation model implies a logic of value extraction,with less developed countries at risk of“data colonization”and the limitations and disruptive effects of strong regulation not yet fully identified.The market is the underlying logic of global data regulatory competition.China should loosen regulation of the data market,adhere to the principles of free markets and freedom of contract,set default rules for typical contracts for digital products and services,and provide alternative markets for digital products and services.