公共数据流通的理论基础与制度进路——以行政权运行为视角

Theoretical basis and institutional approach of public data circulation in digital legal government:From the view of executive power operation

公共数据流通是满足社会公众多元化需求、促进公共数据利用、发挥公共数据价值的重要方式。公共数据概念内涵不一、外延不清,这在一定程度上造成公共数据流通不畅,同时也形成公共数据流通制度建构的桎梏。在厘清各地立法机关与学术界对公共数据概念不同界定的基础上,以行政权力运行为视角,可以将公共数据概念解构为三层逻辑结构:第一层是行政机关、具有公共事务管理职能的机构在履行公共管理职能过程中收集、产生的公共数据;第二层是与行政机关、具有公共事务管理职能的机构产生行政委托关系或行政合同关系的社会企业以及承担社会公共职能的社会组织收集、产生的公共数据;第三层是社会企业等产生、收集的以及由个人数据主体产生的公共数据。以公共数据概念三层逻辑结构为基础,通过行政权运行视角,可以分析各公共数据主体在三层结构中的定位,并描绘在公共数据三层结构中的行政权运行脉络。通过“政-政”数据共享、“政-企”数据开放、“企-政”数据汇集、“企-企”数据互通的公共数据流通模式,立足于我国公共数据流通现状,有利于建构横向与纵向上的“跨地区、跨机构、跨层级”公共数据共享、共用制度,建构分级分类的公共数据开放与管理制度以及公共数据行政许可交易模式。

Public data circulation is an important way to meet the diverse needs of the public,promote the use of public data,and leverage the value of public data.Inconsistent regulations and unclear extension on the concept of public data have resulted in the poor circulation of public data to a certain extent,and have also formed the shackles of the construction of the public data circulation system.Based on clarifying the different definitions of the concept of public data by local legislatures and academia,the concept of public data can be deconstructed into a three-tier logical structure from the perspective of administrative power operation.The first tier is public data collected and generated by administrative agencies and institutions with public affairs management functions in the process of performing public management functions.The second tier is the public data collected and generated by social enterprises and social organizations that have administrative delegation and administrative contract relationships with administrative agencies and institutions with public affairs management functions,as well as social organizations that undertake social public functions.The third tier is public data generated and collected by social enterprises and individuals.Based on the three-tier logical structure of the concept of public data,the positioning of each public data subject in the three-tier structure is analyzed from the perspective of administrative power operation,and the administrative power operation context in the three-tier structure of public data is depicted.Based on the current situation of public data circulation in China,through the public data circulation model of“government-government”data sharing,“government-enterprise”data opening,“enterprise-government”data collection,and“enterprise-enterprise”data interoperability,it is proposed to build a horizontal and vertical“cross-regional,cross-institution,and cross-level”public data sharing system,a hierarchical and classified public data opening and management system,and a public data administrative licensing trading model.