粤港澳大湾区跨境数据流动治理范式的挑战与进路

Challenges and Progressions in the Governance Paradigm of Cross-Border Data Flows in the Guangdong-Hong Kong-Macao Greater Bay Area

党的二十大报告明确提出“加快发展数字经济”。数字经济的蓬勃发展以及数字治理的不断勃兴,将进一步加速全球范围的信息化浪潮。数字治理的核心特征是全方位的数据互通和协同,特别是数字化的流程重塑,在治理机制上实现数据支撑的决策、管理和创新。在此进程中,数据自然产生了存储等静态问题;与此同时,也会相应产生数据使用、保护和流动等动态问题,而数据的动态变化如果涉及跨境难题,将会进一步增加治理难度。近年来,二战后兴起的经济全球化和多边主义正在遭遇前所未有的质疑和挑战,贸易保护主义、民粹主义思潮不断上升,传统国际经济、社会、安全形势都在不断受到新的挑战,数字化驱动的新一轮全球化正在推动全球治理数字化变革。数字治理已经从过去区域性的治理模式逐步向更为广泛的全球治理工具演进。跨境数据流动中涉及信息保护、数据安全等问题的法律规制是全球共识,既是域内治理问题,也是国际法律问题。而我国基于当前国内外形势的动力和压力,开始积极探索一条数字治理的法治路径,并充分考量到数据跨境流动及数字治理全球性问题的法律规制。粤港澳大湾区具有“一国两制三法域”的特殊性,其数据跨境流动性受多重因素影响,对内要实现区内要素流动,对外要实现与全球要素市场和规则体系对接,必须探索一条推动区内数据跨境流通的有效路径。国际社会对此已有一些较好的实践:联合国倡导更加开放包容的全球数字体系,美国构建的有条件的自由流动模式,欧盟采用区内外区分的跨境数据治理机制等,均可为粤港澳大湾区数据跨境流动提供有益经验。然而,粤港澳大湾区跨境数据流动仍然面临若干困境与障碍。下一步,应借鉴先进经验,统筹域内、涉外两重治理机制,以多元路径完善粤港澳大湾区跨境数据流动机制。

The new trend of digitally driven globalization is driving the digital change of global governance. Digital governance has gradually evolved from a regional governance model in the past to a broader global governance tool. The legal regulation of cross-border digital flows involving information protection, data security and other issues is a global consensus, and is both a domain governance and an international legal issue. Based on the momentum and pressure of the current domestic and international situation, China has begun to actively explore a rule of law path for digital governance, taking into full consideration the cross-border flow of data and the legal regulation of global issues of digital governance.The Guangdong-Hong Kong-Macao Greater Bay Area(GBA) has the special characteristics of “one country,two systems and three jurisdictions”, and its cross-border data mobility is affected by multiple factors. The international community has some good practices in this regard: the United Nations advocates a more open and inclusive global digital system;the conditional free flow model built by the United States;the EU adopts a cross-border data governance mechanism that distinguishes between inside and outside the region, etc.,which provides useful experience for the cross-border data flow in the GBA. However, cross-border data flow in the GBA still faces several dilemmas and obstacles. In the next step, we should learn from advanced experiences, integrate the two governance mechanisms, and improve the mechanism of cross-border data flow in the GBA with multiple paths.